Part III
Key Policy
Documents
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The
Future Tasks of the Alliance
("The Harmel Report")
Brussels, 13-14 December 1967
Report
of the Council
- A year ago, on the initiative of the Foreign Minister of Belgium,
the governments of the fifteen nations of the Alliance resolved to "study
the future tasks which face the Alliance, and its procedures for fulfilling
them in order to strengthen the Alliance as a factor for durable peace''.
The present report sets forth the general tenor and main principles
emerging from this examination of the future tasks of the Alliance.
- Studies were undertaken by Messrs. Schutz, Watson, Spaak, Kohler
and Patijn. The Council wishes to express its appreciation and thanks
to these eminent personalities for their efforts and for the analyses
they produced.
- The exercise has shown that the Alliance is a dynamic and vigorous
organisation which is constantly adapting itself to changing conditions.
It also has shown that its future tasks can be handled within the terms
of the Treaty by building on the methods and procedures which have proved
their value over many years.
- Since the North Atlantic Treaty was signed in 1949 the international
situation has changed significantly and the political tasks of the Alliance
have assumed a new dimension. Amongst other developments, the Alliance
has played a major part in stopping Communist expansion in Europe; the
USSR has become one of the two world super powers but the Communist
world is no longer monolithic; the Soviet doctrine of "peaceful
co-existence'' has changed the nature of the confrontation with the
West but not the basic problems. Although the disparity between the
power of the United States and that of the European states remains,
Europe has recovered and is on its way towards unity. The process of
decolonisation has transformed European relations with the rest of the
world; at the same time, major problems have arisen in the relations
between developed and developing countries.
- The Atlantic Alliance has two main functions. Its first function
is to maintain adequate military strength and political solidarity to
deter aggression and other forms of pressure and to defend the territory
of member countries if aggression should occur. Since its inception,
the Alliance has successfully fulfilled this task. But the possibility
of a crisis cannot be excluded as long as the central political issues
in Europe, first and foremost the German question, remain unsolved.
Moreover, the situation of instability and uncertainty still precludes
a balanced reduction of military forces. Under these conditions, the
Allies will maintain as necessary, a suitable military capability to
assure the balance of forces, thereby creating a climate of stability,
security and confidence.
In this climate the Alliance can carry out its second function, to pursue
the search for progress towards a more stable relationship in which
the underlying political issues can be solved.
Military security and a policy of détente are not contradictory
but complementary. Collective defence is a stabilising factor in world
politics. It is the necessary condition for effective policies directed
towards a greater relaxation of tensions. The way to peace and stability
in Europe rests in particular on the use of the Alliance constructively
in the interest of détente. The participation of the USSR and
the USA will be necessary to achieve a settlement of the political problems
in Europe.
- From the beginning the Atlantic Alliance has been a cooperative grouping
of states sharing the same ideals and with a high degree of common interest.
Their cohesion and solidarity provide an element of stability within
the Atlantic area.
- As sovereign states the Allies are not obliged to subordinate their
policies to collective decision. The Alliance affords an effective forum
and clearing house for the exchange of information and views; thus,
each of the Allies can decide its policy in the light of close knowledge
of the problems and objectives of the others. To this end the practice
of frank and timely consultations needs to be deepened and improved.
Each Ally should play its full part in promoting an improvement in relations
with the Soviet Union and the countries of Eastern Europe, bearing in
mind that the pursuit of détente must not be allowed to split
the Alliance. The chances of success will clearly be greatest if the
Allies remain on parallel courses, especially in matters of close concern
to them all; their actions will thus be all the more effective.
- No peaceful order in Europe is possible without a major effort by
all concerned. The evolution of Soviet and East European policies gives
ground for hope that those governments may eventually come to recognise
the advantages to them of collaborating in working towards a peaceful
settlement. But no final and stable settlement in Europe is possible
without a solution of the German question which lies at the heart of
presentensions in Europe. Any such settlement must end the unnatural
barriers between Eastern and Western Europe, which are most clearly
and cruelly manifested in the division of Germany.
- Accordingly the Allies are resolved to direct their energies to this
purpose by realistic measures designed to further a détente in
East-West relations. The relaxation of tensions is not the final goal
but is part of a long-term process to promote better relations and to
foster a European settlement. The ultimate political purpose of the
Alliance is to achieve a just and lasting peaceful order in Europe accompanied
by appropriate security guarantees.
- Currently, the development of contacts between the countries of Western
and Eastern Europe is mainly on a bilateral basis. Certain subjects,
of course, require by their very nature a multilateral solution.
- The problem of German reunification and its relationship to a European
settlement has normally been dealt with in exchanges between the Soviet
Union and the three Western powers having special responsibilities in
this field. In the preparation of such exchanges the Federal Republic
of Germany has regularly joined the three Western powers in order to
reach a common position. The other Allies will continue to have their
views considered in timely discussions among the Allies about Western
policy on this subject, without in any way impairing the special responsibilities
in question.
- The Allies will examine and review suitable policies designed to
achieve a just and stable order in Europe, to overcome the division
of Germany and to foster European security. This will be part of a process
of active and constant preparation for the time when fruitful discussions
of these complex questions may be possible bilaterally or multilaterally
between Eastern and Western nations.
- The Allies are studying disarmament and practical arms control measures,
including the possibility of balanced force reductions. These studies
will be intensified. Their active pursuit reflects the will of the Allies
to work for an effective détente with the East.
- The Allies will examine with particular attention the defence problems
of the exposed areas e.g. the South-Eastern flank. In this respect the
present situation in the Mediterranean presents special problems, bearing
in mind that the current crisis in the Middle East falls within the
responsibilities of the United Nations.
- The North Atlantic Treaty area cannot be treated in isolation from
the rest of the world. Crises and conflicts arising outside the area
may impair its security either directly or by affecting the global balance.
Allied countries contribute individually within the United Nations and
other international organisations to the maintenance of international
peace and security and to the solution of important international problems.
In accordance with established usage the Allies or such of them as wish
to do so will also continue to consult on such problems without commitment
and as the case may demand.
- In the light of these findings, the Ministers directed the Council
in permanent session to carry out, in the years ahead, the detailed
follow-up resulting from this study. This will be done either by intensifying
work already in hand or by activating highly specialised studies by
more systematic use of experts and officials sent from capitals.
- Ministers found that the study by the Special Group confirmed the
importance of the role which the Alliance is called upon to play during
the coming years in the promotion of détente and the strengthening
of peace. Since significant problems have not yet been examined in all
their aspects, and other problems of no less significance which have
arisen from the latest political and strategic developments have still
to be examined, the Ministers have directed the Permanent Representatives
to put in hand the study of these problems without delay, following
such procedures as shall be deemed most appropriate by the Council in
permanent session, in order to enable further reports to be subsequently
submitted to the Council in Ministerial Session.
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