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Transatlantic Homeland Defense CTNSP Special Report Center for Technology and National Security Policy May 2006 Institute for National Strategic Studies INSS National Defense University www.ndu.edu Transatlantic Homeland Defense destruction (WMD) and terrorists—provide terrorist use of WMD to large-scale natural Context multiple elements that can be united to form a disasters. homeland defense initiative at Riga. Such an NATO and its members already possess his paper proposes an initiative to initiative would be intended to complement, noteworthy capabilities in some respects in enhance transatlantic homeland not detract from, national and European Union these areas, but their capacity to act as a fully T defense at the North Atlantic Treaty (EU) capabilities and institutions that bear the organized and capable alliance is not well Organization (NATO) November 2006 Riga major responsibility for ensuring homeland developed. NATO will need improvements in Summit and beyond. As NATO develops its security. This initiative would offer NATO both physical assets and strengthened strategic capabilities for expeditionary operations, a 21st-century approach to Article 5 and new planning and operating capacities. It also will it needs to revitalize plans and capabili- meaning and credibility in the eyes of NATO require close coordination and harmonization ties essential to realize its core mission: publics who are concerned about threats to with national governments, many of which protecting Alliance territory as outlined in their homelands.1 view control of homeland security resources as Article 5 of the North Atlantic Treaty. This This report proposes that enhanced trans- vital manifestations of their sovereignty. The back-to-basics approach is designed to atlantic homeland defense be a major initiative ultimate outcome of decisive action in these ensure that Allies can protect the trans- for adoption at the 2006 Riga Summit and areas would be enhanced NATO capabilities to atlantic homeland against an array of new completion at the 2008 summit. Accompanying protect member airports, seaports, maritime threats and challenges. This initiative this initiative would be parallel proposals on approaches, and critical infrastructure; defend would unfold in the context of broader strengthening partnerships with nonmembers against future missile threats; prevent and efforts to protect the Euro-Atlantic com- and further improving NATO’s military forces manage terrorist incidents; and react promptly munity. NATO is but one of many institu- and capabilities for new-era missions. The to WMD use. tions—national and international, govern- initiative would include four categories of mental and nongovernmental—involved in homeland defense, none of which would address NATO–EU Cooperation societal security. expeditionary, counterterrorism, natural disaster, The rationale for a NATO homeland and humanitarian missions outside the NATO defense initiative is that the vital interests of Key Points area. In some cases, capabilities created for all member nations are involved; hence, Homeland defense—that is, the military’s homeland defense purposes could be used their cooperation will be critical to achieving role in preventing and defending against ter- within and outside the NATO area for such improved capabilities. NATO’s political and rorist attacks on the territory of Alliance mem- civil-military missions. The four categories are: practical collaboration with the European bers—is an increasingly important imperative n guarding the approaches and achieving Union will also be crucial. Many Europeans for the United States, Canada and Europe. NATO border security for the NATO region view the EU as the main institution for promot- has the opportunity to articulate a strategic n pursuing enhanced/integrated ing European integration across a spectrum of direction and planning process for homeland and linked continental early warning and economic, political, and—increasingly—for- defense to ensure that relevant Alliance activities air/missile defense capabilities eign policy and security activities. To be suc- and capabilities are adapted and integrated to n preventing and managing terrorist cessful, a NATO initiative on homeland defense deal with these new threats. NATO’s activities incidents would have to complement existing national in many areas—for example, its protection of n strengthening transatlantic capabilities and EU programs. It also would have to provide Mediterranean sealanes against weapons of mass for consequence management, ranging from an important collaborative role for the EU, This report is a joint project of the Center for Technology and National Security Policy and the Institute for National Strategic Studies at the National Defense University. It was prepared by Neyla Arnas, Hans Binnendijk, Stephen J. Flanagan, Stuart E. Johnson, Richard L. Kugler, Leo G. Michel, Anne M. Moisan, Jeffrey Simon, and Kimberley L. Thachuk. SPEciAL REPOrt 1 which is seeking to develop a value-added role example of an EU response to a disaster was the European Union already has in place or is to complement and integrate national capabilities Prestige accident in November 2002, in which a developing, and where NATO can offer real for civilian and civil-military crisis management. tanker sank off the west coast of Galicia, Spain, value added. Creating a joint clearinghouse of As a consequence, many common European releasing 44,000 tons of fuel. In response to a capabilities would allow the EU and NATO to capabilities related to societal/homeland security Spanish government request, EU member states determine how best to meet the requirement and emergency response (such as customs, made available floating barriers, ships, and of a specific crisis. police cooperation, environmental security, and surveillance planes. This action was carried out Moreover, Europeans have diverse consti- information-sharing) are likely to be housed under EU agreements by the EU Commission’s tutional approaches to domestic uses/authori- within the EU in the future.2 Since 19 of the 25 Monitoring and Information Center. ties of their own militaries in crisis situations, EU member states are members of NATO, and EU officials and documents acknowledge and these are sensitive issues.3 (For example, 4 of the remaining 6 are Partnership for Peace that EU activities and initiatives are at various Germany’s Constitutional Court recently found (PFP) members, they are unlikely to be inclined stages of development, with some in their early that the Ministry of Defense does not have legal to duplicate activities in NATO and/or the stage. For example, the European Council authority to shoot down a terrorist-controlled Euro-Atlantic Partnership Council (EAPC) to agreed in 2005 (during the British presidency) aircraft if it would kill innocent civilians which they already are committed in an EU to examine a Commission proposal for an aboard.) Any suggestion that a “NATO com- context. An initiative linking NATO and the integrated “rapid response and preparedness mander” would somehow have authority over EU in a common cause could have a positive instrument” to react to all types of disasters foreign forces or capabilities deployed within a impact on their cooperation in other areas as (including terrorism) inside or outside the EU member state will be viewed skeptically. Thus, well, such as civil-military operations outside while setting a goal to finalize crisis coordina- a demonstrated U.S. willingness to initiate the Euro-Atlantic space. In short, the proposed tion operational procedures by June 2006. This a discussion within NATO on transatlantic approach would create a win-win outcome examination includes work on possible support homeland defense that is cast in the context of rather than a zero-sum game. that member state military assets and capabili- NATO–EU cooperation and offers a mutually Of the four categories surveyed here, the ties could give to consequence management beneficial solution stands a plausible chance first two (guarding approaches and air/missile within an EU context. of gaining widespread consensus. defense) are mainly military and thus are largely Broad political support exists for these crisis NATO’s business when they require U.S.-Euro- response and management efforts within the Guarding the Approaches pean military integration. The third category, EU. For example, during the British presidency, preventing and managing terrorist incidents A Riga initiative in this category could within the NATO region, will require Alliance an initiative linking NATO have widespread appeal because this is a natural participation only when EU or national capabili- ongoing mission for NATO as well as an impor- ties are overwhelmed. Because NATO involvement and the EU in a common tant, growing strategic priority in the current era. would come as a last resort, it must be prepared cause could have a positive Simply stated, NATO’s approaches, especially its and able to respond if asked to do so. The fourth impact on their cooperation maritime approaches, need greater security from category, consequence management, requires terrorists and other threats than they currently a mixture of military and civilian assets and in other areas as well have. With a modest commitment of military therefore will require national or EU cooperation. and other resources, coupled with improved Thus far, the European Union has under- senior UK officials, including Secretary strategic planning and coordination by NATO taken a range of activities
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