By Francis A. Beer Integration and Disintegration in NATO Processes of Alliance Cohesion and Prospects for Atlantic Community Integration and Disintegration in NATO by Francis A. Beer Assessing the current prospects of the North Atlantic Treaty Organization in the light of na­ tional goals and the crisis precipitated by the French withdrawal, Mr. Beer investigates the extent to which effective policy consensus and integrated programs can be achieved under the present organizational structure. In spite of the numerous refinements in administrative procedure that have accompanied the proliferation of NATO programs and activities since 1949, Mr Beer concludes that more far-reaching integrative tasks have not been accomplished. In each of five major areas of NATO activity- political consultation, military forces, armaments, infrastructure, and science—a pattern of national dominance and self-interest has emerged that leaves little scope for integrated programs. Although such results might have been expected in sensitive sectors such as political consultation and military forces, they prevailed as well in arma­ ments, infrastructure, and science, where techni­ cal considerations might have been expected to provide a more unifying influence. Integrative advance seems to occur mainly dur­ ing situations of international crisis in spite of the ideology of the leadership, which has provided the most effective continuing impetus toward increased long-range planning, greater delegation ofauthority,and mo re centralized control. Because the leadership has had available only the powers of persuasion in appealing to the common percep­ tions and goals of members, however, Mr. Beer finds that the prospects for more substantial inte­ gration in NATO—for the appearance of binding institutional procedures, authority, and legitimacy -are slight. Francis A. Beer is assistant professor of government at the University of Texas at Austin. Integration and Disintegration in NATO A Publication of the Mershon Center for Education in National Security FRANCIS A. BEER Integration and Disintegration in NATO Processes of Alliance Cohesion and Prospects for Atlantic Community OHIO STATE UNIVERSITY PRESS Copyright © 1969 by the Ohio State University Press All Rights Reserved Library of Congress Catalogue Card Number: 69-12762 TO DIANA Acknowledgments This book was written with the help of grants received from the United States Government under the Fulbright-Hays Act, and from the Mershon Center for Education in National Security at the Ohio State University. My heaviest intellectual debt is to Ernst B. Haas of the Uni­ versity of California, Berkeley. Professor Haas generously do­ nated his time and critical facilities at all stages of the work— the development of the original idea into workable form, the mechanics of field research, and successive waves of revision. Several people were kind enough to read and criticize all or part of the manuscript. Two directors of the Mershon Program, the late Edgar S. Furniss, Jr. and James A. Robinson, contrib­ uted important new perspectives. My colleagues at Mershon also provided valuable advice. In Paris, Professor Jean-Baptiste Duroselle and Ambassador Walter Dowling were continuously helpful in the difficult task of gaining entr6e into the inner sancta of diplomatic and mili­ tary decision-making. Joseph Harned of the Atlantic Institute gave critical support. Madame Jacqueline Forget, Madame Jo­ sephe-Anne Marchal, and Mr. John Paton were the most pa­ viii ] Acknowledgements tient of the innumerable kind people at NATO headquarters. Two hundred and twenty-one patient individuals consented to be interviewed. (68 Americans, 61 French, 45 Germans, 37 British, and 10 of other nationalities..) These included people at the NATO Secretariat, SHAPE, National Delegations to NATO, Ministries of Foreign Affairs, Ministries of Defense, and Em­ bassies; also Parliamentarians, retired military officers and diplo­ mats, trade union officials, representatives of trade associations and individual industries, and members of various research in­ stitutes. Among these were: Secretaries-General Paul-Henri Spaak and Dirk Stikker; SACEUR'S Lyman L. Lemnitzer, Lauris Norstad, and Matthew B. Ridgway; Ambassadors to NATO W. Randolph Burgess, Harlan Cleveland, Pierre de Leusse, Thomas K. Finletter, and Wilhelm Grewe. Also interviewed were: Sir Alec Douglas-Home, Selwyn Lloyd, Peter Thorney­ croft, and Sir Solly Zuckerman; Joel le Theule, Maurice Faure, Christian Pineau, and Alexandre Sanguinetti; Generals Andre" Beaufre, Paul Ely, Pierre Gallois, and Paul Stehlin; Helmut Schmidt, Generals Baron D. P. de Cumont, Adolf Heusinger, and Wolf Graf von Baudessin. Much of the information and analysis in this work is the result of their cooperation, even though a general desire for anonymity has presented me from giving them credit in individual footnotes. I am also grateful to a number of institutions for permission to use their files of press clippings: NATO headquarters, SHAPE, the Fondation Nationale des Sciences Politiques, the West Ger­ man Bundestag, and the Institute for Strategic Studies. A very special kind of debt is due to Mrs. Georgialee Furniss, who took the most personal interest in this project and who lent almost every conceivable kind of assistance. To my parents, Anne and William, I have a far-reaching obligation for endless encouragement. My wife, Diana, cheerfully endured. F. A. B. Contents Introduction 1 CHAPTER 1 Political Consultation in NATO 12 CHAPTER 2 NATO Military Forces: Integration 47 CHAPTER 3 NATO Military Forces: Leadership, Functionalism, and Spill-over 93 CHAPTER 4 NATO Armaments 131 CHAPTER 5 NATO Infrastructure 176 CHAPTER 6 NATO Science 204 CHAPTER 7 NATO: Past and Future 239 Appendixes 271 Notes 280 Index 315 List of Tables 1. Participation by NATO Members in UN Gen­ eral Assembly Emergency Session: Roll Call Votes, July 4, 1967 27 2. National Complements Assigned to "USS Claude V. Ricketts" 69 3. Vote for the Adoption of the Motion of Cen­ sure, April 20, 1966, by French Assembly Groups 91 4. Comparison of Defense Expenditures in NATO Countries 130 5. Per Cent of Codified Items Among NATO Members by December, 1951 144 6. U.S. Military and Economic Assistance to NATO Allies, 1946-1966 146 7. United States Foreign Military Sales Program: Fiscal Years 1962-1966 and Outstanding Commit­ ments 148 8. NATO Joint Production Programs: U.S. Gov­ ernment Contributions 149 9. National Expenditures on NATO Procurement of Breguet Atlantique, Hawk, Sidewinder, F 104 G, and Bullpup 156 10. National Expenditure on the Procurement of Military Equipment: 1960-1963 174 11. NATO Infrastructure Program: Major Proj­ ects through 1965 177 List of Tables [ xi 12. NATO Infrastructure Program: Slices 1­ XX 178 13. NATO Infrastructure Program: Gross Na­ tional Contributions as Percentages of Total Pro­ gram Budget, 1949-1969 187 14. NATO Infrastructure Program: Net National Foreign Currency Receipts and Contributions as Percentages of Total Program Budget, 1951­ 1957 188 15. NATO Infrastructure Program: Distribution of Work by Geographical Location as Percentages of Total Program Budget, Slices ll-XVll 189 16. NATO International Military Headquarters Budget, 1961 200 17. Estimated National Military Construction Ex­ penditures at Purchasing Power Parity Conversion Rates 202 18. Annual Expenditures on NATO Scientific Programs 206 19. Major NATO Science Programs: Gross Na­ tional Contributions as Percentages of Total Pro­ gram Budgets, 1959-1966 217 20. NATO Fellowship Program: Net National Receipts and Contributions as Percentages of Total Program Budgets, 1960-1966 218 21. NATO Science Committee Subordinate Bod­ ies: National Membership, May 22, J967 233 22. Estimated National Gross Expenditure on Re­ search and Development, 1963/64 236 23. Estimated Percentages of National Gross Ex­ penditure on Research and Development by Sec­ tors of the Economy, 1963/64 237 List of Abbreviations ACE: Allied Command Europe AFCENT: Allied Forces Central Europe AFMED: Allied Forces Mediterranean AFNORTH: Allied Forces Northern Europe AFSOUTH: Allied Forces Southern Europe AGARD: Advisory Group for Aeronautical Re­ search and Development AMF: ACE Mobile Force ANF: Atlantic Nuclear Force APAG: Atlantic Policy Advisory Group BAOR: British Army on the Rhine CDU: Christlich-Demokratische Union CINCCHAN: Commander-in-Chief Channel Command CINCEUR: Commander-in-Chief United States forces in Europe CNAD: Conference of National Armaments Directors DFU: Deutsche Friedens-Union DIAGE: Defense Industry Advisory Group in Europe DPB: Defense Production Board DPC: Defense Planning Committee DPWG: Defense Planning Working Group DRDC: Defense Research Directors Committee DRG: Defense Research Group EDC: European Defense Community FDP: Freie Demokratische Partei IRBM: Intermediate Range Ballistic Missile MAS: Military Agency for Standardization MC: Military Committee List of Abbreviations [ octii MLF: Multilateral Force MPSB: Military Production and Supply Board MRBM: Medium Range Ballistic Missile MRP: Mouvement Republicain Populaire NADGE: NATO Air Defense Ground Environ­ ment NADREPS: National Armaments Directors Rep­ resentatives NAMSO: NATO Maintenance and Supply Or­ ganization NIAG: NATO Industrial Advisory Group NBMR: NATO Basic Military Requirement NDAC: Nuclear Defense Affairs Committee NMR: National Military Representative NPC: NATO Parliamentarians' Conference NPD: Nationaldemokratische Partei Deutschlands NPG: Nuclear Planning Group NPLO: NATO Production