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NATO's Parlamentariske Forsamling 2014-15 (1. samling), Det Udenrigspolitiske Nævn 2014-15 (1. samling)
NPA Alm.del Bilag 5, UPN Alm.del Bilag 99
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The Secretary General’s

Annual Report 2014

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The Secretary General’s

Annual Report 2014

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FOREWORD

Keeping NATO strong

014 was a black year for European security. And as

we enter 2015, the terrorist attacks in Paris were

a stark reminder of the threats and challenges we

face. But we also saw millions standing up for our values

and our open societies.

Our security environment has changed fundamentally.

To the South, violent extremism is at our borders,

spreading turmoil across Iraq and Syria and bringing

terror to our streets. To the East, Russia has used military

force to annex Crimea, destabilise eastern Ukraine, and

intimidate its neighbours.

These threats challenge the international order we have

built since the fall of the Berlin Wall – an order that

embodies our democratic values and is vital for our way

of life.

So, from my first day in office, my priorities have been

to keep NATO strong, to work with partners to help

keep our neighbourhood stable, and to keep the bond

between Europe and North America rock-solid.

At our Summit in Wales in September, NATO showed

that the transatlantic community is rising to the

challenge. We agreed the “Readiness Action Plan”. This

is the most significant strengthening of our collective

defence in decades, to assure all Allies, improve the

responsiveness and effectiveness of our forces, and

deter threats from wherever they may come. We are

working hard to implement the plan in full and on time.

To do this, it is vital that we invest in our defence. We must

spend more and we must spend better. At Wales, NATO

Heads of State and Government pledged to stop the

cuts in defence spending, to aim to spend 2% of Gross

Domestic Product on defence within a decade, and to

spend that money more efficiently. I will continue to work

with Allies to keep that pledge.

2014 was the final year of our combat operation in

Afghanistan, the largest in Alliance history. We did what

we set out to do: to deny safe haven to international

terrorists, to make Afghanistan stronger, and to make our

own nations safer.

Today, the security of Afghanistan is fully in Afghan hands.

While many challenges remain, we are determined to

support Afghanistan to build on the gains that we have

made with great effort and sacrifice. That is why we

have launched a new mission, Resolute Support, to

train, advise and assist the Afghan National Defence and

Security Forces. We will also continue to provide financial

assistance for those forces, and intensify our political

dialogue and our practical cooperation with Afghanistan.

A key lesson from our missions and operations over the last

20 years, from Afghanistan to Kosovo, is the need to work

with other nations and organisations. We are also reaching

out to partners to enable them to better meet security

challenges in their own regions. This includes countries like

Ukraine, the Republic of Moldova and Georgia, which share

our values and have chosen a European path, as well as

Jordan, a key security player in the Middle East – because

if our neighbours are more stable, we are more secure.

We are also stepping up our cooperation with the

European Union. We share the same values and the

same challenges, so we must continue to complement

and reinforce each other.

Last year, the very foundations of the Euro-Atlantic order

came under threat. But as this Annual Report makes

clear, NATO’s response has been, and will remain, firm.

NATO is adapting to the new security environment, as it

has done throughout its history. We will always protect

our values and keep our nations safe.

Jens Stoltenberg

NATO Secretary General

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In 2014, major changes in the security environment increased the threats faced by all NATO members. In Europe, Russia

illegally annexed Crimea, fuelled crisis and conflict in Ukraine and spurred tension along NATO’s eastern border. In North

Africa and the Middle East, extremist violence and instability spread. Across the world, cyber crime increased in volume

and sophistication.

On 4-5 September, Heads of State and Government from the 28 NATO member countries as well as partners from over

30 countries and leaders of international organisations gathered for a summit in Newport, Wales. The decisions made at the

Summit will guide the work to keep NATO strong and able to deter and defend against any threat, with the right equipment

and skills, and with stronger partnerships.

CHAPTER I

early one billion people live in the 28 NATO

member countries. Every day, NATO is actively

engaged to provide for their collective defence

and to manage crises in Europe and beyond.

NATO on duty

Aggressive actions in the East

In 2014, Russia and Russian-backed separatists

began a campaign of violence aimed at destabilising

Ukraine as a sovereign state. Russia’s aggressive

actions disregard international law and violate security

arrangements and commitments that Russia has

made, including the Helsinki Final Act. Russia’s recent

actions have fundamentally challenged the vision of a

Europe whole, free and at peace and are a threat to

security and stability in Europe and beyond.

On 2 March 2014, the North Atlantic Council agreed

that “military action against Ukraine by forces of the

Russian Federation is a breach of international law

and contravenes the principles of the NATO-Russia

Council and the Partnership for Peace”. One month

later, NATO Foreign Ministers agreed to suspend all

practical civilian and military cooperation with Russia

but to maintain political contacts at and above the

level of Ambassador to enable NATO and Russia to

exchange views. Two meetings of the NATO-Russia

Council about events in and around Ukraine took place

at the ambassadorial level following this decision.

For over 20 years, NATO has worked with Russia to

build a strong and mutually beneficial partnership,

including through the mechanism of the NATO-Russia

Council, based on the NATO-Russia Founding Act

and the Rome Declaration. Prior to the suspension

of practical cooperation, NATO and Russia had been

working together on a range of activities including

counter-terrorism, counter-piracy and civil emergency

response, among others. But as NATO leaders

confirmed in Wales, the conditions for a cooperative,

constructive relationship do not currently exist. NATO’s

relationship with Russia will be contingent on a

clear, constructive change in Russia's behaviour that

demonstrates compliance with international law and its

international obligations and responsibilities.

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Assurance measures

While NATO does not have a permanent military

presence in the eastern part of the Alliance, Allies have,

since April 2014, taken action to demonstrate NATO’s

resolve to deter and defend against threats and to

provide assurance for the eastern Allies. All 28 NATO

members are contributing to these measures, which

provide continuous air, land and maritime presence and

military activity on a rotational basis. These deployments

are limited in scale, designed to reinforce defence, and

are in line with NATO’s international commitments.

NATO’s Baltic Air Policing mission began 10 years ago

to protect the safety and integrity of Allied airspace over

Estonia, Latvia and Lithuania. Allies participate in this

Protecting NATO airspace: Allied aircraft patrol

over the Baltics and Poland.

mission on a rotational basis, and since the start of the

mission 14 Allies had deployed 34 contingents to protect

the integrity of NATO airspace over the Baltics. Given

the increased instability in the region, this deployment

was significantly enhanced during 2014. This includes

more aircraft policing the airspace of the Baltic States

and Poland, additional aircraft based in Romania,

and AWACS (Airborne Warning and Control System)

surveillance flights over Poland and Romania.

To provide assurance at sea, NATO deployed a number

of multinational maritime forces. A Standing NATO Mine

Counter-Measures Group began patrolling the Baltic Sea

in April 2014 with seven ships from six countries. In the

Eastern Mediterranean, an enlarged Standing NATO

Maritime Group began conducting maritime assurance

measures in addition to counter-terrorism patrols in

May 2014, with five ships from as many countries.

Military exercises provide important opportunities to

improve the ability of Allies and partners to work together

and are a valuable demonstration of NATO’s readiness

to respond to potential threats. As part of NATO’s

efforts to assure eastern Allies and to adapt to changing

environments, the number of exercises undertaken in

2014 significantly increased. With 162 events under the

Military Training and Exercise Programme – double the

initially planned number – and 40 national exercises in the

context of the assurance measures, one exercise started

every two days within the area of responsibility of NATO’s

Photo by Sarah Tate, JMTC PAO, US Army

Working better together: military exercises, here led by US troops.

Photo by Cpl Gabrielle DesRochers, Royal Canadian Air Force

The impact of the violence and insecurity caused by Russia

and Russian-backed separatists has not been limited to

Ukraine. This violence can undermine the safety, stability

and well-being of people around the world, as demonstrated

by the tragic downing of Malaysia Airlines passenger flight

MH17 in July. NATO supports the sanctions imposed by

the European Union (EU), the G7 and others as part of

an international effort to address Russia’s destabilising

behaviour. Instability and unpredictability to the East and

the South also prompted NATO to enhance its collective

defence to deter potential threats.

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Supreme Allied Commander Europe. These exercises took

place on land, at sea and in the air over Alliance territory.

Violent instability in the South

Fighting in Iraq and Syria cost thousands of lives in 2014

and fuelled humanitarian and security challenges for the

region and the world. The so-called Islamic State of Iraq

and the Levant (ISIL) poses a grave threat to the region

and serious challenges for NATO’s members and partners.

The Assad regime has contributed to the emergence of ISIL

in Syria and its expansion beyond. NATO has condemned

the violent and cowardly acts of ISIL. At the NATO Summit

in Wales leaders expressed their collective outrage

at the barbaric attacks against all civilian populations.

They also affirmed that NATO would not hesitate to take all

necessary steps to ensure the collective defence of every

Ally, wherever and whatever the threat.

Since early 2013, NATO has deployed Patriot missiles to

augment Turkey’s air defences against any missile threat

from Syria. The Alliance is working to enhance cooperation

in exchanging information on residents from NATO

countries who travel to Iraq and Syria to fight alongside

ISIL. NATO is also working with partners in the region to

help build defence and security capacity. This enhanced

cooperation has begun in Jordan. At the end of 2014,

Iraq requested assistance to build its defence capacity.

Faster response: elements of the NATO Response Force

training in the Mediterranean.

“28 for 28”. This baseline for assurance and deterrence is

flexible and can be adjusted in response to the evolving

security situation.

The RAP introduced a number of measures to adapt

NATO’s strategic military posture. The NATO Response

Force – a multinational force with land, air, maritime

and Special Operations Forces components – will

be enhanced, including by establishing a spearhead

force that will be able to deploy within days, particularly

at the periphery of NATO’s territory. This Very High

Readiness Joint Task Force (VJTF) will include

elements of all military services and Special Operations

Forces, and will be tested through short-notice

exercises. In addition, the RAP calls for a number of

logistics enhancements, including the prepositioning of

equipment and supplies, to enhance NATO’s readiness

to respond to any challenge to Allied security.

The plan affirms the continued need for a robust and

agile NATO Command Structure and the importance of

regional expertise and cooperation. It also prescribes

enhanced training and exercise programmes that

will focus on collective defence, and on practising

comprehensive responses to complex civil-military

scenarios from the strategic to the tactical level, including

so-called “hybrid” threats.

The implementation of the RAP is a long-term effort that

began upon its agreement in September 2014. NATO

Defence Ministers oversee this process and will decide

further details of the implementation at their meeting in

February 2015.

Readiness Action Plan

At the Wales Summit, NATO agreed a plan to ensure that

the Alliance is ready to respond swiftly and firmly to new

security challenges. This Readiness Action Plan (RAP)

is the most significant reinforcement of NATO’s collective

defence since the end of the Cold War. Through a range

of assurance measures and adaptation measures, the

RAP addresses risks and threats from the East and the

South and provides the building blocks with which NATO

can respond to any challenge, current or future.

The assurance measures in the RAP include the

continuous air, land and maritime presence that began in

April 2014. At their meeting in December, NATO Foreign

Ministers welcomed plans for continuing this presence

throughout 2015. Every NATO member is contributing to

these measures, in a spirit of solidarity summed up as

Photo by WO Cédric Artigues, Allied Maritime Command

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Operation Active Endeavour

Under Operation Active Endeavour, Allied ships are

patrolling the Mediterranean Sea, monitoring shipping

to help deter, defend, disrupt and protect against

terrorist activity. The operation evolved out of NATO’s

immediate response to the 9/11 terrorist attacks against

the United States and has continued to adapt to meet

evolving security risks.

The experience that NATO has accrued in Active

Endeavour has given the Alliance unparalleled expertise

in the deterrence of maritime terrorist activity in the

Mediterranean Sea. This expertise is relevant to wider

international efforts to combat terrorism and, in particular,

the proliferation and smuggling of weapons of mass

destruction, as well as enhanced cooperation with non-

NATO countries and civilian agencies.

living conditions and career opportunities in the Afghan

army and police forces are showing tangible results,

including those fostering opportunities for the participation

of women, who number over 2,800 in the ANSF.

In a land-locked country the size of Afghanistan, air power

is essential in order to provide security efficiently and

effectively. Efforts to rebuild the Afghan Air Force (AAF)

began in 2007 and will continue through 2017. During

2014, the Air Force planned and executed air operations

including emergency extraction, emergency casualty

evacuation, air reconnaissance and troop transport airlift

with limited ISAF support. In May, Mi-17 helicopters and

C-130 transport aircraft from the AAF provided critical

humanitarian aid and disaster-relief supplies to victims

of a landslide in Badakhshan province within hours of

the disaster.

The ANSF protected the Afghan population during

political and cultural events across the country.

During the presidential and provincial council elections,

the ANSF planned and provided security throughout all

34 provinces with limited ISAF support. Both in April for

the first round of elections and again in June for the run-

off, the ANSF helped create the conditions that enabled

over seven million voters to cast ballots at more than

6,100 polling centres.

Despite delays in the process, the country’s presidential

elections were a success, sending a clear signal from the

people of Afghanistan about the course of their country’s

future. This was the first peaceful transfer of authority

in Afghanistan’s modern history and shows how far the

country has come.

Afghanistan

2014 marked the final year of the International Security

Assistance Force (ISAF) in Afghanistan, the largest

operation in the history of the Alliance. The aim of ISAF

was consistent throughout the operation: to ensure that

Afghanistan is never again a safe haven for international

terrorists. The ISAF mission has concluded, and NATO

remains committed to supporting Afghanistan in making

further progress towards becoming a stable, sovereign,

democratic and united country.

Afghanistan in the lead

Since June 2013, the Afghan National Security Forces

(ANSF) have been in the lead for combat operations

throughout the country. The ANSF have demonstrated

that they are an effective force, providing security for and

sustaining the confidence of the people of Afghanistan.

With the end of ISAF on 31 December 2014, Afghan forces

now hold full responsibility for security in Afghanistan.

Many challenges remain, but throughout 2014, the Afghans

proved their readiness to provide security across the

country. For example, during June and July, the ANSF led

over 84,000 unilateral conventional operations, over seven

times as many as in 2012. More Afghan personnel are now

training their own recruits. And initiatives to improve the

Concluding ISAF

In 2014, NATO’s role in Afghanistan continued to evolve

as the ISAF operation came to a close. Over the course of

the year, 73 bases were closed or transferred to the Afghan

forces. Over 36,000 troops from 39 troop-contributing

nations were redeployed. More than 25,000 pieces of

equipment were donated to the Afghan authorities.

In September, the NATO Airborne Warning and Control

System (AWACS) fleet returned to Geilenkirchen,

Germany. While in Afghanistan, the fleet conducted

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air surveillance, tactical air support and other valuable

roles through more than 1,200 missions and 12,000

flight hours.

With over 50 countries having participated, ISAF was

the largest international coalition in recent history.

Through the experience, all involved improved their ability

to act and operate together. This effort demonstrated

political solidarity among NATO Allies and partners

throughout the years of the operation.

These include:

- the train, advise and assist mission, Resolute Support;

- financial assistance to the Afghan forces; and

- an enduring partnership built on political consultations

and practical cooperation.

In September 2014, NATO and Afghanistan signed a Status

of Forces Agreement (SOFA), which was later ratified by

the Afghan Parliament. The SOFA provides the legal basis

for the presence of NATO forces in Afghanistan to train,

advise and assist the Afghan National Defence and Security

Forces (ANDSF) after 2014 through the new NATO-led

mission, Resolute Support. The mission is also endorsed

by the international community at large, as reflected in

United Nations (UN) Security Council Resolution 2189,

unanimously adopted on 12 December 2014.

Resolute Support will include approximately 12,000

personnel from Allied and partner countries. It will operate

A new chapter

With the completion of ISAF at the end of 2014,

the nature and scope of NATO’s engagement with

Afghanistan is changing. At the NATO Summit in Wales,

leaders affirmed three parallel and mutually reinforcing

strands of activity that will comprise NATO’s relationship

with Afghanistan in the years to come.

Afghanistan: Resolute Support Mission

60° E

65° E

Uzbekistan

70° E

75° E

Ta j i k i s t a n

Turkmenistan

Mazar-e Sharif

TAAC-N

China

35° N

Islamic

Republic of

Iran

Herat

TAAC-W

RSM HQ

TAAC-C

Kabul

Laghman

TAAC-E

India

Pakistan

Kandahar

TAAC-S

30° N

100 Miles

Country boundary

National capital

60° E

Based on commercial data. Digital Map Data (C) Collins Bartholomew LTD (2013)

The boundaries and names shown and the designations used on this map do not imply official endorsement or acceptance by NATO.

65° E

70° E

Train, Advise

and Assist Commands

1st order admin division

Disputed

75° E

boundary

Line of control

Produced by NATO HQ, SITCEN - Geospatial Section

December 2014

30° N

0 37.5 75

150 Kilometers

35° N

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with one hub in Kabul and four spokes in Mazar-e Sharif,

Herat, Kandahar and Laghman. At each of the Train,

Advise and Assist Commands (TAACs), a framework

nation will play a coordinating role. Other Allies and

partners will contribute with personnel and equipment.

While Resolute Support is not a combat mission, it is not

without risk. Afghan forces are providing security in the

country and are successfully responding to attacks with

bravery and professionalism. Yet insurgent efforts to disrupt

Afghanistan’s progress and change the course for which the

citizens of the country voted are likely to continue. Areas of

rural Afghanistan remain contested and fighting is expected

to persist in 2015. In this environment it is important that the

servicemen and women of the ANDSF continue to receive

the support of the international community, including

through the training, advice and assistance of Resolute

Support, as well as through financial assistance.

NATO Allies and ISAF partners have provided support

to the Afghan forces on the understanding that the

Afghan government will make an increasing financial

contribution. At the Wales Summit, contributors renewed

their financial commitment to support the sustainment

of the Afghan security forces. NATO’s existing Afghan

National Army (ANA) Trust Fund has been adapted to

serve as one of the funding streams helping to sustain

the ANDSF after 2014 and to ensure that the money

can be disbursed and accounted for in accordance with

donors’ requirements. NATO will continue to work with

Afghan authorities to review the force structure and

capabilities of the ANDSF to achieve a sufficient and

sustainable force. As agreed at the 2012 NATO Summit

in Chicago, Afghanistan should assume full financial

responsibility for its forces no later than 2024.

Afghan national unity: NATO Secretary General Jens Stoltenberg

greets Afghan President Mohammad Ashraf Ghani (left)

and Chief Executive Abdullah Abdullah (right)

on their first visit to NATO HQ.

and helping stand down the wartime security corps

and establish the Kosovo Security Forces, along with

structures to provide civilian oversight.

NATO’s mission in Kosovo is carried out in close

cooperation with other international actors including

the UN, the EU, and the Organization for Security

and Co-operation in Europe (OSCE). Together, these

organisations have helped to foster the environment

needed to build a durable peace and a prosperous

future for a multi-ethnic Kosovo. NATO continues to

support the EU-facilitated dialogue between Priština and

Belgrade that led to a landmark agreement in April 2013.

While political challenges remain, progress is palpable.

The general election held in Kosovo in June 2014 was one

demonstration of improvements, with Kosovo’s security

forces providing for orderly, secure proceedings, avoiding

the violence that had disrupted previous elections.

This progress is on track to continue, and NATO remains

committed to fostering peace and stability in Kosovo.

To this end, the Alliance will continue to adapt to the

conditions on the ground and will make any changes

to its force posture in Kosovo on the basis of those

conditions, in accordance with the UN mandate.

Kosovo

2014 marked the 15th year of the NATO-led force

(Kosovo Force or KFOR) that was deployed to contribute

to a safe and secure environment and freedom of

movement in Kosovo, in accordance with UN Security

Council Resolution 1244. NATO’s role in Kosovo has

evolved over this period to include assisting in the return

and relocation of displaced persons and refugees,

providing medical assistance, protecting patrimonial

sites, suppressing cross-border weapons smuggling,

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Counter-piracy

In 2014, the international efforts to counter piracy off the

Horn of Africa and in the Gulf of Aden yielded continued

success. The number of piracy incidents off the coast

of Somalia reached its lowest in recent years; no ships

have been seized since May 2012, and there were

fewer than five incidents in 2014. In 2010 and 2011,

there were over 120 attacks per year. NATO’s Operation

Ocean Shield, in close cooperation with the US-led

Combined Maritime Forces, the EU Naval Forces and

independent contributors to these efforts, has effectively

and dramatically reduced pirate activity in the region.

This reduction in piracy incidents is important for the

global economy as well as for regional security. Yet while

the successes are clear, Somalia-based piracy has not

yet been eradicated. A continued international naval

presence off the coast of Somalia will be needed to give

time and space for long-term efforts addressing the root

causes of piracy to yield results.

At the Summit in Wales, Heads of State and Government

agreed to continue Operation Ocean Shield until the end

of 2016. The EU has extended its Operation Atalanta for

the same period, and NATO and the EU will continue to

ensure the complementarity of these efforts.

While the focus of NATO’s efforts off the Horn of Africa

continues to be at-sea counter-piracy operations, the

Alliance is also working with regional actors to build

capacity so that they can better address the root

causes of piracy. While not the lead actor in this realm,

NATO capacity-building programmes include training,

education courses, participation in military exercises and

advice on security sector reform.

Piracy incidents

2009-2014

160

140

120

100

Pirated - Where pirates gain

control of the vessel and crew.

Attack - Where pirates

fire at or make contact

with a vessel in an attempt

to board.

Disruption - Where military

forces intercept a pirate

group and remove

their capability to conduct

further acts of piracy.

Approach - Where the visibility

of weapons and ladders means

pirate intent is clear, but an attack

is not conducted.

2009

2010

2011

2012

2013

2014

Figures for piracy incidents involve vessels greater than 300 tons engaged on international voyages as defined in Regulation 19

of Chapter V of the Safety of Life at Sea (SOLAS) Convention of the International Maritime Organization.

Statistics provided by Allied Maritime Command Headquarters, Northwood, United Kingdom.

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CHAPTER 2

t the NATO Summit in Wales, Allies agreed the

Readiness Action Plan to strengthen NATO’s

collective defence and a defence investment

pledge to strengthen Allies’ ability to fund sustained

defence efforts. They also approved a defence planning

package and set priorities related to training, equipment

and technology to ensure that NATO forces are properly

prepared and equipped for whatever challenge may come.

Investing in defence

costs and responsibilities of their common defence.

This is the first time NATO Heads of State and

Government have made this kind of commitment.

In 2006, Allies agreed voluntary targets for defence

spending: 2% of Gross Domestic Product (GDP)

should be allocated to defence expenditures, while

20% of those expenditures should be dedicated

to research, development and acquisition of major

defence equipment.

In the defence investment pledge,

Allies affirmed that those countries already meeting

these targets would continue to do so and that those

Defence investment pledge

In Wales, NATO leaders pledged to stop the cuts to

defence budgets, to increase investment as economies

recover, to make the most effective use of available

funds, and to strive for a more balanced sharing of the

Alliance defence expenditures

as a percentage of Gross Domestic Product

2007 and 2014

For all the graphs in this chapter of the report, it should be noted that Albania and

Croatia joined the Alliance in 2009 and that Iceland has no armed forces.

4.5

4.0

3.5

3.0

2.5

2.0

1.5

1.0

0.5

Alliance major equipment expenditures

as a percentage of defence expenditures

2007 and 2014

ALB

BEL

BGR

CAN

HRV

CZE

DNK

EST

FRA

DEU

GRC

HUN

ITA

LVA

LTU

LUX

NLD

NOR

POL

PRT

ROU

SVK

SVN

ESP

TUR

GBR

USA

2007

2014

NATO 2% guideline

Source: NATO Defence Planning Capability Review 2013-14. Based on 2010 prices.

Estimates for 2014.

Source: NATO Defence Planning Capability Review 2013-14. Based on 2010 prices.

Estimates for 2014 except Spain 2013 figure.

Note: In September 2014, the European Union’s statistics office implemented a new accounting standard as part of the worldwide System of National Accounts, resulting in an increase in GDP

figures for most member countries. The United States implemented these accounting standards in 2013. While the changes in how GDP is calculated have no direct impact on real defence

expenditures, the result is a relative decrease in defence expenditures as a percentage of GDP.

ALB

BEL

BGR

CAN

HRV

CZE

DNK

EST

FRA

DEU

GRC

HUN

ITA

LVA

LTU

LUX

NLD

NOR

POL

PRT

ROU

SVK

SVN

ESP

TUR

GBR

USA

0.0

2007

2014

NATO 20% guideline

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Defence expenditures as a percentage of GDP versus

major equipment expenditures as a percentage of defence expenditures

0.0

NATO 20 % guideline

2007

NATO 2 % guideline

Major equipment exp. as % of defence expenditures

0.0

2014

NATO 2 % guideline

NATO 20 % guideline

0.5

1.0

1.5

2.0

2.5

Defence expenditures as % of GDP

3.0 %

0.5

1.0

1.5

2.0

2.5

Defence expenditures as % of GDP

3.0 %

Source: NATO Defence Planning Capability Review 2013-14. Based on 2010 prices. Estimates for 2014 except Spain 2013 figure for major equipment. The United States is not included.

Note: In September 2014, the European Union’s statistics office implemented a new accounting standard as part of the worldwide System of National Accounts, resulting in an increase in GDP

figures for most member countries. While the changes in how GDP is calculated have no direct impact on real defence expenditures, the result is a relative decrease in defence expenditures as

a percentage of GDP.

below would halt any decline, aim to increase defence

expenditure in real terms as GDP grows, and aim to

move towards the 2% and 20% targets within a decade.

Billion

US$

320

300

280

260

240

220

200

Defence expenditures

NATO Europe

real terms.

By 2010, defence spending in NATO Europe

had dropped to USD 275 billion, despite 12 additional

European countries having joined the Alliance. In 2014,

it is estimated that European members of NATO spent

USD 250 billion on defence.

The cuts to defence expenditures, deepened by the

financial crisis, diminish the options available to the

Alliance and reduce the extent to which Allies equitably

share responsibilities. The defence investment pledge

is an important signal that Allies are committed to

addressing the mismatch between challenges faced

and resources available. Progress on this pledge will be

reviewed annually, starting in June 2015.

Developing the right capabilities

1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010 2012 2014

Source: NATO Defence Planning Capability Reviews. Based on 2010 prices and

exchange rates. Estimates for 2014.

The pledge was needed because the amount of

resources dedicated by Allies to defence has been on a

steady decline since the end of the Cold War. In 1990, the

14 European Allies spent USD 314 billion on defence in

Spending targets can provide useful indicators for

progress, but absolute figures for defence investment

are only as meaningful as the military capabilities they

produce. The investment by Allies in defence includes

procuring the right equipment, ensuring that the men and

women who serve are properly trained, and providing the

right frameworks through which troops and equipment are

deployed.

Figures in constant 2010 US Dollars.

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In Wales, Allies agreed on priorities that include enhancing

and reinforcing training and exercises, improving command

and control structures, Joint Intelligence, Surveillance and

Reconnaissance, ballistic missile defence, and cyber

defence. They emphasised the importance of multinational

cooperation, which allows for significant operational

and cost benefits. They also affirmed the importance of

inclusive, sustainable, innovative and globally competitive

defence industries on both sides of the Atlantic.

NATO Forces 2020

As agreed at the 2012 Chicago Summit, NATO Forces

2020 establishes the goal of developing modern, tightly

connected forces that are equipped, trained, exercised

and commanded to operate together and with partners

in any environment. Smart Defence and the Connected

Forces Initiative contribute to meeting this goal, and the

newly adopted Readiness Action Plan complements and

reinforces these initiatives by improving overall readiness

and responsiveness.

Smart Defence

is an initiative to help Allies generate

defence capabilities by harmonising requirements

and pooling resources. It facilitates specialisation and

multinational collaboration among Allies and provides an

important tool for meeting priority targets. Since its launch

in 2011, 33 Smart Defence projects have been developed.

While most of these are longer-term endeavours, six

projects have already been completed and are delivering

important assets for the Alliance, four of these in 2014.

Also in 2014, two additional Smart Defence projects were

launched to tackle the cyber threat and build capacity in

that field. This brings the total to three Smart Defence

projects on cyber defence, including the Malware

Information Sharing Platform, the Smart Defence

Multinational Cyber Defence Capability Development

project, and the Multinational Cyber Defence Education

and Training project. And at the Wales Summit, further

projects were agreed, including a project to procure air-

to-ground precision-guided munitions cooperatively.

European Allies play a leading role in Smart Defence,

actively participating in or heading all 27 current

projects. Another way in which European Allies are

leading to contribute to NATO’s common security is

through groupings under the leadership of framework

nations, whereby Allies work on a multinational basis to

develop forces and capabilities required by the Alliance.

The

Framework Nation Concept

is based on NATO’s

experience in Afghanistan and was endorsed by Heads

of State and Government in Wales. Ten Allies, facilitated

by Germany, committed to focus on creating coherent

sets of capabilities in a range of areas. Another group

of seven Allies, facilitated by the United Kingdom,

established a Joint Expeditionary Force that will be

rapidly deployable and capable of conducting the

full spectrum of operations, including high-intensity

operations. Italy is leading a group of six Allies on

the basis of regional ties to promote stabilisation and

reconstruction, the provision of enablers, the usability of

land formations, and command and control.

The

Connected Forces Initiative (CFI)

focuses on the

ability of NATO’s forces to work together and with partners

in complex operations across a variety of environments.

The initiative was launched to ensure that the Alliance was

building on the lessons learned over 20 years of intense

operational experience. Through education, training and

exercises, Allies develop the skills and understanding

needed to be effective in multinational operations.

One element of CFI is a deployable command and

control capability for Special Operations. In a dynamic

and uncertain security environment Special Operations

Forces are essential, complementing air, land and

maritime forces. The Special Operations Component

Command Core (SOCC Core) includes approximately

70 personnel on very high readiness and provides a

scalable, deployable command and control option that

can support NATO operations. The SOCC Core was

declared to have full operational capability at the Wales

Summit in September.

Taking full advantage of available technology is also

part of CFI, and

Federated Mission Networking

(FMN)

is a prime example of NATO applying lessons

from recent experience to provide a more integrated

structure from which to operate. Through the experience

of ISAF in Afghanistan, the value of a coalition-wide

network was made clear: greater situational awareness

facilitates more effective decision making. Rather than

building a network only after a mission is established,

FMN provides a ready mechanism that can support

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any training, exercise or operation that NATO might

undertake in the future.

NATO Air Command and Control System

NATO’s systems for air command and control, along

with national systems within NATO European territory,

track all civilian and military aircraft in NATO airspace

over continental Europe, providing 24-hour surveillance

of the skies. NATO is upgrading a variety of NATO and

national systems with the NATO Air Command and

Control System (ACCS). By integrating air mission

control, air traffic control, airspace surveillance, airspace

management and force management functions, this

system will provide a Recognised Air Picture. This will

enable NATO and its members to manage all types of

air operations over NATO European territory and during

deployments beyond NATO’s territory.

A further advantage of ACCS is its deployable capability,

which was successfully used during an exercise in

2014 to provide live aircraft control. This deployable air

command and control capability, including its radar, is

due to reach initial operational capability in early 2015.

This new system underwent a series of tests in 2014 that

will enable the operational use of the system to increase

throughout the next three years, achieving full operational

capability in 2017.

Better intelligence: surveillance drones tested

during a major trial in Norway.

significant progress and provided important feedback

that will bring NATO closer to achieving its target of initial

operational capability at the end of 2016.

As part of the trial, a US Air Force RQ-4 Global

Hawk conducted several flights, demonstrating the

safe operation of high-altitude unmanned systems

in European airspace. NATO is acquiring the Global

Hawk to provide a NATO-owned and operated Alliance

Ground Surveillance (AGS) capability. The first NATO

AGS personnel arrived at the main operating base in

Sigonella, Italy in 2014, where they are coordinating

infrastructure work to support the timely integration of

the AGS capability.

Joint Intelligence, Surveillance and

Reconnaissance

2014 was an important year in advancing NATO’s Joint

Intelligence, Surveillance and Reconnaissance (JISR)

capabilities. In an operation, informed decision making

requires a consolidated view of NATO and national air,

ground, sea, and space assets. JISR brings together a

combination of processes, systems and people to enable

the production of fused reports.

In May, the Alliance held the largest JISR trial in its

history, “Unified Vision 14”. The trial, which took place in

Norway, tested NATO’s ability to gather information and

synthesise intelligence from multiple sources at different

stages of a crisis. With satellites, aircraft, unmanned

aerial vehicles, naval vessels, ground sensors and

human intelligence from 18 Allies, the trial demonstrated

Ballistic missile defence

As part of NATO’s commitment to collective defence,

Allies agreed in 2010 to extend NATO’s ballistic missile

defence (BMD) capability to provide coverage and

protection of all NATO European populations, territory

and forces. Since then, work has been underway to

acquire and develop the equipment and infrastructure

needed to make this capacity fully operational. In 2014,

NATO’s BMD was made more robust through additional

national voluntary contributions as well as further refined

command and control arrangements and procedures.

During 2014, two US BMD-capable Aegis vessels arrived

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at their new home port in Rota, Spain, and two more

vessels will arrive in 2015. These ships have advanced

sensor capabilities and interceptor missiles that can

detect and shoot down ballistic missiles. Deployment

of the land-based version of these capabilities, Aegis

Ashore, in Deveselu, Romania is on track for completion

in 2015. A second Aegis Ashore site will be established

in Poland in 2018.

Cyber security

As the Alliance looks to the future, cyber threats

and attacks will continue to become more common,

sophisticated and potentially damaging. Responding

to the evolving challenges in the cyber domain, NATO

leaders endorsed an Enhanced NATO Policy on Cyber

Defence and a Cyber Defence Action Plan at the Summit

in Wales in September. Building on the accomplishments

of previous NATO cyber defence policies, the 2014 policy

reflects the evolution of the threat landscape, technological

environment, and broader international approach to the

issue. The policy establishes that cyber defence is part of

the Alliance’s core task of collective defence, confirms that

international law applies in cyberspace, and intensifies

NATO’s cooperation with industry.

In 2014, NATO systems registered over 3,000 cyber

security events. The top priority of NATO cyber defence

is the protection of the communications systems owned

and operated by NATO. To this end, NATO has invested

in its NATO Computer Incident Response Capability

(NCIRC). In May 2014, NCIRC reached full operational

capability, expanding the protection of NATO networks

to 52 locations.

NATO continued, in 2014, to integrate cyber defence

components in its exercises, training and education.

In November 2014, the Alliance held its largest cyber

exercise to date using the NATO Cyber Range – a

platform for testing and evaluating software-enabled

solutions to security problems.

Safer route clearance: robots counter

improvised explosive devices (IEDs).

Biological, Radiological and Nuclear (CBRN) Defence

Centre of Excellence in Vyškov (Czech Republic),

NATO’s first CBRN Reach-Back Centre has been

established. This is an operations room from which key

stakeholders can connect with scientific and technical

CBRN experts, providing subject-matter expertise

wherever and whenever required.

New standards were introduced for armoured vehicle

protection and the testing of jammers against radio-

controlled improvised explosive devices (IEDs).

Through a voluntary national contribution fund, NATO

members supported activities related to future detection

technologies, a prototype database to support counter-

measure development against radio-controlled IEDs,

and training for counter-IED operators. NATO also

adopted a new doctrine of route clearance, incorporating

lessons learned by NATO countries in different theatres,

including Afghanistan, and adapting surveillance and

reconnaissance capabilities to new technologies.

Other aspects of technological advancement to counter

terrorism include work to better protect large aircraft

through infra-red counter-measures, as well as a planning

tool to support harbour protection called “Safe Port”.

Countering terrorism

NATO’s efforts to counter terrorism include projects to

develop and enhance capabilities that fill critical shortfalls

and meet NATO’s priorities. At the Joint Chemical,

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Reforming NATO’s structures

NATO’s work to reform its structures and improve its

efficiency is an ongoing effort. Implementation of the

NATO Command Structure that was agreed in 2011 is

approaching its final milestones. In 2014, Combined Air

Operations Centre Torrejon and Allied Land Command

Izmir achieved full operational capability. The new NATO

Command Structure is due to be fully operational in

December 2015. The reform of NATO Agencies also

continued in 2014, yielding a better governance structure,

more efficient services and cost savings. NATO has

reduced and consolidated its Agencies from fourteen in

2011 to three in 2014. And to improve NATO’s ability to

recruit and retain qualified talent, Allies are examining a

NATO-wide human resources strategy that would align

the administration of international civilian personnel in

accordance with common objectives and priorities.

The construction of NATO’s new headquarters in

Brussels, Belgium is on track for completion, with

the move scheduled for 2016. The building will house

NATO’s International Staff, International Military Staff,

NATO Agencies and the delegations of all NATO

members. The new headquarters provides a catalyst

for the transformation and revitalisation of how the

Organization functions. The building will also enable

NATO to reduce its headquarters’ environmental impact

and optimise energy consumption.

New Headquarters: efficient, flexible and sustainable.

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CHAPTER 3

Cooperation

wenty years ago, NATO began to formalise the

mechanisms through which it could advance both

practical and political cooperation with partners,

establishing the Partnership for Peace and the Mediterranean

Dialogue in 1994. Today, working with partners is one of

the Alliance’s core tasks. International events in 2014

demonstrated, once again, the value of NATO’s partnerships

and the need to continue strengthening relations with

partner countries and international organisations.

education and training adequately support the

interoperability objectives. One of the key innovations of

the Partnership Interoperability Initiative is the creation of

the Interoperability Platform, which provides a framework

for Allies and 24 partners to pursue cooperation and

dialogue on interoperability.

Partner countries have also been offered the opportunity

to craft detailed, tailor-made relationships with NATO.

So far, enhanced opportunities within the initiative have

been formally offered to Australia, Finland, Georgia,

Jordan and Sweden in view of the significant contributions

these countries have made to NATO-led operations and,

more generally, to deepening their relations with NATO.

Work on interoperability goes beyond prac-

tical cooperation in the field, whether

through operations or military

exercises. Staying connected

involves education and

training. NATO’s Defence

Education Enhancement

Programme

(DEEP)

focuses on increasing

intellectual interoper-

ability between mem-

bers and partners. In

2014, 12 countries

continued their partici-

pation in this programme

(Afghanistan, Armenia,

Azerbaijan, Georgia, Iraq,

Kazakhstan, Mauritania, the

Republic of Moldova, Mongolia,

Serbia, Ukraine and Uzbekistan).

The Republic of Moldova, for example,

is pursuing a four-year officers’ programme,

which will be fully operational from summer 2015.

Reinforcing the ability to work together

NATO is well-equipped to lead multinational operations

and is more effective with the support of its partners.

Many partner countries are steady contributors

to NATO-led operations, providing troops,

equipment or substantial financial aid

to efforts in Afghanistan, Kosovo,

and the fight against piracy.

The experience and know-

how gained through this

active cooperation is the

impetus for the Part-

nership Interoperability

Initiative. The initiative

was launched at the

2014 NATO Summit in

order to maintain and

bolster the experience

acquired when NATO’s

operational tempo was

at its highest.

To stay connected and in-

teroperable, a particular and re-

newed focus is placed on ensuring

that the partnership interoperability “tool-

box” is used effectively and that exercises,

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In Ukraine, which has the most extensive engagement with

DEEP, 40 events were conducted in 2014, involving more

than 30 NATO experts and 150 Ukrainian faculty members.

NATO also appointed a special advisor for military education

reforms who will lead the experts responsible for advising

the Ukrainian Ministry of Defence on state-of-the-art military

education systems.

Strengthening engagement and coordination with

international and regional organisations is also a priority

for NATO – not least because the complex challenges to

international security demand a comprehensive approach.

At the NATO Summit in Wales, NATO Foreign Ministers

held a meeting with the EU High Representative for Foreign

Affairs and Security Policy, the OSCE Chairman-in-Office

and the Secretary General of the Council of Europe to

discuss closer cooperation and issues of common concern.

This was the first time such a meeting took place.

Supporting Ukraine

Throughout the recent crisis in the East, NATO has

shown strong political support for Ukraine and its

freedom to decide its own future. At the Wales Summit

in September, NATO Heads of State and Government

met Ukrainian President Petro Poroshenko, sending a

strong political message of NATO’s unwavering support

for Ukraine’s sovereignty, independence and territorial

integrity and for the rules-based Euro-Atlantic security

order. Allies are also reinforcing their advisory presence

at the NATO offices in Kyiv and will continue to promote

the development of greater interoperability between

Ukrainian and NATO forces.

Defence and Related Security Capacity

Building

NATO is bolstering its existing partnership tools with the

creation of the Defence and Related Security Capacity

Building Initiative. This initiative, agreed at the NATO

Summit in Wales, seeks to reinforce cooperation in two

broad areas of activity. The first area involves advice

on defence reform and institution building, including

national security architecture, policy and defence

planning. The second involves defence capabilities and

the development of local forces, usually focused on

education and training over an extended period of time.

This initiative differs from other partnership tools because

it focuses primarily on short-term stability efforts.

NATO has extended invitations to Georgia, Jordan

and the Republic of Moldova and is ready to consider

requests from other interested countries – partner or

non-partner – and organisations. In December, Iraq

requested consideration as part of this new initiative.

And when conditions permit, NATO is also ready to

provide defence and related security capacity advisory

support for Libya. To help carry the initiative forward,

NATO’s Deputy Secretary General has been appointed

as Special Coordinator for Defence Capacity Building,

and a military hub has been established within the NATO

Command Structure to support related issues.

Support for Ukraine: Ukrainian President Petro Poroshenko

at the Wales Summit.

Within the framework of the Distinctive Partnership with

Ukraine that was agreed in 1997, NATO has increased its

practical support to the country as the crisis developed.

Measures include a number of immediate and short-term

actions to help Ukraine cope with the current crisis, as

well as longer-term measures geared towards capacity

building, capability development, and reform of the

armed forces and the security sector.

In this context, Allies launched five new trust funds

to support command, control, communications and

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computers (C4), logistics and standardization, cyber

defence, military career transition and the rehabilitation

of injured military personnel. These trust funds add to

NATO’s support for existing programmes on defence

education, professional development, security sector

governance and security-related scientific cooperation.

In 2014, Ukraine was the number one beneficiary of

the Science for Peace and Security (SPS) Programme,

with 15 new projects and an estimated Euro 10 million

budget for the 2014- 2017 period.

A wide network of partnerships around

the globe

NATO’s cooperation with partners spans the globe, with

countries volunteering expertise and know-how from

different continents in a joint effort to resolve common

security concerns.

Open door

Four partner countries aspire to NATO membership:

Bosnia and Herzegovina, Georgia, Montenegro and the

former Yugoslav Republic of Macedonia.

At the Summit in Wales, NATO leaders agreed to

launch a period of “intensified and focused talks” with

Montenegro to address the remaining issues with regard

to the country’s membership aspirations. Montenegro’s

progress will be assessed no later than the end of 2015

with a view to deciding whether to invite the country to

join the Alliance.

NATO leaders also agreed to develop a substantial

package of measures with Georgia to help the country

prepare for future NATO membership. The measures aim

to strengthen the country’s capabilities through defence

capacity building, training, exercises and enhanced

interoperability opportunities.

An invitation to the former Yugoslav Republic of

Macedonia will be extended after a mutually acceptable

solution to the issue over the country’s name is reached

within the framework of the United Nations.

NATO will continue working with Bosnia and Herzegovina

to pursue the reforms needed to meet NATO standards.

This principally involves registering immovable defence

properties as state property in Bosnia and Herzegovina.

Photo courtesy of Allied Maritime Command

Closer cooperation: counter-piracy is one area

where NATO works with partners.

In the Asia-Pacific in 2014, Japan became the fifth

partner in the region to sign an Individual Partnership

and Cooperation Programme (IPCP) after Mongolia,

New Zealand, the Republic of Korea and Australia.

The IPCP, which was signed by Japanese Prime Minister

Shinzo Abe in May 2014, focuses on areas including

disaster relief, cyber defence, counter-piracy, and

interoperability. Australia, Mongolia and New Zealand

were recognised as contributors to the Resolute Support

Mission, through which NATO will provide training,

advice and assistance in Afghanistan.

NATO pursued outreach with other countries in the region,

such as China, to discuss issues of common interest

including Afghanistan and counter-piracy. The Alliance

also remained engaged in informal regional meetings on

security including the Shangri-La Dialogue, the Jakarta

Defence Dialogue and the Seoul Defence Dialogue.

Turkey recognises the Republic of Macedonia with its constitutional name.

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NATO and its partners continued work to remove barriers

to women’s active and meaningful participation in conflict

prevention, management and resolution as well as in

peace-building and post-conflict cooperation initiatives.

Work also continued to reduce the risk of conflict-related

sexual and gender-based violence, with military guidelines

in this area currently being developed. In 2014, a revised

policy and a two-year Action Plan on Women, Peace and

Security were developed with and endorsed by partners

in the Euro-Atlantic Partnership Council (EAPC), as well

as Afghanistan, Australia, Japan, Jordan, New Zealand

and the United Arab Emirates. These policy documents

set ambitious targets and objectives for NATO to further

mainstream UN Security Council Resolution 1325 and

related resolutions in its activities in order to make this

agenda an integral part of everyday business in both

civilian and military structures.

A unique aspect of NATO’s 2014 efforts in this

area included a consultation conference with

representatives from civil society, who were invited

to provide recommendations that directly influenced

the development of the Action Plan. The interactions

between NATO members and partners as well as other

international organisations and civil society groups have

proven to be valuable for mobilising political commitment

and facilitating practical cooperation.

Empowering women: an Afghan officer trains

with an Australian mentor in Kabul.

Projects on UN Security Council Resolution 1325

implementation have been developed and funded by

NATO’s SPS Programme as well as through a trust fund.

The NATO Committee on Gender Perspectives brings

together Allies and partners to discuss best practices

in integrating gender perspectives in operations and

regarding the recruitment and retention of women in the

armed forces.

A further milestone in advancing the Women, Peace and

Security agenda within NATO was achieved with the

decision to make the NATO Special Representative for

Women, Peace and Security a permanent position within

the International Staff at NATO Headquarters.

Photo by Cpl Max Bree, Australian Department of Defence

NATO established a partnership with Iraq in 2012 to

help the country build more effective security forces. The

partnership includes cooperation in the areas of political

dialogue, education and training, response to terrorism,

defence institution building and border security, among

others. With the Iraqi government’s request at the end of

2014, the Alliance is considering additional cooperation

and support within the framework of the new Defence

and Related Security Capacity Building Initiative.

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NATO Public Diplomacy Division

1110 Brussels - Belgium

www.nato.int

1838-14 NATO Graphics & Printing - SGAR14ENG