The Road to NATO’s Riga Summit

Opening Address by the Norwegian Minister of Defence Anne-Grete Strøm-Erichsen, Oslo 3. November 2006

Norwegian Institute for Defense Studies, Center for Strategic and International Studies, Clingendael Centre for Strategic Studies

Ladies and gentlemen,

NATO is at a crossroad. We are facing challenges in Afghanistan. In developing new capabilities. In maintaining NATO as the primary forum for real transatlantic political consultation. We must move NATO forward. The upcoming Summit in Riga will be important.

Norway’s main objective – towards Riga and beyond – is to continue to be an active and central player in transatlantic relations. A capable and relevant NATO is in Norway’s interest. And clearly, it is in the interest of allies on both sides of the Atlantic.

My government is a strong proponent for effective multilateralism. We make this clear in the way we contribute to international military operations. We support the operations of the multilateral organizations. Such as the UN and NATO. But, we are also realists. We understand that these multilateral organizations and institutions will not be used unless they are effective. This is why Norway is a driving force for change. The UN and NATO are needed more than ever. But they must be more effective in dealing with the security challenges of today and tomorrow.

I would like to thank the hosts for arranging this conference only a few weeks before the Riga Summit. In fact, the timing could not be better.

I am very pleased to see that this conference is a true transatlantic venture. Bringing US and European institutions together is clearly in the spirit of NATO. And it is necessary if we are going to be able to develop the Alliance in the right direction.

The International Security Situation – and NATO’s Response

In a broad perspective, there are at least four sets of international security challenges facing NATO:

First, the challenge of managing shifts in the global distribution of power. As we set the direction for NATO’s further development we need to take a long term strategic perspective. As a minimum, the consequences of the increased influence of China and India must be taken into account. We also see that Russia is experiencing impressive economic growth. Russia is developing into a more confident player on the international arena.

We are seeing the outline of a new multipolar global security system. This realization should also guide NATO in its political consultations. The Alliance should not be afraid to consult on the most pressing global security issues of the day. Even when NATO military action is unrealistic or even clearly unnecessary. In this new multipolar system, we need real transatlantic political consultations more than ever.

NATO must develop new partnership relations around the globe. With nations who contribute to NATO’s operations and share our values. I am not saying that NATO should become a global organization. But the Alliance should have a global perspective on security.

A second challenge is related to the proliferation of weapons of mass destruction. In particular to “states of concern”. Handling this severe matter is a major effort for the international community.

The third set of challenges consists of several emerging issues with possible security implications. Like energy security, climate change and poverty issues. Of these, energy is the most recent addition to the agenda. All allies have strong energy interests. Norway certainly has major interests connected to our oil and gas resources. But the issue of energy security means different things to energy providers than it does to energy consumers. But we all have an interest in securing the production, transport and delivery of the energy that keeps our societies running and productive.

Once again it is still early to identify clearly what NATO’s response should be. We certainly don’t want to militarize the issue. But I am convinced that NATO has a role in energy security. Maybe it should be limited to consultations. Maybe we should look into possibilities for securing sea lines of communications. This is still an open question, but we need to develop the issue further.

And finally the challenges resulting from failed states – which in combination with terrorism can be a major threat to the international system.

Each of these four sets of security challenges will have significant impact on the future development of NATO. However, at this point in time, NATO’s main operational priority is in Afghanistan. This is also Norway’s main operational priority. The challenges we are facing in Afghanistan reflects several of the broader sets of security challenges. Most notably, the challenges connected to failed states.

The challenges in Afghanistan are complex. I recently visited Afghanistan. And I personally witnessed some of the critical challenges in the country.

During my visit, I met a little boy at the hospital in Meymaneh. A kerosene lamp had exploded in his home. The boy had severe burn injuries. But he was alive. His younger brother was not so fortunate. He was wounded in the same explosion. But had died only hours before.

The boy I met received medical treatment. At a hospital. This kind of treatment was not available only a few months earlier. The boy was treated at a local hospital where Norwegian medical personnel have established a basic treatment facility. With life saving equipment. Local Afghanis are now being trained to take care of situations like this. And thousands of people now have access to medical services that have not been available in the area before.

In many ways this story illustrates the reason for international operations in failed states. It is to facilitate development. To relieve suffering and promote basic human rights. But in order to develop local health care, education, transport, the rule of law, and all the other elements of “good governance” – there must be security. And therefore there must be a military presence. The challenge is that this presence must be robust enough to establish the necessary authority. While at the time being flexible enough to avoid becoming a part of the problem.

So, how should NATO respond to the complex set of challenges of Afghanistan? Are we able to? To succeed in Afghanistan will be difficult. But we have to try. To increase the likelihood of success, we need resolve. Like Abraham Lincoln once said: Always bear in mind that your own resolution to succeed is more important than any one thing.

I am confident that the alliance has the resolve to succeed. I am confident that NATO will succeed in helping the afghani people build a better future for themselves - and for their children.

However – maybe it is time to look more closely at the tools and methods we use to achieve these goals, and how we combine them. How should we prepare and improve in order to be even better suited to meet similar challenges in the future?

One answer is simple, yet very difficult: We must enhance the coordination of civilian and military efforts. Military forces are absolutely necessary to establish a minimum level of security. But military forces alone will never be successful in establishing lasting conditions for peace, stability and development. We need a comprehensive strategy. Based on experiences from Afghanistan, I suggest two areas for improvement:

First, the international community must coordinate civilian efforts in a better way. Today the civilian aspects of our engagements, in Afghanistan and elsewhere, are often fragmented and uncoordinated. This means that the overall results are less effective. Our Foreign Minister raised this issue at the NATO ministerial in New York recently. Norway will continue play an active part in bringing this issue forward.

Second, we need more coordination between civilian and military efforts. Reconstruction and development can not take place without the necessary level of security. Our military security operations are in vain if reconstruction and development do not follow. An overarching policy that captures all aspects should form the basis for NATO’s military contribution to operations. Agreement on such an approach should be an important deliverable for the Riga Summit.

NATO must develop its ability to coordinate better with other organizations involved in areas where our forces operate. We must cooperate closely with the UN and the EU. With the World Bank and others, including NGO’s.

To me it is clear that we need a dialogue at the strategic, institutional level. In particular we should be more focused on how NATO better can support and cooperate with the UN.

Norwegian defence policy priorities towards Riga

Norwegian security and defence policy is very closely linked to NATO. We are aware that NATO faces many different challenges, requiring different responses. Therefore, the Alliance must continue to develop modern, deployable, and flexible military capabilities. Our forces must be able to fight effectively and move quickly. They must be able to sustain engagements far away from their home territory. And they must be able to cooperate closely with allies and other forces.

We need a NATO who can still do high intensity warfare. But also a NATO that is better at sustaining long term stability operations. We need a capable NATO able to coordinate with civilian actors. This NATO will be relevant in all possible security scenarios. In Afghanistan or NATO’s own territory.

Therefore, Norway supports the Transformation Agenda for the Riga Summit. In particular we would like to see:

• A fully operational NATO Response Force
• A closer and more structured cooperation among Special Operations Forces in NATO
• Multinational solutions for Strategic Air Lift

Norway is one of the countries that has developed an initiative for better coordination, training and conceptual development of allied special operations forces. This capability is increasingly important in most conflict scenarios and we welcome more structured cooperation.

An important deliverable at Riga is the launching of a multinational initiative for strategic Air Lift. The capability is needed for NATO’s new missions. At the same time multinational cooperation is the only way small and medium sized countries could afford to have access to strategic Aircraft. Norway sees this as an important initiative, and is considering joining before Riga.

Norway would also like to see the Summit agree on principles from where to start a major reform of NATO’s various partnerships. Already we see that partner forces participate in NATO-led operations. Procedures for further enhancing their engagement should be established. This is particularly important regarding the Western European partners. But also for other international security providers sharing NATO’s values. Another important element is to support reform of armed forces in partner countries.

NATO reform must continue to be on the political agenda. Important work has already been initiated by the secretary general. We must have a new and ambitious approach to the way NATO is organised and does business. We must have a stronger focus on how we conduct operations. Reform will not be the main topic at Riga. But Norway intends to follow up the issue at the Summit.

Finally, let me again emphasize that Afghanistan is NATO’s most important mission. It will be the key issue at Riga. Norway is making a substantial contribution to ISAF, providing both a Provincial Reconstruction Team and a Quick Reaction Force. We will continue to evaluate our force posture there, looking for ways to further support the afghan people and NATO’s mission.

Norway strongly emphasises the civilian-military dimension. We actively promote the Concerted Planning and Action (CPA) concept. In my view this is a significant key to success in Afghanistan. I would therefore like to see the issue of enhanced civilian-military cooperation formally endorsed by the Heads of State and Governments at the Summit.

Conclusion

Our citizens must perceive NATO as relevant. They must understand that NATO is providing security and stability. Both on our own territory and through successful missions abroad.

In conclusion – NATO has come a long way in adapting to new security challenges. In order to stay relevant, we need to continue to improve. We need better civilian-military coordination. We need new and deployable capabilities. We also need a reformed organization. And real transatlantic political consultations. These are our main goals for the Riga Summit.

Thank you for you attention and good luck with the conference.