The United States' military alliance with Europe — the cornerstone of American security policy for six decades — faces a "dim, if not dismal" future, U.S. Defence Secretary Robert Gates said Friday in a blunt valedictory address.
In his final policy speech as Pentagon chief, Gates questioned the viability of NATO, saying its members' penny-pinching and lack of political will could hasten the end of U.S. support. The North Atlantic Treaty Organization was formed in 1949 as a U.S.-led bulwark against Soviet aggression, but in the post-Cold War era it has struggled to find a purpose.
"Future U.S. political leaders — those for whom the Cold War was not the formative experience that it was for me — may not consider the return on America's investment in NATO worth the cost," he told a European think-tank on the final day of an 11-day overseas journey.
Gates has made no secret of his frustration with NATO bureaucracy and the huge restrictions many European governments placed on their military participation in the Afghanistan war. He ruffled NATO feathers early in his tenure with a direct challenge to contribute more front-line troops that yielded few contributions.
Even so, Gates's assessment Friday that NATO is falling down on its obligations and foisting too much of the hard work on the U.S. was unusually harsh and unvarnished. He said both of NATO's main military operations now — Afghanistan and Libya — point up weaknesses and failures within the alliance.
"The blunt reality is that there will be dwindling appetite and patience in the U.S. Congress — and in the American body politic writ large — to expend increasingly precious funds on behalf of nations that are apparently unwilling to devote the necessary resources or make the necessary changes to be serious and capable partners in their own defence," he said.
Without naming names, he blasted allies who are "willing and eager for American taxpayers to assume the growing security burden left by reductions in European defence budgets."
The U.S. has tens of thousands of troops based in Europe, not to stand guard against invasion but to train with European forces and promote what for decades has been lacking: the ability of the Europeans to go to war alongside the U.S. in a coherent way.
Defence Minister Peter MacKay said he understood Gates's frustration.
Speaking to reporters at the Conservative convention in Ottawa on Friday, MacKay said he had sensed Gates' concerns over sharing the burden of NATO among allies, but he had never seen Gates so adamant about the need for some countries to step up.
MacKay said Canada did not want to see a two-tier NATO.
Afghanistan deployment a struggle
The war in Afghanistan, which is being conducted under NATO auspices, is a prime example of U.S. frustration at European inability to provide the required resources.
'Despite more than two million troops in uniform, not counting the U.S. military, NATO has struggled, at times desperately, to sustain a deployment of 25,000 to 45,000 troops.' —U.S. Defence Secretary Robert Gates
"Despite more than two million troops in uniform, not counting the U.S. military, NATO has struggled, at times desperately, to sustain a deployment of 25,000 to 45,000 troops, not just in boots on the ground, but in crucial support assets such as helicopters, transport aircraft, maintenance, intelligence, surveillance and reconnaissance, and much more," Gates said.
Gates, a career CIA officer who rose to become the spy agency's director from 1991 to 1993, is retiring on June 30 after 4½ years as Pentagon chief. His designated successor, Leon Panetta, is expected to take over July 1.
For many Americans, NATO is a vague concept tied to a bygone era, a time when the world feared a Soviet land invasion of Europe that could have escalated to nuclear war. But with the demise of the Soviet Union in 1991, NATO's reason for being came into question. It has remained intact — and even expanded from 16 members at the conclusion of the Cold War to 28 today.
But reluctance of some European nations to expand defence budgets and take on direct combat has created what amounts to a two-tier alliance: the U.S. military at one level and the rest of NATO on a lower, almost irrelevant plane.
Gates said this could spell the demise of NATO.
"What I've sketched out is the real possibility for a dim, if not dismal future for the transatlantic alliance," he said. "Such a future is possible, but not inevitable. The good news is that the members of NATO — individually and collectively — have it well within their means to halt and reverse these trends and instead produce a very different future."
Gates has said he believes NATO will endure despite its flaws and failings. But his remarks Friday point to a degree of American impatience with traditional and newer European allies that in coming years could lead to a reordering of U.S. defence priorities in favour of Asia and the Pacific, where the rise of China is becoming a predominant concern.
To illustrate his concerns about Europe's lack of appetite for defence, Gates noted the difficulty NATO has encountered in carrying out an air campaign in Libya.
"The mightiest military alliance in history is only 11 weeks into an operation against a poorly armed regime in a sparsely populated country, yet many allies are beginning to run short of munitions, requiring the U.S., once more, to make up the difference," he said.
His comment reflected U.S. frustration with the allies' limited defence budgets.
"To avoid the very real possibility of collective military irrelevance, member nations must examine new approaches to boosting combat capabilities," he said.
He applauded Norway and Denmark for providing a disproportionate share of the combat power in the Libya operation, given the size of their militaries. And he credited Belgium and Canada for making "major contributions" to the effort to degrade the military strength of Libya's Moammar Gadhafi.
"These countries have, with their constrained resources, found ways to do the training, buy the equipment and field the platforms necessary to make a credible military contribution," he said.
But they are exceptions, in Gates's view.
A NATO air operations centre designed to handle more than 300 flights a day is struggling to launch about 150 a day against Libya, Gates said.
On a political level, the problem of alliance purpose in Libya is even more troubling, he said.
"While every alliance member voted for the Libya mission, less than half have participated, and fewer than a third have been willing to participate in the strike mission," he said. "Frankly, many of those allies sitting on the sidelines do so not because they do not want to participate, but simply because they can't. The military capabilities simply aren't there."
Afghanistan is another example of NATO falling short despite a determined effort, Gates said.
He recalled the history of NATO's involvement in the Afghan war — and the mistaken impression some allied governments held of what it would require of them.
"I suspect many allies assumed that the mission would be primarily peacekeeping, reconstruction and development assistance — more akin to the Balkans," he said, referring to NATO peacekeeping efforts there since the late 1990s. "Instead, NATO found itself in a tough fight against a determined and resurgent Taliban returning in force from its sanctuaries in Pakistan."
He also offered praise and sympathy, noting that more than 850 troops from non-U.S. NATO members have died in Afghanistan. For many allied nations these were their first military casualties since the Second World War.