nato unclasslr^ i ) r y nq n history€¦ · · 2012-11-26communications problems 8 intelligence...
TRANSCRIPT
S H A P E 5 7 / 6 7 N A T O U N C L A S S L R ^ Y N Q I )
r
N HISTORY J»
I
r p*
SCfPREME HEADQUARTERS ALLIED POWERS EUROPE L g
y 19S7 >0/,
Ê [Jul - _ _ _
IA VV SHAPE, 3 0 5 o 7 s î ï G ^ W By . . . ^ ^ . , ¾ ¾ ^ . . D a t e * ? /¾¾ Hisfoncaï Office, OCOFS7 SHAPE
H
* THIS DOCUMENT CONSISTS CF 272 PAGES
y
5 § I BWISTi COHÏÏJJL
si:;;!
07 05
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO CONnDCNTIAfc^ NATO UNCLASSIFiie
SHAPE HISTORY
1957
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO UNCLASSIFIED
S H A P E 57 / 6 7
DISTRIBUTION NO. O F C O P I E S
OSACEUR 2 O DSA C EUR I O C O F S 1 O A I R D E P 1 ODNA 1 ODCLA 1 O D C P O 1 S P ASST I N T A F 1 OSECY 1 A C O S PANDA 1 ACOS I N T E L 1 ACOS P A N D P 1 ACOS O P S 1 A C O S L O G 1 ACOS CANDE 1 CH BUDFIN 1 CH P I D 1 PANDA ( C e n t r a l R e g i s t r y ) 2 H i s t o r i c a l Sec t ion 2
T o t a l 22
NATO UNCLASSIFIED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO UNCLASSIFIED
S H A P E 57 / 6 7
F O R E W O R D
The H i s t o r y of S H A P E i s be ing p r e p a r e d i n a s e r i e s of v o l u m e s of wh ich t h e f i r s t t h r e e c o v e r the p e r i o d s of c o m m a n d of G e n e r a l s E i s e n h o w e r , R idgway t and G r u e n t h e r . Vo lume I, f o r t h e E i s e n h o w e r ' C o m m a n d , and V o l u m e II, f o r t h e R idgway C o m m a n d , have b e e n i s s u e d . V o l u m e III, w h i c h c o v e r s t h e G r u e n t h e r C o m m a n d , i s in d r a f t f o r m .
Beginning w i th G e n e r a l N o r s t a d 1 s C o m m a n d (end-1956), t h e H i s t o r y of SHAPE h a s b e e n u n d e r t a k e n on a c a l e n d a r y e a r b a s i s . T h i s v o l u m e c o v e r s SHAPE H i s t o r y f o r t h e y e a r 1957, and i s be ing p u b l i s h e d s i m u l t a n e o u s l y w i t h t h e SHAPE H i s t o r y f o r 1958. Both v o l u m e s , wh ich p r e v i o u s l y e x i s t e d i n d r a f t f o r m , a r e be ing i s s u e d to m a k e a v a i l a b l e t o m e m b e r s of t h e SHAPE Staff b a c k g r o u n d i n f o r m a t i o n tha t i s o f ten n e e d e d f o r a v a l i d r e c o m m e n d a t i o n o r d e c i s i o n .
P u b l i s h e d v o l u m e s of t h e SHAPE H i s t o r y f o r 1959 and f o r t h e p e r i o d 1960-1965 h a v e b e e n d i s t r i b u t e d wi th in t h e S H A P E Staff and a r e a v a i l a b l e t h r o u g h t h e SHAPE C e n t r a l R e g i s t r y a n d R e c o r d s Sect ion, PANDA Divis ion , SHAPE.
C o m m e n t s and s u g g e s t i o n s f o r i m p r o v e m e n t of SHAPE H i s t o r i e s m a y be brought to t h e a t t en t i on of t h e H i s t o r i c a l Sect ion, Of f i ce of t h e S e c r e t a r y of the Staff , SHAPE.
B r i g a d i e r G e n e r a l , US A F S e c r e t a r y of t h e Staff
24 Augus t 1967.
NATO UNCLASSIFIED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
! '••̂ .y VllIij w 'v..: H Ï; K-'JXJ à \j 3 rt^
SHAPE HISTORY 1957
I N D E X
P a g e
C H A P T E R I. 1
R e v i e w of G e n e r a l N o r s t a d ' s A s s u m p t i o n of C o m m a n d a s SACËUR and Of f i c i a l V i s i t s 1
SACEUR1 S M i s s i o n , R e s p o n s i b i l i t i e s and P o w e r s . . 2 Al l i ed C o m m a n d E u r o p e 3 M a j o r Subord ina t e C o m m a n d e r s 3 The SHAPE Staff 4 SACEUR1 s F o r c e Si tuat ion 5 I m p a c t of E v e n t s in H u n g a r y and the Suez A r e a . . . 6 P r o b l e m s of the Air D e f e n s e of NATO T e r r i t o r y . . 7 C o m m u n i c a t i o n s P r o b l e m s 8 I n t e l l i g e n c e P r o b l e m s 8 L o g i s t i c s P r o b l e m s 9
C H A P T E R II : P O L I C Y and DIRECTION. 12
The P o l i t i c a l D i r e c t i v e - R e v i e w of P r o p o s a l s and Deve lopment of the D i r e c t i v e 12
The P o l i t i c a l D i r e c t i v e - F i n a l V e r s i o n 16 R e v i s i o n of S t r a t egy D o c u m e n t s : MC 3 / 5 ( F i n a l ) ,
MC 48(Fina l ) , MC 1 4 / l ( F i n a l ) 19 SGN's I n t e r n a t i o n a l P l a n n i n g T e a m s ' R e v i e w s and
R e v i s i o n s 20 R e v i e w by M a j o r NATO C o m m a n d e r s and Na t iona l
M i l i t a r y A u t h o r i t i e s 23 Approva l of New P o l i c y D o c u m e n t s by t h e NAC . . . 24 A l e r t M e a s u r e s - B a c k g r o u n d 25 N e g o t i a t i o n s wi th Na t iona l A u t h o r i t i e s on A l e r t
M e a s u r e s 26 S A C E U R ' s R e q u i r e d A l e r t M e a s u r e s - S H A P E / 7 6 / 5 6 28 The Standing Group R e p o r t on S A C E U R ' s A l e r t
M e a s u r e s - MC 67 (Rev i sed ) 29 New Nego t i a t i ons wi th Na t iona l A u t h o r i t i e s on A l e r t
M e a s u r e s . . 30 SACEUR' s E m e r g e n c y D e f e n s e P l a n 1957 34
i
• A
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 NATO CONFIDENTIAL )
P a g e
S A C E U R ' s A tomic S t r i k e P l a n 34 A t o m i c P l a n n i n g P o l i c y 35
C H A P T E R III: F O R C E S . 37
G e n e r a l A p p r a i s a l B a s e d on 1956 Annual R e v i e w . . 37 B a s i c R e s p o n s i b i l i t i e s of SACEUR's Shield F o r c e s
and S t r i ke F o r c e s 39 P r o b l e m s of Centred. E u r o p e Shield F o r c e s . . . . 40 E c h e l o n Sys t em f o r Shield G r o u n d F o r c e s 41 Annual Rev i ew P l a n n i n g Guidance in 1957 43 The R e s u l t s of the 1957 Annual R e v i e w 44 M i l i t a r y C o m m i t t e e A s s e s s m e n t of Annual R e v i e w ,
1957 45 SACEUR1 s Comba t E f f e c t i v e n e s s R e p o r t 1956 . . . 45 Spec ia l P r o b l e m s - B r i t i s h R e d u c t i o n in F o r c e s . . 48 S A C E U R ' s S t a t e m e n t s to NAC on UK Wi thd rawa l . . 50 D i s c u s s i o n of UK R e d u c t i o n wi th in the W e s t e r n E u -
r o p e a n Union 52 B r i t i s h White P a p e r on P r o p o s e d W i t h d r a w a l s . . . 52 S A C E U R ' s Statement to the Standing Group on UK
W i t h d r a w a l s 54 D i s c u s s i o n in NATO Counci l of UK W i t h d r a w a l s . . 55 B e l g i a n Reduc t ion of M i l i t a r y S e r v i c e . 55 P r e s e n t a t i o n of P r o p o s a l s by MOD B e l g i u m . . . . 56 C o n s i d e r a t i o n of Be lg i an P r o p o s a l s by the NATO
Counci l 57 B u i l d - u p of the G e r m a n F o r c e s 59 P r o p o s e d S t reng th G o a l s and T u r n o v e r Da te s . . . 60 F i r s t T u r n o v e r of G e r m a n T r o o p s 61 I n t e g r a t i o n of G e r m a n Air F o r c e in to A C E . . . . 61 The S c h l e s w i g - H o l s t e i n P r o b l e m . 62 Ground Atomic D e l i v e r y F o r c e s 64 Y e a r End A s s e s s m e n t 66
C H A P T E R IV: The A C E MINIMUM F O R C E STUDY, 1958-63. 68
P l a n n i n g Guidance - G e n e r a l . 68 P l a n n i n g fo r the G e r m a n A c c e s s i o n to N A T O . . . . 69 A C E C a p a b i l i t i e s P l a n 1957 69 NATO P o l i t i c a l and E c o n o m i c Guidance . . . . . . 69 F o r c e s Ava i l ab le to SACEUR f o r I m p l e m e n t a t i o n of
S t r a t e g i c Concept 70 S A C E U R ' s 1960-62 Study 71 D i v e r g e n c i e s of SACEUR and SA OLANT F o r c e
P o s t u r e Studies 71
i i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
B r i e f i n g the Counci l a f t e r Soviet Sa te l l i t e Launch ing and ICBM C l a i m s 105
Cos t of Ma in ta in ing A C E F o r c e s 106 NAC Q u e s t i o n s on the M i n i m u m F o r c e S tudy . . . . 107 M r . S p a a k ' s A n a l y s i s of the M i n i m u m F o r c e S tudy ' s
I m p a c t on P l a n n i n g I l l SACEUR1 s R e p l i e s to Q u e s t i o n s r a i s e d by
C h a i r m a n N A C 113 Changes in I n f r a s t r u c t u r e P r o g r a m s 114 R e a c t i o n s of M a j o r Subord ina t e C o m m a n d e r s . . . 116 B r i e f i n g T e a m s V i s i t s t o M S C s 117 P r o g r e s s of MC 70 120 SHAPE R e p r e s e n t a t i v e s Mee t i ng wi th SGN in
Wash ing ton D. C 121 SGN Conso l ida t ion of SACEUR, SACLANT and
CINCHAN Studies ( P r e p a r a t i o n of MC 70) . . . . 121 Val id i ty of MC 1 4 / 2 (Rev i sed ) in P r e p a r a t i o n of
M C 70 123
C H A P T E R V: TRAINING. 124
S A C E U R ' s T e r m s of R e f e r e n c e Conce rn ing T r a i n i n g 124 SHAPE Staff Du t i e s C o n c e r n i n g T r a i n i n g of A C E
F o r c e s 124 T r a i n i n g A i m s and O b j e c t i v e s of E x e r c i s e s in
Al l ied C o m m a n d E u r o p e 125 C o m m a n d e r s ' E x e r c i s e s R e p o r t s 126 P l a n n i n g f o r E x e r c i s e STRIKE BACK 127 Mod i f i ca t i on of E x e r c i s e STRIKE BACK 127 E x e r c i s e Coun te r P u n c h . 128 C o n c l u s i o n s d r a w n f r o m C O U N T E R P U N C H . . . . 130 , » R e c o m m e n d a t i o n s m a d e a f t e r COUNTER P U N C H - !
C o m m u n i c a t i o n s 131 ! E x e r c i s e P L A Y B A C K 131 V E x e r c i s e s B L U E ICE, BLIND E Y E , and BROWN JUG 132 E x e r c i s e D E E P WATER 133 C P X V I I 134 Ai r D e f e n s e / A t o m i c S t r ike E x e r c i s e s 136 D i s c u s s i o n s on Conduct ing Combined Jo in t A tomic
and Ai r D e f e n s e E x e r c i s e s 137 E s t a b l i s h m e n t of Spec ia l Weapons C o u r s e at
O b e r a m m e r g a u 138 A C E R e a d i n e s s T e s t P r o g r a m P r o p o s a l s 139 Annual NATO T r a i n i n g C o n f e r e n c e 140
iv
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MATO C Q m n m m i
S H A P E S'? / V7 NATO CONFIDENTIAL
P a g e
NAC Act ion on the SACEUR and SACLANT F o r c e Studies 73
R e - E x a m i n a t i o n and R e v i s i o n of S t r a t eg i c Concept and M i n i m u m M i l i t a r y M e a s u r e s D o c u m e n t s . . . 73
P l a n n i n g and the Annual R e v i e w 74 R e v i e w of I n f r a s t r u c t u r e P r o g r a m s B a s e d on New
F o r c e P o s t u r e 74 D i s c u s s i o n s of SGN wi th M a j o r NATO C o m m a n d e r s
on Gu idance B a s e d on p a t t e r n of F o r c e s Study . . 75 I s s u a n c e of P r o v i s i o n a l Gu idance to Na t ions . . . . 78 R e v i s i o n of F o r c e Study 79 E f f e c t of B r i t i s h R e d u c t i o n of F o r c e s on 1960-1962
P a p e r s 80 WEU Views on C o n c e p t s of F o r c e s P o s t u r e . . . . 81 A s s e s s m e n t of F o r c e R e q u i r e m e n t s P a p e r s . . . . 82 ACOS P A N D P ' s R e p o r t on F o r c e R e q u i r e m e n t s Study 83 G e n e r a l N o r s t a d G i v e s Gviidance f o r the Study . . . 85 A s s u m p t i o n s f o r the New Stud ies 86 D e t e r r e n t C a p a b i l i t i e s of S A C E U R ' s F o r c e s . . . . 87 Object ives and P r i o r i t i e s of R e q u i r e m e n t s 89 Cont inua t ion of Annual R e v i e w 90 D C P A N D P Guidance 90 NAC R e q u e s t f o r R e p l i e s by SACEUR to WEU
Q u e s t i o n s 90 SHAPE Staff Ac t ions 91 S A C E U R ' s B r i e f i n g of NAC at SHAPE 92 Q u e s t i o n s by the Nat iona l R e p r e s e n t a t i v e s & SECGEN 93 Q u e s t i o n s R a i s e d by Nat iona l A u t h o r i t i e s of F r a n c e
and G e r m a n y 95 P r o g r e s s of ACE M i n i m u m F o r c e Study 96 S A C E U R ' s A p p r a i s a l of M i n i m u m F o r c e Study
Deve lopmen t 97 New C o n c e p t s of A C E T a s k s - Delay in P r o g r e s s . . 97 D C P A N D P P r o p o s a l s f o r Comple t i on of F o r c e s Study 98 D C P A N D P R e c o m m e n d a t i o n s Conce rn ing MSCs . . . 99 D i s t r i b u t i o n of the Study 99 P r o g r e s s R e p o r t on the M i n i m u m F o r c e Study by
ACOS P A N D P 99 SACEUR's D i r e c t i v e s f o r R e v i s i o n s 100 B r i e f i n g f o r Ind iv idua l s C o n c e r n e d in the Study . . . 101 The M i n i m u m F o r c e Study f o r A C E 1958-63 i s
P u b l i s h e d 102 R e s u m e s of Conten t s of Vol. 1 by C h a p t e r s , and
Vol . 2 by Annex T i t l e s 103
i i i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
. M T O c o ^ o E C T i A L ' S H A P E 5 7 / 6 7 NATO CONFIDENTIAL
L a n d T r a i n i n g A r e a s - C e n t r a l Reg ion 141 The Voge l sang - E l s e n b o r n T r a i n i n g A r e a . . . . 143
C H A P T E R VI: COMMAND STRUCTURE & ORGANIZATION. 144
G e n e r a l B a c k g r o u n d 144 R e s p o n s i b i l i t i e s of SACEUR and His C o m m a n d s . . . 144 C o m m a n d S t r u c t u r e in the Center 145 Ass ignment of G e n e r a l Speidel to LANDCENT . . . 151 A s s i g n m e n t of Comba t Group Bl 152 Al l ied Nava l C o m m a n d in the Ba l t i c . 154 Land B o u n d a r y in S c h l e s w i g - H o l s t e i n 160 The T u r k i s h S t r a i t s P r o b l e m . . - . . ' 161 Jo in t C o m m a n d and O p e r a t i o n s C e n t e r s 162 P e r s o n n e l R e d u c t i o n s 164 P e r s o n n e l R e q u i r e m e n t s P r o g r a m 168 P e r s o n n e l f o r Air D e f e n s e and E a r l y Warn ing . . . 170
C H A P T E R VH; LOGISTICS & I N F R A S T R U C T U R E . 172
P a r t I : L o g i s t i c s .
I n t roduc t ion 172 P l a n n i n g - S A C E U R t s R e s p o n s i b i l i t i e s 173 L o g i s t i c Sys t em Al l ied C o m m a n d E u r o p e 174 L o g i s t i c P o l i c y and Guidance 177 The L o g i s t i c I m p l i c a t i o n s of the M i n i m u m F o r c e
Study 178 R e p l a c e m e n t , M o d e r n i z a t i o n and S t anda rd i za t i on
of Equ ipment 180 S t r a t eg i c R e s e r v e s and R e i n f o r c e m e n t Uni t s . . . . 180 N u c l e a r Weapon L o g i s t i c s 181 Speci f ic Nava l M a i n t e n a n c e and Suppor t 181 Spec i f ic Air F o r c e M a i n t e n a n c e and Support . . . . 181 P r i n c i p a l L o g i s t i c P r o b l e m s 182 P O L - The Suez C r i s i s 182 T h e N A T O P i p e l i n e S y s t e m 185
P a r t II: I n f r a s t r u c t u r e .
In t roduc t ion 189 I n f r a s t r u c t u r e and Al l ied C o m m a n d E u r o p e 189 SACEUR1 s R e s p o n s i b i l i t i e s 190 NATO C o m m o n I n f r a s t r u c t u r e P r o g r a m s b e f o r e 1956 191 The 1957 I n f r a s t r u c t u r e P r o g r a m - SHAPE R e c o m -
m e n d e d Eigh th Sl ice P r o g r a m . . . 192
V
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
F i n a n c i n g t h e F o r w a r d S c a t t e r S y s t e m -E i g h t h S l i c e 193
E a r l y W a r n i n g R a d a r S y s t e m - Advance Approva l 194 The T a c t i c a l A i r f i e l d s P r o b l e m - E igh th Sl ice . . 195 T h e E igh th S l i ce I n f r a s t r u c t u r e P r o g r a m i s Approved 197 The Nin th S l ice I n f r a s t r u c t u r e P r o g r a m 198 S u p p l e m e n t a r y Ninth Sl ice R e c o m m e n d a t i o n s . . . 200 P r o g r e s s in C o n s t r u c t i o n of A i r f i e l d s . . . . . . 201 F u t u r e l n f r a s t r u c t u r e P r o v i s i o n 202 The T e n t h S l ice I n f r a s t r u c t u r e P r o g r a m 204 The P r o b l e m of I n f r a s t r u c t u r e C o s t s . 205 P r o j e c t s C o n s i d e r e d f o r S u s p e n s i o n 205 I n t e r i m C o n c l u s i o n s f r o m 1958-63 P o s t u r e Study . 207 P o s i t i o n s of O v e r r u n s 207 I m p l i c a t i o n s of M i n i m u m F o r c e Study . . . . . . 209 P r o b l e m s of Budget F o r e c a s t i n g 210 The P o s i t i o n at t h e End of 1957 213
C H A P T E R VIII: COMMUNICATIONS. 214
I n t r o d u c t i o n 214 The L o n g - R a n g e E a r l y Warn ing S y s t e m 215 S H A P E P l a n n i n g f o r t h e E a r l y Warn ing S y s t e m . . 215 Counci l A p p r o v a l of E a r l y Warn ing I n f r a s t r u c t u r e . 217 P r o b l e m s of Na t iona l Viewpoin t s Conce rn ing
S p e c i f i c a t i o n s 217 Na t iona l D i f f e r e n c e s of Opinion R e c o n c i l e d . . . . 219 Si tua t ion at End-1957 220 R a d a r Da ta P r o c e s s i n g and T r a n s m i s s i o n . . . . 221 E l e c t r o n i c C o u n t e r m e a s u r e s . . 222 C o m m u n i c a t i o n s - E l e c t r o n i c s P e r s o n n e l 223 T h e F o r w a r d Sca t t e r S y s t e m 225 The D e v e l o p m e n t of the F o r w a r d Sca t t e r S y s t e m . 228 (Note on the Uni ted S ta t e s F u n d e d P o r t i o n ) . . . . 232
C H A P T E R IX: I N T E L L I G E N C E . 233
I n t r o d u c t i o n 233 S A C E U R ' s P e a c e t i m e In t e l l i gence R e q u i r e m e n t s . . 233 The W a r t i m e R e q u i r e m e n t s 236 The Soviet T h r e a t ." 238 E x a m i n a t i o n of ACE Inte l l igence S y s t e m 239 Exp lo i t a t i on of E a r l y Warn ing S y s t e m s f o r In t e l l i -
g e n c e P u r p o s e s . 241
v i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
JNATO .CONFIDENTIAL S H A P E 5 7 / 6 7 NATO CONFIDENTIAL
C H A P T E R X: AIR DEFENSE« 243
In t roduc t i on 243 S H A P E S t u d i e s t h e P r o b l e m 244 P l a n f o r t h e I n t e g r a t i o n of Ai r D e f e n s e 247 The F o r w a r d M i s s i l e I n t e r c e p t o r Zone 250
A P P E N D I X A t o C h a p t e r I . 252 Key O f f i c e r s at SHAPE, 1957 252
A P P E N D I X A to C h a p t e r i n . 254
B a c k g r o u n d on F o r c e S t a t i s t i c s 254
A P P E N D I X B t o C h a p t e r III. 260
C h r o n o l o g i c a l Out l ine of F o r c e S t a t i s t i c s 260
y i i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO CC^iOEOTiAL S H A P E 5 7 / 6 7 N A T O S E ^ f t E T " -
C H A P T E R I
R e v i e w of G e n e r a l N o r s t a d f B A s s u m p t i o n of C o m m a n d a s SACEUR
and Of f i c i a l V i s i t s .
G e n e r a l L a u r i s N o r s t a d , USAF, a s s u m e d c o m m a n d of Al l ied C o m m a n d
E u r o p e (ACE) and the t i t l e of S u p r e m e All ied C o m m a n d e r E u r o p e (SACEUR)
f r o m G e n e r a l A l f r e d M. G r u e n t h e r on 20 N o v e m b e r 1956 at b r i e f c e r e m o n i e s
on the g r o u n d s of the S u p r e m e H e a d q u a r t e r s Al l ied P o w e r s E u r o p e (SHAPE) .
G e n e r a l G r u e n t h e r , t h e r e t i r i n g c o m m a n d e r , had s e r v e d a s SACEUR s i n c e
11 J u l y .1953 and f o r t h e g r e a t e r p a r t of tha t p e r i o d G e n e r a l N o r s t a d had
s e r v e d a s h i s Air D e p u t y . ^
G e n e r a l N o r s t a d ' s f i r s t r e m a r k s upon a s s u m i n g h i s c o m m a n d w e r e
i n d i c a t i v e of h i s s t rong bel ief in the N o r t h At lan t ic T r e a t y O r g a n i z a t i o n .
"I p l e d g e m y s e l f to t h i s t a s k , " he s t a t ed . "I b e l i e v e in t h e Nor th At lant ic
T r e a t y O r g a n i z a t i o n and in t h e uni ty of f r e e and equal p e o p l e s f o r which it
s t a n d s . I b e l i e v e in our t a s k of a s s u r i n g p e a c e on j u s t and l a s t i n g founda t ions .
I b e l i e v e in our p e o p l e - t he m e n and w o m e n of t h i s c o m m a n d - and in t h e i r
devot ion to the c a u s e tha t we a l l s e r v e . With t h e i r he lp - wi th your he lp -(2)
I look to t h e f u t u r e wi th c o n f i d e n c e . "
I m m e d i a t e l y fol lowing h i s a s s u m p t i o n of c o m m a n d , G e n e r a l N o r s t a d
began a s e r i e s of v i s i t s to t h e n a t i o n s which c o n t r i b u t e d f o r c e s to h is c o m m a n d ,
speak ing wi th na t iona l a u t h o r i t i e s and l e a d e r s and a d d r e s s i n g publ ic g a t h e r i n g s
in s o m e of t h e s e c o u n t r i e s . His f i r s t o f f i c i a l s e r i e s of v i s i t s inc luded t r i p s
to h i s m a j o r s u b o r d i n a t e c o m m a n d s , H e a d q u a r t e r s Al l ied F o r c e s N o r t h e r n
E u r o p e , K o l s a a s (Oslo) on 29-30 N o v e m b e r ; H e a d q u a r t e r s Al l ied F o r c e s
M e d i t e r r a n e a n (Mal ta) and H e a d q u a r t e r s Al l ied F o r c e s Southern E u r o p e ,
(1) De ta i l s of t h i s c e r e m o n y a r e con ta ined in SHAPE P r e s s R e l e a s e 56-39 , 20 Nov 56.
(2) A d d r e s s by G e n e r a l L a u r i s N o r s t a d at SHAPE Handover C e r e m o n y on 20 Nov 56.
1 NATO CONFIDENTIAL ({
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 ^ ^ N A T O S E Ê E J E ï ^
N a p l e s (I taly) on 3 - 4 D e c e m b e r ; and H e a d q u a r t e r s Al l ied F o r c e s C e n t r a l E u -
r o p e , F o n t a i n e b l e a u ( F r a n c e ) on 6 D e c e m b e r . On 27-31 J a n u a r y 1957, G e n e -
r a l N o r s t a d v i s i t e d t h e Uni ted S t a t e s ; on 11-13 F e b r u a r y , t h e Uni ted Kingdom;
on 1 4 - 1 6 F e b r u a r y , I t a ly ; on 18-20 F e b r u a r y , the N e t h e r l a n d s ; on 2 5 - 2 8 F e b r u -
a r y , B e l g i u m and L u x e m b o u r g ; on 7 - 8 M a r c h , T u r k e y ; on 13-14 M a r c h , Den-
m a r k ; on 19-21 M a r c h , G e r m a n y ; on 25-27 M a r c h , P o r t u g a l , and on 29-30
A p r i l , G r e e c e .
S A C E U R ' s M i s s i o n , R e s p o n s i b i l i t i e s and P o w e r s .
The m o s t r e c e n t o f f i c i a l s t a t e m e n t f r o m NATO a u t h o r i t i e s se t t ing f o r t h
S A C E U R ' s R e s p o n s i b i l i t i e s and P o w e r s in P e a c e and War had been i s s u e d
on 7 J u l y 1955 by t h e M i l i t a r y C o m m i t t e e of t h e N o r t h At lan t ic T r e a t y O r g a -(3)
n i z a t i o n .
The s u m to t a l of t h e r e s p o n s i b i l i t i e s a s s i g n e d to SACEUR c o m p r i s e d ,
in e f f e c t , h i s o v e r a l l m i s s i o n . Th i s m i s s i o n can be s t a t ed in g e n e r a l t e r m s
a s : To k e e p t h e p e a c e in W e s t e r n E u r o p e and, fa i l ing t ha t , t o defend W e s t e r n
E u r o p e s u c c e s s f u l l y a g a i n s t a t t a c k .
In p e a c e t i m e SACEUR m u s t p r e p a r e h i s c o m m a n d f o r w a r t i m e o p e r a t i o n s .
T h i s invo lved d i v e r s e and c o m p l e x r e s p o n s i b i l i t i e s in the f i e l d s of m i l i t a r y
t r a i n i n g and c o m b i n e d e x e r c i s e s ; wide l og i s t i c r e s p o n s i b i l i t i e s u n a c c o m p a n i e d
by r e q u i s i t e p o w e r s of c o n t r o l ; e x t e n s i v e r e s p o n s i b i l i t y f o r m i l i t a r y p lann ing
at a l l l e v e l s and f o r d e v e l o p m e n t of r e c o m m e n d a t i o n s to both the na t ions and
to NATO in m a t t e r s of s t r e n g t h , c o m b a t e f f e c t i v e n e s s , i n f r a s t r u c t u r e , and
o r g a n i z a t i o n .
T h e n a t u r e of SACEUR' s T e r m s of R e f e r e n c e d e m a n d e d tha t he m a i n -
t a i n c l o s e l i a i s o n wi th na t iona l a u t h o r i t i e s of the n a t i o n s con t r i bu t ing f o r c e s and r e s o u r c e s to h i s c o m m a n d ; tha t he c o o r d i n a t e fu l l y wi th e a c h of t h e s e
n a t i o n s in any m a t t e r s in which t h e s e n a t i o n s could have an i n t e r e s t ; tha t he
k e e p h i s s u p e r i o r s f u l l y i n f o r m e d of a l l h i s a c t i v i t i e s in t h e m a n y f i e l d s of
(3) M C 53(Fina l ) , 7 J u l 55: R e v i s e d T e r m s of R e f e r e n c e f o r t h e S u p r e m e Al l i ed C o m m a n d e r E u r o p e .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO CONFIDENTIAL NATO ^SECRET
ac t i v i t y in wh ich h i s h e a d q u a r t e r s engaged ; and tha t , in dea l ing wi th h i s
own m a j o r s u b o r d i n a t e c o m m a n d e r s , he e x e r c i s e a c l o s e c o n t r o l over t h e i r
a c t i v i t i e s . ^
SACEUR did not ob jec t to the t endency of h i s o f f i c i a l i n s t r u c t i o n s to
l i m i t h i s f r e e d o m of ac t ion . The v e r y n a t u r e of t h e a l l i ance , of which h i s
command w a s the m i l i t a r y m a n i f e s t a t i o n , d e c r e e d tha t v o l u n t a r y c o m p l i a n c e
by t h e n a t i o n s . r a t h e r than f o r c e d obed ience to d i r e c t i v e s would, in the long
r u n ^ p r o d u c e t h e m o r e e f f e c t i v e r e s u l t , even thoughJLLmight in th*-R>ir>rt tajçrn
a p p e a r w a s t e f u l of t i m e .
Al l ied C o m m a n d E u r o p e .
The g e o g r a p h i c a l a r e a f o r which SACEUR w a s m i l i t a r i Iy r e s p o n s i b l e
c o v e r e d land and ocean a r e a s f r o m the n o r t h e r n m o s t t ip of N o r w a y to the
E a s t e r n b o r d e r s of T u r k e y . T h i s a r e a , g e n e r a l l y known a s Al l ied C o m m a n d
E u r o p e , c o m p r i s e d f o u r g e o g r a p h i c a l r e g i o n s each unde r c o m m a n d of a (5) m a j o r s u b o r d i n a t e c o m m a n d e r to SACEUR.
M a j o r Subord ina te C o m m a n d e r s .
In N o r t h e r n E u r o p e , t he C o m m a n d e r - i n - C h i e f N o r t h e r n E u r o p e
(CINCNORTH) c o m m a n d e d Al l ied F o r c e s l o c a t e d in N o r w a y and D e n m a r k
and in the w a t e r s t h e r e o f . L ieu tenan t G e n e r a l Sir Cec i l Stanley Sugden,
UK A r m y , s e r v e d a s CINCNORTH dur ing the p e r i o d of t h i s r e p o r t . His h e a d -
q u a r t e r s w e r e l o c a t e d at K o l s a a s , Norway , n e a r Os lo .
C o m m a n d in C e n t r a l E u r o p e c a m e under the C o m m a n d e r - i n - C h i e f
C e n t r a l E u r o p e (CINCENT) and w a s v e s t e d in G e n e r a l J e a n Val luy, F r e n c h
A r m y , wi th h e a d q u a r t e r s l o c a t e d at Fon t a ineb l eau , F r a n c e .
(4) F o r d e t a i l e d i n f o r m a t i o n a s t o the s cope of SACEUR1 s R e s p o n s i b i l i t i e s and P o w e r s , s e e MC 53(Final ) , 7 Ju l 55.
(5) F o r exac t de f in i t ion of g e o g r a p h i c a l a r e a of Al l ied C o m m a n d E u r o p e , s e e M C 53.
3
NATO CONFIDENTIAL:
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MÄfß eOMM^ENTIAt S H A P E 5 7 / 6 7 JJAJU3 ^ g g g H g ^ ^
The C o m m a n d e r - i n - C h i e f Al l i ed F o r c e s Southern E u r o p e (CINCSOUTH)
l o c a t e d at N a p l e s , w a s A d m i r a l R o b e r t P . M . B r i s c o e , US Navy. I n t h e
M e d i t e r r a n e a n , A d m i r a l Sir Guy G r a n t h a m , RN, s e r v e d a s C o m m a n d e r - i n -
Chief Al l i ed F o r c e s M e d i t e r r a n e a n (CINCAFMED) at t h e beginning of t h i s
p e r i o d but w a s r e p l a c e d on 4 A p r i l 1957 by A d m i r a l Sir R a l p h E d w a r d s , RN.
A d m i r a l E d w a r d s r e l i n q u i s h e d h i s appo in tmen t owing to i l l - h e a l t h on 17
S e p t e m b e r 1957, and w a s r e p l a c e d , in an ac t ing c a p a c i t y , by V i c e - A d m i r a l
B . I . R o b e r t s h a w , R N . A d m i r a l Sir C h a r l e s L a m b e , RN, w a s appoin ted
a s C INCAFMED, and took up t h i s appo in tmen t on 11 N o v e m b e r . H e a d q u a r t e r s
of C I N C A F M E D w e r e l o c a t e d on t h e i s l a n d of M a l t a .
E a c h of t h e m a j o r s u b o r d i n a t e c o m m a n d e r s w a s in t u r n s e r v e d by
h i s own s u b o r d i n a t e c o m m a n d e r s f o r a i r , g round or l and f o r c e s a s a p p r o -
p r i a t e . ^
T h e SHAPE Staff .
To enab le h i m to c a r r y out t h e m i s s i o n s and r e s p o n s i b i l i t i e s wi th
w h i c h h e w a s c h a r g e d , SACEUR w a s s e r v e d by an i n t e g r a t e d and i n t e r n a -
t i o n a l s t a f f , o r g a n i z e d along func t i ona l l i n e s , l o c a t e d at h i s h e a d q u a r t e r s (7) n e a r R o c q u e n c o u r t .
(6) See C h a r t s , 20 Nov 56 - 1 Dec 57. (7) See C h a r t , f o r o r g a n i z a t i o n of SHAPE Staff .
T h e s t r e n g t h of t h e SHAPE Staff inc luding b r e a k d o w n by r a n k and n a t i o n a l i t y i s se t f o r t h q u a r t e r l y in "Al l ied H e a d q u a r t e r s S t rength R e p o r t , " SH-AG-2 . When G e n e r a l N o r s t a d a s s u m e d command, SHAPE had a s s i g n e d o f f i c e r s n u m b e r i n g about 400; o the r r a n k s about 400 and about 120 c i v i l i a n s . T h i s did not i nc lude Hq Command and Support T r o o p s P e r s o n n e l of wh ich t h e r e w e r e about 125 o f f i c e r s , 1400~other r a n k s and 30 c i v i l i a n s . T h e s e p e r s o n n e l w e r e a s s i g n e d f r o m 12 d i f -f e r e n t n a t i o n s . S igni f icant c h a n g e s had been m a d e in t h e s t r u c t u r e of t h e SHAPE Staff j u s t p r i o r to G e n e r a l N o r s t a d ' s appo in tment a s SACEUR. F o r d e t a i l s s e e GO # 8, 14 Sep 56; GO # 9, SHAPE, 14 Sep 56 SD 10-1 , SHAPE, 18 Sep 56, and L t r , sub j : SHAPE R e o r g a n i z a t i o n , AG 4030 P A , 8 Oct 56.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SACEUfL tS F o r c e Sl tuat ibn,
Whèri G e n e r a l N o r s t a d became! SACEURj n e i t h e r t h e g round , Sea i n o t
à ï r f o r c e s a v a i l a b l e tot c a r r y i n g but Iiis miss io r i had at tair ied t h e m a g n i t u d e
bf equ iva len t f igh t ing v a l u e a l r e a d y d e t e r m i n e d to be ë s s e n t i a l f o r the
i m p l é n i e n t a t i o n of t h e MC 48 Concept and F o r w a r d S t r a t egy . Although the
ö e r m a n G o v e r n m e h t had i n d i c a t e d tha t i t p l anned to p rov ide a s ign i f i can t
Cbntr ibut ioh to NATO d e f e n s e hy t h e end of 1957* the fu l l con t r ibu t ion
f r o m Germany^ it a p p e a r e d , would not be ava i l ab l e Until s o m e t i m e a f t e r
1959. 1The r e s u l t s of t h e 1956 Annual Rev iew i n d i c a t e d a m a r k e d d e c r e a s e
in t h e n u m b e r of A r m y u n i t s which SACEUR Could expec t to be c o m b a t - r e a d y
bn M - d a y . W i t h d r a w a l s of f o r c e s , t o g e t h e r with s o m e r eor gan i za t i on j had
dep l e t ed the a r m y f o r c e s in t h e C e n t r a i Region of Al l i ed C o m m a n d E u r o p e
to the extent tha t CINCENT had e x p r e s s e d g r a v e doubts a s t o h i s ab i l i ty
to c a r r y out h i s a s s i g n e d m i s s i o n . Naval f o r c e s , inc luding m a r i t i m e a i r -
c r a f t , ava i l ab l e to SACEUR had not by N o v e m b e r 1956 a t t a ined the r e q u i r e d
l e v e l s , and t h e f o r e c a s t f o r the f u t u r e w a s no b r i g h t e r b e c a u s e of the i n a -
dequacy of nava l r e p l a c e m e n t p r o g r a m s in m a n y of the c o u n t r i e s . Although
the a i r f o r c e s a v a i l a b l e to SACEUR w e r e s t i l l below t h e r e q u i r e d l e v e l s , (8)
p r o g r e s s had been m a d e t o w a r d r e a c h i n g the a g r e e d g o a l s .
The e f f e c t i v e n e s s of a r m y f o r c e s ava i l ab l e to G e n e r a l N o r s t a d con t inued
to i m p r o v e , and had i m p r o v e d s ince t h e p r e c e d i n g y e a r , but t h e r e w e r e
s t i l l m a j o r d e f i c i e n c i e s in t r a i n i n g . P e r s o n n e l and equ ipment s h o r t a g e s
p o s e d m a j o r p r o b l e m s . T h e navy f o r c e s w e r e in a m i x e d s i tua t ion with the
l a r g e r n a v i e s i m p r o v i n g but the s m a l l e r n a v i e s d e t e r i o r a t i n g , b e c a u s e of
m a t e r i e l o b s o l e s c e n c e , i n c r e a s i n g age of equ ipment , and p e r s o n n e l d i f f i c u l t i e s .
The m a j o r i t y of NATO a i r f o r c e s a v a i l a b l e to SACEUR fe l l below the d e s i r e d
s t a n d a r d s of r e a d i n e s s , to the extent tha t t he o v e r a l l a i r capab i l i t y of
SACEUR w a s c o n s i d e r e d to be below the l eve l that t he n u m b e r of a s s i g n e d
f o r c e s might i nd ica t e , F e w c o u n t r i e s kept m o r e than f i f t y p e r cent of
(8) T h i s eva lua t ion i s b a s e d upon SGM-791-56 , 21 Nov 56, M e m o r a n d u m f o r the Stahding Group L i a i s o n Off ice , sub j : The M i l i t a r y P o s t u r e of NATO.
5 \ - , i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a s s i g n e d a i r c r a f t in a c o m b a t - r e a d y s t a t u s , and t h e r e w a s a g rowing
s h o r t a g e of s p a r e p a r t s f o r f r o n t l i n e a i r c r a f t , de f i c i en t supply and l o g i s t i c s (9)
s y s t e m , and a l a c k of t e c h n i c a l p e r s o n n e l .
S A C E U R ' s i m m e d i a t e s u p e r i o r s , t h e Standing Group , took note of
t he se v a r i o u s d e f i c i e n c i e s and c a l l e d upon m e m b e r g o v e r n m e n t s , say ing
" U r g e n t ac t ion i s n e c e s s a r y to r e c o n s t i t u t e t h e a r m y e l e m e n t s rf t h e Shield
f o r c e s in Al l i ed C o m m a n d E u r o p e . . . . U r g e n t ac t ion i s r r c u i : - e d of a l l m e m -
b e r g o v e r n m e n t s to i m p r o v e t h e s t a t e of a i r c r a f t r e a d i n e s s and a i r c r e w
r e a d i n e s s to e l i m i n a t e a c r i t i c a l l y developing s i tua t ion in f r o n t l i ne a i r c r a f t ,
w i th e m p h a s i s on l o g i s t i c and supply s y s t e m s , t e c h n i c i a n s and t h e p r o c u r e -
m e n t of s p a r e p a r t s . . . . Act ion i s r e q u i r e d of m a n y m e m b e r g o v e r n m e n t s
t o i n c r e a s e t h e w a r r e s e r v e l e v e l s of P O L , inc luding j e t f ue l , a m m u n i t i o n
and o p e r a t i o n a l equ ipmen t and s p a r e p a r t s to a 30 day l eve l , a s an i n t e r i m
m e a s u r e . . , . Act ion i s r e q u i r e d of a l l m e m b e r g o v e r n m e n t s to i m p r o v e t h e
e f f e c t i v e n e s s of a r m y un i t s , p a r t i c u l a r l y M - d a y and F i r s t Eche lon m a j o r
u n i t s . . . . Act ion i s r e q u i r e d of a l l m e m b e r g o v e r n m e n t s to r e c t i f y t h e p e r s o n n e l
d e f i c i e n c i e s in t h e i r armed f o r c e s , p a r t i c u l a r l y a s r e g a r d s t e c h n i c i a n s and
s p e c i a l i s t s . " ( 1 0 )
I m p a c t of E v e n t s in H u n g a r y and t h e Suez A r e a .
E v e n t s in H u n g a r y and in t h e Suez a r e a in l a t e 1956 i m p o s e d s t r a i n s
upon the e n t i r e NATO Al l i ance , and r e v e a l e d f l a w s in the po l i t i c a l a r r a n g e -
m e n t s and r e l a t i o n s h i p s ex i s t ing t h e r e i n . At t h e s a m e t i m e , the NATO
m i l i t a r y s t r u c t u r e w a s s u b j e c t e d to c o n s i d e r a b l e t e n s i o n and r e v e a l e d c e r -
t a i n a r e a s of w e a k n e s s . Within SHAPE and Al l ied C o m m a n d E u r o p e t h e s e
w e a k n e s s e s w e r e w a t c h e d v e r y c a r e f u l l y , and s t eps w e r e t aken under
G e n e r a l N o r s t a d 1 s d i r e c t i o n to r e m e d y t h e m within h i s power to do so. Some
of t h e d e f i c i e n c i e s w e r e wi th in SHAPE, s o m e w e r e e x t e r n a l and beyond
(9) F o r s t a t i s t i c s and d e t a i l s of a l l f o r c e s a s s i g n e d or e a r m a r k e d to SACEUR at t h e d a t e of G e n e r a l N o r s t a d 1 s a s s u m p t i o n of c o m m a n d , s e e F o r c e s C h a p t e r . See a l s o Chap te r on T r a i n i n g fo r f u r t h e r d e t a i l s of h i s f o r c e s .
(10) SGM-791-56 , 21 Nov 56.
6
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
G O T © C Q M - I O E E f H M J
SHAPE 'S c o n t r o l . Some had a p u r e l y m i l i t a r y a s p e c t , wh i l e o t h e r s had
p o l i t i c a l i m p l i c a t i o n s . Throughou t 1957 G e n e r a l N o r s t a d and t h e SHAPE
s taff c o n c e n t r a t e d on s t r e n g t h e n i n g the a r e a s of w e a k n e s s which w e r e
d i s c l o s e d wi th in h i s h e a d q u a r t e r s and wi th in h i s c o m m a n d .
P r o b l e m s of the Air D e f e n s e of NATO T e r r i t o r y .
In l a t e N o v e m b e r 1956, un iden t i f i ed a i r c r a f t o v e r f l e w T u r k e y , g r e a t l y
a l a r m i n g na t iona l and NATO a u t h o r i t i e s in E u r o p e . The w e a k n e s s e s in the
ex i s t ing e a r l y warning s y s t e m w e r e h igh l igh ted by t h i s o v e r f l y , a l though
they had been r e c o g n i z e d s i n c e the e s t a b l i s h m e n t of Al l ied C o m m a n d E u r o p e .
The de lay in c o r r e c t i n g t h e s e f a u l t s w a s c a u s e d by the f a c t that a i r d e f e n s e
w a s f u n d a m e n t a l l y a na t i ona l r e s p o n s i b i l i t y . In m a n y a r e a s i t had b e e n
developed only t h r o u g h US m i l i t a r y aid, and had r e s u l t e d in p r o g r a m s over
which SHAPE had l i t t l e or no c o n t r o l . Even had invading a i r c r a f t been -VJ >
d e t e c t e d by t h e e a r l y w a r n i n g s y s t e m , i t i s p r o b a b l e tha t t he a i r f o r c e s of
A C E could have done l i t t l e to have s topped a m a s s e n e m y a e r i a l a t t a ck .
Dur ing t h e c r i s i s it b e c a m e a p p a r e n t t ha t A C E had l e s s than 100 al l w e a t h e r
f i g h t e r a i r c r a f t tha t would c o m e unde r SACEUR's c o n t r o l in an e m e r g e n c y .
In Norway , T u r k e y , and G r e e c e c o n t r o l r a d a r s w e r e i n a d e q u a t e to dea l
wi th the po t en t i a l t h r e a t . It w a s a p p a r e n t a l so that SHAPE 'S Air D e f e n s e
Div is ion w a s unab l e to m a k e a quick compu ta t i on of t h e t o t a l capab i l i ty of
a i r d e f e n s e equ ipmen t in ACE. A week ly r e c o r d w a s m a i n t a i n e d of the
a v a i l a b l e c o m b a t r e a d y a i r c r a f t of a s s i g n e d f o r c e s , but t h i s did not i nc lude
i n t e r c e p t o r a i r c r a f t of t h e na t iona l a i r d e f e n s e a g e n c i e s , s i n c e SACEUR
had no r e s p o n s i b i l i t y f o r t h e s e f o r c e s . A g r e a t dea l of u n c e r t a i n t y e x i s t e d
in the m i n d s of both na t i ona l and NATO r e p r e s e n t a t i v e s a s to who w a s
r e s p o n s i b l e f o r ac t ing in t h e event of u n a u t h o r i z e d i n t r u s i o n in to the a i r
s p a c e of Al l ied C o m m a n d E u r o p e . P r i r c ipa l ly , t h i s u n c e r t a i n t y s t e m m e d
f r o m a l ack of r u l e s of e n g a g e m e n t to which a l l n a t i o n s a g r e e d . ^ ^ (11) The s o u r c e s on which t h i s d i s c u s s i o n of SHAPE d e f i c i e n c i e s i s b a s e d
a r e S H A P E / P P / 3 2 4 / 5 6 , 20 Dec 56, w / e n c l . and Appendix I to S H A P E / 4 0 / 5 7 , 19 F e b 57.
7
W ^ P Q I I i i g w m
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
C o m m u n i c a t i o n s P r o b l e m s .
M a n y d e f i c i e n c i e s in t h e c o m m u n i c a t i o n s wi th in SHAPE and Al l ied
C o m m a n d E u r o p e w e r e h igh l igh ted in t h i s s a m e p e r i o d . F o r i n s t a n c e ,
Standing G r o u p p o l i c y he ld tha t t r a f f i c of i n t e r e s t to na t iona l suppor t ing
c o m m a n d s m u s t be a d d r e s s e d t h r o u g h t h e MODs of the NATO na t ions
c o n c e r n e d f o r a p p r o p r i a t e na t iona l d i s s e m i n a t i o n . SHAPE and SACLANT
had always d i s a g r e e d with t h i s po l i cy , f ee l ing tha t u n a c c e p t a b l e de l ays
wovild o c c u r if a d d r e s s e e s such a s USCINCEUR, USAREUR and CINCUSAFE
could Aot be a d v i s e d d i r e c t l y in an e m e r g e n c y when the m a t t e r of d i s s e m i n -
a t ing H - h o u r and R - h o u r a r o s e . T h e r e w a s no p r i o r i t y given to SHAPE
c o m m u n i c a t i o n s to t h e Standing Group which n o r m a l l y w e r e r o u t e d t h rough
US c h a n n e l s v i a USAREUR.
D u r i n g a p e r i o d of e m e r g e n c y , t h e s e c o m m u n i c a t i o n s would be inc luded
in t h e n o r m a l f low of na t iona l t r a f f i c wi th no s p e c i a l p r i o r i t y . It w a s a l s o
ev iden t t ha t add i t iona l p e a c e t i m e l e a s e d c i r c u i t s had to be p r o c u r e d in
o r d e r to m e e t t h e m i n i m u m w a r t i m e r e q u i r e m e n t s f o r both the Atomic
S t r i k e P l a n and e a r l y w a r n i n g b e f o r e the f o r w a r d s c a t t e r s y s t e m b e c a m e
o p e r a t i o n a l . In c a s e of e m e r g e n c y , m a n y NATO H e a d q u a r t e r s , e s p e c i a l l y
SHAPE and CINCNORTH, would not be ab le to hand le the i n c r e a s e d f low
of m e s s a g e s and t h e mann ing of addi t iona l c i r c u i t s wi th t h e p e a c e t i m e
p e r s o n n e l wh ich w e r e a v a i l a b l e .
I n t e l l i g e n c e P r o b l e m s .
P a r t i c u l a r l y de f i c i en t in the p e r i o d of c r i s i s w a s the i n t e l l i gence
o p e r a t i o n t h r o u g h o u t ACE. T h e r e w a s at SHAPE among t h e staff a g e n e r a l
l a c k of knowledge of the s i tua t ion , and the staff had to r e l y on n e w s p a p e r
r e p o r t s , r u m o u r s and s u r m i s e . SACEUR's Chief of Staff , G e n e r a l Schuy le r ,
c o m m e n t i n g on t h i s s i tua t ion , s t a t ed tha t " the p a u c i t y of i n t e l l i gence dur ing
t h e H u n g a r i a n r e v o l t w a s m o s t f r u s t r a t i n g and n e r v e - r a c k i n g , and to be
p e r f e c t l y f r a n k i t s e e m e d at t i m e s tha t m o s t of our i n f o r m a t i o n w a s d e r i v e d
8
x ' " Kf tTV ^ fiFrn f t
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 N A T O S E C R E T
NATO CONFIDENTIAL - i t o m p r e s s and r a d i o r e p o r t s . " He po in t ed out , h o w e v e r , t ha t i t m u s t
be kept in m i n d tha t it r e q u i r e d a good dea l of t i m e to p r o c e s s t ho rough ly
eva lua t ed in te l l igence , - and tha t t he na t iona l s t a f f s wh ich w e r e SHAPE'S
only r e a l s o u r c e of i n t e l l i g e n c e , w e r e not c o m p e l l e d to d i s c l o s e to NATO
i n f o r m a t i o n which m i g h t j e o p a r d i z e t h e i r own na t iona l s e c u r i t y , v i t a l
i n t e r e s t s , or i n t e l l i g e n c e s y s t e m s .
Within SHAPE i t se l f i t w a s a p p a r e n t tha t t he In t e l l i gence Divis ion
w a s not o r g a n i z e d to func t ion smoo th ly in an o p e r a t i o n a l r o l e f o r any c o n s i -
d e r a b l e p e r i o d of t i m e . The In te l l igence Div is ion w a s d e s i g n e d p r i m a r i l y
a s a p lanning a g e n c y and not a s an o p e r a t i o n a l d iv i s ion . Among the p r o b l e m s
which i t e n c o u n t e r e d w a s a l ack of o f f i c e r s qua l i f i ed to hand le i n t e l l i g e n c e
o p e r a t i o n s , and a c o n s i d e r a b l e p r o b l e m in the l a n g u a g e a r e a . N in ty - f i ve p e r
cen t of t h e i n t e l l i g e n c e r e c e i v e d at SHAPE w a s w r i t t e n in E n g l i s h and it
deve loped dur ing t h i s p e r i o d tha t t h o s e o f f i c e r s and o the r r a n k s a s s i g n e d to
In t e l l i gence Divis ion who w e r e not p r o f i c i e n t in tha t l anguage m a d e l i t t l e
c ont r ibut i on. ̂ ^ ̂
L o g i s t i c s P r o b l e m s .
It w a s a l s o evident tha t t he l o g i s t i c s s y s t e m w a s i nadequa t e to func t ion
if the e m e r g e n c y had deve loped to a m o r e s e r i o u s s t a g e . T h e r e w e r e m a j o r
l o g i s t i c s p r o b l e m s t h roughou t A C E in t h e f i e l d s of t r a n s p o r t a t i o n , c o n s t r u c -
t ion , P O L and supply . T h e r e w a s , fo r e x a m p l e , a l a ck of a g r e e m e n t on the
s p e c i f i c w a r t i m e r o l e of i n t e r n a t i o n a l a g e n c i e s in coord ina t ing in land
s u r f a c e t r a n s p o r t , except in t h e N o r t h e r n Reg ion . T h e r e w a s no a g r e e m e n t
on the o r g a n i z a t i o n or p r o c e d u r e fo r e s t ab l i sh ing ocean shipping p r i o r i t i e s .
Supply and m a i n t e n a n c e p r o b l e m s inc luded an e x t r e m e l y low comba t r e a d y
r a t e and s h o r t a g e of sk i l l ed t e c h n i c i a n s to suppor t a i r o p e r a t i o n s . Within O
(12) See In t e l l i gence C h a p t e r f o r f u l l e r exp lana t ion of t h i s and o the r In t e l l i gence p r o b l e m s .
NATO CONFIDENTIAL NATO S E C R E t
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO CONFIDENTIAL t h e A r m y s p h e r e , a l l n a t i o n s had 80% or m o r e of t h e i r a u t h o r i z e d equ ip-
m e n t , wi th t h e excep t ion of I ta ly , P o r t u g a l and T u r k e y , but only in
C a n a d a , t h e UK and t h e US w e r e t h e r e no m a j o r d e f i c i e n c i e s in r e s e r v e s
of a m m u n i t i o n and equ ipmen t . R e s e r v e d e f i c i e n c y e x i s t e d in the b r o a d
c a t e g o r i e s of c o m b a t v e h i c l e s and c o m m u n i c a t i o n s equ ipmen t .
A i r f i e l d s to s u p p o r t A C E p r o v i d e d f o r only a l i m i t e d d e g r e e of d i s -
p e r s i o n at t h e s q u a d r o n l e v e l and t h e m a j o r i t y of t h e a i r f i e l d s w h e r e s q u a -
d r o n s w e r e dep loyed could not p r o v i d e t h e n o r m a l r e f u e l l i n g and r e - a r m i n g .
None of t h e NATO P O L or a m m u n i t i o n s t o r a g e f a c i l i t i e s f o r NATO nava l
f o r c e s w a s c o m p l e t e .
The s i t ua t ion wi th r e g a r d to P O L w a s p a r t i c u l a r l y s e r i o u s . B e c a u s e
t h e r e had been a l a c k of any a g r e e d concep t f o r c o n t r o l , s o m e c o m p l e t e d
P O L l i n e s in t h e NATO P O L s y s t e m could not be o p e r a t e d , and a s e v e r e
h a n d i c a p e x i s t e d in t h e v i t a l coo rd ina t i on be tween c o n s t r u c t i o n and o p e r a t i o n
p h a s e s of pu t t ing t h i s s y s t e m into e f f e c t . A s e r i o u s d e f i c i e n c y in p l a n s fo r
t h e d i s t r i b u t i o n of P O L lay in the l ack of adequa te s u p p l i e s of p o r t a b l e p i p e -
l i ne , m o b i l e and o v e r f i l l equ ipment to extend, augmen t o r r e p l a c e p e r m a n e n t
f a c i l i t i e s wh ich had been p r o g r a m m e d in NATO i n f r a s t r u c t u r e . The ex i s t ing
e q u i p m e n t w a s whol ly i n a d e q u a t e f o r w a r t i m e r e q u i r e m e n t s .
Al though t h e P O L s tock s t a t u s on hand w a s g e n e r a l l y s a t i s f a c t o r y , (13)
s o m e c o u n t r i e s w e r e c r i t i c a l l y s h o r t of Mogas and of j e t f u e l .
The ab i l i ty of SACEUR's f o r c e s to c a r r y on c o m b a t o p e r a t i o n s could
not be c o n s i d e r e d adequa t e if t h e p r o b l e m s e n c o u n t e r e d dur ing t h i s c r i s i s
w e r e to extend in to w a r t i m e o p e r a t i o n . The Air O p e r a t i o n s C e n t e r did not
h a v e enough p e o p l e to o p e r a t e a d e q u a t e l y over a 2 4 - h o u r p e r i o d , and l a c k e d
c e r t a i n equ ipmen t , p a r t i c u l a r l y f o r c o m m u n i c a t i o n s . The o r d e r of b a t t l e
m a i n t a i n e d in the SHAPE s i tua t ion r o o m w a s found to be below t h e n e c e s s a r y
s t a n d a r d s , and t h e r e w a s a g r e a t dea l of confus ion at the work ing l eve l of
t h e s taff a s to t h e p r o c e d u r e f o r p a s s i n g f r o m a p e a c e t i m e to a w a r t i m e
h e a d q u a r t e r s s t a t u s , had t h i s been n e c e s s a r y . One of t h e ques t i ons tha t
(13) See L o g i s t i c s Chap te r f o r m o r e i n f o r m a t i o n on t h e s e l o g i s t i c s p r o b l e m s . 10 NATO CONFIDENT! AC TT ATfl 11 I H I 1
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a r o s e w a s t h e a c t u a l m i s s i o n of t h e w a r h e a d q u a r t e r s o p e r a t i o n a l
eche lon a n d i t s r e l a t i o n s h i p wi th t h e r e a r h e a d q u a r t e r s and s u b o r d i n a t e
c o m m a n d s . Ano the r t y p i c a l ques t ion c o n c e r n e d w h e r e t h e p e r s o n n e l
should r e p o r t f o r duty in t h e event t h e SHAPE H e a d q u a r t e r s w a s d e s t r o y e d
o u t s i d e n o r m a l w o r k i n g h o u r s ; and what t h e s u c c e s s i o n of c o m m a n d would
b e in t h e event SACEUR and SHAPE H e a d q u a r t e r s w e r e e a r l y c a s u a l t i e s .
Some na t iona l a u t h o r i t i e s f a i l e d to c l e a r wi th SACEUR the w i t h d r a w a l of
c o m b a t e l e m e n t s which had been c o m m i t t e d to SACEUR' s w a r p l a n s .
Many m e m b e r s of t h e SHAPE staff w e r e u n a w a r e of the i m p l i c a t i o n s of
t h e v a r i o u s a l e r t m e a s u r e s , o r even in s o m e c a s e s of t h e e x i s t e n c e of
s u c h m e a s u r e s .
The p r o b l e m s and w e a k n e s s e s d e s c r i b e d above r e p r e s e n t only a
p a r t of t h e m a n y d i f f i c u l t i e s which a r o s e a s G e n e r a l N o r s t a d a s s u m e d
c o m m a n d a s SACEUR. A f u l l e r d i s c u s s i o n of each of t h e s e p r o b l e m s
and t h e s t e p s wh ich w e r e t aken to so lve t h e m wi l l be found in t h e a p p r o -
p r i a t e c h a p t e r s of t h i s 1957 H i s t o r y .
11
^ m » i m
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
WATO CONFIDENTIAL C H A P T E R II
P O L I C Y and DIRECTION
SACEUR w a s the i n s t r u m e n t of NATO m i l i t a r y p o w e r in W e s t e r n
E u r o p e . The a u t h o r i t i e s and s tanding i n s t r u c t i o n s u n d e r which he c a r r i e d
out h i s f u n c t i o n s and r e s p o n s i b i l i t i e s w e r e s u p p l e m e n t e d f r o m t i m e to
t i m e by s p e c i f i c i n s t r u c t i o n in l i m i t e d f i e l d s and by c h a n g e s in the o v e r -
a l l p o l i c y du r ing 1957.
T h e P o l i t i c a l D i r e c t i v e - Rev iew of P r o p o s a l s and Deve lopment of the
D i r e c t i v e .
By f a r the m o s t i m p o r t a n t s ing le s o u r c e of new gu idance r e c e i v e d by
G e n e r a l N o r s t a d d u r i n g h i s f i r s t y e a r a s SACEUR w a s the P o l i t i c a l D i r e c -
t i v e , a p p r o v e d and i s s u e d by the Nor th At lant ic Counci l in D e c e m b e r 1956.
L o r d I s m a y , S e c r e t a r y G e n e r a l of NATO, r e p o r t e d in N o v e m b e r 1956
tha t t h e Counci l had devo ted m a n y m e e t i n g s to the p r e p a r a t i o n of a d i r e c t i v e
to t h e m i l i t a r y a u t h o r i t i e s " b a s e d on t h e l a t e s t a s s e s s m e n t of t r e n d s and
i m p l i c a t i o n s of Soviet p o l i c y . " He s t a t e d tha t t h i s r e p o r t " should f o r m the
b a s i s of a r e v i e w of t h e f o r c e s which should be m a i n t a i n e d by NATO. T h i s
p a p e r wi l l be d i s c u s s e d with t h e m i l i t a r y a u t h o r i t i e s and s u b m i t t e d f o r con-
s i d e r a t i o n at t he f o r t h c o m i n g M i n i s t e r i a l m e e t i n g s . " ^
SACEUR and h i s s taff took e v e r y oppor tun i ty to o b s e r v e i n f o r m a l l y
t h e d e v e l o p m e n t of t h i s documen t wi thin t h e f r a m e w o r k of t h e c iv i l i an s t r u c -
t u r e at t h e P a l a i s de Cha i l lo t . The p a p e r , a s i t w a s being deve loped in
s u c c e s s i v e d r a f t s , u n d e r w e n t m a n y c h a n g e s owing to na t iona l v i e w s and
c o m m e n t s and to s o m e extent to the v i e w s and c o m m e n t s f o r t h c o m i n g f r o m
t h e NATO m i l i t a r y a u t h o r i t i e s , inc luding SACEUR.
(1) CM(56)41
NATO CONFIDENTIAL 12
NATO
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
W û COMftDENïlAL S H A P E 5 7 / 6 7 n a T O S S S R S ^
In l a t e N o v e m b e r , about t e n days b e f o r e the d i r e c t i v e w a s s chedu led
f o r c o n s i d e r a t i o n at M i n i s t e r i a l m e e t i n g s , the SHAPE s taff p r e s e n t e d to
G e n e r a l N o r s t a d a d e t a i l e d a n a l y s i s of the l a t e s t d r a f t of t h e P o l i t i c a l (2)
D i r e c t i v e t hen e x i s t a n t .
T h i s d r a f t w a s t o be c o n s i d e r e d by the P e r m a n e n t Counci l at i t s
m e e t i n g on 30 N o v e m b e r . The SHAPE staff a n a l y s i s p r e p a r e d f o r G e n e r a l
N o r s t a d po in t ed out t ha t s o m e of t h e f e a t u r e s , u n d e s i r a b l e f r o m SACEUR's
s t andpo in t , w h i c h had a p p e a r e d in an o r i g i n a l d r a f t by the UK a u t h o r i t i e s ,
h a d b e e n m a d e m o r e a c c e p t a b l e .
T h e SHAPE s taff o f f i c e r s he ld that i t w a s q u e s t i o n a b l e w h e t h e r at tha t
p a r t i c u l a r t i m e of c h a n g e in i n t e r n a t i o n a l p o s i t i o n s it w a s a d v i s a b l e to i s s u e
a P o l i t i c a l D i r e c t i v e at a l l . " T h e long r a n g e e f fec t of the H u n g a r i a n r e v o l t
and u n r e s t in t h e o the r s a t e l l i t e s on the NATO n a t i o n s i s not c l e a r l y d e t e r -
m i n a b l e at t h i s t i m e , . . . " t h e r e p o r t s t a t ed . "It i s ques t i onab l e , " SHAPE
p l ann ing o f f i c e r s sa id , " tha t m a n y NATO na t ions a r e p r e s e n t l y anx ious to
r e d u c e t h e i r d e f e n s e f o r c e s , and t h e r e f o r e it would s e e m u n w i s e to i s s u e
a p o l i t i c a l d i r e c t i v e which a p p a r e n t l y h a s tha t a s i t s o b j e c t i v e . F u r t h e r , a
new p o l i t i c a l d i r e c t i v e migh t i n d i c a t e a l e s s e n i n g of r e s o l v e in suppor t of
NATO and t h e r e b y w e a k e n t h e A l l i a n c e . " In t h i s connec t ion , it w a s known
t h a t s o m e na t iona l a u t h o r i t i e s w e r e c o n s i d e r i n g l i m i t i n g t h e P o l i t i c a l D i r e c -
t i v e to a s p e c i f i c t i m e p e r i o d , s i nce it would have to be b a s e d only on the
s i t u a t i o n a s i t w a s c u r r e n t l y known.
T h e d i r e c t i v e in i t s c u r r e n t f o r m s t i l l con ta ined a r e q u i r e m e n t f o r a
f u l l y e f f e c t i v e n u c l e a r r e t a l i a t o r y f o r c e f o r NATO d e f e n s e and a s a m a j o r
d e t e r r e n t to Soviet a g g r e s s i o n . The d i r e c t i v e a l so , r e q u i r e d Shield F o r c e s
to be ab le to dea l wi th " i n f i l t r a t i o n s , i n c u r s i o n s and l o c a l a c t i o n s " without (2) T h i s d o c u m e n t in i t s evolut ion u n d e r w e n t c o n s i d e r a b l e change and
SHAPE c o m m e n t s on t h i s p a r t i c u l a r v e r s i o n , t he s ix th d r a f t , w e r e in s o m e c a s e s i nva l i da t ed by t h i s change .
13
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO 1 O r t i r d U t N T I A L S H A P E 5 7 / 6 7 NATO S E C R E T
r e c o u r s e to n u c l e a r w e a p o n s . On t h e o the r hand, t h e Shield F o r c e s w e r e
r e q u i r e d to be p r e p a r e d to r e a c t quickly wi th n u c l e a r w e a p o n s to any type
of a g g r e s s i o n . SHAPE o f f i c e r s w e r e in s o m e doubt if t h e s e f o r c e s p o s s e s s e d
t h i s dua l c a p a b i l i t y on any l a r g e s c a l e , or even if t hey could a c h i e v e i t . "If
t h e in ten t h e r e , " t h e r e p o r t s t a t ed , " i s t o have t h e Shield F o r c e s p r e p a r e d
to hand le m i n o r pol ice a c t i o n s ( such a s s u p p r e s s i o n of g u e r r i l l a f o r c e s ) ,
t hen t h e r e would a p p e a r to be no p r o b l e m ; h o w e v e r , in the f u t u r e a s the
Shield F o r c e s a r e m o d e r n i z e d and r e l y m o r e and m o r e on n u c l e a r weapons ,
i t would a p p e a r tha t t hey would be unab l e to engage in a m a j o r m i l i t a r y
ac t ion without u s e of n u c l e a r w e a p o n s . "
The SHAPE staff w a s e x t r e m e l y w a r y of any word ing which would in
any way t e n d to inh ib i t i m m e d i a t e r e t a l i a t i o n wi th n u c l e a r weapons aga ins t
l a r g e s c a l e a t t a c k . The s t a t e m e n t in t h i s d r a f t tha t " the d e c i s i o n to u s e
n u c l e a r w e a p o n s would in each c a s e be a m a t t e r f o r g o v e r n m e n t s , " r o u s e d
t h e oppos i t ion of SHAPE p l a n n e r s who s u p p o r t e d a Standing Group v iew tha t
any a t t e m p t to c l a r i f y t h i s ques t ion could l ead to a p o l i t i c a l d e c i s i o n which
could l i m i t s e v e r e l y the m i l i t a r y c o m m a n d e r ' s a u t h o r i t y in the f i r s t h o u r s
of an e m e r g e n c y .
T h i s d r a f t of the d i r e c t i v e s t a t ed tha t account would have to be t a k e n
of a p o s s i b l e need f o r c e r t a i n NATO c o u n t r i e s to u s e t h e i r NATO f o r c e s e l s e -
w h e r e . While SHAPE could not deny t h i s , and c e r t a i n l y the even tua l i ty had
o c c u r r e d a l r e a d y in s e v e r a l i n s t a n c e s to t h e d e t r i m e n t of SACEUR's d e f e n s i v e
s t r e n g t h , t h e SHAPE staff did point out tha t " f o r c e s r e q u i r e d f o r SACEUR
have a lways been b a s e d on the m i n i m u m l e v e l s f o r the a c c o m p l i s h m e n t of
SACEUR's m i s s i o n . Thus t h e r e w a s no cush ion to p e r m i t w i t h d r a w a l s wi thout
s e r i o u s l y a f f ec t ing the capab i l i t y of Al l ied C o m m a n d E u r o p e . " The SHAPE
o f f i c e r s sa id tha t if t h e i r p lanning m u s t t a k e in to account t h e p o s s i b i l i t y of
such w i t h d r a w a l s , p r o v i s i o n m u s t be m a d e f o r r e p l a c i n g t h e s e f o r c e s by
ca l l ing up r e s e r v e s on t h e Cont inent , by mov ing e l e m e n t s of SACEUR's s t r a -
t eg ic r e s e r v e f r o m Nor th A m e r i c a n or G r e a t B r i t a i n to t h e Continent, or by
NATO CONFIDENTIAL
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 NATO - S E C R E T — ".-.Lv. 7:.:-.1.
i n c r e a s i n g t h e n u m b e r of p e a c e t i m e un i t s a v a i l a b l e to SACEUR. As ano the r
c r i t i c i s m of t h i s d r a f t d i r e c t i v e , the SHAPE a n a l y s i s po in ted out tha t the
d i r e c t i v e s a i d i t would be " p r o b a b l e " tha t an a t t ack would be p r e c e d e d by
a p e r i o d of a c u t e p o l i t i c a l t e n s i o n and o the r w a r n i n g s igns which would
a l low t h e NATO n a t i o n s to get r e a d y f o r a coming a s s a u l t . SHAPE knew of
no f a c t o r s wh ich s u p p o r t e d t h i s " p r o b a b i l i t y " and a s k e d tha t the s t a t e m e n t
be s o f t e n e d by subs t i t u t i on of t h e w o r d " p o s s i b i l i t y . "
Again f e a r f u l of the P o l i t i c a l D i r e c t i v e a s an i n s t r u m e n t of r e d u c i n g
t h e s t a t e of r e a d i n e s s and e f f e c t i v e n e s s of SACEUR' s f o r c e s , the SHAPE
staff o b j e c t e d to the i n c l u s i o n of a p h r a s e d e s c r i b i n g t h e Shield F o r c e s a s
be ing m a i n t a i n e d at " a p p r o p r i a t e s t a n d a r d s of r e a d i n e s s . " "The word ing
of t h e s e n t e n c e on Shield F o r c e s could wel l a l low m e m b e r na t ions to r e -
e v a l u a t e t h e i r c o n t r i b u t i o n s and to r e d u c e t h e i r r e a d y f o r c e s below the m i n i -(3)
m u m r e q u i r e d to m a i n t a i n t h e s e c u r i t y of Al l ied C o m m a n d E u r o p e . "
When t h e p r o p o s e d po l i t i c a l d i rec t ive^ to the NATO M i l i t a r y A u t h o r i t i e s
c a m e b e f o r e t h e M i l i t a r y C o m m i t t e e at i t s m e e t i n g in P a r i s on 6 D e c e m b e r ,
G e n e r a l N o r s t a d w a s p r e s e n t and r e c o m m e n d e d to the C o m m i t t e e c e r t a i n
c h a n g e s which he b e l i e v e d should be m a d e to the d o c u m e n t . He r e c o m m e n d e d
a r e - w o r d i n g which p inned down s p e c i f i c s of i n s t a n c e s such a s hos t i l e loca l
a c t i o n s , i n f i l t r a t i o n s and i n c u r s i o n s by the Soviets or t h e i r Sa te l l i t e s , so
t ha t t h e d o c u m e n t would i n d i c a t e m o r e c l e a r l y tha t it w a s r e f e r r i n g to i n s t a n c e s
of a type which did not n e c e s s a r i l y ca l l fo r the u s e of n u c l e a r weapons . The (4)
C o m m i t t e e a g r e e d wi th the a m e n d m e n t s which G e n e r a l N o r s t a d p r o p o s e d .
T h e P e r m a n e n t Counci l then m e t al l of SACEUR's ob j ec t i ons to the
d i r e c t i v e i n s o f a r a s word ing and innuendo w e r e c o n c e r n e d . And, in c o n s e -
quence , t h e SHAPE staff a n a l y s i s t s a g r e e d tha t t he P o l i t i c a l D i r e c t i v e " i s
g e n e r a l l y a c c e p t a b l e to Al l ied C o m m a n d E u r o p e a s gu idance fo r the deve lop -(5) m e n t of f o r w a r d p l a n n i n g . "
(3) B r i e f f o r SACEUR, P o l i t i c a l D i r e c t i v e , 28 Nov 56, w / T a b 2, s ix th d r a f t P o l i t i c a l D i r e c t i v e , C-WP(56)6 .
(4) M C 15th Sess ion , 8 J a n 57. (5) B r i e f f o r SACEUR, P o l i t i c a l D i r e c t i v e , CM(56)138, 10 Dec 56.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MATfD CO NTIAL NATO ^ f i e i T E T
The P o l i t i c a l D i r e c t i v e - F i n a l V e r s i o n .
The P o l i t i c a l D i r e c t i v e a s f i n a l l y a p p r o v e d by the Nor th At lan t ic
Counci l c o n s i s t e d of two m a i n p a r t s . The f i r s t p a r t w a s a r a t h e r succ inc t
but f r a n k d i s c u s s i o n of t h e p o s s i b i l i t i e s wh ich l a y open to the Sovie ts
in f u r t h e r i n g t h e i r a i m s t h r o u g h m i l i t a r y m e a n s . . T h e m e n who had s tud ied
t h e p r o b l e m and who had p r e p a r e d t h i s p a p e r w e r e convinced , of c o u r s e ,
t ha t t h e Sov ie t ' s even tua l a i m w a s Wor ld domina t ion , and that they w e r e
opposed to W e s t e r n i d e o l o g i e s wi th e v e r y m e a n s at t h e i r d i s p o s a l to a c h i e v e
t h i s end, except in t h o s e c a s e s w h e r e t h e m e a n s t h r e a t e n e d d e s t r u c t i o n of
t h e i r own s y s t e m . T h e Soviet cont inuing m a i n ob j ec t i ve , so f a r a s NATO
w a s c o n c e r n e d , w a s to u n d e r m i n e suppor t in t h e W e s t e r n na t ions and to
c a u s e t h e d i s s o l u t i o n of NATO. ^
While the ab i l i ty of the Soviets to l aunch a n u c l e a r wa r w a s a d m i t t e d ,
t h e conc lu s ion con ta ined in t h i s a n a l y s i s w a s tha t t h e R u s s i a n s , f e a r i n g and
u n d e r s t a n d i n g t h e c o n s e q u e n c e s to t h e m s e l v e s of any g e n e r a l n u c l e a r w a r ,
r e g a r d l e s s of who l a u n c h e d i t , would not , in v i e w of W e s t e r n ab i l i ty to r e t a -
l i a t e , knowingly s t a r t a n u c l e a r w a r . The p o s s i b i l i t y w a s not d i s coun t ed
tha t a change in s i t u a t i o n s migh t l e a d to such an even tua l i ty , and f h a t t h e r e
w a s c e r t a i n l y a d a n g e r of a g e n e r a l ^ a r ï s i n g f r o m a m i s c a l c u l a t i o n on t h e
p a r t of t h e R u s s i a n s . If t hey f e l t t h e West w a s v a c i l l a t i n g and weak and
would not r e t a l i a t e wi th n u c l e a r weapons , o r if t h e y f e l t tha t t he Wes t w a s
about to l a u n c h an a t t ack wi th n u c l e a r w e a p o n s , t h e R u s s i a n s of c o u r s e
migh t t a k e t h e f a t a l s t ep . In the c a s e of conven t iona l a r m s , the Soviets
a l s o w e r e a w a r e tha t a w a r s t a r t i n g wi th conven t iona l a r m s would v e r y
l i ke ly develop in to a g e n e r a l w a r tha t would l e a d to a n u c l e a r exchange .
The s tudy g r o u p had conc luded that t h e r e w e r e s e v e r a l w a y s in which
t h e Sovie ts conce ivab ly m i g h t u s e n u c l e a r a r m s to obta in c e r t a i n of t h e i r
(6) C - M ( 5 6 ) l 3 8 , 13 Dec 56, D i r e c t i v e t o t h e N A T O M i l i t a r y A u t h o i i t i e s in t h e NAC. P a r t I, A n a l y s i s of Soviet In t en t ions ; P a r t II, t he D i r e c -t i v e .
16
WATO CONFIDENTIAL
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
n e e d s . If, f o r i n s t a n c e , they e s t i m a t e d that NATO would not u s e n u c l e a r
w e a p o n s a g a i n s t t h e m excep t in r e t a l i a t i o n , t h e y migh t u s e t h e i r s u p e r i o r
conven t iona l f o r c e s in a g e n e r a l a t t ack aga ins t a l l NATO n a t i o n s . T h i s
cou ld s t e m f r o m a w e a k n e s s or d iv i s ion , a s s u m e d or ac tua l , wi th in the
W e s t e r n B loc . In t h e s a m e ve in , t h e Soviets m i g h t l a u n c h l o c a l a t t a c k s
a g a i n s t c e r t a i n NATO n a t i o n s . They might judge tha t c o u n t r i e s not be long-
ing t o NATO but on i t s p e r i p h e r y could be a t t a c k e d wi th conven t iona l f o r c e s
wi thout r e t a l i a t i o n f r o m t h e Wes t . The C o m m u n i s t Bloc cou ld p o s s i b l y ac t
in s u p p o r t of a r m e d i n s u r r e c t i o n or g u e r r i l l a ac t iv i ty wi th in n o n - C o m m u n i s t
c o u n t r i e s . O t h e r m o r e l i ke ly p o s s i b i l i t i e s w e r e tha t t h e Sovie ts migh t i n t e r -
v e n e in o r d e r to f u r t h e r p o l i t i c a l , economic and m i l i t a r y ends , in any c a s e
w h e r e c o u n t r i e s o u t s i d e t h e Soviet Bloc w e r e w e a k e n e d by u n s t a b l e po l i t i c a l
d e v e l o p m e n t s . C e r t a i n l y t h e r e c e n t e x p e r i e n c e in Hunga ry showed tha t
R u s s i a w a s c a p a b l e of t ak ing e x t e n s i v e m i l i t a r y m e a s u r e s to r e t a i n i t s
c o n t r o l over i t s Sa t e l l i t e s , and tha t t h i s type of ac t ion could p r o d u c e an
e x p l o s i v e s i t ua t ion .
The second p a r t of t h i s documen t , which w a s t h e ac tua l d i r e c t i v e , r e -
d e f i n e d the b a s i c a i m of t h e NATO Al l i ance to s a f e g u a r d t h e f r e e d o m , c o m m o n
h e r i t a g e and c i v i l i s a t i o n of the p e o p l e s of the NATO c o u n t r i e s . It po in ted
out t h a t to t h i s end, N A T O ' s d e f e n s e s had been e s t a b l i s h e d , and that a p o -
t e n t i a l a g g r e s s o r m u s t be shown f o r c e s so o r g a n i z e d , d i s p o s e d , t r a i n e d
and equipped tha t t h e y would d i s c o u r a g e beyond any doubt an a t t ack upon
t h e m , even an a t t a c k m a d e wi th s u p e r i o r n u m b e r s and t h e advan tage of
s u r p r i s e . T h e d i r e c t i v e then s t a t e d tha t a r e v i e w of NATO d e f e n s e p lann ing
w a s r e q u i r e d in o r d e r to d e t e r m i n e how, wi th in a v a i l a b l e r e s o u r c e s , N A T O ' s
d e f e n s i v e e f f o r t and t h e e f fo r t , of each indiv idual na t ion could b e s t a c h i e v e
t h e m o s t e f f e c t i v e p a t t e r n of f o r c e s . The d i r e c t i v e s t i pu l a t ed tha t t o de fend
and d e t e r a g a i n s t Soviet a g g r e s s i o n , NATO m u s t have a fu l l y e f f e c t i v e n u c l e a r
r e t a l i a t o r y f o r c e , and tha t t h e land , s e a and a i r f o r c e s of NATO m u s t be
d e s i g n e d so tha t t h e y cou ld de fend NATO t e r r i t o r y and c a r r y out c e r t a i n
17
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
I T * ! * , * IPAiL
s p e c i f i c f u n c t i o n s wh ich t h e d i r e c t i v e l i s t e d . Among t h e s e f u n c t i o n s w e r e :
t o c o n t r i b u t e to t h e d e t e r r e n t to a g g r e s s i o n and p r e v e n t e x t e r n a l i n t i m i d a -
t ion by e s t a b l i s h i n g and keep ing up ev idence of t h e m i l i t a r y e f f e c t i v e n e s s
of N A T O ' s d e f e n s e s ; to dea l wi th h o s t i l e l o c a l a c t i o n s , i n f i l t r a t i o n s and
i n c u r s i o n s and t h e l i k e w h e n e v e r t h e y o c c u r r e d ; and to conta in the a t t ack
wi thout any a t t e m p t to m a k e a m a j o r s t r a t e g i c w i t h d r a w a l , wi th in t h e concep t
of a f o r w a r d s t r a t e g y , unt i l t he s t r a t e g i c c o u n t e r - o f f e n s i v e us ing coun te r -
n u c l e a r w e a p o n s had a c h i e v e d i t s o b j e c t i v e . The d i r e c t i v e s t a t ed v e r y p l a i n l y
tha t i t w a s a s s u m e d tha t B r i t i s h , Canad ian and US f o r c e s would con t inue to
b e s t a t i o n e d in A C E .
While the d i r e c t i v e w a s in b r o a d t e r m s , i t could be i n t e r p r e t e d c l e a r l y
a s f a r a s SHAPE 'S or SACEUR's f o r c e s w e r e c o n c e r n e d . It s t a t ed tha t the
Shield F o r c e s m u s t b e c a p a b l e not only of r e s p o n d i n g quickly wi th n u c l e a r
weapons , but m u s t a l s o bel ab le to dea l wi th l o c a l a t t a c k s m a d e wi th conven-
t iona l w e a p o n s wi thout n e c e s s a r i l y us ing n u c l e a r w e a p o n s . Cont ro l of the
d e c i s i o n to r e t a l i a t e , h o w e v e r , r e m a i n e d wi th the g o v e r n m e n t s , not wi th
SACEUR.
The r e c e n t e v e n t s in Hunga ry and in t h e Midd le E a s t , w e r e r e f l e c t e d
v e r y c l e a r l y in the d i r e c t i v e . The d i r e c t i v e po in ted out that whi le NATO
d e f e n s e p lann ing w a s l i m i t e d to t h e d e f e n s e of t h e T r e a t y a r e a , account
m u s t be t aken of the d a n g e r s which migh t a r i s e b e c a u s e of d e v e l o p m e n t s
ou t s ide tha t a r e a . T h i s b e c a m e even m o r e a p p a r e n t when the p o l i t i c a l d i -
r e c t i v e s t a t ed tha t accoun t m u s t be t aken in p lann ing f o r t h e m o s t e f f i c i en t
o r g a n i z a t i o n and equ ipmen t of NATO f o r c e s , of t h e p o s s i b l e need f o r s o m e
NATO c o u n t r i e s to u s e f o r c e s which had been a s s i g n e d to NATO to m e e t
d e f e n s e c o m m i t m e n t s e l s e w h e r e . In t h e p a s t , F r a n c e had w i thd rawn f o r c e s
c o m m i t t e d to SACEUR f r o m t h e Cen te r s e c t o r . I ta ly had r e - s t a t i o n e d s o m e
f o r c e s . The d i r e c t i v e po in ted out tha t any such w i t h d r a w a l s should be
" h a r m o n i z e d wi th the p r i m a r y i m p o r t a n c e of p r o t e c t i n g t h e NATO a r e a . "
The i m p o r t a n c e of e s t a b l i s h i n g a s qu ick ly a s p o s s i b l e s o m e s a t i s f a c t o r y
MAT© ©©WŒM1ML 18
NATO ODCRBgi
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
f o r m of a l e r t and e a r l y w a r n i n g w a s u n d a : s c o r e d when t h e d i r e c t i v e s t a t e d
t h a t t h e c o n s e q u e n c e s of a t t ack on NATO without warning w e r e such tha t
t h o s e NATO f o r c e s and f a c i l i t i e s d i r e c t l y r e l a t i n g to e a r l y w a r n i n g and t h e
n u c l e a r r e t a l i a t o r y ac t ion m u s t b e kep t in cons t an t r e a d i n e s s at a l l t i m e s .
T h e g o v e r n m e n t s w e r e d i r e c t e d to t a k e in to accoun t , in dec id ing on
t h e a l l o c a t i o n of t h e i r t o t a l r e s o u r c e s , t h e r i s i n g c o s t s of new w e a p o n s ,
and t h e n e e d f o r e c o n o m i c r e s o u r c e s to dea l wi th t h e Soviet t h r e a t in a l l
i t s a s p e c t s wi thout e n d a n g e r i n g t h e i r e conomic s t ab i l i ty , which in i t se l f
w a s an e s s e n t i a l e l e m e n t of t h e i r s e c u r i t y . The m i l i t a r y a u t h o r i t i e s w e r e a d -
v i s e d t h a t t hey should a s s u m e f o r p lann ing p u r p o s e s tha t few, if any, NATO
c o u n t r i e s could be e x p e c t e d to m a k e any s u b s t a n t i a l i n c r e a s e in the p r o p o r -
t ion of t h e i r r e s o u r c e s devo ted to defense .
R e v i s i o n of S t r a t e g y D o c u m e n t s : MC 3 / 5 ( F i n a l ) , MC 48(Fina l ) , MC 1 4 / l ( F i n a l ) .
B e c a u s e t h e P o l i t i c a l D i r e c t i v e con ta ined the s t a t e m e n t tha t t h e d e f e n s e
p l a n n i n g of NATO n e e d e d to be r e v i e w e d , the m i l i t a r y a u t h o r i t i e s of NATO
b e g a n in e a r l y 1957 c a r r y i n g out an e x t e n s i v e e x a m i n a t i o n of t h e i r ex i s t ing
p o l i c i e s f o r d e f e n s e . M i l i t a r y d o c u m e n t s which l a id down t h e d e f e n s e po l i cy
at t h e beg inn ing of 1957 w e r e MC 3 / 5 ( F i n a l ) . The S t r a t e g i c Concept f o r t h e
D e f e n s e of NATO, 3 D e c e m b e r 1952; MC 48(Fina l ) and MC 4 8 / l ( F i n a l ) . The
m o s t E f f e c t i v e P a t t e r n of NATO M i l i t a r y S t reng th f o r the Next F e w Y e a r s ,
d a t e d 22 N o v e m b e r 1954; and M C 1 4 / l ( F i n a l ) da ted 9 D e c e m b e r 1952. The
M i l i t a r y C o m m i t t e e d i r e c t e d t h e Standing Group to c a r r y out a r e v i e w of t h e s e
d o c u m e n t s in c o o r d i n a t i o n wi th a p p r o p r i a t e m i l i t a r y a u t h o r i t i e s .
The I n t e r n a t i o n a l P l a n n i n g T e a m s of the Standing Group began at once
t h i s r e v i e w and r e v i s i o n . It w a s dec ided tha t t he d o c u m e n t s in the MC 14
s e r i e s and MC 48 s e r i e s would be r e - d o n e and tha t t h e y would s u p e r s e d e
p r e v i o u s p a p e r s on t h e sub j ec t of s t r a t e g y and d e f e n s e c o n c e p t s .
A p r e l i m i n a r y d r a f t of the p a p e r wh ich w a s p r o p o s e d to r e p l a c e MC 1 4 / l
w a s p r e p a r e d by t h e Standing Group p l a n n e r s in e a r l y J a n u a r y . It w a s f o r -
19
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO CONFIDENTIAL NATO g S G R C T '
w a r d e d to t h e M a j o r NATO Commzinder s , inc lud ing SACEUR, in o r d e r
to deve lop t h e i r v i e w s and i d e a s on t h e s u b j e c t . The Standing Group , wh i l e
not bound by r e g u l a t i o n to do so , d e f i n i t e l y w i s h e d S A C E U R ' s v i e w s t o b e
r e f l e c t e d in t h e fined, p r o d u c t . SACEUR, m o r e than any o the r p e r s o n in
NATO, would h a v e to " l i ve w i t h " the d o c u m e n t s on s t r a t e g y and t h e o the r
a u t h o r i t i e s cou ld no t , in f a i r n e s s , ove r look h i s th inking in p r e p a r i n g t h i s (7)
r e v i s i o n of m a j o r d e f e n s e p o l i c y . v
SGN's I n t e r n a t i o n a l P l a n n i n g T e a m s ' R e v i e w s and R e v i s i o n s .
On 17 J a n u a r y , t h i s f i r s t p a p e r , en t i t l ed I P T 131/36 , The O v e r a l l
S t r a t e g i c Concept f o r t h e D e f e n s e of t h e NATO A r e a , w a s sent to SACEUR
ask ing f o r h i s c o m m e n t s and i t s r e t u r n to t h e Standing Group a s soon a s
p o s s i b l e .
The d r a f t of I P T 131 /36 w a s r e v i e w e d by the SHAPE staff and, on
9 F e b r u a r y , t h e Standing Group w a s t o ld tha t SACEUR c o n s i d e r e d the docu-
m e n t " sound o v e r a l l s t r a t e g i c gu idance for t h e d e f e n s e of NATO. " H o w e v e r ,
c e r t a i n c h a n g e s in t h e documen t w e r e r e c o m m e n d e d . SHAPE a s k e d t h e
Standing G r o u p t o i n s e r t a c l a u s e r e a d i n g "NATO h a s no in ten t ion of l i m i t i n g
i t s r e a c t i o n to a g e n e r a l a t t a c k by the Sovie ts and in such a c a s e p l a n s to
u s e n u c l e a r w e a p o n s f r o m t h e o u t s e t . " Again , SHAPE s u g g e s t e d a word ing
which b e t t e r de f ined SACEUR' s concept of f o r c e s t r u c t u r e by saying , "NATO
f o r c e s m u s t be p r i m a r i l y o r g a n i z e d , t r a i n e d and equipped to c a r r y out t h e i r
m i s s i o n of d e f e n s e of NATO t e r r i t o r y . At t h e s a m e t i m e ^ i t ^ m u j t j b e r e c o g n i z e d
tha t s o m e f o r c e s of t h e NATO na t ions m a y be r e q u i r e d to r e t a i n t h e f l e x i b i l i t y
to p e r m i t ac t ion to m e e t l i m i t e d m i l i t a r y s i t ua t i ons s h o r t of g e n e r a l w a r )
ou t s i de t h e NATO a r e a . " ^
One sugges t i on f o r a change in word ing by SACEUR brough t a q u e r y
f r o m one of t h e n a t i o n s and r e s u l t e d in a f u l l e r exp lana t ion of i t s r e a s o n i n g
(7) I P T 131/36 , 17 J a n 57, SGM 59/57 , 17 J a n 57. (8) Rad io , , SHAPE to SGN, SH 40358, 9 F e b 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
b y t h e SHAPE s t a f f . S H A P E had r e q u e s t e d tha t , in d e s c r i b i n g t h e d e f e n s e
a i m s of t h e A l l i ance , t h e w o r d s " a s f a r f o r w a r d a s p o s s i b l e " be deleted, and
t h a t a l s o t h e p h r a s e " to m a i n t a i n o r d e r on t h e h o m e f r o n t s " b e added t o
a n o t h e r p o r t i o n of t h e p a p e r s .
F r e n c h a u t h o r i t i e s w e r e p u z z l e d by the r e a s o n i n g beh ind t h e s e s u g g e s -
t i o n s , and on 18 F e b r u a r y , SACEUR unde r took to expla in to the Standing
G r o u p t h e r e a s o n s f o r m a k i n g t h e m . The de le t ion of " a s f a r f o r w a r d a s
p o s s i b l e " w a s d e e m e d n e c e s s a r y and i m p o r t a n t . "In t h e e a r l y days of Al l ied
C o m m a n d E u r o p e , " t h e Standing Group w a s to ld , "when our r e s o u r c e s w e r e
m e a g e r and we w e r e j u s t ge t t ing o r g a n i z e d , our s t r a t e g y w a s b a s e d on t h e
c o n c e p t of de fend ing a s f a r f o r w a r d a s p o s s i b l e . H o w e v e r , a s t i m e went on
and our r e s o u r c e s and e x p e r i e n c e i n c r e a s e d , we b e c a m e ab le to c a r r y out
ou r f u l l m i s s i o n which i s to de fend a l l of NATO t e r r i t o r y and i t s p e o p l e . Our
f o r w a r d s t r a t e g y concep t i s b a s e d on tha t p r i n c i p l e and to qua l i fy i t by any
s t a t e m e n t such a s " a s f a r f o r w a r d a s p o s s i b l e " would be a r e t r o g r a d e s tep .
C o n s i d e r i n g t h e v a r i o u s n a t i o n s wh ich c o m p r i s e Al l i ed C o m m a n d E u r o p e ,
s u c h a s G e r m a n y , any s t r a t e g y which does not ca l l f o r t h e d e f e n s e of a l l (9)
NATO t e r r i t o r y would be u n a c c e p t a b l e . m
"Our r e a s o n f o r r e c o m m e n d i n g the i n s e r t i o n of "and to m a i n t a i n o r d e r
on t h e h o m e f r o n t s " i s tha t t h e m a i n t e n a n c e of o r d e r and t h e ab i l i ty to cope
w i th 5th c o l u m n a c t i v i t i e s , s a b o t e u r s , c o m m a n d o s , p a r a c h u t i s t s , e t c . , in
any f u t u r e w a r would b e of c r i t i c a l i m p o r t a n c e . " T h e r e s p o n s i b i l i t y f o r t h i s
t a s k w a s b r i e f l y a l l udéd to in t h e d r a f t p a p e r , but SACEUR be l i eved tha t t h e
p a p e r should inc lude , a s one of t h e b a s i c p r i n c i p l e s of d e f e n s e , t he f ac t tha t
Nat ionsd A u t h o r i t i e s would t a k e n e c e s s a r y s t e p s to dea l wi th t h i s p r o b l e m .
A p o r t i o n of t h i s p a p e r , dea l ing wi th A r e a P l a n n i n g Guidance , a f t e r
f u r t h e r r e v i s i o n by t h e Standing Group w a s sent to SACEUR on 11 M a r c h ,
t h i s t i m e en t i t l ed I P T 1 3 1 / 3 6 (Rev i sed) (Dra f t Appendix) . SACEUR c o n c u r r e d
w i th t h e g u i d a n c e c o n t a i n e d in t h i s p a r t of the b a s i c documen t , but s u g g e s t e d
c h a n g e s in w o r d i n g to p r e c l u d e any m i s u n d e r s t a n d i n g tha t t he concep t f o r the (9) R a d i o , S H A P E to SGN, SH 40364, 18 F e b 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
d e f e n s e of W e s t e r n E u r o p e e n v i s a g e d any l a r g e s c a l e c o u n t e r - o f f e n s i v e
a g a i n s t t h e Soviet Union; and t o e m p h a s i z e tha t t h e n u c l e a r c a p a b i l i t y and
d e p l o y m e n t of t h e 6th F l e e t m a d e the M e d i t e r r a n e a n equa l ly i m p o r t a n t a s
an a r e a f r o m which s e a - b a s e d n u c l e a r s t r i k i n g p o w e r would be l a u n c h e d / * ^
T h e Standing Group had not s een f i t to r e m o v e t h e t e r m s " a s f a r f o r -
w a r d a s p o s s i b l e " f r o m t h e r e v i s e d d r a f t of MC 1 4 / 2 (Rev i sed) or f r o m i t s
s i s t e r d o c u m e n t MC 4 8 / 2 , and on 1 A p r i l SACEUR aga in exp la ined tha t
u n d e r t h e t e r m s of t h e N o r t h At lan t ic T r e a t y he w a s r e s p o n s i b l e f o r de fend ing
a l l of t h e t e r r i t o r y of Al l ied C o m m a n d E u r o p e . In a l l p o l i t i c a l g u i d a n c e which
he had r e c e i v e d , inc lud ing t h e l a t e s t P o l i t i c a l D i r e c t i v e , t h i s f a c t h a s been
s t r e s s e d . "Our ob j ec t i ve , " he sa id , " i s no l e s s than to p r o t e c t t he whole
of NATO t e r r i t o r y and to u s e t h i s g e n e r a l i z a t i o n ' a s f a r f o r w a r d a s p o s s i b l e '
i s a r e t r o g r a d e s tep when c o n s i d e r e d aga in s t our acknowledged f o r w a r d s t r a t e g y
The o v e r a l l . S t r a t eg i c Concept could not , of c o u r s e , be a l t e r e d wi thout
changing o r at l e a s t r e - e x a m i n i n g the m e a s u r e s which would be n e c e s s a r y
t o c a r r y out t h e concep t . A c c o r d i n g l y t h e Standing Group sent to SACEUR,
s e v e r a l w e e k s a f t e r t h e f i r s t document had a r r i v e d , a d r a f t of the s tudy on
such m e a s u r e s which w a s l a b e l l e d 178 /70 (Dra f t ) . It w a s in tended tha t t h i s
d r a f t r e p o r t when p l a c e d in f i na l f o r m should be i s s u e d a s MC 4 8 / 2 . The (12)
Standing G r o u p a s k e d t h a t SACEUR r e v i e w and r e t u r n t h i s d r a f t . '
A de t a i l ed a p p r a i s a l of the document w a s sent back to t h e Standing
Group on 1 M a r c h sugges t ing n u m e r o u s c h a n g e s in word ing in o r d e r to avoid (13) p o s s i b l e m i s i n t e r p r e t a t i o n / »
(10) R a d , S H A P E t o SGN, SH 40379, 1 Apr 57. (11) Ibid. (12) SGM-104-57 , 5 F e b 57. (13) L t r , SHAPE C o m m e n t s on I P T 178/70 ( D r a f t ) : " M e a s u r e s to I m p l e m e n t
t h e S t r a t e g i c Concept , " 1 M a r 57, to SGN, w / e n c l s SHAPE 4 8 / 5 7 and SHAPE 4 9 / 5 7 , M a r 57. MC 4 8 / 2 w a s sen t to t h e n a t i o n s f o r t h e i r c o m m e n t s on 15 M a r c h .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 NATO " S E C f t Ê Ç -
R e v i e w by M a j o r NATO C o m m a n d e r s a n d Na t i ona l M i l i t a r y A u t h o r i t i e s .
T h e t w o p o l i c y p a p e r s in d r a f t f o r m had b e e n sen t , not only t o t h e
M a j o r N A T O C o m m a n d e r s , but h a d b e e n r e v i e w e d a l s o by n a t i o n a l m i l i t a r y
a u t h o r i t i e s , p a r t i c u l a r l y at a m e e t i n g of t h e M i l i t a r y R e p r e s e n t a t i v e s C o m -
m i t t e e on 21 M a r c h . As a r e s u l t of t h e c o m m e n t s r e c e i v e d f r o m t h e c o m m a n -
d e r s and t h e n a t i o n a l m i l i t a r y o f f i c i a l s , t h e Standing G r o u p d r e w up a c o m -
p i l a t i o n of s u g g e s t e d c h a n g e s to t h e d o c u m e n t s f o r p r e s e n t a t i o n to t h e M i l i t a r y
C o m m i t t e e . On S A C E U R ' s o b j e c t i o n to i n c l u s i o n of ' a s f a r f o r w a r d a s p o s s i b l e 1
t h e SGN took a m i d d l e c o u r s e , t e l l i n g t h e M i l i t a r y C o m m i t t e e , f o r w h o m
t h e i r c o m p i l a t i o n w a s i n t e n d e d , "In v i e w of t h e N A T O - w i d e f a m i l i a r i t y w i th
t h i s t e r m , t h e Standing G r o u p r e s e r v e d on t h i s po in t , d e s i r i n g t o d r a w it to (14)
t h e a t t e n t i o n of t h e M i l i t a r y C o m m i t t e e . "v '
At a m e e t i n g of t h e M i l i t a r y C o m m i t t e e on 6 A p r i l , t h e two d o c u m e n t s
in q u e s t i o n c a m e up f o r d i s c u s s i o n and e x a m i n a t i o n . Ai r M a r s h a l C o n s t a n t i n o
w a s p r e s e n t i n W a s h i n g t o n D. C. a s SACEURTS r e p r e s e n t a t i v e . All p o i n t s
a t i s s u e w e r e d i s c u s s e d f u l l y and r e s o l v e d e i t h e r by c o m p r o m i s e o r by c o m -
p l e t e a g r e e m e n t . S H A P E ' S o b j e c t i o n to " a s f a r f o r w a r d a s p o s s i b l e , " w h i l e
d i s c u s s e d at l e n g t h , w a s not f u l l y a c c e p t e d , and in t h e f i n a l d o c u m e n t a p p r o v e d
by t h e C o m m i t t e e , t h e p h r a s e , s u r r o u n d e d by e u p h e m i s t i c m o d i f i e r s , w a s
r e t a i n e d .
At t h e c o n c l u s i o n of t h e s e d i s c u s s i o n s , t h e M i l i t a r y C o m m i t t e e a p p r o v e d
M C 1 4 / 2 ( R e v i s e d ) and M C 4 8 / 2 a s a m e n d e d and a g r e e d t o f o r w a r d t h e m to
t h e N o r t h A t l a n t i c Counc i l f o r i t s c o n s i d e r a t i o n . ( F o r c o m p l e t e r e c o r d of
t h e s e d i s c u s s i o n s s e e M C 16th s e s s i o n , 29 A p r i l 1957, p a g e s 5 -13 ) .
At t h e c o n c l u s i o n of t h e a c t i o n s i n t h e M i l i t a r y C o m m i t t e e , t h e C h a i r -
m a n t h a n k e d t h e Standing G r o u p f o r t h e e x p e d i t i o u s w a y in wh ich it had h a n d l e d
t h i s m a t t e r and s t a t e d t h a t t h e m e t h o d fo l l owed h a d e n a b l e d t h e non -S t and ing
G r o u p n a t i o n s t o b e c o m e f a m i l i a r w i th t h e p a p e r s and t o e x p r e s s t h e i r n a t i o n a l
v i e w s a t an e a r l y s t a g e .
(14) M C M - 3 - 5 7 , 2 Apr 57, and M C M - 5 - 5 7 , 2 Apr 57, bo th a d d r e s s e d t o t h e M i l i t a r y C m t t e e a n d dea l ing wi th MC 1 4 / 2 ( R e v i s e d ) and MC 4 8 / 2 r e s p e c t i v e l y .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m m c o i m D E m m i
A p p r o v a l of New P o l i c y D o c u m e n t s by t h e NAC.
T h e N o r t h At lan t ic Counci l m e t on 10 M a y 1957 and a p p r o v e d t h e
new p o l i c y d o c u m e n t s on t h e O v e r a l l S t r a t e g i c Concep t s f o r t h e Defense
of t h e NATO a r e a and t h e M e a s u r e s to I m p l e m e n t t h e S t r a t eg i c Concep t .
In app rov ing t h e s e d o c u m e n t s , howeve r , t h e Counci l a g r e e d tha t such a p p r o v a l
w a s wi thout p r e j u d i c e to t h e r i g h t of any na t iona l de lega t ion at a la ter s t a g e
to a s k f o r r e c o n s i d e r a t i o n of any p a r t of t h e d o c u m e n t s in ques t i on . All
d e l e g a t i o n s except t h o s e of I ce land and L u x e m b o u r g p a r t i c i p a t e d in t h e d i s -
c u s s i o n . G e r m a n y , the N e t h e r l a n d s , B e l g i u m , D e n m a r k and N o r w a y a l l
f a v o r e d s o m e r e s e r v a t i o n in approv ing t h e p a p e r s . The o the r e ight r e p r e -
(15)
s e n t a t i v e 8 w e r e p r e p a r e d to a p p r o v e t h e p a p e r s a s w r i t t e n .
Typ i ca l of t h e type of r e s e r v a t i o n which w a s r a i s e d w a s tha t of the
G e r m a n r e p r e s e n t a t i v e , who announced tha t on behalf of h i s Government
he would a g r e e to t h e s e d o c u m e n t s but t ha t t h i s a g r e e m e n t w a s g iven u n d e r
t h e a s s u m p t i o n tha t t he Shield F o r c e s would be not l e s s than the 30 d iv i s i ons
r e q u i r e d by SACEUR, and tha t t h e r e would be no change in the c o n t r i b u t i o n s
e n v i s a g e d to t h e Shield by t h e indiv idual c o u n t r i e s . He s t a t ed tha t if G e n e r a l
N o r s t a d ' s s tudy should conc lude that t he Shield F o r c e s n e e d e d to be i n c r e a s e d ,
nothing in t h e s e d o c u m e n t s should s tand in t h e way of doing so.
The N e t h e r l a n d s r e p r e s e n t a t i v e po in ted out that the ques t ion of the
r e l a t i v e i m p o r t a n c e of d e t e r r e n t f o r c e s and Shield F o r c e s w a s s t i l l u n s e t t l e d ,
d e s p i t e l eng thy deba t e in the p a s t . The word ing of MC 14/2' howeve r gave
t h e i m p r e s s i o n tha t t h e poin t had been s e t t l e d .
The US r e p r e s e n t a t i v e po in ted out tha t t he P o l i t i c a l D i r e c t i v e w a s the
con t ro l l i ng documen t f o r a l l s t ud i e s being m a d e , inc luding SACEUR's Min i -
m u m F o r c e Study, He fe l t tha t t h e word ing in t h e two documents be ing c o n -
s i d e r e d w a s in c o n s o n a n c e wi th the p o l i t i c a l d i r e c t i v e , and in p a r t i c u l a r he
cou ld not s e e how SACEUR's s tudy b a s e d on t h e P o l i t i c a l D i r e c t i v e could
c l a r i f y a po in t on which the Counci l i t se l f w a s u n c e r t a i n . He s t a t ed US
a p p r o v a l of t h e d o c u m e n t .
(15) Rad , SGREP to SGN, dtd 101045Z LOSTAN 2050, 10 May 57. 24 NATO AJCfetU1 -
MAJQ G ® m ® B m M = i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
T h e r e p r e s e n t a t i v e of t h e Standing Group who w a s p r e s e n t at t h e m e e t -
ing p o i n t e d out t h a t i t w a s u r g e n t t o a p p r o v e fliese d o c u m e n t s a s w r i t t e n in
o r d e r t h a t t h e c u r r e n t s t u d i e s by c o m m a n d e r s cou ld p r o c e e d on t h e b a s i s of
t h e s e two d o c u m e n t s . He, too , e m p h a s i z e d tha t t h e s e two documen t s w e r e
w r i t t e n wi th in t h e f r a m e w o r k of t h e P o l i t i c a l D i r e c t i v e , and tha t t h e Counci l
shou ld not a t t e m p t t o a l t e r t h e m . In r e p o r t i n g on t h e m e e t i n g to t h e Standing
G r o u p , G e n e r a l de C h a s s e y , SGLO, s t a t e d : "My fee l ing i s tha t s o m e m e m b e r s
of t h e Counc i l expec t t ha t S A C E U R ' s s tudy wi l l not only r e s o l v e p u r e l y m i l i -
t a r y p r o b l e m s , but even r e v i s e t h e s t r a t e g i c concep t . F u r t h e r , i t a p p e a r s tha t
t h e Counc i l r e g a r d s p r e s e n t MC 1 4 / 2 and 4 8 / 2 a s i n t e r i m d o c u m e n t s only
w h i c h m a y r e q u i r e r e v i s i o n in t h e l ight of f u t u r e d i s c u s s i o n s a f t e r r e c e i p t
of S A C E U R ' s s t u d y . "
A l e r t M e a s u r e s - B a c k g r o u n d .
W e s t e r n E u r o p e had l i ved s i n c e about 1947 in cons t an t and g rowing
d a n g e r of i n v a s i o n and s e i z u r e f r o m t h e E a s t . The p r i c e of c o o p e r a t i v e
d e f e n s e invo lved m o r e than m o n e y . It involved in m a n y c a s e s the y ie ld ing
of c e r t a i n na t iona l p r e r o g a t i v e s and even s o m e a s p e c t s of na t iona l s o v e r e i g n t y .
T h i s y ie ld ing w a s done n o r m a l l y in a l m o s t d i r e c t p r o p o r t i o n to t h e i n t e n s i t y
of t h e d a n g e r , or at l e a s t t he a p p e a r a n c e of the d a n g e r . In no way w a s t h i s
m o r e ev iden t t h a n in t h e e f f o r t s m a d e by SACEUR to e s t a b l i s h c e r t a i n de f in i t e
and w o r k a b l e r u l e s f o r p r e l i m i n a r y a c t i o n s and p r e c a u t i o n a r y s t e p s in an
A l e r t S y s t e m .
When t h e d e f e n s e s t r a t e g y had been e x a m i n e d t h o r o u g h l y unde r G e n e r a l
G r u e n t h e r in 1953 and 1954, one of the g r e a t e s t w e a k n e s s e s r e v e a l e d w a s
t h e l a c k of any f i r m s y s t e m of a l e r t s which would a l low SACEUR's f o r c e s
to ge t i n to p o s i t i o n f o r an impend ing e n e m y a t t ack . The Capab i l i t i e s P l a n
1957 j u d g e d t h i s to be one of t h e m a j o r a r e a s of r i s k and w e a k n e s s , and t h e
a c c o m p a n y i n g P r o g r a m r e c o m m e n d a t i o n s u r g e d tha t t h e m a t t e r be s tud ied
t o s e e wha t cou ld be done . MC 49, the end p r o d u c t of SACEUR's Capab i l i t i e s
25
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
M m ü m x ^ m i
nato shelter"
P l a n , s t a t e d : " S u r p r i s e wi l l be a m a j o r f a c t o r in any f u t u r e w a r involving
NATO, and t h e d e g r e e of s u r p r i s e a t t a i n e d by t h e e n e m y could g r e a t l y
i n f l u e n c e t h e o u t c o m e of t h e w a r . T h e ab i l i t y of NATO to w i t h s t a n d and
r e a c t to t h e f i r s t blow wi l l depend on t h e extent to which our f o r c e s a r e
b e f o r e t h e p u b l i c a t i o n of t h i s d o c u m e n t , h o w e v e r , SACEUR had se t up a
f o r m a l a l e r t s y s t e m which w a s p u b l i s h e d in F e b r u a r y 1954 .^*^
Nego t i a t i ons wi th Nat iona l A u t h o r i t i e s on A l e r t M e a s u r e s .
T h e N o r t h At lant ic Counci l had d i r e c t e d SACEUR to n e g o t i a t e t h r o u g h
h i s M a j o r Subord ina te C o m m a n d e r s wi th na t iona l a u t h o r i t i e s to s eek t h e i r
a g r e e m e n t to t h e i m p l e m e n t a t i o n of t h e s e m e a s u r e s on the d e c l a r a t i o n by
an a u t h o r i z e d NATO c o m m a n d e r of a Simpl e or R e i n f o r c e d A l e r t . T h i s
f o r m a l s y s t e m in i t se l f w a s weak and could not p o s s i b l y suppor t t h e s t r a t e g y
e n v i s a g e d in t h e "New A p p r o a c h " d o c u m e n t s . F o r i n s t a n c e , even though
va l i d i n t e l l i g e n c e i n f o r m a t i o n f o r e c a s t a s u r p r i s e a t t ack , t he p o l i t i c a l
c l i m a t e at t h e t i m e migh t p r e c l u d e pu t t ing the f o r m a l a l e r t s y s t e m into
e f f e c t . T h e r e w e r e o the r d r a w b a c k s too, but b a s i c a l l y the formed, a l e r t
s y s t e m w a s v a l i d only f o r cond i t ions of moun t ing t e n s i o n .
A S imple A l e r t would be put in e f f ec t to m a k e s u r e tha t t he two A l e r t s
wh ich cou ld p o s s i b l y fo l low would be c a r r i e d out p r o m p t l y . Under the cond i -
t i o n s of S imple A l e r t , c e r t a i n p e r s o n n e l would be r e c a l l e d to a c t i v e duty to
e n s u r e c o m b a t e f f e c t i v e n e s s in s o m e un i t s , s e c u r i t y m e a s u r e s aga in s t s u r -
p r i s e a t t ack , t h e dep loymen t of f o r c e s r e q u i r e d f o r e a r l y wa rn ing , p r e p a r a -
t ion of d e m o l i t i o n s , and the s e c u r i t y of v i t a l p o i n t s . T h e r e w e r e a l s o o the r
a c t i o n s u n d e r t h i s S imple A l e r t . The S imple A l e r t n o r m a l l y would be c a l l e d
th roughou t Al l ied C o m m a n d E u r o p e only a f t e r a p p r o v a l of t h e G o v e r n m e n t s
had been ob ta ined t h r o u g h the P e r m a n e n t R e p r e s e n t a t i v e s to t h e Counc i l .
in e f f e c t i v e a l e r t s t a t u s at t h e t i m e of t h e e n e m y ' s s u r p r i s e a t t a c k . " Even
(16) S H A P E / 7 0 / 5 4 , 12 F e b 54,
-WrtTO CFiCIlBIi—
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
H o w e v e r , if t h e e m e r g e n c y w e r e s u f f i c i e n t l y e x t r e m e and t h e d e l a y m i g h t
e n d a n g e r h i s f o r c e s , SACEUR would d e c l a r e a S imple A l e r t in h i s a r e a
of r e s p o n s i b i l i t y , a s could h i s M ^ j o r Subord ina te C o m m a n d e r s wi th in t h e i r s .
The next s t a g e in t h e A l e r t Sys t em, the R e i n f o r c e d A l e r t , which c a l l e d
f p r ach iey ing t h e m a x i m u m p o s s i b l e p r e p a r a t i o n s to m e e t and c o u n t e r a So-
v i e t a t t a c k , cou ld not be e x e c u t e d s e c r e t e l y . Typ i ca l of t h e a c t i o n s unde r a
R e i n f o r c e d A l e r t would be t h e evacua t ion of s e l e c t e d n o n - c o m b a t a n t s , t he
d e p l o y m e n t of a i r , g round and nava l f o r c e s to t h e i r ba t t l e p o s i t i o n s , m o b i l i -
z a t i o n of m a n y c o m b a t un i t s , t h e w i t h d r a w a l of s tock p i l e s f r o m a d v a n c e
a r e a s , e t c . J u s t a s t h e R e i n f o r c e d A l e r t w a s s t r o n g e r t han t h e S imple A l e r t ,
so w e r e t h e p r o v i s i o n s for ca l l ing i t . N o r m a l l y , a R e i n f o r c e d A l e r t could
be c a l l e d only a f t e r G o v e r n m e n t s had a p p r o v e d such ac t ion t h r o u g h t h e i r
P e r m a n e n t R e p r e s e n t a t i v e s to t h e Counci l . In t h e event , h o w e v e r , tha t t he
s i t u a t i o n a p p e a r e d so u r g e n t a s to p r e c l u d e obtaining p r i o r a p p r o v a l t h rough
t h e Counci l , SACEUR migh t in consu l t a t i on with t h e Standing Group and wi th
t h e a p p r o v a l of t h e ind iv idua l G o v e r n m e n t s c o n c e r n e d , put in to e f f ec t a R e -
i n f o r c e d A l e r t o r s p e c i f i c m e a s u r e s of t h i s a l e r t e i the r t h roughou t h i s e n t i r e
c o m m a n d or in t h e a f f e c t e d a r e a s , a s n e c e s s a r y .
The f ina l t ype of a l e r t w a s not one which w a s p r e c a u t i o n a r y or p r e -
l i m i n a r y in n a t u r e , but a G e n e r a l A l e r t which would m a r k t h e o u t b r e a k of
h o s t i l i t i e s . In t h i s c a s e , SACEUR' s ope ra t i ona l p l a n s would be c a r r i e d out .
When t h e p r o b l e m of a l e r t s had been c o n s i d e r e d by t h e Counci l in
J u l y 1953, the fo l lowing ac t i ons had been t aken . The Counci l h a s a p p r o v e d
t h e Standing Group document SG 129 /4 (F ina l ) as a m e n d e d , a s a b a s i s f o r
n e g o t i a t i o n s b e t w e e n t h e S u p r e m e C o m m a n d e r s and t h e i r na t i ona l a u t h o r i t i e s .
T h e y had a g r e e d tha t dur ing such b i l a t e r a l nego t i a t ions t h e S u p r e m e C o m -
m a n d e r s would have to ac t in a c c o r d a n c e wi th the Standing Group documen t
s i n c e t h e y had no o the r i n s t r u c t i o n s , but c e r t a i n m e m b e r s of t h e Counci l
w e r e no t ab le ye t t o e n d o r s e t h i s p r o c e d u r e o f f i c i a l ly . The Counci l r e s e r v e d
t h e r i g h t t o r e - e x a m i n e the documen t a f t e r they had r e c e i v e d t h e Standing
27
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
G r o u p r e p o r t on t h e o u t c o m e of n e g o t i a t i o n s b e t w e e n S u p r e m e C o m m a n d e r s (17)
a n d t h e N a t i o n a l A u t h o r i t i e s .
S A C E U R ' s R e q u i r e d A l e r t M e a s u r e s - S H A P E / 7 6 / 5 6 .
T h e p o s i t i o n in N o v e m b e r 1956 t h e n , d u r i n g t h e t i m e of t h e Suez a n d
H i m g a r i a n c r i s e s , w a s e x t r e m e l y i n d e f i n i t e . T h e a l e r t m e a s u r e s r e q u i r e d
b y SACEUR and w h i c h h a d b e e n l a i d down in S H A P E / 7 6 / 5 6 w e r e s t i l l u n d e r
n e g o t i a t i o n w i t h m a n y of t h e g o v e r n m e n t s c o n c e r n e d . In f a c t , SACEUR h a d
r e c e i v e d f i n a l a c c e p t a n c e of h i s m e a s u r e s on ly f r o m C a n a d a . No f i na l r e s -
p o n s e h a d b e e n r e c e i v e d f r o m T u r k e y ; t h e US had a c c e p t e d w i t h m i n o r r e s e r -
v a t i o n s ; and t h e r e m a i n i n g n a t i o n s e x p r e s s e d r e s e r v a t i o n s of v a r y i n g n a t u r e
and i m p o r t a n c e . Unt i l t h e e x p i r a t i o n of t h e " r e s e f v e p o w e r s " in G e r m a n y
t h e A m b a s s a d o r s of F r a n c e , t h e U n i t e d K ingdom and t h e U n i t e d S t a t e s r e -
m a i n e d r e s p o n s i b l e f o r i m p l e m e n t a t i o n , in c o n j u n c t i o n w i th t h e G e r m a n
a u t h o r i t i e s , of S A C E U R ' s a l e r t m e a s u r e s .
T h e Standing G r o u p , on ly f i v e d a y s b e f o r e G e n e r a l N o r s t a d a s s u m e d
c o m m a n d , a d d r e s s e d t h e Counc i l i n t h e s t r o n g e s t t e r m s po in t ing out t h e
g r e a t n e e d f o r w o r k a b l e and e f f e c t i v e a l e r t m e a s u r e s . T h e Standing G r o u p
t o l d t h e C o u n c i l : "In t h e l igh t of t h e i n t e r n a t i o n a l s i t u a t i o n , S tanding G r o u p
u r g e s m e m b e r s of t h e Counc i l c o n c e r n e d to e x e r t p r e s s u r e on t h e i r r e s p e c -
t i v e n a t i o n a l a u t h o r i t i e s t o c o m p l e t e n e g o t i a t i o n s in A l l i ed C o m m a n d E u r o p e , (18)
A l l i e d C o m m a n d A t l a n t i c , and C h a n n e l C o m m a n d a l e r t m e a s u r e s . "
S h o r t l y b e f o r e G e n e r a l N o r s t a d b e c a m e SACEUR, S H A P E p r e p a r e d
and p r e s e n t e d to t h e Standing G r o u p a M i l i t a r y A l e r t S y s t e m . T h i s s y s t e m
w o u l d a f f e c t d i r e c t l y on ly m i l i t a r y f o r c e s , cou ld be put in to e f f e c t by m i l i t a r y
o o m m a n d e r s , and wou ld no t d e p e n d on p r i o r n e g o t i a t i o n and a g r e e m e n t .
U n d e r t h i s s y s t e m , t h e NATO c o m m a n d e r s c o u l d d e c l a r e t h r o u g h c a l l i n g
an A l e r t t h a t t h e y b e l i e v e d a s i t u a t i o n e x i s t e d w h e r e an e n e m y a t t e m p t a t
(17) C - M ( 5 6 ) 1 2 5 , 15 Nov 56. (18) Ib id .
iiviL \l JX-: L ^ v L 28
Ti *iTn i n n n r T I
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
l y y y a y v A i v ; i ! , Y d \ ' iiY S H A P E 5 7 / 6 7 NATO S E C R E T ^
s u r p r i s e a t t a ck w a s i m m i n e n t or t ha t an a t t ack had a c t u a l l y s t a r t e d , but
w h i c h f o r v a l i d r e a s o n s could not be m e t by SACEUR' s f o r m a l a l e r t s y s t e m .
T h e m e a s u r e s wh ich SHAPE p r e s c r i b e d w e r e only m i l i t a r y a c t i o n s which
wou ld r e s e m b l e r o u t i n e f i e l d e x e r c i s e s and m a n e u v e r s .
B r i e f l y , t h e r e w e r e two s t a g e s in the p r o p o s e d m i l i t a r y a l e r t s y s t e m :
f i r s t , t h e O r a n g e A l e r t , t h e s o - c a l l e d p r e c a u t i o n a r y s t a g e in wh ich if s u f f i -
c i en t w a r n i n g w e r e r e c e i v e d , c e r t a i n m i l i t a r y ac t i ons could be t a k e n . P e n e -
t r a t i o n of t h e r a d a r s c r e e n or a s i m i l a r u r g e n t wa rn ing would r e s u l t in
d e c l a r i n g a S c a r l e t . The A C E c o u n t e r - s u r p r i s e m i l i t a r y a l e r t s y s t e m w a s
ou t l i ned in de ta i l , inc luding the de f in i t e s t e p s which would be t a k e n unde r
e a c h p h a s e of an a l e r t . T h i s d o c u m e n t w a s sent to the Standing Group on
22 O c t o b e r 1956, wi th the r e q u e s t t ha t i t be a p p r o v e d and that SACEUR be
a u t h o r i z e d to e s t a b l i s h t h i s s y s t e m in con junc t ion with h i s M a j o r Subord ina te
C o m m a n d e r s and in c o o r d i n a t i o n wi th na t iona l a u t h o r i t i e s . He e m p h a s i z e d
t h a t t h i s s y s t e m w a s c o m p l e m e n t a r y to the F o r m a l A l e r t Sys t em which he (19)
w a s s t i l l a t t e m p t i n g to nego t i a t e wi th na t iona l a u t h o r i t i e s .
The Standing Group R e p o r t on SACEUR' s A le r t M e a s u r e s - MC 67(Revised) .
A f t e r examin ing SACEUR's p r o p o s a l , t h e Standing Group p r e p a r e d a
r e p o r t in t h e f o r m of Document MC 67(Revised) and p r e s e n t e d it t o the M i l i -
t a r y C o m m i t t e e on 4 D e c e m b e r . Meanwhi l e t h e even t s in H u n g a r y and Suez
h a d g r e a t l y h e i g h t e n e d the u r g e n c y and need f o r a w o r k a b l e M i l i t a r y Ale r t
S y s t e m . The M i l i t a r y C o m m i t t e e r e c o m m e n d e d to the Counci l t ha t it a p p r o v e
S A C E U R ' s p r o p o s a l s wi th t h e r e s e r v a t i o n tha t t h e M i l i t a r y A l e r t Sys t em should
be a p p l i c a b l e only to a s s i g n e d or e a r m a r k e d f o r c e s . G e n e r a l N o r s t a d , who
w a s p r e s e n t when t h e M i l i t a r y C o m m i t t e e c o n s i d e r e d MC 67, po in ted out
t ha t t h e e v e n t s of t h e l a s t f ew w e e k s had m a d e it f a r m o r e u r g e n t tha t ac t ion
be t a k e n t o e s t a b l i s h a r e c o m m e n d e d s y s t e m , and he u r g e d tha t t he C o m m i t t e e
(19) L t r , to C h a i r m a n SGN, s u b j : ACE C o u n t e r - S u r p r i s e M i l i t a r y A l e r t S y s t e m , 22 Oct 56, wi th 2 E n c l o s u r e s .
LVi-JAi'- y , 4 29
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
îM^i ' -D U Ü & e ' « i W ä V
NATO JLEGR-ET"
a p p r o v e t h i s d o c u m e n t . V i r t u a l l y a l l t h e na t iona l Ch i e f s of Staff who w e r e
p r e s e n t c o m m e n t e d on t h i s A l e r t S y s t e m , s o m e of t h e m wish ing to r e t a i n
t h e p o w e r to ca l l an a l e r t wi th in t h e Nat iona l M i n i s t r i e s of D e f e n s e . Another
v iewpoin t w a s tha t only SACEUR, SACLANT and C H A N C O M T E E should be
a u t h o r i z e d to ca l l an a l e r t . G e n e r a l N o r s t a d po in ted out tha t to l i m i t t h e 4
a u t h o r i t y f o r o r d e r i n g an a l e r t even to t h e M a j o r Subord ina te C o m m a n d e r s
would b e undu ly r e s t r i c t i v e . He f e l t t ha t t h e r e should be s o m e c i r c u m s t a n c e s
w h e r e a u t h o r i t y cou ld be d e l e g a t e d at a l o w e r l eve l , even down to A r m y
G r o u p s o r A T A F s . T h i s , of c o u r s e , could be dec ided in n e g o t i a t i o n s wi th
t h e n a t i o n s which w e r e c a l l e d f o r in MC 67.
New Nego t i a t i ons wi th Nat ional A u t h o r i t i e s on A l e r t M e a s u r e s .
The M i l i t a r y C o m m i t t e e dec ided not to submi t the documen t to t h e
Counci l f o r a p p r o v a l , and a p p r o v e d i t a s a m e n d e d . They a s k e d SACEUR to
beg in d i r e c t nego t i a t i ons wi th the na t i ona l a u t h o r i t i e s . On 17 J a n u a r y 1957,
G e n e r a l N o r s t a d d i r e c t e d h i s M a j o r Subord ina te C o m m a n d e r s to c a r r y on
n e g o t i a t i o n s wi th t h e a p p r o p r i a t e na t iona l a u t h o r i t i e s in o r d e r to e s t a b l i s h
a C o u n t e r - S u r p r i s e M i l i t a r y Ale r t Sys t em, and to submi t t h e r e s u l t s to h i m
by 1 M a y 1957. The Appendix to MC 67 w a s to be u s e d a s a gu ide f o r the
nego t i a t i on of a g r e e m e n t s . In addi t ion, t h e m i l i t a r y a u t h o r i t i e s who w e r e
e m p o w e r e d to o r d e r i m p l e m e n t a t i o n of t h e v a r i o u s m e a s u r e s w e r e to be
c l e a r l y de f ined . In t roduc t ion of the who le s y s t e m or any p a r t of i t would be
f a c i l i t a t e d by t h e ACE In te l l i gence Watch Condi t ion (NATO In t e l l i gence Watch
Condi t ion , AO 2231, 27 Nov 56), wh ich m i g h t m a k e it p o s s i b l e to d e c i d e a s to
t h e d e g r e e of a l e r t to be a p p l i e d / * ^
The Counci l had s t a t e d in the p a s t t h a t : " T h e n a t u r e and extent of
p o l i t i c a l gu idance to NATO C o m m a n d e r s in event of a r m e d a g g r e s s i o n aga ins t
NATO cannot be de f ined in advance . Rap id p r o c e d u r e should be e s t a b l i s h e d
(20) M e m o r a n d u m , s u b j : "Counte r S u r p r i s e Militeury A l e r t S y s t e m , 17 J a n 57, AG 1210 /1 P A N D P .
MATO TONFiIDENTIAL
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MAT© '(DONRDENTIALT
SHAP E 57 / 67 NATO — S^GRTET"
w h e r e b y NATO C o m m a n d e r s can ob ta in t h i s gu idance qu ick ly . T h e Standing
G r o u p or t h e a p p r o p r i a t e S u p r e m e Al l ied C o m m a n d e r c o n c e r n e d should
s e e k t h i s g u i d a n c e f r o m the P e r m a n e n t R e p r e s e n t a t i v e s to t h e N o r t h At lan t ic (21)
Counc i l t h r o u g h t h e S e c r e t a r y G e n e r a l . , , v
T h e n e g o t i a t i o n s c a r r i e d out by M a j o r Subord ina te C o m m a n d e r s wi th
n a t i o n a l a u t h o r i t i e s got unde r way at o n c e . . However , only CINCSOUTH and
C I N C A F M E D m e t t h e d e a d - l i n e . On 20 M a y G e n e r a l N o r s t a d po in t ed out
t o Generad Val luy tha t t h i s w a s caus ing h i m s o m e c o n c e r n , but w a s to ld
tha t he cou ld not expec t a r e p l y un t i l 1 J u l y b e c a u s e of d i f f i c u l t i e s which
h a d b e e n e n c o u n t e r e d du r ing t h e n e g o t i a t i o n s . CINCNORTH w a s a l m o s t a
m o n t h l a t e wi th h i s r e p l y . ^ ^
On 23 Ju ly , r e p r e s e n t a t i v e s of t h e MSCs m e t at SHAPE at a m e e t i n g
conducted by D C P A N D P . At t h i s t i m e i t w a s d e t e r m i n e d tha t a s a r e s u l t of
n e g o t i a t i o n s wh ich had been c a r r i e d on, m o s t of the na t iona l a u t h o r i t i e s a g r e e d
to d e l e g a t e a u t h o r i t y to d e c l a r e the O r a n g e and S c a r l e t A l e r t s to SACEUR and (23)
h i s M a j o r Subord ina t e C o m m a n d e r s .
T h e US A u t h o r i t i e s w e r e p r e p a r e d to de l ega t e t h i s a u t h o r i t y only to
SACEUR a s a NATO C o m m a n d e r , and r e s e r v e d the r i g h t to have t h e Counter
S u r p r i s e M i l i t a r y A l e r t s d e c l a r e d f o r US f o r c e s by USAREUR and USAFE.
T h e I t a l i an A u t h o r i t i e s wan ted t h e Counter S u r p r i s e M i l i t a r y A l e r t s
d e c l a r e d by SACEUR or CINCSOUTH to be t r a n s m i t t e d to t h e f o r c e s , inc luding
t h e a s s i g n e d f o r c e s , t h r o u g h t h e m , which would c a u s e u n a c c e p t a b l e de lay .
S H A P E would have to nego t i a t e wi th t h e US and I ta l i an A u t h o r i t i e s in o r d e r , if
p o s s i b l e , to a c h i e v e a po l i cy m o r e in a c c o r d a n c e with t h e r e q u i r e m e n t s of an
e m e r g e n c y , s i t ua t i on . (21) SG 1 2 9 / 4 ( R e v i s e d F ina l ) , p a r a 6, quoted in C-M(56)125, 15 Nov 56. (22) M e m o , DCPANDP f r o m A C P A N D P , 29 M a y 57, P A N D P 1210/1 ;
R a d , CINCENT to SACEUR, P P C E 11251, 17 M a y 57; A F N O R T H 1210 OPS, 27 M a y 57.
(23) A G / l 2 IO/ I P A N D P , 23 J u l 57, M e m o f r o m G e n G a z i n , sub j : ' l R e sui t s of t h e Nego t i a t i ons c a r r i e d out by MSCs in Conjunc t ion wi th t h e i r own Subord ina t e C o m m a n d s and the Nat ional A u t h o r i t i e s a s r e g a r d s Counter S u r p r i s e M i l i t a r y A l e r t S y s t e m .
.31 TOTO CONFPENTilAr N A T O -CTTTTR TTT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
As r e g a r d s the f o r c e s s t a t i oned n e a r the I ron C u r t a i n , t h e delegated
a u t h o r i t y g r a n t e d to SACEUR and CINCENT should , in c a s e of e x t r e m e u r -
gency , ( that i s t o say , in t h e event of the r a d a r s c r e e n being c r o s s e d by a
f o r m a t i o n of e n e m y b o m b e r s ) , be ex tended to the C o m m a n d e r s of the A T A F s ,
A r m y G r o u p s and equ iva len t Nava l C o m m a n d e r s , who, in t h i s s ing le c a s e ,
should be a u t h o r i z e d to p r o c l a i m t h e S c a r l e t A l e r t f o r a l l t r o o p s u n d e r t h e i r
c o m m a n d . S i m i l a r p o w e r s should be de l ega t ed to the C o m m a n d e r s , s p e c i f i e d
by n a m e , of Air F o r c e s , C A T A C ^ o r Air Div i s ions s t a t ioned n e a r the I ron
C u r t a i n who, in t h e event of an a t o m i c a t t ack , could p r o t e c t t h e i r un i t s only
by sending t h e i r a i r c r a f t in to the a i r .
The G e r m a n A u t h o r i t i e s w e r e c o n c e r n e d about the s i tua t ion which
migh t a r i s e a s a r e s u l t of t h e d e c l a r a t i o n of one of the C o u n t e r - S u r p r i s e
M i l i t a r y A l e r t s by s o m e na t iona l c o m m a n d e r s without c o o r d i n a t i o n t h r o u g h
CINCENT or SACEUR. F u r t h e r n e g o t i a t i o n s on th i s point would have to
be c a r r i e d out , wi th the s u p p o r t of SHAPE if n e c e s s a r y , in o r d e r to e n s u r e
t ha t , in an e m e r g e n c y , t h e s a m e a l e r t s t age be d e c r e e d th roughou t the t e r -
r i t o r y of the F e d e r a l Repub l i c .
As a r e s u l t of a r e c o m m e n d a t i o n by CINCENT, the d e c i s i o n w a s m a d e
tha t c e r t a i n p r e l i m i n a r y m e a s u r e s which could be cont inued f o r w e e k s or
even m o n t h s in t h e event of t e n s i o n , should be s u p e r i m p o s e d upon t h e C o u n t e r -
S u r p r i s e M i l i t a r y Ale r t S y s t e m .
It w a s dec ided to p r o p o s e tha t t h e s e m e a s u r e s , which w e r e p r e l i m i n a r y
to t h e C o u n t e r - S u r p r i s e s t a g e s , would be ca l l ed "S ta te of M i l i t a r y V i g i l a n c e . "
The Sta te of M i l i t a r y V ig i l ance would not be ano the r a l e r t s t age , but a m i l i -
t a r y condi t ion , du r ing which c e r t a i n s i m p l e m e a s u r e s , adap ted to m i l i t a r y
p r o c e d u r e s and to loca l g e o g r a p h i c a l cond i t ions , would be i m p l e m e n t e d by
t h e c o m m a n d s which p r e v i o u s l y had w o r k e d t h e m out. The p u r p o s e of the
State of M i l i t a r y Vig i l ance w a s the a l e r t i n g of the a r m e d f o r c e s so a s to
enab le t h e m e a s i l y to m e e t an e m e r g e n c y s i tua t ion , by applying a s quickly a s
•CATAC= C o m m a n d e m e n t A e r i e n T a c t i q u e . T h e r e w e r e two of t h e s e , one of wh ich i s a s s i g n e d to NATO and the other r e t a i n e d under F r e n c h c o n t r o l .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 N A T a
p o s s i b l e any of t h e s t a g e s of the F o r m a l A l e r t Sys t em or of t h e C o u n t e r -
S u r p r i s e M i l i t a r y A l e r t Sys t em. In t h e event of t e n s i o n , t h e Sta te of M i l i -
tary V i g i l a n c e would be d e c l a r e d by SACEUR f o r t h e a s s i g n e d f o r c e s , and
he would r e c o m m e n d tha t i t be app l i ed by the Nat ional A u t h o r i t i e s to the
e a r m a r k e d and na t i ona l f o r c e s if t h e s e a u t h o r i t i e s had not a l r e a d y t a k e n t h i s
s t ep t h e m s e l v e s . Au thor i ty to d e c l a r e t h e State of M i l i t a r y V i g i l a n c e could
be d e l e g a t e d by SACEUR to t h e M a j o r Subord ina te C o m m a n d e r s .
Other d e c i s i o n s inc luded the d e t e r m i n a t i o n tha t a s ing le A l e r t Book,
c a l l e d "SACEUR A l e r t Sys t em, " wh ich would contain m a t t e r s r e l a t i n g to the
Sta te of V ig i l ance , t h e Counter S u r p r i s e M i l i t a r y A l e r t Sys t em, the F o r m a l
A l e r t S y s t e m and a p p r o p r i a t e a n n e x e s , would be p u b l i s h e d .
While i t w a s obvious ly n e c e s s a r y tha t SACEUR's A l e r t Sys t em be t e s t e d
du r ing e x e r c i s e s , c e r t a i n d i f f i c u l t i e s a r o s e in the Nor th and in t h e C e n t e r .
In t h e N o r t h , i t would be n e c e s s a r y to o p e r a t e on a na t iona l b a s i s s i nce t h e r e
w e r e v i r t u a l l y no a s s i g n e d f o r c e s in Norway or D e n m a r k . In t h e C e n t e r , any
e x e r c i s i n g of t h i s s y s t e m dur ing m a n e u v e r s would r e q u i r e t h e a p p r o v a l of
n a t i o n a l Ch i e f s of Staff f o r c o m b i n e d e x e r c i s e s , t he a p p r o v a l of the a p p r o -
p r i a t e m i n i s t e r s f o r any c r o s s i n g of f r o n t i e r s , and the obta in ing of p e r m i s -
s ion f o r t h e a i r f o r c e s to deploy at a i r f i e l d s in F r a n c e which w e r e at the p r e s e n t
t i m e r e s e r v e d .
It w a s d e c i d e d at th i s m e e t i n g that SHAPE would w r i t e to t h e Standing
Group a sk ing f o r a p p r o v a l of c h a n g e s to t h e M i l i t a r y A l e r t Sys t em which
S H A P E had p r o p o s e d in October 1956, and a f t e r r e c e i v i n g t h i s a p p r o v a l would
w r i t e to MODs and MSCs sending t h e m a f ina l d r a f t f o r the State of M i l i t a r y
V ig i l ance and C o u n t e r - S u r p r i s e M i l i t a r y Ale r t Sys tem. The M a j o r Subord ina te
C o m m a n d s would send to SHAPE r e c o m m e n d e d changes to the F o r m a l A l e r t
S y s t e m , p r o p o s e d i m p r o v e m e n t s to the book on "SACEUR A l e r t S y s t e m " and,
in add i t ion to c e r t a i n m o r e de t a i l ed m e a s u r e s , would l i s t t h e a u t h o r i t i e s to
w h o m t h e y w i s h e d the SACEUR A l e r t Sys tem book to be sen t .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S A C E U R ' s E m e r g e n c y D e f e n s e P l a n 1957.
Fo l lowing p r e c e d e n t , SACEUR in 1957 p r e p a r e d and m a i n t a i n e d p l a n s
to de fend Al l ied C o m m a n d E u r o p e , u s ing t h o s e f o r c e s and w e a p o n s i m m e -
d ia t e ly a v a i l a b l e , in event a s u r p r i s e a t t a ck should be l aunched by t h e p o t e n -
t i a l er iemy. ' T h i s p lan , t he E m e r g e n c y D e f e n s e P l a n (EDP) , had been i s s u e d
in J u l y 1956 to b e c o m e e f f e c t i v e 1 J a n u a r y 1957. The g e n e r a l s i tua t ion which
it w a s d e s i g n e d to m e e t w a s one u n d e r which w a r w a s f o r c e d upon the NATO
n a t i o n s by a c t s of a g g r e s s i o n of the USSR a n d / o r he r Sa t e l l i t e s du r ing 1 9 5 7 . ^ ^
The E D P w a s s p e c i f i c and d e t a i l e d . The f o r c e s which w e r e expec t ed to
be a v a i l a b l e to SACEUR w e r e set out b r o a d l y in the f i r s t sec t ion , but i t e m i z e d
in l a t e r sections of the p l an . Th i s i nc luded a s s i g n e d f o r c e s , e x t e r n a l f o r c e s
and c e r t a i n na t iona l f o r c e s . The m i s s i o n of All ied C o m m a n d E u r o p e w a s to
"Defend the a r e a of Al l ied C o m m a n d E u r o p e so a s to p r o v i d e e s s e n t i a l p r o -
t e c t i o n and c o n t r o l of a r e a s and L O C s of v i t a l i m p o r t a n c e ; p r o v i d e p r o t e c t i o n
of Al l ied m o b i l i z a t i o n and r e i n f o r c e m e n t p r e p a r a t o r y to s u s t a i n e d d e f e n s e
a n d / o r s u b s e q u e n t o f f e n s i v e o p e r a t i o n s ; and conduct an a i r o f f e n s i v e and such
o the r o f f e n s i v e o p e r a t i o n s a s f o r c e s a v a i l a b l e wi l l p e r m i t , to a t ta in a l l i ed
o b j e c t i v e s . " The m i s s i o n of each of t h e m a j o r s u b o r d i n a t e c o m m a n d e r s w a s
de f ined in t h e p l a n and t h e d e t a i l e d t a s k s of e a c h w e r e a l s o s t a t ed . The s e c -
t ion on Atomic W a r f a r e , Annex C, se t out t h e concept and p r o c e d u r e s f o r
t h i s w a r f a r e .
SACEUR's Atomic S t r ike P l a n .
In o r d e r to p r o v i d e f o r t h e o p t i m u m u s e of a t o m i c weapons by h i s
f o r c e s in the o p e r a t i o n s env i s aged in SACEUR's E m e r g e n c y D e f e n s e P l a n
1 - 5 7 , SACEUR had i s s u e d on 17 August 1956 h i s Atomic S t r ike P l a n 1 - 5 7 ,
to b e c o m e e f f e c t i v e 1 J a n u a r y 1957. Set f o r t h in the b a s i c p l a n w e r e the t a s k
(24) E m e r g e n c y D e f e n s e P l a n , SACEUR 1957, S H A P E / 5 0 0 - 1 / 5 6 , 15 Ju l 56; wi th C o r r i g e n d a . D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
LVZA.: Lv L r e -
o r g a n i z a t i o n , t h e m i s s i o n , t he concep t of a t o m i c o p e r a t i o n s , t h e t a s k s
a s s i g n e d and to be p e r f o r m e d and i n f o r m a t i o n on l o g i s t i c m a t t e r s . Annexes
to t h e p l a n c a r r i e d m o r e s p e c i f i c p lann ing i n f o r m a t i o n , dea l ing wi th spec i a l
s t r i k e f o r c e s , t a r g e t s , r e c o n n a i s s a n c e , e l e c t r o n i c s , c o m m u n i c a t i o n s and
r e g i o n a l c o m m a n d e r s ' p l a n s . C h a n g e s , b a s e d on new i n f o r m a t i o n and r e g i o n a l
c o m m a n d e r s ' p l a n s , w e r e i s s u e d to the b a s i c p l a n th roughou t the y e a r . Seven (25)
m a j o r c h a n g e s w e r e i s s u e d in 1957.
In o r d e r to avoid the i s s u a n c e of a c o m p l e t e l y new Atomic S t r ike P l a n
e a c h y e a r , SHAPE d e c i d e d in 1957 to d r o p the y e a r de s igna t ion f r o m t h e
A t o m i c S t r i ke P l a n (ASP) and to m a k e c h a n g e s only to t h e b a s i c p l a n ; each
c h a n g e to t h e b a s i c p l an would be shown by put t ing a s lan t and new n u m b e r
a f t e r ASP, i . e . A S P / l , A S P / 2 , e tc . Reg iona l p l a n s in e f fec t du r ing 1957
would r e m a i n in e f f ec t unt i l 30 J u n e 1958. M a j o r Subord ina te C o m m a n d e r s
w e r e to ld to p r e p a r e and submi t new a t o m i c p l a n s to SHAPE f o r r e v i e w by
1 F e b r u a r y 1958. T h e s e new p l a n s would b e c o m e e f f ec t i ve on 1 Jvily 1958 ( 2 , ( . ) and r e m a i n in e f f e c t f o r a o n e - y e a r p e r i o d .
A t o m i c P l a n n i n g P o l i c y .
When a t o m i c p lann ing began at SHAPE or at l e a s t when a t o m i c p l a n -
ning w a s f i r s t a u t h o r i z e d at SHAPE, s t e p s w e r e t aken to i n t r o d u c e a t o m i c
p lann ing p o l i c i e s f o r c o m m a n d l e v e l s below SHAPE. In 1954, when t h e s e
p o l i c i e s w e r e e s t a b l i s h e d , ACE w a s s e r i o u s l y r e s t r i c t e d by t h e n u m b e r of
a t o m i c w e a p o n s a v a i l a b l e and g r e a t c e n t r a l i z a t i o n of con t ro l w a s c a l l e d f o r .
E a r l y in 1957 in v i ew of the g r e a t e r n u m b e r of weapons , m o r e adequa t e
d e l i v e r y f o r c e s and t h e expans ion of g round f o r c e s s i nce tha t da te , G e n e r a l
N o r s t a d d e c i d e d to have t h i s b a s i c po l i cy r e v i e w e d . B e c a u s e m u c h of the
(25) 1957 Atomic S t r ike P l a n of the S u p r e m e Al l ied C o m m a n d e r Eu rope , S H A P E / 1 7 2 / 5 6 . AG 6430 AD, wi th changes 1 - 7 . P r i m a r y r e s p o n s i -b i l i t y f o r p r e p a r i n g and m a i n t a i n i n g t h i s p l a y l a y with t h e Air and Spec ia l O p e r a t i o n s Divis ion , SHAPE.
(26) C O F S M i n u t e s , SEC 2030, 16 Oct 57, p a r a 5g.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 NATO S E C R E T
b a s i c i n f o r m a t i o n w a s s t i l l r e s t r i c t e d t o US a r m e d f o r c e s , he d i r e c t e d t h r e e
s e n i o r A m e r i c a n o f f i c e r « to m a k e the i n i t i a l s tudy, wh ich would then be
r e v i e w e d and p u b l i s h e d by t h e SHAPE s t a f f . The o f f i c e r s , who b e g a n t h e i r
w o r k at S H A P E in l a t e F e b r u a r y , w e r e : M a j o r G e n e r a l L e e , CG F O U R A T A F ;
M a j o r G e n e r a l C o o p e r , G3 C E N T AG; and R e a r A d m i r a l Y e o m a n s l Deputy ^
STRIKFORSOUTH. Dur ing the c o u r s e of t h e i r r e v i e w t h e s e o f f i c e r s v i s i t e d
t h e M a j o r Subo rd ina t e C o m m a n d s of ACE and c e r t a i n componen t c o m m a n d s .
As a r e s u l t of t h e i n v e s t i g a t i o n s conduc ted by t h e s e o f f i c e r s , - - t h e
" T h r e e Wise M e n " a s t h e y b e c a m e known l o c a l l y - - c e r t a i n c h a n g e s w e r e m a d e
t o t h e ASP, p a r t i c u l a r l y in t h o s e p o r t i o n s g r a n t i n g a u t h o r i t y f o r r e l e a s e of
a t o m i c w e a p o n s .
36
i n - iTT).-xv-; j vi —SiECf tET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
F O R C E S
G e n e r a l A p p r a i s a l B a s e d on 1956 Annual Rev iew.
S u c c e s s f u l d e f e n s e of NATO t e r r i t o r i e s , r e g a r d l e s s of the adequacy
of p lann ing and o the r t y p e s of p r e p a r a t i o n , could be moun ted only if the
n a t i o n s provided su f f i c i en t , a d e q u a t e l y t r a i n e d f o r c e s l o c a t e d in the p r o p e r
p l a c e at t he p r o p e r t i m e . Since the incep t ion of All ied C o m m a n d EXirope
the f o r c e s p r o b l e m had been one of the m o s t s e r i o u s wi th which the All ied
C o m m a n d e r s had had to con tend . F o r v a r i o u s r e a s o n s , m a i n l y economic ,
s i n c e t h e beginning of ACE in 1951, the n a t i o n s had n e v e r f u r n i s h e d t h o s e
f o r c e s wh ich SHAPE be l i eved w e r e r e q u i r e d . Nor had the situation changed
in 1957. In f ac t , t he s i tua t ion in s o m e a s p e c t s had d e t e r i o r a t e d . ^
In a r e p o r t at the h ighes t NATO leve l fol lowing the conc lus ion of the
I956 Annual Rev iew, NATO a u t h o r i t i e s found g r a v e i n a d e q u a c i e s in ex i s t ing
NATO f o r c e s . All t h e m e m b e r g o v e r n m e n t s had b a s e d the i r d e f e n s e planning
on t h e d i r e c t i v e s and c o n c e p t s con ta ined in MC 48. Th i s , of c o u r s e , p r o v i d e d
f o r a bu i ld -up of f o r c e s on the g e n e r a l o r d e r of m a g n i t u d e f o r e c a s t in the
1956 p lann ing g o a l s e s t a b l i s h e d by the 1953 Annual Rev iew. To be added to t h i s
w a s an a p p r o p r i a t e con t r i bu t i on f r o m G e r m a n y and an i n t e g r a t e d a t o m i c
(1) F o r de t a i l ed r e c a p i t u l a t i o n of Ground and Air F o r c e Uiiits Ass igned , E a r m a r k e d or E a r m a r k e d f o r A s s i g n m e n t on Mobi l i za t ion to SACEUR as of 1 J a n u a r y 57, s e e SHAP E/1311157 and S H A P E / 1 3 / 2 / 5 7 .
F o r S t reng th t o t a l s of f o r c e s a s s i g n e d , e a r m a r k e d or e a r m a r k e d for a s s i g n m e n t on m o b i l i z a t i o n to SACEUR s e e S H A P E / 2 5 2 / 5 6 , S H A P E / 2 5 3 / 5 6 S H A P E / 2 5 2 / 5 7 and S H A P E / 2 5 3 / 5 7 .
Deta i l ed i n f o r m a t i o n on M a n p o w e r , P e r s o n n e l in U n i f o r m , M i l i t a r y S e r -v i c e and R e s e r v e Mobi l i za t ion m a y be found in Semi -Annua l Manpower Diges t s , AG 1110 P A , 1 Oct 56 and 1 Oct 57.
S t reng th and C o m p o s i t i o n of H e a d q u a r t e r s t h r o u g h All ied C o m m a n d E u r o p e i s r e p o r t e d in de ta i l in Al l ied H e a d q u a r t e r s S t rength R e p o r t ( R e p o r t s Cont ro l Symbol : SH-AG-2) i s s u e d p e r i o d i c a l l y .
37
- NATO JLCIUL1T ~
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
: d
c a p a b i l i t y . NATO a u t h o r i t i e s found tha t t h e g round , s e a and a i r f o r c e s
in e a r l y 1957 w e r e i n a d e q u a t e to enab le the C o m m a n d e r s to de f end N A T O ' s
a r e a . T h i s w a s p a r t i c u l a r l y t r u e in the C e n t r a l Reg ion of Al l ied C o m m a n d
E u r o p e where , owing to w i t h d r a w a l of F r e n c h f o r c e s , t h e r e had been a
m a r k e d d e c r e a s e d u r i n g 1956 in the n u m b e r of a r m y M - d a y un i t s a v a i l a b l e
to f igh t in c a s e of i nvas ion . T h e r e w e r e s e r i o u s s h o r t a g e s in nava l f o r c e s ,
and t h e r e w e r e c o n s i d e r a b l e d e f i c i e n c i e s in t h e a i r f o r c e s . Although the
G e r m a n a u t h o r i t i e s had sa id they would p r o v i d e a s ign i f i can t con t r ibu t ion
to t h e NATO f o r c e s by 1957, the fu l l n u m b e r of NATO f o r c e s f r o m G e r m a n y
w a s not e x p e c t e d t o be r e a d y un t i l 1959 o r even l a t e r . Some p r o g r e s s t o w a r d s
e s t a b l i s h i n g an i n t e g r a t e d a t o m i c capab i l i t y f o r Al l ied C o m m a n d E u r o p e had
b e e n m a d e .
NATO m i l i t a r y a u t h o r i t i e s conc luded a f t e r a p p r a i s i n g a v a i l a b l e f o r c e s
t ha t t h e n a t i o n s should g ive f i r s t p r i o r i t y to i m p r o v i n g the e f f e c t i v e n e s s of
t h e i r c o n t r o l and r e p o r t i n g s y s t e m s f o r a i r de fense ; tha t they m u s t r e c o n s -
t i t u t e on an u r g e n t b a s i s the a r m y e l e m e n t s of t h e Shield F o r c e s in C e n t r a l
E u r o p e ; f o r e s t a l l t he d e t e r i o r a t i o n of the n a v i e s ; and i m p r o v e the a i r c r a f t
and a i r c r e w s i tua t ion .
It w a s i n t e n d e d tha t f o r c e s of All ied C o m m a n d E u r o p e would d e t e r
w a r and, f a i l i n g t ha t , would defend al l of NATO t e r r i t o r i e s . T h e P o l i t i c a l
D i r e c t i v e de f ined t h e n e e d f o r " . . . f o r c e s which a r e so o r g a n i z e d , d i s p o s e d ,
t r a i n e d and equ ipped tha t he ( the enemy) wi l l conc lude that the c h a n c e s of
a f a v o r a b l e d e c i s i o n a r e too s m a l l to be a c c e p t a b l e , and tha t^a ta l r i s k s would
be invo lved if he l a u n c h e d or s u p p o r t e d an a r m e d a t t ack , even with s u p e r i o r
n u m b e r s and t h e advan t age of s u r p r i s e . " The SHAPE i n t e r p r e t a t i o n of the
m i s s i o n of S A C E U R ' s f o r c e s , con ta ined in t h e M i n i m u m F o r c e Study, se t
f o r t h t h r e e t a s k s : (1) to p r o t e c t N A T O ' s o f f e n s i v e s t r i k ing power - t he w e a -
p o n s , t he i n s t a l l a t i o n s and t h e gu idance s y s t e m s of t h e n u c l e a r s t r i k e f o r c e s ;
(2) to jo in in t h e n u c l e a r c o u n t e r - o f f e n s i v e tha t would d e s t r o y the e n e m y ' s to ,
ab i l i ty and wi l l p u r s u e g e n e r a l war ; (3) to hold the e n e m y f o r c e s un t i l t he
38
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
A C E n u c l e a r c o u n t e r - o f f e n s i v e had r e g i s t e r e d i t s fu l l e f f e c t s , and m e a n -(2) whi le to k e e p open the s e a a p p r o a c h e s .
B a s i c R e s p o n s i b i l i t i e s of S A C E U R ' s Shield F o r c e s & S t r ike F o r c e s .
The b a s i c t a s k s r e q u i r e d of the a r m y , navy and a i r f o r c e s in be ing
w e r e to r e t a l i a t e wi th a s t r o n g a t o m i c c o u n t e r - o f f e n s i v e f o r c e ; t o p r o v i d e
e a r l y warning and a l e r t s ; t o m a i n t a i n an e f f e c t i v e a i r d e f e n s e ; and to e n s u r e
a p r o p e r Shield. The d e f e n s e of W e s t e r n E u r o p e d e m a n d e d f o r c e s that w e r e
h ighly d i v e r s i f i e d , m u t u a l l y suppor t ing , and c a p a b l e of both n u c l e a r and
conven t iona l ac t ion .
SACEUR env i s ioned h i s r e a d y f o r c e s a s be ing c o n s t i t u t e d unde r two
m a j o r c a t e g o r i e s a c c o r d i n g to e s s e n t i a l t a s k s . T h e s e two c a t e g o r i e s , t h e
Shield f o r c e s and t h e S t r i ke f o r c e s , w e r e m u t u a l l y dependent and had o v e r -
lapp ing f u n c t i o n s . The Shield f o r c e s , fo r i n s t a n c e , f a r f r o m being p a s s i v e ,
w e r e d e s i g n e d l i ke t h e S t r i ke f o r c e s f o r a v i g o r o u s f o r w a r d s t r a t e g y . Both
had a i r , l and and s e a c o m p o n e n t s . Reduced to i t s s i m p l e s t t e r m s , the Shield
w a s a b a r r i e r of s o l d i e r s , t a n k s , sh ips , a n d s u g £ o r t i n g a i r c r a f t tha t would
cons t i t u t e a p o s i t i v e d e f e n s e in t i m e and s p a c e . I t s m i s s i o n would be to hold
unt i l t he a t o m i c c o u n t e r - o f f e n s i v e , l aunched at t he f i r s t a l a r m , had so
d a m a g e d the invading f o r c e s , t h e i r l i n e s of c o m m u n i c a t i o n and t h e i r r e se rves^
tha t t h e i r m a i n a t t ack would be ha l t ed . The Shield then , t ak ing advan tage of_
t h e b lows in f l i c t ed by the a i r c o u n t e r - o f f e n s i v e , would f o r c e the e n e m y f r o m
N A T O ' s b o r d e r s "
SACEUR be l i eved tha t t he Shield f o r c e s p l ayed a v e r y v a l u a b l e r o l e
wi th in the d e t e r r e n t , s i n c e they w e r e equipped not only to g ive w a r n i n g of
a t t a ck , but a c tua l l y to m e e t the a t t ack and f o r c e the e n e m y to deploy and,
m o s t i m p o r t a n t , t o f o r c e the e n e m y to dec ide if he a c t u a l l y wan ted to r i s k the
c o n s e q u e n c e s of g e n e r a l w a r . In l i m i t e d ac t i ons such a s p e r i p h e r a l a t t a c k s ,
t he Shield f o r c e s w e r e in tended to r e p e l any a t t e m p t e d invas ion s h o r t of a
m a j o r Soviet e f f o r t .
(2) S H A P E / 1 5 4 / 5 7 , p .16 ; See d e t a i l s of t h i s in Chapt. IV.
39
ML N^UNCLföSIFIED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
CtTA T3TT K7/A7 . , INA i U ^JljkjicET NATO UNCLASSIFIED
T h e S t r i k e f o r c e s w e r e t h o s e f o r c e s having t h e p r i m e func t ion of
l aunch ing an i m m e d i a t e n u c l e a r c o u n t e r - b l o w a g a i n s t t he e n e m y ' s m i l i t a r y
s t r u c t u r e t h r o u g h o u t SACEUR's zone of r e s p o n s i b i l i t y . T h e s e f o r c e s would
ac t in c o n c e r t and in c o o r d i n a t i o n wi th such e x t e r n a l n u c l e a r f o r c e s a s t h e
US S t r a t e g i c Air Commeuid and t h e UK B o m b e r C o m m a n d . It w a s e s s e n t i a l
t ha t t h e S t r ike f o r c e s be m a i n t a i n e d a,t u t m o s t r e a d i n e s s and tha t t hey m e e t
c e r t a i n d e f i n i t e q u a l i f i c a t i o n s such a s d i s p e r s a l t h roughou t ACE, have p r o m p t
a c c e s s to n u c l e a r w a r h e a d s t o c k p i l e s , be ab le to mount i m m e d i a t e e f f e c t i v e
c o u n t e r a t t a c k s r e g a r d l e s s of d a m a g e f r o m the e n e m y ' s opening b lows , and
b e a b l e to m a k e m a x i m u m u s e of s u r f a c e - t o - s u r f a c e m i s s i l e s f r o m land and
s e a l aunch ing s i t e s . ^
P r o b l e m s of C e n t r a l E u r o p e Shield F o r c e s .
The g r e a t e s t n e e d f o r g round f o r c e s f o r the Shield e x i s t e d in C e n t r a l
E u r o p e . The l a s t e s t i m a t e of the n u m b e r of g round f o r c e s tha t would be needed
in C e n t r a l E u r o p e to c a r r y out the f o r w a r d s t r a t e g y us ing a m i n i m u m Shield
b a c k e d by r e s e r v e s tha t could be b rough t to b a t t l e r e a d i n e s s wi th in a f ew
days« c a l l e d f o r 30 M - d a y d iv i s ions , s u p p o r t e d by adequa te g round a t o m i c
de l ive ry f o r c e s . G e n e r a l G r u e n t h e r , s h o r t l y b e f o r e h i s d e p a r t u r e , had d e t e r -
m i n e d t h a t i t would not be p o s s i b l e to i m p l e m e n t a t r u e f o r w a r d s t r a t e g y
b e f o r e D e c e m b e r 1959 b e c a u s e the e s s e n t i a l f o r c e s would not ex is t b e f o r e
t h a t d a t e . F a c t o r s a f f e c t i n g the i m p l e m e n t a t i o n of the f o r w a r d s t r a t e g y w e r e
t h e b u i l d - u p of G e r m a n f o r c e s , the r e t u r n of F r e n c h f o r c e s f r o m N o r t h
(3) F o r a f u l l u n d e r s t a n d i n g of what each of t h e s e f o r c e s or t y p e s of f o r c e s en ta i l ed , t h e i r c o m p o s i t i o n and t h e i r m i s s i o n s , consu l t S H A P E / l 5 4 / 5 7 and S H A P E / l 5 4 / 1 / 5 7 , V o l u m e s 1 and 2 of t h e M i n i m u m F o r c e Study 1958-63 . See a l s o M e m o r a n d u m of C o n f e r e n c e , G e n e r a l N o r s t a d with s e n i o r SHAPE o f f i c e r s , 23 Apr 57. See a l s o G e n e r a l N o r s t a d ' s r e m a r k s fo l lowing C P X VII, S H A P E / S E C / 7 / 5 7 , pp . 6 -7 .
40
IJNCLASSIFiEiX > - J'V/ ! \ I . 1 :A : L L „..! J,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
rniö c t d « l C L A S S i F , E D
SHAPE 57 /67 NATO
A f r i c a , t he extent to which the o the r na t ions w e r e ab le to m e e t t h e i r e s -
t a b l i s h e d f o r c e goa l s , and t h e p r o v i s i o n of a d e q u a t e a t o m i c g r o u n d d e l i v e r y
f o r e e s . At t h e beginning of 1957 the Uni ted S ta tes had f i ve d i v i s i o n s l o c a t e d
in G e r m a n y ; the Uni ted Kingdom had two i n f a n t r y d i v i s i ons , two a r m o u r e d
d iv i s i ons and one i n f a n t r y b r i g a d e under N o r t h e r n A r m y Group in G e r m a n y ,
and had e a r m a r k e d in t h e Uni ted Kingdom one i n f a n t r y b r i g a d e g roup , giving
a t o t a l of 77, 000 m e n in G e r m a n y . F r a n c e had two i n f a n t r y d iv i s i ons in G e r -
m a n y , and p l anned to r e t u r n t h r e e other d iv i s i ons f r o m N o r t h A f r i c a by the
end of 1957. In Holland, the N e t h e r l a n d s had one i n f a n t r y d iv i s ion ; Be lg ium
had one i n f a n t r y and one a r m o u r e d d iv i s ion in G e r m a n y ; and the Canad ian
G o v e r n m e n t had a s s i g n e d one i n f a n t r y b r i g a d e t o G e r m a n y .
G e n e r a l N o r s t a d t o ld t h e Standing Group in J a n u a r y 1957 tha t he had
on hand in C e n t r a l E u r o p e s ix 280 m m gun b a t t a l i o n s , f i v e Hones t John
r o c k e t b a t t a l i o n s , and s ix C o r p o r a l guided m i s s i l e b a t t a l i o n s .
The C o m m a n d e r of Al l ied F o r c e s C e n t r a l E u r o p e , G e n e r a l Val luy, w a s
s e r i o u s l y d i s t u r b e d about the w e a k n e s s of h i s g round un i t s . The F r e n c h
g o v e r n m e n t had w i t h d r a w n th ree c o m p l e t e d iv i s ions , c o n s i d e r a b l y r e d u c i n g
t h e Btrength of a f o r c e t h a t , e v e n b e f o r e , w a s i n s u f f i c i e n t . He f e l t h i s r e m a i n -
ing d iv i s ions w e r e l e s s e f f e c t i v e than they should be. He s t a t e d tha t t he
twe lve s o - c a l l e d M - d a y d i v i s i o n s , some of which w e r e s e r i o u s l y l ack ing in
adequa te equ ipment and s p e c i a l i s t s , would not be r e a d y in t i m e , nor would
t h e y be s t rong enough to p r e v e n t the e n e m y f r o m c a p t u r i n g l a r g e a r e a s of
NATO t e r r i t o r y in W e s t e r n E u r o p e . At t h e t i m e , only t h e f i v e A m e r i c a n
d iv i s i ons could be c o n s i d e r e d a s c o m b a t - r e a d y .
Eche lon Sys t em f o r Shield G r o u n d F o r c e s .
Within t h e Shield f o r c e s , g round f o r c e s w e r e judged in t h r e e c a t e g o r i e s .
P r i o r to 1954, d iv i s i ons had been r a t e d a s M - d a y d i v i s i o n s if they w e r e r e a d y
f o r comba t i m m e d i a t e l y , M+15 if they could be b rough t to comba t e f f e c t i v e -
n e s s in f i f t e e n days , M+30 or M+90, and so f o r t h . Howeve r , a s an ou tgrowth
m m m w m m m L MfrTlV I. K"1lT
NATO UNCLASSIFIED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
w NJ . . V /
NATO UNCLASSIFIED of t h e 1957 C a p a b i l i t i e s P l a n , it had been dec ided tha t a m o r e va l id m e a n s
of eva lua t i on w a s r e q u i r e d , and an Eche lon s y s t e m had been e s t ab l i shed ,
T h i s s y s t e m , wh ich w a s u s e d in e s t a b l i s h i n g r e q u i r e m e n t s in the M i n i m u m
F o r c e Study 1958-63 , d e s i g n a t e d g round f o r c e s r e a d y on M - d a y a s e i t he r (5) F i r s t Eche lon F o r c e s or Second Eche lon F o r c e s .
(5) S H A P E / 4 5 0 / 5 4 de f ined the Eche lon Sys t em a s fo l l ows : M - d a y F o r c e s a r e r e q u i r e d to be r e a d y fo r ba t t l e at al l t i m e s . They m u s t have such a high s t a n d a r d of r e a d i n e s s tha t they could, on D-day f ight e f f e c t i v e l y aga ins t a s u r p r i s e e n e m y a t tack and one which i s d e -l i v e r e d wi th a t o m i c suppor t . C o r p s , d i v i s i o n s and suppor t ing un i t s in t h i s c a t e g o r y m u s t be kept at a l l t i m e s at such a s t r e n g t h in m a n -p o w e r and equ ipmen t t h a t they could f ight e f f e c t i v e l y without u n d e r g o -ing any m o b i l i z a t i o n p r o c e d u r e . T h e s e a r e t h e t r o o p s which wil l have to t a k e t h e f i r s t shock of an e n e m y ons laught in an a t o m i c age ; t hey m u s t t h e r e f o r e be highly t r a i n e d and highly d i s c ip l i ned .
F i r s t Eche lon P o s t M - D a y F o r c e s inc lude d iv i s ions and suppor t un i t s which m u s t be i m m e d i a t e l y a v a i l a b l e to back up the ac t ive M - d a y f o r c e s . T h e s e d i v i s i o n s , having c o m p l e t e d a r a p i d mob i l i za t i on , m u s t then be r e a d y to be moved at once into the ba t t l e a r e a , and be c a p a b l e of e n t e r i n g t h e b a t t l e without f u r t h e r t r a i n i n g . It fo l lows that d i v i s i o n s in t h i s c a t e g o r y m u s t have an adequa te r e g u l a r content at a l l t i m e s , m u s t be so o r g a n i z e d tha t they can do what i s r e q u i r e d of t h e m on m o b i l i z a t i o n and m u s t be b rought up to o p e r a t i o n a l s t r e n g t h e v e r y y e a r wi th r e s e r v i s t s and m u s t then , f p o s s i b l e , c a r r y out a m i n i m u m of four w e e k s t r a i n i n g .
Second Eche lon P o s t M - D a y F o r c e s inc lude d iv i s ions and suppor t un i t s tha t r e q u i r e f u r t h e r t r a i n i n g a f t e r mob i l i z a t i on . P l a n s m u s t e n s u r e tha t t hey can be r a p i d l y m o b i l i z e d . They m u s t then be c a p a b l e of being m o v e d to a r e a s in t h e r e a r of the ba t t l e f r o m w h e r e they could cont inue t h e i r t r a i n i n g unde r r e a l i s t i c cond i t ions . In c a s e s of e x t r e m e e m e r g e n c y , it migh t be n e c e s s a r y to u s e t h e m on d e f e n s i v e t a s k s b e f o r e t h e i r t r a i n i n g w a s c o m p l e t e d . Such d iv i s i ons m u s t have a r e g u -l a r content in p e a c e which i s adequa te fo r t h e i r r o l e a f t e r mob i l i za t i on . They m u s t be b rough t up to o p e r a t i o n a l s t r e n g t h with r e s e r v i s t s and t r a i n e d a s d i v i s i o n s as f r e q u e n t l y a s na t iona l c o n s i d e r a t i o n s wi l l a l low, which should, if p o s s i b l e , be at l e a s t two w e e k s e v e r y y e a r , and should n o r m a l l y n e v e r be l e s s than one month in e v e r y two y e a r s .
42 NATO UNCLASSIFIED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
M Ä 3 U U V ^ r l ü t !
NATO S E G f t f T T ^
Annual Rev i ew P l a n n i n g Guidance in 1957.
Land F o r c e s . When SHAPE i s s u e d i t s P l ann ing Guidance f o r t h e Annual
Rev i ew to t h e n a t i o n s du r ing M a r c h and Apr i l 1957, t h e individual n a t i o n s w e r e
to ld what SHAPE b e l i e v e d to be t h e p r o p e r d i r e c t i o n f o r deve lopmen t of
t h e i r f o r c e s . P a r t i c u l a r l y s i gn i f i can t , h o w e v e r , above and beyond s p e c i f i c
s u g g e s t i o n s m a d e to each na t ion , w e r e the c o m m e n t s which a c c o m p a n i e d
SACEUR's c o m m u n i c a t i o n to na t iona l g o v e r n m e n t s . C o m m e n t i n g on the
l and f o r c e s , SACEUR s t a t e d tha t i t w a s to be expec t ed tha t a s i m p r o v e d
w e a p o n s s y s t e m s w e r e i n t r o d u c e d in NATO land f o r c e s in quant i ty , c h a n g e s
in t h e i n t e r n a l s t r u c t u r e of m a j o r u n i t s and the p a t t e r n of suppor t f o r c e s
migh t be r e q u i r e d . As f i r m ava i l ab i l i t y d a t e s of new w e a p o n s b e c a m e known,
and a c o u n t r y ' s ab i l i ty to a b s o r b such w e a p o n s w a s shown, r e - e v a l u a t i o n
of a c o u n t r y ' s l and f o r c e s could be e f f e c t e d . In the a r e a of r e o r g a n i z a t i o n
of l a n d f o r c e s , SHAPE w i s h e d to s t r e s s the need f o r evo lu t iona ry deve lop-
m e n t and c a r e f u l p l ann ing . P r e m a t u r e s t r e a m l i n i n g of l and f o r c e u n i t s
wi thout c o m p e n s a t i n g m o d e r n equ ipment to p r o v i d e an i n c r e a s e of m o b i -
l i ty , f i r e p o w e r and c o m m u n i c a t i o n s , could r e s u l t in d a i g e r o u s w e a k n e s s e s
developing in Shield f o r c e s . Nat ions w e r e r e q u e s t e d to d i s c u s s wi th SHAPE
and M a j o r Subord ina te C o m m a n d e r s any p lanned m o d i f i c a t i o n of t h e i r l and (6)
f o r c e s t r u c t u r e .
Naval F o r c e s . I n s o f a r as nava l f o r c e s w e r e c o n c e r n e d , it w a s i m p o s -
s ib le to pin down the exac t n u m b e r of sh ips which r e p r e s e n t e d the o p t i m u m
nava l f o r c e , and SHAPE in i t s s t u d i e s w a s ab le only to g ive an ind ica t ion
of the t r e n d and the o r d e r of m a g n i t u d e of nava l s t r e n g t h . The gu idance
which SHAPE gave to t h e n a t i o n s in t h e Spring of 1957 had not been c o o r -
d ina ted wi th the nava l c o m m a n d e r s , SACLANT and CINCHAN. The g r e a t -
es t p r o b l e m , and one which w a s a t t a cked with s o m e v igour l a t e r in the
(6) S H A P E / 7 6 / 5 7 , AG 1100 OT, 3 Apr 57. P l ann ing Guidance i s s u e d e a c h na t ion f o r t h e 1957 Annual Rev iew m a y be seen in f i l e s m a i n t a i n e d by AG C e n t r a l R e c o r d s and by P r o g r a m s Divis ion , Annual Rev iew B r a n c h , SHAPE.
43
G O T O C O a V l F i l O E M T O L '
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
y e a r , w a s t h e p r o b l e m of o b s o l e s c e n c e of m a n y sh ips , p a r t i c u l a r l y in t h e
s m a l l e r n a v i e s .
Air F o r c e s . The a i r f o r c e s p r e s e n t e d a v e r y s p e c i a l s i tua t ion . The
o r g a n i z a t i o n , r e - e q u i p m e n t and r e h a b i l i t a t i o n of a i r f o r c e s w a s a m a t t e r
wh ich SHAPE f e l t would r e q u i r e *he m a x i m u m of coo rd ina t i on and e f f o r t t o
e f f e c t an o r d e r l y p r o g r a m in the a t t a i n m e n t of the new p o s t u r e without
s a c r i f i c i n g c o m b a t po t en t i a l du r ing the t r a n s i t i o n p e r i o d . The p r o b l e m s
i n h e r e n t in t h e i n t r o d u c t i o n of new and advanced w e a p o n s s y s t e m s would
r e q u i r e t h e c l o s e s t c o o r d i n a t i o n be tween na t iona l and ACE m i l i t a r y au tho-
r i t i e s in t h e d e v e l o p m e n t and execu t ion o fp l ans to a t t a in the new p o s t u r e .
N e g o t i a t i o n s and a g r e e m e n t s be tween n a t i o n s m i g h t have to be m a d e fo r the
t r a in ing of p e r s o n n e l and, w h e r e n e c e s s a r y , t h e s e should be a r r a n g e d a s
soon a s p o s s i b l e . T h e a c q u i s i t i o n of su i t ab le t e c h n i c a l l y t r a i n e d p e r s o n n e l
in s u f f i c i e n t n u m b é r s to e n s u r e a capab i l i t y to o p e r a t e new, h ighe r p e r -f
f o r m a n c e a i r c r a f t and c o m p l i c a t e d m i s s i l e s , w a s l i ke ly to p r o v e d i f f icu l t
and p l a n s should be m a d e at once to m e e t r e q u i r e m e n t s on s chedu le .
L o g i s t i c s . I n s o f a r a s l o g i s t i c s w a s c o n c e r n e d , SHAPE r e c o m m e n d e d
tha t all n a t i o n s bui ld up r e s e r v e s of equ ipment in a l l c l a s s e s of supply along
t h e l i n e s of M C 55, which w a s then being r e v i s e d by the Standing Group .
The R e s u l t s of the 1957 Annual Rev i ew .
The r e p l i e s r e c e i v e d a s a r e s u l t of the Annual Rev i ew Q u e s t i o n n a i r e
w e r e c o n s o l i d a t e d by SHAPE and the I n t e r n a t i o n a l Staff, and t h e s e r e p l i e s ,
toge ther wi th c o m m e n t s , w e r e i n c o r p o r a t e d in a R e p o r t to the Nor th At lant ic
Counc i l . M o s t g o v e r n m e n t s found i t p o s s i b l e t o g ive p r o v i s i o n a l f o r c e goa l s
f o r 1959 and p lann ing goa l s f o r i960 , in addi t ion to f i r m goa l s for 1958.
The R e p o r t no ted tha t t h e f i g u r e s f o r 1959 and i960 w e r e of l i m i t e d s ign i -
f i c a n c e in v iew of t h e i m m i n e n t pub l i ca t i on of MC 70, but po in ted out tha t (7 t h e f i r m goads f o r 1958 would not be a f f e c t e d by the M i n i m u m F o r c e Study.
(7) D e t a i l s of p r o c e d u r e and of SHAPE schedu le in connec t ion with AR 1957 i s se t out in P R / 2 1 0 0 / A R - 5 4 / 5 7 , 25 Ju l 57, and Annex I t h e r e t o .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
The r e p o r t conc luded t h a t wh i l e g round , s e a and a i r f o r c e s w e r e s t i l l
i n a d e q u a t e to a s s u r e t h e s u c c e s s f u l a c c o m p l i s h m e n t of the m i s s i o n of d e -
fend ing t h e NATO a r e a , the o v e r - a l l s t r e n g t h of t h e m i l i t a r y f o r c e s of t h e
A l l i ance showed a p e r c e p t i b l e i m p r o v e m e n t a s c o m p a r e d wi th t h e s i tua t ion
at t h e end of 1 9 5 6 . ^
M i l i t a r y C o m m i t t e e A s s e s s m e n t of Annual Rev iew 1957.
The M i l i t a r y C o m m i t t e e c o n c u r r e d in the b a s i c c o n s i d e r a t i o n s and
c o n c l u s i o n s of t h e r e p o r t and d r e w t h e a t t en t ion of the N o r t h At lant ic Coun-(9)
c i l t o the i n a d e q u a c y of the NATO f o r c e s .
S A C E U R ' s Combat E f f e c t i v e n e s s R e p o r t 1956.
B e c a u s e of t h e g r e a t d i v e r s i t y of h i s f o r c e s , t h e i r w i d e - s p r e a d
g e o g r a p h i c a l l oca t ion , and m a n y o the r f a c t o r s , it w a s e x t r e m e l y d i f f icu l t
f o r SACEUR to eva lua t e the qua l i ty of h i s f o r c e s . Howeve r , s h o r t l y a f t e r
he b e c a m e SACEUR, G e n e r a l N o r s t a d , fo l lowing a c u s t o m e s t a b l i s h e d by
h i s p r e d e c e s s o r s , r e n d e r e d to t h e Standing Group a r e p o r t on f o r c e s
a s s i g n e d to h i s c o m m a n d and e a r m a r k e d fo r a s s i g n m e n t to h i s c o m m a n d j ' ^
His r e p o r t w a s b a s e d on c r i t e r i a which had been e s t a b l i s h e d wi th in
SHAPE f r o m t h e s t a n d a r d s se t up by MC 55, f r o m r e p o r t s f r o m t h e ind iv i -
dual n a t i o n s , and f r o m h i s M a j o r Subord ina te C o m m a n d e r s , f r o m na t iona l
r e p l i e s to t h e 1956 Annual Rev i ew Q u e s t i o n n a i r e , and to a l e s s e r extent
f r o m t h e p e r s o n a l o b s e r v a t i o n s and e s t i m a t e s of h i s s taff and h i m s e l f .
(8) C-M(57)143 da ted 9 Dec 57. P a r t I i s t h e R e p o r t on the 1957 Annual Rev iew. Sect ion II d e a l s wi th t h e M i l i t a r y C o n s i d e r a t i o n s and i n c l u d e s a s s e s s m e n t s on the s i tua t ion r e g a r d i n g f o r c e s and t h e i r f igh t ing p o t e n t i a l . C - M ( 5 7 ) l 50 da ted 9 Dec 57 g i v e s a s u m m a r y of the NATO n a t i o n s ' f o r c e g o a l s in t a b u l a r f o r m .
(9) MC 3 9 / 9 (F ina l Decis ion) da t ed 13 Dec 57. (10) S H A P E / 1 5 / 5 7 , AG 1101 OT, 9 M a r 57, SACEUR's Combat Ef fec t iveness
R e p o r t 1956.
45
NATO h J b t j ^ g y -
"1,1 "f ' lA '"iIrT̂ rV-TYrv—n
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m t o
T h e s t a t u s of h i s f o r c e s had been a f f e c t e d by t h e d e c r e a s e in t h e
n u m b e r of M - d a y a r m y un i t s , by the de l ay in t h e b u i l d - u p of G e r m a n
f o r c e s , by t h e M i d d l e E a s t c r i s i s and t h e accompany ing p e t r o l e u m s h o r t a g e ,
and t h e continued l a c k of l o g i s t i c equ ipment and r e s e r v e s . All t h e s e t h i n g s
had s e r v e d to r e d u c e the c o m b a t e f f e c t i v e n e s s of h i s f o r c e s .
On t h e o the r s i d e of t h e l e d g e r , SACEUR fe l t tha t s o m e t r e n d s w e r e
e n c o u r a g i n g , p a r t i c u l a r l y the g rowing pub l i c r e a l i z a t i o n of the n e e d f o r
e f f e c t i v e NATO f o r c e s and t h e r e c o g n i t i o n by the na t iona l m i l i t a r y au tho-
r i t i e s t ha t t h e i r n a t i o n a l f o r c e s m u s t be m o d e r n i z e d and adap ted to n u c l e a r
w a r . He saw a l s o e n c o u r a g i n g s igns of an i n c r e a s e d c o m b a t r e a d i n e s s in
s p e c i f i c f i e l d s . F o r i n s t a n c e , a l a r g e n u m b e r of h i s a i r f o r c e un i t s had
been r e - e q u i p p e d wi th m o d e r n ' a i r c r a f t , c o m m u n i c a t i o n f a c i l i t i e s and t h e
e a r l y w a r n i n g s y s t e m w e r e p r o g r e s s i n g in a p o s i t i v e m a n n e r .
L a n d F o r c e s . The M - d a y un i t s a v a i l a b l e in the Cen te r d e c r e a s e d in
1956 a s no ted above . In the f a c e of a l and power de f i c i ency , B e l g i u m had
c h a n g e d one of i t s M - d a y d iv i s i ons to p o s t - M - d a y . The F r e n c h G o v e r n m e n t
had sent t h r e e M - d a y d iv i s i ons f r o m t h e Continent to Nor th A f r i c a . The
G e r m a n M - d a y d i v i s i o n s w e r e de layed in ac t iva t ion . Theequipment r e s e r v e s
and t h e l og i s t i c s u p p o r t f o r m a n y na t iona l un i t s w e r e judged to be i n s u f f i c i e n t
f o r s u s t a i n e d c o m b a t o p e r a t i o n s . Encourag ing s igns , h o w e v e r , i n d i c a t e d
an i n c r e a s e in M-day un i t s by the G e r m a n s , the r e - c o n s t i t u t i o n of s o m e
F r e n c h f o r c e s on the cont inent , and an i n c r e a s e in the I t a l i an M - d a y un i t s .
Without dwel l ing on the f i r s t and second eche lon p o s t - M - d a y f o r c e s , G e n e r a l
N o r s t a d no ted tha t only 7% of the f i r s t eche lon and 55% of the second eche lon
m a j o r un i t s w e r e up to s t a n d a r d .
SACEUR to ld the Standing G r o u p : "I do not p l a c e undue e m p h a s i s on
t h e s e f i g u r e s b e c a u s e t r u e b a t t l e po t en t i a l cannot be a s s e s s e d e n t i r e l y in
f i g u r e s . . . W e a k n e s s e s in the p o s t - M - d a y f o r c e s s t e m f r o m the low r a t e of
r e c a l l of r e s e r v i s t s f o r t r a i n i n g wi th un i t s , s h o r t a g e of equ ipment and r e -
s e r v e s , w e a k r e g u l a r e l e m e n t s , and an u n p r a c t i s e d c o m m a n d and s t a f f . "
GOT© GOftFZDsOTÜÄtÖ 46
I U T O {jÜJUI-ET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO C0j\'F2ÖENTIAL S H A P E 5 7 / 6 7 NATO SEGft-ET- i v i u f l ^
SACEUR w a s u n d e r no i l l u s i o n tha t h i s léuid f o r c e s in t h e i r p r e s e n t
s t a t e could e a s i l y o v e r c o m e any s u r p r i s e a t t a c k . But he f e l t tha t t h i s low
s t a t u s of h i s g r o u n d t r o o p s w a s t e m p o r a r y and tha t i m p r o v e m e n t would c o m e
in a l l t h e a r e a s . He s t r e s s e d the n e e d f o r e v o l u t i o n a r y deve lopmen t and
c a r e f u l p l ann ing in bui ld ing g round f o r c e s of the f u t u r e , and he e x p r e s s e d
c o n c e r n tha t p r e m a t u r e r e o r g a n i z a t i o n of the m a j o r u n i t s without i n c r e a s i n g
t h e i r m o b i l i t y and f i r e p o w e r would weaken h i s Shield f o r c e s . He announced
h i s in ten t ion t o con t inue to a s k the n a t i o n s to consu l t h i m and h is m a j o r
c o m m a n d e r s at t h e e a r l y s t a g e s of any p l a n s f o r mod i fy ing t h e i r l and f o r c e
s t r u c t u r e s .
Air F o r c e s . T h e r e w e r e m a n y a s p e c t s of A C E a i r f o r c e s which conce r -
ned SACEUR, but he b e l i e v e d the o v e r a l l e f f e c t i v e n e s s of h i s a i r f o r c e s
had i m p r o v e d d u r i n g the y e a r b e f o r e he a s s u m e d c o m m a n d . "Many of the
a i r f o r c e un i t s of ACE, " he r e p o r t e d , " a r e s t i l l be low the s t a n d a r d r e q u i r e d
f o r e f f e c t i v e and s u s t a i n e d o p e r a t i o n at s h o r t n o t i c e . "
Naval F o r c e s . P r o g r e s s had been m a d e in i m p r o v i n g t h e D - d a y r e a d i -
n e s s of h i s nava l f o r c e s , and m a n y encourag ing s i g n s , such a s m o d e r n i z a -
t ion and r e c o n s t r u c t i o n in s o m e n a v i e s , had t a k e n p l a c e . He po in ted out
the s e r i o u s n e s s of t h e p r o b l e m of o b s o l e s c e n c e of nava l v e s s e l s of t h e
s m a l l e r n a t i o n s , but at t he s a m e t i m e c o m p l i m e n t e d t h e n a t i o n s f o r the
t r a i n i n g of t h e i r p e r s o n n e l . "The p e r s o n n e l a r e of a high o r d e r , but the
sh ips and w e a p o n s with which they a r e a s k e d to f ight g e n e r a l l y l e a v e m u c h
to be d e s i r e d , " SACEUR sa id .
In concluding h i s r e p o r t , SACEUR po in ted out tha t a s u r p r i s e a t t ack
wi th n u c l e a r w e a p o n s s t i l l cons t i t u t ed a d a n g e r o u s t h r e a t t o the n a t i o n s
wi th in h i s a r e a of c o m m a n d . Should the d e t e r r e n t f a i l , t h e p r i m a r y t a s k
of «ill NATO f o r c e s m u s t be to s u r v i v e the i n i t i a l a t t ack and to r e t a l i a t e
i m m e d i a t e l y , and he u r g e d tha t al l n a t i o n s c o n c e n t r a t e on t r a i n i n g t h e i r
f o r c e s , tha t a l e r t m e a s u r e s be p r a c t i s e d , and tha t e v e r y e f f o r t be m a d e
IMATO (»WRDENTIÄL 47 '
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 ™ f l „ ÄN A T O S S G R r f i ^ -
MATO CONFIDENTIAL'
t o p r e p a r e f o r a s u r p r i s e a t t a c k . ^ ^
Spec ia l P r o b l e m s - B r i t i s h Reduc t ion in F o r c e s .
P e r h a p s t h e d e v e l o p m e n t which m o s t t h r e a t e n e d t h e a t t a i n m e n t of a
Shield f o r c e s u f f i c i e n t to c a r r y out SACEUR's m i s s i o n w a s the 1957 B r i t i s h
p r o p o s a l to r e d u c e i t s f o r c e con t r ibu t ion to ACE. Not only did t h i s t h r e a t e n
to d e t r a c t m a t e r i a l l y f r o m the s t r e n g t h , but it t h r e a t e n e d a l s o to e s t a b l i s h
a p r e c e d e n t and p o s s i b l y to e n c o u r a g e o the r n a t i o n s to fo l low a s i m i l a r
p a t t e r n . In addi t ion , t h i s p r o p o s a l had been one of the m a j o r f a c t o r s in
c a u s i n g t h e r e - a p p r a i s a l of s t r a t e g y and f o r c e s r e q u i r e d which w a s d i r e c t e d
by t h e Coxincil and which took the f o r m of the 1958 /63 S t u d y . ^ ^
The B r i t i s h G o v e r n m e n t announced on 24 J a n u a r y that i t i n t ended to
c h a n g e i t s d e f e n s e po l i cy and to r e - o r g a n i z e and r e - s h a p e i t s a r m e d f o r c e s
in such a way a s to a c h i e v e a subs t an t i a l r e d u c t i o n in the d e f e n s e spending .
A s t a t e m e n t on t h i s m a t t e r conta in ing c e r t a i n j u s t i f i c a t i o n f o r the ac t ion
w a s g iven to t h e N o r t h At lant ic Counci l by t h e P e r m a n e n t R e p r e s e n t a t i v e (13)
of t h e Uni ted Kingdom on 14 F e b r u a r y 1 9 5 7 / '
The B r i t i s h G o v e r n m e n t p r o p o s e d to r e d u c e i t s f o r c e s f r o m 77, OOO m e n
and o f f i c e r s to about 50, 000. It p r o p o s e d , h o w e v e r , to e a r m a r k f r o m t h e
s t r a t e g i c r e s e r v e suppor t in G r e a t B r i t a i n a t a c t i c a l h e a d q u a r t e r s and two
i n f a n t r y b r i g a d e s to ta l l ing 5, 000 o f f i c e r s and m e n which could be sent to
(11) S H A P E / 1 5 / 5 7 , AG 1101 OT, 9 M a r 57, L t r f r o m SACEUR to SGN, Combat E f f e c t i v e n e s s R e p o r t , ACE 1956. SACEUR submi t t ed in O c -tobe r 1957 a r e p o r t on the p r o g r e s s which had been m a d e in h i s c o m -m a n d t o w a r d i m p l e m e n t i n g the r e q u i r e m e n t s of MC 4 8 / 2 . As p a r t of t h i s r e p o r t he inc luded an i n t e r e s t i n g , a l though b r i e f , eva lua t ion of the c u r r e n t s t a t u s of h i s f o r c e s including such f a c t o r s a s Atomic Capabi l i ty , A b i l i t y t o s u r v i v e Atomic a t tack, and R e a d i n e s s . See S H / 1 7 1 / 5 7 fo r t h i s report .
(12) See Chap te r IV, SHAPE H i s t o r y 1957. (13) Document C-M(57)18 , 14 F e b 57, sub j : R e - O r g a n i z a t i o n of UK A r m e d
F o r c e s .
48
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MATO CONFIDENTIAL S H A P E 5 7 / 6 7 NATO S £ G R f i T
t h e Cont inent by a i r in t h e event of an e m e r g e n c y . Equ ipmen t f o r t h e s e
two i n f a n t r y b r i g a d e s would be l e f t in G e r m a n y . The s l a s h in s t r e n g t h
of 2nd T a c t i c a l Ai r F o r c e , then 33 s q u a d r o n s of 466 a i r c r a f t , w a s to be
qu i te c o n s i d e r a b l e , and i t would l e a v e t h e 2nd A T A F wi th 18 s q u a d r o n s
of 216 a i r c r a f t . In addi t ion to r educ ing i t s s t r e n g t h on t h e Cont inent , i t
a l s o i n t ended to r e d u c e i t s l ight b o m b e r f o r c e f r o m 160 to 80 a i r c r a f t . The
B r i t i s h G o v e r n m e n t i n t e n d e d to c o m p l e t e t h i s r e d u c t i o n by the end of M a r c h
1958, and would w i t h d r a w t h e f l o t i l l a s s t a t i oned on t h e Elbe and Rhine
R i v e r s , f u r t h e r a f f e c t i n g the nava l f o r c e s a s s i g n e d to SACEUR.
On 22 F e b r u a r y , G e n e r a l N o r s t a d p r e s e n t e d to t h e Counci l h i s e v a -
lua t ion of the e f f e c t s of t h e B r i t i s h r e d u c t i o n , and a copy of h i s v i e w s w a s
t r a n s m i t t e d to the W e s t e r n Eu ropean Union. In t h i s a p p r a i s a l , he e m p h a -
s i z e d the e f f e c t s of t h e s e r e d u c t i o n s on t h e m i l i t a r y c a p a b i l i t i e s and the
i n c r e a s e d r i s k to t h e s e c u r i t y of W e s t e r n E u r o p e . G e n e r a l N o r s t a d r e i t e r -
a t ed the m i s s i o n of h i s c o m m a n d , s ta t ing tha t only r e c e n t l y i t had been
r e - a f f i r m e d in the P o l i t i c a l D i r e c t i v e , which in addi t ion to e n d o r s i n g the
F o r w a r d S t r a t egy concep t , s t r e s s e d the i m p o r t a n c e of s t r o n g , r e a d y ,
and n u c l e a r a r m e d Shield f o r c e s . SACEUR r e m i n d e d the Counci l tha t he
and h i s s taff had been deve lop ing a p lan f o r the 1960-62 p e r i o d , ca l l ing
f o r c e r t a i n m i n i m u m f o r c e s . His p lan c a l l e d f o r a Shield of r e a d y g round ,
a i r and s e a f o r c e s wi th c e r t a i n r e s e r v e s which m u s t be adequa t e to hold
in the f o r w a r d a r e a s unt i l n u c l e a r r e t a l i a t i o n could t a k e e f f e c t .
SACEUR had no q u a r r e l wi th the way in which the B r i t i s h G o v e r n m e n t
had dec ided to r e o r g a n i z e the 50, 000 m e n which it would have r e m a i n i n g
if t he c u t s w e r e m a d e , a l though he sa id : "I v iew wi th s e r i o u s c o n c e r n any
r e d u c t i o n of t h i s m a g n i t u d e , " and it would c a u s e a c o n s i d e r a b l e s h o r t - f a l l
f r o m the f o r c e s r e q u i r e d by the p l an he w a s then hoping to have app roved .
T h e e a r m a r k i n g f r o m the s t r a t e g i c r e s e r v e of the d iv i s ion h e a d q u a r t e r s of t
t he two b r i g a d e s , G e n e r a l N o r s t a d a d m i t t e d , w a s s ign i f i can t and he lped
o f f - s e t t he d e f i c i e n c y on the Cont inent , but if t h e s e f o r c e s w e r e both s t a -
t ioned in G e r m a n y they would b o l s t e r SACEUR's M - d a y f o r c e s and could
49
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
. C O M P * " — I
NATO SEGftEfr
a l s o be c o n s i d e r e d to be a v a i l a b l e to t h e UK in the event of an e m e r g e n c y
e l s e w h e r e .
The t i m i n g of the UK p l a n gave h i m c o n s i d e r a b l e c o n c e r n s i n c e it
r e d u c e d h i s f o r c e s at a t i m e b e f o r e the f u l l G e r m a n con t r ibu t ion would be
a v a i l a b l e , and b e f o r e any s ign i f i can t a t o m i c capab i l i t y would ex i s t in h i s
g r o u n d f o r c e s on t h e Cont inent . He fe l t tha t if the B r i t i s h w e r e to p o s t p o n e
t h e i r p l a n n e d r e d u c t i o n unt i l t he end of 1959 when both t h e G e r m a n c o n t r i -
but ion and t h e n u c l e a r w e a p o n s d e l i v e r y capab i l i t y would be b e c o m i n g m o r e
e f f e c t i v e , t he e f f e c t s of the t r o o p w i t h d r a w a l s would not be so n o t i c e a b l e .
B e c a u s e of .the way in which the B r i t i s h in tended to e f fec t t h e i r a i r
f o r c e r e d u c t i o n and b e c a u s e of the dep loyment of ACE a t o m i c c a p a b i l i t i e s ,
SACEUR did not f e e l that t he r e d u c t i o n within the a i r f o r c e would be su f f i -
c i e n t l y g r e a t to s e r i o u s l y j e o p a r d i z e the d e f e n s e concep t . The w i t h d r a w a l of
t h e E lbe and the Rh ine f l o t i l l a s would not g r e a t l y e f fec t t he o p e r a t i o n a l f a c i -
l i t i e s of h i s c o m m a n d e s t ab l i shmen t s ince the r e s p o n s i b i l i t i e s of the Elbe
f l o t i l l a s would be t a k e n over by t h e G e r m a n navy. Howeve r , SACEUR c o n -
c luded tha t " . . . T h e p r o p o s e d w i t h d r a w a l s can be a c c o m p l i s h e d only at the
cos t of i n c r e a s i n g r i s k to our s e c u r i t y . Although the d e g r e e of t h i s r i s k
cannot be a s s e s s e d p r e c i s e l y , it m u s t be v iewed with c o n c e r n . " The m o d i -
f i c a t i o n s which he had sugges t ed and which would i m p l i c a t e the e f f e c t s of
the p r e s e n t p r o p o s a l s , w e r e phas ing the r e d u c t i o n s in to the c a l e n d a r y e a r
I959, and s t a t ion ing on the Cont inent p a r t of the s t r a t e g i c r e s e r v e , r a t h e r • . . . ^ ^ . - (14) t han s ta t ion ing it in G r e a t B r i t a i n .
SACEUR' s S t a t e m e n t s to NAC on UK Wi thdrawa l .
T h e s e c o m m e n t s by SACEUR w e r e c i r c u l a t e d to m e m b e r s of t h e NAC.
On the a f t e r n o o n of 22 F e b r u a r y he m e t with the Counci l to p r e s e n t o r a l l y
h i s f u r t h e r v i e w s and to a n s w e r q u e s t i o n s a s k e d h im by the Counci l . He
p o i n t e d out tha t the s t r a t e g y which had been deve loped f o r the d e f e n s e
(14) M s g , SACEUR to SGN, SHAPE 34079, 22 F e b 57. •
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of C e n t r a l E u r o p e , f o r e x a m p l e , ca l l ed f o r a r e a d y f o r c e of 30 D-day
d iv i s i ons , and he e m p h a s i z e d tha t t he d e v e l o p m e n t of new w e a p o n s a l r e a d y
had been t aken in to accoun t in the e s t a b l i s h m e n t in t h i s m i n i m u m , t h e r e -
f o r e it could not be r e d u c e d without r i s k s i m p l y by a r g u i n g tha t new w e a p o n s
would r e p l a c e m a n - p o w e r . Th i s , he sa id , would be double counting.
SACEUR s t a t e d tha t t he could not s ay c a t e g o r i c a l l y tha t the p r o p o s a l s
m a d e by the UK would c a u s e the s u c c e s s or the f a i l u r e of h i s c o m m a n d in
the c a s e of w a r , but he w a s w o r r i e d by the p r o p o s a l s . He e x p r e s s e d the
thought tha t whi le he w a s c o n c e r n e d by the UK p r o p o s a l s , he would be in -
f i n i t e ly m o r e c o n c e r n e d if t h e s e l ead to a type of cha in r e a c t i o n , and a
n u m b e r of o the r c o u n t r i e s p r o p o s e d s i m i l a r r e d u c t i o n s . He a d m i t t e d tha t
t h i s w a s not a p r o b l e m f o r h im to so lve s ince if such a r e a c t i o n did o c c u r ,
t h e r e could be no ques t ion of i m p l e m e n t i n g h i s d e f e n s e p l a n s .
The v a r i o u s m e m b e r s of the Nor th At lant ic Counci l who w e r e p r e -
sent gave t h e i r v i e w s on the p r o p o s a l . ' The G e r m a n r e p r e s e n t a t i v e sa id
tha t h i s G o v e r n m e n t w a s g r a v e l y d i s t u r b e d , in f a c t t o an extent g r e a t e r
than the c u r r e n t pub l i c i t y in the p r e s s would i nd i ca t e . His G o v e r n m e n t ,
he sa id , had gone so f a r a s to o f fe r to t a k e s t e p s to d e f r a y p a r t of the ex-
p e n s e of ma in t a in ing the f o r c e s in G e r m a n y . He po in ted out that t he G e r m a n
a r m e d f o r c e s in C e n t r a l a r e a (12 d iv i s ions ) could not be counted on b e f o r e
1959 or i960 .
The Be lg ian r e p r e s e n t a t i v e noted that t he s i z e of each na t iona l c o n t r i -
bution inev i t ab ly a f f e c t e d the d e g r e e of c o m m a n d or l e a d e r s h i p which each
coun t ry e x e r c i s e d , and he w o n d e r e d , in c a s e the Uni ted Kingdom r e d u c e d
i t s f o r c e s subs t an t i a l l y , if it w a s p r e p a r e d to s e e the d e g r e e of l e a d e r s h i p
it en joyed p r o p o r t i o n a l l y r e d u c e d . He c o m p a r e d the con t r ibu t ion by the
Bene lux c o u n t r i e s of fou r d iv i s i ons wi th the t h r e e u n d e r - s t r e n g t h d iv i s ions
which would r e m a i n in E u r o p e if the B r i t i s h p lan w e r e c a r r i e d out . He
e n d o r s e d s t r o n g l y G e n e r a l N o r s t a d ' s sugges t ion that t h e t i m e p h a s i n g of
the r e d u c t i o n should be ex tended .
•two m i w m m & h 51
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
EOT© COWRDENTpa! S H A P E 5 7 / 6 7 NATO R E G R E T
Othe r n a t i o n a l r e p r e s e n t a t i v e s e x p r e s s e d s i m i l a r v i e w s , r e c o g n i z -
ing t h e e c o n o m i c f a c t s t ha t had m o v e d the B r i t i s h ac t ion , but none t h e (15) l e s s d e p l o r i n g t h e t r e n d / .
D i s c u s s i o n of UK R e d u c t i o n wi th in t h e W e s t e r n E u r o p e a n Union.
Fo l lowing r e c e i p t of SACEUR' s v i e w s , t h e W e s t e r n E u r o p e a n Union
d i s c u s s e d t h e p r o p o s e d r e d u c t i o n s and r e c o m m e n d e d t o t h e NAC tha t a new
o v e r a l l r e v i e w of t h e r e s o u r c e s of t h e Al l i ance be m a d e . The WEU f u r t h e r
r e c o m m e n d e d t h a t a f t e r t h e i n i t i a l r e d u c t i o n of 13, 500, no f u r t h e r r e d u c -
t i o n s be m a d e un t i l d i s c u s s i o n s w e r e he ld in the WEU in Oc tobe r 1957 in
l igh t of f u r t h e r r e v i e w .
The Counci l of t h e WEU on 18 M a r c h i s s u e d a s t a t e m e n t i nd ica t ing
t h a t s e v e n g o v e r n m e n t s of t h e Counci l would r e c o m m e n d to t h e NAC, of
w h i c h t h e y w e r e a l l m e m b e r s , t ha t t hey s tudy u r g e n t l y c e r t a i n p r o p o s a l s
by C h a n c e l l o r Adenaue r of G e r m a n y . T h e s e p r o p o s a l s c a l l e d f o r a new
o v e r a l l r e v i e w of t h e r e s o u r c e s of t h e Al l i ance which would c o v e r m i l i t a r y
r e q u i r e m e n t s and d e f e n s e a i m s , R e l a t i o n s h i p s be tween convent iona l and
a t o m i c f o r c e s and w e a p o n s , and o the r b r o a d q u e s t i o n s . (See Chap te r IV
f o r SHAPE p a r t i c i p a t i o n in t h i s r e v i e w . ) In t h e m e a n t i m e , the UK G o v e r n -
m e n t , pend ing t h e r e s u l t of t h i s r e v i e w by NATO, would c a r r y out t h e p l a n s
a l r e a d y c o n f i r m e d f o r 1957-58, keèp ing in m i n d SACEUR's v i e w s . Th i s
would m e a n e s s e n t i a l l y a r e d u c t i o n of 13, 500 m e n of which t h e v a s t m a j o r i t y
would be a d m i n i s t r a t i v e and a n t i - a i r c r a f t t r o o p s . Any f u r t h e r deduc t ions
and t h e q u e s t i o n of t h e l oca t ion of the " s t r a t e g i c r e s e r v e " of 5, 000 m e n ,
r e f e r r e d to in SACEUR' s e a r l i e r r e p o r t , would be dec ided in Oc t obe r 1957 (16)
a f t e r f u r t h e r d i s c u s s i o n s wi th in t h e WEU.
B r i t i s h Whi te P a p e r on P r o p o s e d W i t h d r a w a l s .
On 4 A p r i l 1957 t h e B r i t i s h G o v e r n m e n t i s s u e d a White P a p e r out l ining
i t s f u t u r e p o l i c y on d e f e n s e and defending i t s p r o p o s a l . The B r i t i s h G o v e r n -
(15) C - R ( 5 7 ) l l , 26 F e b ' 5 7 , R e c o r d of a m e e t i n g of t h e NAC wi th SACEUR. ( U ) C - M ( S 7 ) 4 1 . 31 M „ 5 7 m T O e 0 M F 1 D g f Ä - ,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m e n t s a i d t h a t t h e o v e r - r i d i n g c o n s i d e r a t i o n in a l l m i l i t a r y p l ann ing
m u s t b e t o p r e v e n t w a r r a t h e r t han to p r e p a r e f o r i t . Whi le r e c o g n i z i n g
tha t B r i t a i n m u s t p r o v i d e h e r f a i r s h a r e of t h e a r m e d f o r c e s n e e d e d f o r
t he g r o u n d d e f e n s e of E u r o p e , t he p a p e r c o n c l u d e d t h a t t h e a r m e d s t r e n g t h
of t he t h r e e s e r v i c e s of t h e UK could b e r e d u c e d by a l m o s t 30% by t h e end
of 1962 by hav ing a s m a l l e r f o r c e on an a l l - r e g u l a r foo t ing , and ending
na t iona l s e r v i c e a s soon a s p o s s i b l e .
R e a c t i o n t o t h e B r i t i s h P a p e r by t he N o r t h At lan t i c Counci l w a s qu i t e
s t r o n g and m a r k e d l y c r i t i c a l of the B r i t i s h p r o p o s a l . C o n s i d e r a b l e c o n c e r n
w a s e x p r e s s e d a s t o t h e e x t r e m e l y d a n g e r o u s p s y c h o l o g i c a l r e p e r c u s s i o n s
t h a t m i g h t r e s u l t i n o t h e r m e m b e r c o u n t r i e s , and f e a r w a s e x p r e s s e d t h a t
t he r e d u c t i o n of B r i t i s h f o r c e s by a p p r o x i m a t e l y 50% would f o r c e f u r t h e r (17)
B r i t i s h w i t h d r a w a l s f r o m t h e C o n t i n e n t / '
As p a r t of t h e Annual R e v i e w p r o c e s s d u r i n g 1957, SHAPE sen t t o
t he UK i t s P l a n n i n g G u i d a n c e . T h i s gu idance w a s r e c e i v e d wi th s o m e r e -
s e r v e by B r i t i s h a u t h o r i t i e s who po in t ed out t o SACEUR on 29 May t h a t t h e
gu idance did not t a k e in to accoun t t h e r e d u c t i o n s in UK p l a n n e d c o n t r i b u t i o n s
t o NATO f o r c e s . " T h e Uni t ed Kingdom i s not at p r e s e n t in a p o s i t i o n t o
m a k e any u s e f u l f o r e c a s t of f o r c e g o a l s o the r t h a n t h o s e a l r e a d y announced
to t h e N o r t h At l an t i c C o u n c i l " SACEUR w a s t o l d / 1 8 ^
On 29 M a y 1957 t h e U n i t e d Kingdom r e p r e s e n t a t i v e t o t h e Counci l
p r e s e n t e d ano the r s t a t e m e n t t o t he Counci l s t a t i ng tha t c e r t a i n o the r c h a n g e s
in a s s i g n e d and e a r m a r k e d n a v a l f o r c e s would h a v e t o b e m a d e . T h e s e c h a n g e s
w e r e be ing m a d e b e c a u s e of e conomic p r e s s u r e s wh ich in t h e v iew of t h e
B r i t i s h G o v e r n m e n t n e c e s s i t a t e d c e r t a i n r e d u c t i o n s and r e - s h a p i n g of t h e
B r i t i s h a r m e d f o r c e s . T h e s e w e r e not of t he s a m e m a g n i t u d e a s t he
(17) CR(57)21, S u m m a r y R e c o r d of a Mee t ing of t h e Counci l . . 4 A p r i l 1957, d a t e d 6 Apr 57 (NS)
(18) R a d , D E F 1047, SCO IN 3046, 29 M a y 57.
V - -l»\u. v . , „
53 " '
- N A T O SHXRK-T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
(19) r e d u c t i o n s in a r m y and a i r f o r c e s a l r e a d y d i s c u s s e d wi th t h e C o u n c i l / '
S A C E U R ' s S t a t emen t to t h e Standing Group on UK W i t h d r a w a l s .
The Staading Group w a s d i r e c t e d to a d v i s e t h e N o r t h At lan t ic Counci l
a s t o the i m p a c t on NATO m i l i t a r y p o s t u r e of t h e s e p r o p o s e d r e d u c t i o n s
in n a v a l and m a r i t i m e a i r c o n t r i b u t i o n s by t h e UK. On 11 J u n e t h e Standing
G r o u p a s k e d S A C E J R f o r h i s c o m m e n t s wi th r e s p e c t t o t h e i m p a c t of t h e s e
r e d u c t i o n s on h i s c o m m a n d .
SACEUR to ld t h e Standing Group s e v e r a l w e e k s l a t e r tha t t h e UK r e -
duc t ion p r o p o s a l s c a m e at a p a r t i c u l a r l y d i f f icu l t t i m e s ince t h e SHAPE
Annual Rev i ew t e a m s w e r e a l r e a d y wi th the na t ions d i s c u s s i n g gu idance
f o r 1962 f o r c e s . T h i s r e d u c t i o n would have i t s m a i n i m p a c t on t h e M e d i -
t e r r a n e a n a r e a w h e r e t h e p r o b l e m of o b s o l e s c e n c e in t h e s m a l l e r n a v i e s
w a s a l r e a d y at a c r i t i c a l s t a g e .
His g r e a t c o n c e r n w a s , h o w e v e r , tha t t h i s d i squ ie t ing t r e n d migh t
b e fo l lowed by o the r m e m b e r n a t i o n s of the Al l iance , thus l ead ing to a
" f a t a l weaken ing of t h e to t a l f o r c e s n e c e s s a r y to g u a r a n t e e t h e s e c u r i t y
of NATO. "
"As you a r e a w a r e , " SACEUR told the Standing Group , "I a m con-
v i n c e d tha t t h e Shield f o r c e s , no l e s s t h a n t h e a tomic r e t a l i a t o r y f o r c e s ,
m u s t ex i s t in s u f f i c i e n t s t r e n g t h du r ing p e a c e t i m e to p e r m i t t h e m to p l a y
t h e i r f u l l r o l e in t h e d e t e r r e n t a s we l l a s to c a r r y out t h e i r d e f e n s i v e m i s -
s ion in t h e c H t i c a l e a r l y d a y s of a p o s s i b l e w a r . I n s o f a r a s A C E i s c o n c e r n e d ,
t h e f u l l b r u n t of UK c u t b a c k s . . , , would h a v e t o be b o r n e by m y nava l sh ie ld
f o r c e s , s e r i o u s l y weaken ing t h e i r c o m b a t p o t e n t i a l . "
In a s s e s s i n g t h e i m p a c t t h e s e r e d u c t i o n s would have on ACE, SHAPE
h a d c o m p a r e d t h o s e f o r c e s f r o m t h e M i n i m u m F o r c e s 1958-1963 Study e s -
t i m a t e of UK r e q u i r e m e n t s wi th the end-1959 con t r ibu t ion f o r e c a s t in t h e
See CR(57)34, 29 M a y 57, Annex - R e v i s e d A s s i g n m e n t of Naval F o r c e s and M a r i t i m e Ai r F o r c e s to SACEUR's C o m m a n d .
'>.7 ' *»• , ' " r y , J\1 ,\a U .. J. :„\. L JL-JL'-Î
N f t T n gff c i t t r r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
* ^ , " .. • / -,] N Ä t Ö ' SÊC&&Ê- ' ~
B r i t i s h s ta tement g iven to t h e Counci l on 29 May . Only D - d a y f o r c e s had
b e e n c o n s i d e r e d . The Standing Group w a s g iven a de t a i l ed accoun t ing by
c a t e g o r y of t h e s h o r t f a l l s t h a t would r e s u l t f r o m t h e s e r e d u c t i o n s . "In
s u m m a r y , " G e n e r a l N o r s t a d to ld t h e Standing Group , "I m u s t conc lude
tha t t h e nava l r e d u c t i o n s up to 1959 p r o p o s e d by t h e UK wil l h a v e an a d -
v e r s e e f f ec t on m y ab i l i t y to c a r r y out m y p r e s e n t nava l t a s k s in t h e
D i s c u s s i o n in NATO Counci l of UK W i t h d r a w a l s - CR(57)72.
In e a r l y D e c e m b e r 1957 the m a t t e r of a r e d u c t i o n of Uni ted Kingdom
f o r c e s c o m m i t t e d to NATO w a s r a i s e d again by t h e UK R e p r e s e n t a t i v e to
t h e Counci l . He recal led e a r l i e r d i s c u s s i o n s on t h e m a t t e r and t h e c o m -
p r o m i s e so lu t ion tha t beyond t h e 13, 500 m e n r e d u c t i o n , no cut would be
m a d e unt i l l a t e r in 1957 in l ight of a r e v i e w tha t t h e WEU Counci l a s k e d
the N o r t h At lan t ic Counci l t o u n d e r t a k e . The UK R e p r e s e n t a t i v e po in t ed
out tha t t h e NAC had not c o m p l e t e d t h i s r e v i e w , no r w a s it l i ke ly to be
c o m p l e t e d f o r s e v e r a l m o n t h s . In the m e a n t i m e , the UK G o v e r n m e n t con -
s i d e r e d i t i m p e r a t i v e tha t a d e c i s i o n about t h e s econd s l i c e of UK f o r c e
r e d u c t i o n s should be t aken . Her M a j e s t y ' s G o v e r n m e n t w e r e p r e p a r e d to
k e e p 55, 000 m e n in G e r m a n y unt i l M a r c h 1959 if a c c e p t a b l e a r r a n g e m e n t s
w e r e m a d e to m e e t l o c a l c o s t s . The UK G o v e r n m e n t n e e d e d to know t h e
a n s w e r to t h i s by t h e m i d d l e of J a n u a r y 1958.
At the conc lu s ion of i t s m e e t i n g , t he Counci l a g r e e d tha t s e l e c t e d
e x p e r t s would m e e t in P a r i s soon to c o n s i d e r t h e c l a i m of t h e B r i t i s h (21) G o v e r n m e n t tha t l o c a l c o s t s be m e t by ano the r p o w e r ,
Be lg ian Reduc t ion of M i l i t a r y S e r v i c e .
The NATO p o l i c y r e g a r d i n g t e r m of m i l i t a r y s e r v i c e had e s t a b l i s h e d
(20) Rad , SCO OUT 36924, 28 Jun 57; G e n e r a l N o r s t a d had e a r l i e r , on 27 May, e x p r e s s e d t h e s e s a m e v i e w s in a l e t t e r to Sir R i c h a r d P o w e l l , P e r m a n e n t S e c r e t a r y , UK MOD.
M e d i t e r r a n e a n . " (20)
(21) CR(57)72. 55
VI''V^ 1C^-.y - v u
j ,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
. . . ' " V V - - J ; ;
S H A P E 5 7 / 6 7 NATO S E G R E T ^ "
a p r i n c i p l e tha t t h e p e r i o d of c o m p u l s o r y m i l i t a r y s e r v i c e f o r a l l n a t i o n s
shou ld be a m i n i m u m of 18 m o n t h s . On 22 May 1957 t h e Be lg ian r e p r e -
s e n t a t i v e to t h e Counci l i n f o r m e d t h e o the r n a t i o n s tha t h i s c o u n t r y w a s
consu l t i ng SACEUR f o r a s s i s t a n c e in . s tudy ing a m e t h o d of d e c r e a s i n g
t h e t e r m of s e r v i c e f o r c o n s c r i p t s t o 15 m o n t h s . He c l a i m e d tha t B e l g i u m
would c o m p e n s a t e f o r t h i s ac t ion by i n c r e a s i n g the r a t e of v o l u n t a r y en-
l i s t m e n t of r e g u l a r s . Counci l m e m b e r s e x p r e s s e d g r a v e c o n c e r n , s t a t ing
t h a t a cha in r e a c t i o n migh t r e s u l t . The S e c r e t a r y - G e n e r a l po in t ed out
t h a t d e c i s i o n s of t h i s k ind could not be m a d e u n i l a t e r a l l y but only wi th a l l
t h e o the r m e m b e r s of t h e Al l i ance , o t h e r w i s e the A l l i ance would b r e a k up.
T h e r e w a s s o m e s u p p o r t f o r the Be lg ian p r o p o s a l when t h e Uni ted Kingdom
r e p r e s e n t a t i v e p o i n t e d out tha t a p r o f e s s i o n a l a r m y w a s m o r e e f f i c i en t
t h a n a c o n s c r i p t a r m y , to t a l n u m e r i c a l s t r e n g t h be ing equal , and tha t t h e (22) B e l g i a n a n n o u n c e m e n t should be w e l c o m e d r a t h e r t h a n c o n d e m n e d . '
P r e s e n t a t i o n of P r o p o s a l s by MOD Be lg ium.
T h e Be lg i an M i n i s t e r of D e f e n s e v i s i t e d SHAPE on 23 May and e x -
p l a i n e d to G e n e r a l N o r s t a d and h i s s taff o f f i c e r s t h e s p e c i f i c p r o p o s a l s of
t h e Be lg i an G o v e r n m e n t wi th r e g a r d to r e d u c t i o n of na t iona l s e r v i c e . G e -
n e r a l N o r s t a d d i r e c t e d M a j o r G e n e r a l C a r t e r , Chief of OANDT Divis ion ,
to e x a m i n e a l l t he i m p l i c a t i o n s of t h i s m a t t e r and on 27 May M a j o r G e n e r a l
C a r t e r v i s i t e d B r u s s e l s w h e r e he c o n f e r r e d wi th the Be lg i an a u t h o r i t i e s .
On 29 M a y G e n e r a l N o r s t a d w r o t e to t h e MOD B e l g i u m e x p r e s s i n g
(22) NATO P o l i c y on l eng th of na t iona l m i l i t a r y s e r v i c e i s se t out in DC 25 and in C-M(54)100 , Annex to R e p o r t on 1954 Annual Rev iew, 20 Nov 54, which s t a t e s : "It h a s b e e n l a i d down a s a b a s i c m i l i t a r y p r i n c i p l e t ha t t h e p e r i o d of c o m p u l s o r y m i l i t a r y s e r v i c e should be a m i n i m u m of 18 m o n t h s to 2 y e a r s a c c o r d i n g to t h e cond i t ions of the r e s p e c t i v e c o u n t r i e s . " See STAND 1978, S G N t o SGREP, fo r exce l l en t s t a t e m e n t on t h i s m a t t e r and f o r SGN a t t i t ude .
56
NATO .^H-gff-^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
h i s c o n c e r n ove r t h e p o s s i b l e r e d u c t i o n of m i l i t a r y s e r v i c e , and a sk ing
t h a t h i s v i e w s be b r o u g h t to the a t t en t ion of t h e Be lg i an P a r l i a m e n t and
tha t , if p o s s i b l e , a d e c i s i o n on t h i s m a t t e r be d e l a y e d unt i l a f t e r MC 70
had been a c t e d on by t h e Counci l .
M. Spinoy, Be lg i an MOD, r e p l i e d on 3 J u n e to G e n e r a l N o r s t a d ' s « l e t t e r , de fending t h e s t and t a k e n by h i s G o v e r n m e n t and r e f e r r i n g t o a c t i o n s
in t h e p r e v i o u s y e a r by the F e d e r a l Repub l i c of G e r m a n y in r e d u c i n g i t s
p e r i o d of s e r v i d e to 12 m o n t h s . He s t a t ed , f u r t h e r , t ha t " r e c e n t d e c i s i o n s
of the B r i t i s h G o v e r n m e n t " had f o c u s s e d Be lg i an pub l i c a t t en t ion on t h e (23) na t iona l s e r v i c e s i t ua t ion .
C o n s i d e r a t i o n of Be lg ian P r o p o s a l s by the NATO Counci l .
The N o r t h At lan t ic Counci l on 5 J u n e 1957 d i r e c t e d i t s m i l i t a r y
a u t h o r i t i e s to c o n s i d e r t h e i m p l i c a t i o n s of t h e Be lg ian p r o p o s a l to r e d u c e
t h e t e r m of na t iona l s e r v i c e . The Standing Group a s k e d SACEUR f o r h i s
opinion. He p o i n t e d out f i r s t tha t t h e ac t ion p r o p o s e d by the Be lg i an Go-
v e r n m e n t w a s at v a r i a n c e with t h e e s t a b l i s h e d p o l i c y . He po in t ed out a l s o
tha t in connec t ion wi th h i s examina t i on of s t r a t e g y and f o r c e p a t t e r n s f o r
hi s c o m m a n d , he w a s examin ing the ques t ion of m i n i m u m l eng th of na t iona l
s e r v i c e in l ight of new w e a p o n s . If t he Belg ian p r o p o s a l w e r e i m p l e m e n t e d
in the n e a r f u t u r e it would p r e - j u d g e the r e s u l t s of h i s e x a m i n a t i o n . "At
t h i s t i m e , " he s t a t ed , " the c o n t e m p l a t e d Be lg ian ac t ion cannot be j u s t i f i e d
on a m i l i t a r y b a s i s . " He did not f e e l tha t t h e Be lg i an p l a n t o i n t r o d u c e
add i t iona l r e g u l a r p e r s o n n e l would f u l l y c o m p e n s a t e e i the r in quan t i ty or
qua l i ty f o r t h e l o s s of at l e a s t 3 m o n t h s of r e g u l a r t r a i n i n g , and he f e a r e d
tha t a s ign i f i can t r e d u c t i o n in t h e g e n e r a l l e v e l of e f f e c t i v e n e s s of M - d a y
un i t s woiild r e s u l t . "My m o s t s e r i o u s c o n c e r n , h o w e v e r , " G e n e r a l N o r s t a d
cont inued , " h a s to do wi th t h e p r o b a b l e e f f e c t of t h i s sudden Be lg i an ac t ion
(23) L t r , SACEUR to MOD B e l g i u m dtd 29 M a y 57; L t r , MOD Be lg ium to SACEUR dtd 3 J u n 57.
57 " " " - - - , . .
• • / s V , , • • ^-NATO flni'7H II1Tra- " ' ' '
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
on o the r n a t i o n s con t r ibu t ing f o r c e s to m y c o m m a n d - t h e s o - c a l l e d cha in ,
r e a c t i o n . I h a v e a l r e a d y r e c e i v e d a n u m b e r of i n d i c a t i o n s tha t o the r NATO
c o u n t r i e s , p a r t i c u l a r l y t h o s e c l o s e to Be lg ium g e o g r a p h i c a l l y , would f ind
i t m o s t d i f f i cu l t to r e s i s t p a r l i a m e n t a r y p r e s s u r e to fo l low B e l g i u m ' s ex -
a m p l e . " He b e l i e v e d tha t t h e o v e r a l l c u m u l a t i v e e f f e c t could be v e r y s e r i o u s ,
p e r h a p s even d i s a s t r o u s , weaken ing what he t e r m e d "our e s s e n t i a l m i l i -
t a r y s t r e n g t h . " G e n e r a l N o r s t a d u r g e d s t r o n g l y tha t e v e r y e f f o r t be m a d e
to p e r s u a d e t h e Be lg ian G o v e r n m e n t to wi thhold any f i na l d e c i s i o n on t h i s
p r o p o s a l un t i l h i s f o r c e s t u d i e s had bëen s u b m i t t e d and c a r e f u l l y r e v i e w e d .
The Standing Group f o r w a r d e d G e n e r a l N o r s t a d ' s v i e w s to t h e Counci l ,
e n d o r s i n g t h e m t o t h e fu l l , and sending along a c o m p l e t e h i s t o r i c a l b a c k -
g r o u n d of t h i s d e l i c a t e p r o b l e m of na t iona l m i l i t a r y s e r v i c e .
Af t e r c o n s i d e r i n g t h e v i e w s of the Standing Group and p a r t i c u l a r l y
t h o s e of G e n e r a l ' N o r s t a d , t he NAC d i r e c t e d tha t M. P a u l - H e n r i Spaak,
S e c r e t a r y - G e n e r a l and C h a i r m a n of a l l m e e t i n g s of both t h e p e r m a n e n t
and m i n i s t e r i a l s e s s i o n s of t h e NAC, send a l e t t e r to t h e F o r e i g n S e c r e t a r y
of B e l g i u m se t t ing f o r t h i t s v i e w s .
In e s s e n c e , M r . Spacik to ld h i s g o v e r n m e n t on behalf of t h e Counci l
t h a t i t w a s ex t r e m e l y doubtfu l of t h e whole p r o c e d u r e . M i l i t a r y a u t h o r i t i e s
s t i l l m a i n t a i n e d tha t t h e 18 m o n t h s t e r m of s e r v i c e w a s n e c e s s a r y ; and t h e
Counci l w a s p a r t i c u l a r l y d e s i r o u s tha t t he Be lg ian G o v e r n m e n t took no
ac t i on unt i l t h e e x a m i n a t i o n of t h e m i l i t a r y s i tua t ion of t h e f o r c e s of the
A l l i ance a s a who le could be c o m p l e t e d .
The Be lg i an G o v e r n m e n t r e p l i e d tha t a f t e r examin ing t h e v i e w s of
t h e Counci l , i t f e l t it m u s t r e d u c e t h e t e r m of s e r v i c e at t h e e a r l i e s t p o s -
s ib l e m o m e n t f r o m 18 to 15 m o n t h s , but would not m a k e any f u r t h e r m o v e
un t i l O c t o b e r . T h e c h a n g e s t o be m a d e in t h e o r g a n i z a t i o n of t h e Be lg ian
f o r c e s , t h e Be lg i an G o v e r n m e n t i n s i s t e d , would in no way p r e j u d i c e the
o u t c o m e of G e n e r a l N o r s t a d ' s s tudy and the Be lg i an G o v e r n m e n t would not
T ̂
58
TTi'iTd I F r i L LI «
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
coun tenance any f a l l i ng off of t h e Belg ian con t r i bu t i on to t h e At lan t ic
d e f e n s e . ^ ^
In O c t o b e r 1957 t h e Be lg ian Government r e d u c e d t h e t e r m of c o m -
p u l s o r y m i l i t a r y s e r v i c e f r o m 18 to 15 m o n t h s .
Bu i ld -Up of the G e r m a n F o r c e s . t>\
Since 1954 S A C E U R ' s F o r w a r d S t r a t e g y had been b a s e d on the
a s s u m p t i o n tha t G e r m a n f o r c e s would be m a d e a v a i l a b l e in t h e C e n t e r .
Ge rman a u t h o r i t i e s had s t a t ed tha t they would r a i s e an a r m y of 460, 000
m e n of whom 380, 000 would be in f i e ld f o r c e s a s s i g n e d to SACEUR. T h e s e
g round t r o o p s would be a l lo t t ed to 1 2 d i v i s i o n s (6 i n f a n t r y , 4 a r m o r e d and
2 u n s p e c i f i e d ) , and would be suppo r t ed by s t r o n g ac t i ve c o m b a t suppor t
un i t s , but would have r e s t r i c t e d ac t ive l o g i s t i c s u p p o r t . The G e r m a n s had
s t a t ed a l s o tha t they would r a i s e an a i r f o r c e c o m p r i s i n g 20 wings wi th
1320 t a c t i c a l a i r c r a f t and the n e c e s s a r y m a t e r i a l , t e c h n i c a l and a d m i n i s -
t r a t i v e s u p p o r t .
A navy of 35, 000 m e n c o m p r i s i n g n u m e r o u s s m a l l v e s s e l s , inc luding
12 d e s t r o y e r s , 4 m o t o r t o r p e d o boa t s and s i m i l a r c r a f t , w a s a l s o to be
a s s i g n e d to SACEUR' s c o m m a n d .
In r ep ly ing to the Annual Review Q u e s t i o n n a i r e 1956, the G e r m a n
G o v e r n m e n t had g iven t h e s e p r o p o s e d f o r c e g o a l s to c o m p l e t e the bu i ld -
up of i t s f o r c e s . Soon a f t e r General N o r s t a d b e c a m e SACEUR, t h e G e r m a n
D e f e n s e M i n i s t e r , M r . S t r a u s s , v i s i t e d SHAPE and in a s t a t e m e n t changed
(24) The Be lg ian d e c i s i o n on th i s m a t t e r i s se t f o r t h qui te c l e a r l y in a s t a t e m e n t by t h e Be lg ian M i n i s t e r of F o r e i g n A f f a i r s to the Be lg ian P a r l i a m e n t on 18 J u n e 1957. Th i s s t a t e m e n t i s con ta ined in NATO document P O / 5 7 / 7 1 7 da ted 19 J u n e 1957.
See a l s o : SCO IN 2718, 22 May 57; SCO IN 3430, 7 Jun 57; SCO IN 3512, 10 Jun 57; SCO IN 3792, 14 Jun 57; SCO IN 3896, 19 Jun 57, and SCO IN 4228, 26 Jun 57.
59 ^ A T O COSVJFfIDEMTiM3
NNTfT " r r n r r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t h e g o a l s wh ich had been e s t a b l i s h e d and gave new g o a l s f o r 1957 o n l y /
P r o p o s e d S t r eng th Goa l s and T u r n o v e r D a t e s .
M r . S t r a u s s in h i s s t a t e m e n t s a id tha t t he s t r e n g t h o r i g i n a l l y i n t ended
to b e a c h i e v e d by end 1956 had b e e n se t at 96, 000 m e n , but it would a c t u a l l y
r e a c h only 70, 000 men b e c a u s e of l ack of a c c o m m o d a t i o n s p a c e . He sa id
t h a t in 1957 the F e d e r a l Repub l i c of G e r m a n y in t ended to c a l l up at l e a s t
135, 000 m e n , of w h o m 85, 000 would be a s s i g n e d to a r m e d f o r c e s . The
i n t en t i on w a s to a c t i v a t e du r ing 1957 t h r e e m o t o r i z e d i n f a n t r y d iv i s ions ,
two a r m o r e d d i v i s i o n s , one m o u n t a i n d iv i s ion , one a i r b o r n e d iv i s ion , and
s u p p o r t and supply u n i t s . All of t h e s e d iv i s ions , h o w e v e r , would be unde r
s t r e n g t h . The o v e r a l l s t r e n g t h of t h e a r m y f o r c e s by end 1957 would r e a c h
91, 000 m e n .
T h e m a j o r a i r f o r c e u n i t s which would be f o r m e d dur ing 1957 i n -
c l u d e d two t r a n s p o r t s q u a d r o n s ; one i n t e r c e p t o r day f i g h t e r s q u a d r o n ; and
t h r e e f i g h t e r / b o m b e r s q u a d r o n s . T h e s e l a t t e r would be employed a s o p e r -
a t ion t r a i n i n g u n i t s and would be a s s i g n e d to NATO only in an e m e r g e n c y .
C e r t a i n n a v a l s t a f f s and s q u a d r o n s of m i n e - s w e e p e r s and d e s t r o y e r s would
a l s o be a c t i v a t e d or e s t a b l i s h e d du r ing 1957.
At t h e beg inn ing of Apr i l 1957, 48, 000 m e n w e r e in t h e G e r m a n
A r m y and seven d i v i s i o n s had been ac t i va t ed a l though the s t r e n g t h v a r i e d
f r o m only 30% to 70% of t h e i r w a r - t i m e e s t a b l i s h m e n t .
Fo l lowing t h e t r a n s f e r of con t ro l of the f i r s t f o r m a t i o n of G e r m a n
f o r c e s t o A C E on 1 A p r i l 1957, G e n e r a l H e u s i n g e r , Chief of t h e G e r m a n
A r m e d F o r c e s Staff , no t i f i ed SACEUR tha t c e r t a i n f o r m a t i o n s would be
f o r m a l l y a s s i g n e d t o h i s c o m m a n d e f f e c t i v e 1 Ju ly 1957. The g round
f o r c e s i nc luded t h r e e a r m y c o r p s Jbeadquar t e r s , t h r e e i n f a n t r y d iv i s i ons
(25) P R 2100 A R - 8 / 5 7 en t i t l ed Annual Rev i ew G e r m a n y 1957, dtd 12 M a r 57 NMR G e r m a n y 1264 /56 - S t a t emen t of the G e r m a n D e f e n s e M i n i s t e r , 27 Nov 56.
B a c k g r o u n d b r i e f f o r SACEUR - Bu i ld -up of the G e r m a n F o r c e s , 3 / 1 5 3 / 6 . _
wäto confidenïïâb bfr
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of two c o m b a t g r o u p s each , and nava l f o r c e s in addi t ion to t h o s e a l r e a d y
a s s i g n e d t o i n c l u d e h e a d q u a r t e r s of C o m m a n d e r , Naval F o r c e s Ba l t i c ,
and one m i n e - s w e e p i n g s q u a d r o n . T h e s e f o r c e s , a l though not f u l l y e f f e c -
t i ve , w e r e be ing a s s i g n e d on the b a s i s of an a g r e e m e n t which had been ^
m a d e b e t w e e n SHAPE and the F e d e r a l Repub l i c of G e r m a n y in Augus t 1956. ^
T h i s a g r e e m e n t p rov ided tha t b e c a u s e of the i m p o r t a n c e of s t r e n g t h e n i n g ^
d e f e n s e s in the C e n t e r , G e r m a n f o r c e s would be a s s i g n e d at t he e a r l i e s t
p o s s i b l e d a t e even though at the t i m e of t h e i r a s s i g n m e n t t h e y had not
r e a c h e d fù l l c o m b a t e f f e c t i v e n e s s .
The G e r m a n a u t h o r i t i e s s t r e s s e d tha t even though t h e s e f o r c e s w e r e
a s s i g n e d , t hey would be hand icapped by t h e n e e d to r e - a s s i g n p e r s o n n e l
f o r new u n i t s and to t e m p o r a r i l y d e t a c h p e r s o n n e l f o r t r a i n i n g p u r p o s e s .
F i r s t T u r n o v e r of G e r m a n T r o o p s .
^ On 5 Ju ly 1957 in a f o r m a l c e r e m o n y in M a r b u r g , G e r m a n y , c o m m a n d
ft i. * V / o f t h e f i r s t f o r c e s of t h e F e d e r a l Repub l i c of G e r m a n y to be a s s i g n e d to
v O -̂ '(.SHAPE w a s t u r n e d over to G e n e r a l N o r s t a d . T h i s t u r n o v e r inc luded t h e
f i r s t t h r e e d i v i s i o n s of G e r m a n t r o o p s to jo in NATO f o r c e s and a f l o t i l l a
of m i n e - s we ep e r s .
L. P r i o r to t h e a c t u a l a s s i g n m e n t of G e r m a n f o r c e s to NATO the G e r -
m a n G o v e r n m e n t no t i f i ed SACEUR tha t , in t h e event of an e m e r g e n c y , c e r -
t a i n of i t s f o r c e s could be i m m e d i a t e l y m a d e a v a i l a b l e to h i m . T h e s e
f o r c e s , a l though not at f u l l combat s t r e n g t h , would be u s e d to advan tage
in e m e r g e n c y , and on 23 J a n u a r y , G e n e r a l N o r s t a d sen t to CINCENT and 'V (27)
CINCNORTH d e t a i l s of how t o s e c u r e t h e s e f o r c e s should the need a r i s e .
I n t e g r a t i o n of G e r m a n Air F o r c e into A C E .
At the g a m e t i m e , t h e G e r m a n G o v e r n m e n t p l a c e d b e f o r e SHAPE i t s
p r o p o s a l s f o r i n t e g r a t i n g the G e r m a n Air F o r c e into ACE. SACEUR
(26) L t r f r o m G e n e r a l Heus inge r to SACEUR, 11 J u n 57. (27) S H A P E / 1 0 / 5 7 , 23 J a n 57, w / e n c l . A n n e x t o M O D G e r m a n y I V A l 706 /56
, - . , ' .. V\~ ' • • =V'': 1 >N • :. :
WA1I1U JlilCjKiLI
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r e p l i e d t o t h e s e p r o p o s a l s by u r g i n g t h a t e v e r y e f f o r t be m a d e by G e r m a n y
to a t t a i n a c o m p l e t e b u i l d - u p of a i r s t r e n g t h at the e a r l i e s t p o s s i b l e da t e ,
and to ld G e r m a n a u t h o r i t i e s tha t t h e p l a n n e d c o m p o s i t i o n of t h e G e r m a n
Ai r F o r c e ( for d e t a i l s of t h i s p l a n s e e l e t t e r NAI 9 8 / 1 1 1 / 5 6 S t r . Geb . ,
8 Sep 56) and t he s c h e d u l e f o r b u i l d - u p ( s e e l e t t e r , N M R / D / 1 1 9 5 1 56,
17 Nov 56) w e r e in g e n e r a l a c c o r d wi th S H Ä P E ' s p l ann ing f o r t h e u l t i m a t e
c o m p o s i t i o n of Ai r F o r c e s C e n t r a l E u r o p e , wi th one e x c e p t i o n . T h i s ex -
c e p t i o n w a s in t he f i e l d of r e c o n n a i s s a n c e a i r c r a f t w h e r e SACEUR b e l i e v e d
t h e t a c t i c a l r e c o n n a i s s a n c e c a p a b i l i t y of the p l a n n e d G e r m a n Ai r F o r c e
shou ld b e i n c r e a s e d , p r o b a b l y at t h e e x p e n s e of I D F c a p a b i l i t y .
•The G e r m a n A i r F o r c e would have t o f i t in to t he s c h e m e then being
l a i d f o r Ai r D e f e n s e of E u r o p e ( s e e Air D e f e n s e C h a p t e r ) and t he f u t u r e
o r g a n i z a t i o n of t h e A T A F s . "S ince t h e r e wi l l be t i m e in wh ich t o r e s o l v e
t h e d e t a i l s of t h i s m a t t e r , " G e r m a n o f f i c i a l s w e r e to ld , "you should p r o -
c e e d a s p l a n n e d and t h r o u g h your c l o s e c o o r d i n a t i o n wi th AIRCENT we
c a n r e a l i z e b e n e f i c i a l u n i f o r m i t y of e f f o r t t o w a r d a s t r o n g Al l i ed Ai r F o r c e
f o r C e n t r a l E u r o p e . ' ^ 2 8 )
T h e S c h l e s w i g - H o l s t e i n P r o b l e m .
The p r o b l e m of w h o s e f o r c e s should de fend S c h l e s w i g - H o l s t e i n had
long b e e n a t h o r n y one . Dur ing 1957 c e r t a i n d e v e l o p m e n t s m a d e i t even
m o r e so . Since 1947, t h e Dan i sh G o v e r n m e n t had m a i n t a i n e d f o r c e s in
t h e G e r m a n p r o v i n c e of S c h l e s w i g - H o l s t e i n . T h e s e f o r c e s w e r e a s s i g n e d
to SACEUR in 1951, but t he l aw p e r m i t t i n g i t s f o r c e s to be kep t t h e r e w a s
t o e x p i r e on 15 May 1957. On 19 F e b r u a r y 1957, CINCNORTH i n f o r m e d
SACEUR tha t he had l e a r n e d t h a t the Dan ish G o v e r n m e n t p l a n n e d to wi th -
d r a w i t s f o r c e s f r o m Sc h ie sw ig -Ho l s t e i n not l a t e r t h a n 15 N o v e m b e r 1957,
a s k i n g only f o r a s i x - m o n t h s r e n e w a l of the Danish l a w to a l low t h i s .
(28) Litr, O r g a n i z a t i o n of t h e G e r m a n Air F o r c e and i t s i n t e g r a t i o n in to ACE, S H A P E / 1 2 / 3 7 , 21 J a n 57, sgd Schuy le r .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
G e n e r a l Sugden to ld G e n e r a l N o r a t a d tha t a l though G e r m a n f o r c e s w e r e
u l t i m a t e l y s c h e d u l e d to t a k e ove r t h i s v i t a l p o r t i o n of h i s r e s p o n s i b i l i t y ,
he had no a s s u r a n c e tha t t hey would be p r e p a r e d to a c c e p t t h i s c o m m i t -
m e n t by 15 N o v e m b e r 1957. He could not a g r e e t o a Dan i sh w i t h d r a w a l
go t i a t i ons wi th t h e D a n i s h and G e r m a n a u t h o r i t i e s to f ind out at what d a t e (29)
t h e G e r m a n f o r c e s cou ld t a k e over the d e f e n s e of S c h l e s w i g - H o l s t e i n .
D e n m a r k did ex tend t h e D e f e n s e Bi l l t o p e r m i t i t s f o r c e s to be s t a -
t i oned in S c h l e s w i g - H o l s t e i n un t i l m i d - N o v e m b e r , but at t h e s a m e t i m e
i n d i c a t e d a s t r o n g d e s i r e to w i t h d r a w Dan i sh f o r c e s f r o m G e r m a n y at t h a t
t i m e . In addi t ion , t he Un i t ed Kingdom s t a t e d t h a t i t i n t ended to w i t h d r a w
t h e B r i t i s h f o r c e s wh ich w e r e t hen l o c a t e d in S c h l e s w i g - H o l s t e i n du r ing the
f i r s t t h r e e m o n t h s of 1958. L e a r n i n g of t h i s , G e n e r a l N o r s t a d d i r e c t e d
CINCNORTH to c o n f e r wi th t h e MODs of D e n m a r k and G e r m a n y to d e t e r -a r m y
m i n e the t i m e a t wh ich the GermanAvould be ab le t o t a k e over the r e s p o n -
s i b i l i t i e s then a s s i g n e d to the c o m b i n e d D a n i s h / B r i t i s h f o r c e s in t h e a r e a .
By J u n e the r e s u l t s of t h e s e n e g o t i a t i o n s thad been f o r w a r d e d to SACEUR
and had been t h o r o u g h l y e v a l u a t e d by the s t a f f . They po in t ed to the i n e s -
c a p a b l e f a c t tha t G e r m a n y did not i n t end to t a k e ove r r e s p o n s i b i l i t y f o r
t h e a r e a in t i m e to p e r m i t w i t h d r a w a l of Dan i sh and B r i t i s h f o r c e s a s
p l a n n e d . A c c o r d i n g l y , on 27 J u n e 1957 G e n e r a l N o r s t a d a d d r e s s e d the
M i n i s t e r s of D e f e n s e of t h e UK, D e n m a r k and G e r m a n y , poin t ing out to
t h e m the c o n s i d e r a b l e r i s k s wh ich would be invo lved if t h e s e w i t h d r a w a l s
w e r e c a r r i e d out p r e m a t u r e l y . He to ld t h e m t h a t t he c o m b i n e d Dan i sh and
UK f o r c e s then in S c h l e s w i g - H o l s t e i n , whi le s m a l l , w e r e v i t a l t o the
d e f e n s e of both S c h l e s w i g - H o l s t e i n and J u t l a n d . B e c a u s e of i t s s i z e t h i s
f o r c e could only c o n t r i b u t e to a de lay ing ac t ion by c o v e r i n g i m p o r t a n t d e -
m o l i t i o n s , but if G e r m a n f o r c e s w e r e added , i t would a l low a t r u e f o r w a r d
s t r a t e g y . A w i t h d r a w a l a s p r o p o s e d by t h e two c o u n t r i e s at t h i s t i m e would
on tha t date f o r m i l i t a r y r e a s o n s . He a s k e d G e n e r a l N o r s t a d to beg in n e -
(29) J ladio , A F N 14* /CS , 19 F e b 57.
63
-N TO pjfnrfl 1,1
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r e d u c e t h e d e f e n s i v e capab i l i t y s i gn i f i c an t l y in t h i s i m p o r t a n t a r e a un t i l
G e r m a n f o r c e s w e r e f u l l y o p e r a t i o n a l . It w a s t r u e tha t in n u m b e r s t h e
p r o p o s e d G e r m a n f o r c e s would soon be g r e a t e r t h a n t h e n u m b e r of t r o o p s
t hen in t h e a r e a . H o w e v e r , t h e G e r m a n t r o o p s would not f o r s o m e t i m e
p o s s e s s a s u f f i c i e n t s t a n d a r d of t r a i n i n g , would not be a d e q u a t e l y equipped,
and would l a c k su f f i c i en t s t a f f , s igna l , r e c o n n a i s s a n c e and l o g i s t i c s s y s - '
t e r n s to c a r r y out any excep t l i m i t e d o p e r a t i o n a l t a s k s . Generad N o r s t a d
p o i n t e d out tha t in the event of a p r e m a t u r e w i t h d r a w a l of a s s i g n e d f o r c e s '
t h e d e m o l i t i o n p l a n could not be c a r r i e d out if t h e a r e a w e r e a t t a c k e d .
G r o u n d con tac t and l i a i s o n with CINCNORTH and CINCENT would be d i s -
r u p t e d and t h e c o m m a n d and c o m m u n i c a t i o n s f o r f o r c e s in S c h l e s w i g - H o l s -
t e i n would be i n a d e q u a t e .
He r e c o m m e n d e d s t r o n g l y tha t t he MODs of the Uni ted Kingdom and
D e n m a r k g r a n t an ex t ens ion of t i m e f o r t h e i r f o r c e s to s t ay in Sch leswig-
H o l s t e i n and tha t t he M i n i s t e r of D e f e n s e of G e r m a n y deve lop a p l an which
would e n a b l e the c o m p l e t e a s s u m p t i o n of a u t h o r i t y by G e r m a n f o r c e s in
S c h l e s w i g - H o l s t e i n by 15 Apr i l 1958.^3°^
As a r e s u l t of G e n e r a l N o r s t a d ' s appea l in t h i s r e g a r d , t h e UK and
D e n m a r k did a p p r o v e keep ing t h e i r r e s p e c t i v e f o r c e s in S c h l e s w i g - H o l s t e i n
un t i l 15 A p r i l 1958, and t h e MOD G e r m a n y s t a t e d tha t h i s na t ion would be (3T r e a d y to a s s u m e r e s p o n s i b i l i t y fo r d e f e n s e of the a r e a on 15 A p r i l 1958.v - '
G r o u n d Atomic D e l i v e r y F o r c e s .
T h e i n t r o d u c t i o n of m o d e r n w e a p o n s d e l i v e r y s y s t e m s in to h i s Shield
f o r c e s w a s a m a t t e r which SACEUR c o n s i d e r e d e x t r e m e l y u r g e n t . To o f f -
se t both t h e s h o r t a g e s of g round f o r c e s and to m e e t t h e i n c r e a s i n g Soviet
(30) S H A P E / 1 3 8 / 5 7 , 27 J u n 57, " T h e M i l i t a r y Si tuat ion in Sch leswig-H o l s t e i n . "
(31) R a d , LOSTAN 2247, 30 Oct 57; L t r , SACEUR t o C h a i r m a n SGN, 30 Aug 57; R a d , SACEUR to MOD G e r m a n y , SH 39455, 31 Oct 57.
i:. . y t / i ' . ' -M
N A T O ^ - S E U I H r r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
nato comroemml NATO SfECRET •
c a p a b i l i t y in new w e a p o n s , ac t ion con t inued th roughou t 1957 to b r ing
about the i n t r o d u c t i o n of G r o u n d Atomic D e l i v e r y F o r c e s . I
In l a t e 1955 SACEUR had a s k e d the Standing Group to a p p r o v e r e q u i -
r e m e n t s f o r Ground A t o m i c D e l i v e r y F o r c e s f o r Al l ied F o r c e s Southern
E u r o p e and add i t i ona l ly tha t t h e s e a u t h o r i t i e s " t a k e a p p r o p r i a t e ac t ion
t o w a r d f u l f i l l m e n t of t h e s e r e q u i r e m e n t s . " The Standing Group had a p p r o v e d
t h e s e r e q u i r e m e n t s in p r i n c i p l e and had a s k e d SACEUR to submi t g r o u n d (32)
a t o m i c d e l i v e r y r e q u i r e m e n t s f o r t h e r e m a i n d e r of h i s c o m m a n d .
With the s u b m i s s i o n by CINCENT and CINCNORTH of t h e i r e s t i m a t e s
of t y p e s and n u m b e r s of g round a t o m i c d e l i v e r y f o r c e s tha t they would r e -
q u i r e t o de fend t h e i r s e c t o r s , SHAPE f o r w a r d e d to t h e Standing Group a
conso l i da t ed r e q u e s t f o r f u l f i l l m e n t of t h e s e r e q u i r e m e n t s . T h e s e had b e e n
f o r m u l a t e d f r o m EDP c o n c e p t s and had been p r o j e c t e d to inc lude a f o r e c a s t (33)
f o r suppor t of the C a p a b i l i t i e s P l a n A C E 1957.v '
G e n e r a l N o r s t a d , in f o r w a r d i n g h i s r e q u e s t , s a id s i g n i f i c a n t l y : "It i s
r e c o g n i z e d tha t t h e r e a r e m a n y l e g a l , po l i t i c a l and l o g i s t i c a l p r o b l e m s to
be so lved in t r a n s l a t i n g the r e q u i r e m e n t s of A C E into a t r u l y i n t e g r a t e d
a t o m i c d e l i v e r y capab i l i t y f o r a l l g round f o r c e s . "
In r e p l y to G e n e r a l N o r s t a d 1 s r e q u e s t f o r g r o u n d a t o m i c d è l i v e r y
f o r c e s , t he Standing Group told h i m tha t wh i l e h i s l e t t e r p r o v i d e d a v a l u a b l e
con t r ibu t ion to p lann ing f o r i n t e g r a t i o n of n u c l e a r f i r e suppor t in to NATO «
ground f o r c e s , i t w a s i m p r a c t i c a b l e to ac t on t h i s l e t t e r . The f o r t h c o m i n g
r e - e x a m i n a t i o n of f o r c e s t r u c t u r e m a d e i t d e s i r a b l e , t he Standing Group
sa id , tha t SACEUR' s r e q u i r e m e n t s fo r a t o m i c d e l i v e r y f o r c e s be hand led (34) a s an i n t e g r a l p a r t of h i s o v e r a l l M i n i m u m F o r c e S t r u c t u r e .
(32) S H A P E / 4 6 5 / 5 5 , 3 Dec 55, and SGM-708056, 15 Oct 56. (33) F o r de t a i l ed l i s t i ng of t h e s e r e q u i r e m e n t s and o the r backb round , s e e
S H A P E / 1 4 / 5 7 , 25 J a n 57, L t r to SGN, R e q u i r e m e n t s f o r Ground Atomic D e l i v e r y F o r c e s , Al l ied F o r c e s C e n t r a l E u r o p e and N o r t h e r n E u r o p e . It should be b o r n e in m i n d tha t t he M i n i m u m F o r c e Study 1958-63 and MC 70 p r o d u c e d s o m e w h a t d i f f e r e n t r e q u i r e m e n t s .
(34) SGN/155 /57 , 1 M a r 57. nato confidential
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
The ex i s t i ng u n r e s t in the Midd le E a s t and the g rowing Soviet t h r e a t
in t h a t a r e a i m p e l l e d SACEUR t o p r e s s f o r s p e c i f i c g r o u n d a t o m i c f o r c e s
in W e s t e r n T u r k e y . He a s k e d t h e Standing Group on 25 M a r c h to r e q u e s t
t h e Un i t ed S ta t e s to deploy to t h e T u r k i s h S t r a i t s a r e a one HONEST JOHN
b a t t a l i o n wi th t e c h n i c a l and s e r v i c e suppor t un i t s f r o m the Uni ted S ta tes
and wi th s e c u r i t y and s p e c i a l p u r p o s e t r o o p s f r o m T u r k e y . F r o m a m i l i -
t a r y po in t of v i ew t h i s f o r c e would i n c r e a s e t h e s e c u r i t y of a m o s t v u l n e -
r a b l e p o r t i o n of t h e s o u t h e a s t f l ank of A C E and would have d e s i r a b l e p s y -
c h o l o g i c a l a d v a n t a g e s . T h i s r e q u e s t f r o m SACEUR did not in any way
c h a n g e t h e r e q u i r e m e n t s a l r e a d y s t a t e d f o r two HONEST JOHN and two (35)
CORPORAL, b a t t a l i o n s f o r d e f e n s e of W e s t e r n T u r k e y / '
Yea r End A s s e s s m e n t .
Fo l lowing h i s f i r s t y e a r a s SACEUR, G e n e r a l N o r s t a d w a s ab le to
r e p o r t s l ight i m p r o v e m e n t s in s o m e a s p e c t s of h i s c o m b a t f o r c e s s i tua t ion ,
a l though he did not m i n i m i z e in any way to the Standing Group the s e r i o u s -
n e s s of t h e d e f i c i e n c i e s wh ich con t inued to r e m a i n unso lved . In t h e Nor th
and in the South, t h e r e had been dur ing 1957 s o m e i m p r o v e m e n t in the d e v e l -
o p m e n t of l and f o r c e s . R e o r g a n i z a t i o n had b rough t about t h i s s l ight b e t t e r -
m e n t , but in t h e s e a r e a s m u c h s u b s t a n t i v e i m p r o v e m e n t would have to be
m a d e . In the South, p a r t i c u l a r l y , a s e r i o u s w e a k n e s s w a s no ted in the l ack
of a g r o u n d n u c l e a r c a p a b i l i t y in t h e a r e a of the T u r k i sh S t r a i t s .
Bdh quan t i t a t i ve ly and qua l i t a t i ve ly , t h é C e n t e r f o r c e s f e l l s h o r t
of t h e goa l . The s u b s t a n t i a l r e d u c t i o n of B r i t i s h f o r c e s , a c t u a l and planned, ,
and t h e f a i l u r e of t h e F r e n c h G o v e r n m e n t to p r o v i d e s c a r c e l y one half of
t h e M - d a y d i v i s i o n s p r o m i s e d , w e r e p r i m a r y c a u s e s of w e a k n e s s . And the
f i v e G e r m a n d i v i s i o n s a s s i g n e d d u r i n g 1957, of the twe lve r e q u i r e d , had not
had t i m e to b e c o m e fu l l y t r a i n e d and c o m b a t r e a d y .
(35) L t r , Ground A t o m i c Suppor t C o m m a n d f o r D e f e n s e of T u r k i s h S t r a i t s , SACEUR to C h a i r m a n SGN, 25 M a r c h 1957.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m r o G Q M m z m A L \
With r e g a r d t o h i s a i r f o r c e s , G e n e r a l N o r s t a d r e p o r t e d , " T h e r e
h a s b e e n a cons ide rab le i m p r o v e m e n t du r ing 1957 in t h e o v e r a l l c o m b a t
e f f e c t i v e n e s s of t he Ai r F o r c e s . T h e m o d e r n i z a t i o n p r o g r a m , s t a r t e d
in 1956 and con t inued t h r o u g h o u t 1957, h a s i n c r e a s e d t h e c o m b a t po t en t i a l • • • U ' '
of a i r u n i t s . " '. - '
C o m m e n t i n g ' o n h i s n a v a l - s t r e n g t h , SACEUR p o i n t e d out the a d v e r s e
e f f e c t s of o b s o l e s c e n c e which , w h i l e being r e d u c e d s lowly , s t i l l r e m a i n e d
a s e r i o u s h ind rance to f u l l c o m b a t e f f e c t i v e n e s s of n a v i e s c o n t r i b u t i n g t o
A C E d e f e n s e .
Ca l l ing f o r g r e a t e r e f f o r t s to a t t a in f u l l e f f e c t i v e n e s s in a l^areas ,
G e n e r a l N o r s t a d said!, " I hope tha t na t i ona l a u t h o r i t i e s wi l l m a k e an eve r
i n c r ê a s i n g e f fo r t_ to i m p r o v e t he s t a n d a r d s of o r g a n i z a t i o n and training of
t h e i r m i l i t a r y f o r c e s and of t h e i r l o g i s t i c sys . tems, BO t ha t e a c h na t ion
c a n m a k e i t s m a x i m u m c o n t r i b u t i o n to the A C E m i s s i o n . In p a r t i c u l a r
I e m p h a s i z e t h e n e e d f o r p r o g r e s s in t he f i e l d of a l e r t , d i s p e r s a l and s u r -{36 v iva l m e a s u r e s . Our f i r s t ob l iga t ion i s to m a k e t h e m o s t of wha t we h a v e . 1 "
(36) S A C E U R ' s C o m b a t E f f e c t i v e n e s s R e p o r t 1957, S H A P E / 2 0 / 5 8 , 1 M a r 58, w / L t r of T r a n s m i t t a l .
67
MÂTOTOMFf lO lM ï i lÂL 1
NATO BM^ITBT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SHAPE 5 7 / 6 7 N -, Ti ' ^; , • • _ - T 1 I ' ' ' j '* I - J ?
i n î Â ^ ^ S v ^ i l l '.Li 'l : ; . L^ :• C H A P T E R IV
T h e ACE MINIMUM F O R C E STUDY - 1958-1963
Plamning Gu idance - G e n e r a l .
The N o r t h At lan t i c Counci l p r o v i d e d t h e m i l i t a r y a u t h o r i t i e s of NATO
wi th p o l i t i c a l , e c o n o m i c and s t r a t e g i c gu idance and e s t a b l i s h e d the bounds
wi th in which m i l i t a r y p lann ing m i g h t p r o c e e d . W h e n e v e r t h e Counci l a c t e d
upon m i l i t a r y s u b j e c t s or r e c o m m e n d a t i o n s , t h e NATO m i l i t a r y a u t h o r i t i e s
v i ewed such a c t i o n s a s p r o v i d i n g gu idance in r e s p e c t to the s u f f i c i e n c y and
a c c e p t a b i l i t y of t h e m a t t e r s in ques t i on . The s u m m a t i o n of such ac t ions bui l t
up a f r a m e w o r k f o r f u r t h e r p r o g r e s s i v e p l a n n i n g . ^
The f r a m e w o r k of gu idance ex i s t ing when G e n e r a l N o r s t a d a s s u m e d
c o m m a n d had been e s t a b l i s h e d by Counci l ac t ion on t h e s u c c e s s i v e Annual
R e v i e w s ; by t h e r e s o l u t i o n se t t ing f o r t h the f r a m e s of r e f e r e n c e f o r ensu ing
Annual R e v i e w s ; by a c t i o n s such a s tha t t a k e n in C-M(55)120 , which se t f o r t h
p r o c e d u r e s to f a c i l i t a t e d e f e n s e p lann ing ; and by f u r t h e r ac t ions a s e x a m p l i f i e d
by C-R(52)31 (ac t ion on MC 3 / 5 " S t r a t e g i c Concept f o r D e f e n s e of t h e NAT
A r e a " ) and C-R(52 )34 (ac t ion on MC 1 4 / l " S t r a t e g i c Gu idance" ) . ^
B a s i c gu idance s t e m m e d a l s o f r o m t h e N o r t h At lan t ic T r e a t y , t h e G r e e c e
T u r k e y p r o t o c o l of 1951, and the London and P a r i s A g r e e m e n t s of 1954.
While t h e o v e r a l l m i s s i o n of t h e NATO m i l i t a r y a u t h o r i t i e s , to d e t e r
a g g r e s s i o n and to de fend the NATO a r e a , had r e m a i n e d u n a l t e r e d over the
(1) C-M(56)104, 28 Aug 56. (2) C - M ( 5 5 ) l 2 0 , 6 Dec 55, D r a f t R e s o l u t i o n on D e f e n s e P l a n n i n g ;
C-R(52)31, 3 Dec 52, S u m m a r y R e b o r d of Mee t ing 3 Dec 52; MC 3 / 5 ( F i n a l ) , 3 Dec 52, S t r a t eg i c Concept f o r t h e D e f e n s e of t h e NAT A r e a ; C-R(52)34 , 11 Dec 52, S u m m a r y R e c o r d o f M e e t i n g , 11 Dec 52; MC 14 /1 (F ina l ) , 9 Dec 52, NATO S t r a t eg i c Gu idance . ( T h e s e d o c u m e n t s a r e a v a i l a b l e in AG C e n t r a l R e c o r d s , SHAPE). D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
I A P E L 5 7 / 6 7
iI Y „
M u c i ' ^ ^
y e a r s , c e r t a i n s i gn i f i c an t c h a n g e s in g u i d a n c e had r e s u l t e d f r o m s u c c e s s i v e
d e c i s i o n s or r e s o l u t i o n s of t h e Counc i l .
As a r e s u l t of Counci l R e s o l u t i o n C-M(53)166, t h e m i l i t a r y had been
d i r e c t e d to p l a n in t e r m s of t h e m o s t e f f e c t i v e p a t t e r n of m i l i t a r y s t r e n g t h
wi th in t h e r e s o u r c e s which i t w a s a n t i c i p a t e d m i g h t be m a d e a v a i l a b l e . T h e s e w e r e t h e p lann ing g o a l s f o r 1956 a s a p p r o v e d in t h e 1953 Annual R e v i e w . (3)
P l a n n i n g f o r t h e G e r m a n A c c e s s i o n to NATO.
P l a n n i n g f o r t h e G e r m a n c o n t r i b u t i o n had been d i r e c t e d by t h e M i l i t a r y
C o m m i t t e e in C-M(53)166 in 1953, and c o n f i r m e d by the Counci l in 1954.
T h i s c o n t r i b u t i o n , added to t h e o r d e r of m a g n i t u d e of f o r c e s a l r e a d y i n d i c a t e d
and t a k e n t o g e t h e r wi th an i n t e g r a t e d a t o m i c capab i l i ty , had p e r m i t t e d t h e
c h a n g e to t h e F o r w a r d S t r a t e g y concep t which w a s r e f l e c t e d in MC 48, a p p r o v e d
by t h e Counci l in 1 9 5 4 . ^
A C E C a p a b i l i t i e s P l a n 1957.
T h e m o s t s i gn i f i c an t p lann ing ac t ion t a k e n at SHAPE s i n c e i t s incep t ion
had b e e n t h e d e v e l o p m e n t of t h e A C E C a p a b i l i t i e s P l a n 1957, begun in m i d -
1953 and p u b l i s h e d in 1954. T h i s s tudy, which con ta ined n u m e r o u s m a j o r
p o l i c y r e c o m m e n d a t i o n s , had been b a s e d l a r g e l y on the a s s u m p t i o n , fo r the
f i r s t t i m e , tha t a t o m i c and n u c l e a r w e a p o n s would be emp loyed . It had de f ined
n i n e m a j o r c a m p a i g n s and had s e t out t h e f o r c e s which would be n e e d e d to
f igh t t h e s e s u c c e s s f u l l y .
NATO P o l i t i c a l and E c o n o m i c Gu idance .
In i t s m o s t r e c e n t r e s t a t e m e n t of f u n d a m e n t a l NATO p o l i t i c a l and
(3) C-M(53)166 , 10 Dec 53, and C-M(53)165 a r e D r a f t R e s o l u t i o n s on the 1953 Annual R e v i e w .
(4) C - M ( 5 4 ) l 18, 14 Dec 54, R e s o l u t i o n on t h e Annual R e v i e w and R e l a t e d P r o b l e m s .
C-R(54)50 , 17 Dec 54, and C-R(55)59 , 15 Dec 55, a r e R e c o r d s of Counci l M e e t i n g s . M C 48 wi l l be d i s c u s s e d subsequen t ly .
-Y , --J
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO c o m NTiAL
m e c o n o m i c gu idance , con t a ined in C-M(55)120 and C-M(56)51 , t h e Counci l
had d i r e c t e d t h e m i l i t a r y to c o n c e n t r a t e on t h e m o a t e f f e c t i v e p a t t e r n of
f o r c e s , c o n s i s t e n t wi th t h e p r i n c i p l e s and o b j e c t i v e s ou t l ined in t h e MC 48
s e r i e s , p r a c t i c a b l e wi th in t h e l e v e l of the r e s o u r c e s l i k e l y to be a v a i l a b l e
f o r d e f e n s e . T h e Counci l a l s o s t a t e d t h a t it would t e l l m i l i t a r y a u t h o r i t i e s
of any s ign i f i can t c h a n g e s in the l eve l of r e s o u r c e s l i k e l y to be a v a i l a b l e a s
a r e s u l t of c h a n g e s in t h e p o l i t i c a l o r e c o n o m i c s i tua t ion . I n t h e a b s e n c e of
adv ice f r o m the Counci l t ha t c h a n g e s in t h e pol i t ica l or e c o n o m i c s i tua t ion
had t a k e n p l a c e , t h e m i l i t a r y a u t h o r i t i e s had a d h e r e d to t h e c o n c e p t s of t h e (5) MC 48 s e r i e s p a p e r s in a l l p l ann ing .
F o r c e s Ava i l ab le to SACEUR f o r I m p l e m e n t a t i o n of S t r a t e g i c Concept .
On the day fo l lowing G e n e r a l N o r s t a d 1 s a s s u m p t i o n of c o m m a n d a s
SACEUR, he r e c e i v e d f r o m the Standing Group a r e - s t a t e m e n t of the p o s i t i o n
of N A T O ' s m i l i t a r y f o r c e s / 6 ^
The Standing Group r e v i e w e d the m i l i t a r y r e q u i r e m e n t s to i m p l e m e n t
t h e ex i s t ing s t r a t e g i c concep t and r e p o r t e d on the p r o g r e s s tha t had been
m a d e in fu l f i l l i ng t h e s e r e q u i r e m e n t s . They f e l t tha t c e r t a i n b a s i c d e f e n s e
r e q u i r e m e n t s would r e m a i n v a l i d r e g a r d l e s s of any c h a n g e s in t h e s t r a t e g i c
concept which m i g h t r e s u l t f r o m expec ted p o l i t i c a l gu idance .
The Counci l had e s t a b l i s h e d t h r e e r e q u i s i t e s f o r the i m p l e m e n t a t i o n of
t h e MC 48 concep t . T h e s e w e r e : t he bu i l d -up of f o r c e s to a g e n e r a l o r d e r
of m a g n i t u d e not l o w e r t han the 1956 p l a n n e d g o a l s e s t a b l i s h e d in t h e 1953
Annual R e v i e w ; an a p p r o p r i a t e con t r ibu t ion to NATO f o r c e s by t h e F e d e r a l
Repub l i c of G e r m a n y ; and an i n t e g r a t e d a t o m i c capabi l i ty . None of t h e s e had
b e e n fu l l y a t t a ined . N e i t h e r t h e g round , s e a nor a i r f o r c e s ava i l ab l e t o G e n e r a l
N o r s t a d had a t t a ined t h e m a g n i t u d e or equ iva len t f igh t ing v a l u e d e t e r m i n e d
to be e s s e n t i a l to t h e i m p l e m e n t a t i o n of t h e MC 48 concep t and the F o r w a r d
(5) C-M(56)104, 28 Aug 56. (6) SGM-791-56 , 21 Nov 56; s e e also SG 184 /7 , 14 Dec 56, Appendix A,
SGN eva lua t ion of SACEUR' s E m e r g e n c y D e f e n s e P l a n .
NATO CONFID
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S t r a t e g y . Al though t h e G e r m a n G o v e r n m e n t had i n d i c a t e d p l a n s to p r o v i d e
a s i g n i f i c a n t c o n t r i b u t i o n to NATO d e f e n s e by t h e end of 1957, t h e f u l l con-
t r i b u t i o n f r o m Germsuiy w a s not e x p e c t e d to be a v a i l a b l e unt i l a f t e r 1959.
T h e 1956 Annual R e v i e w showed a m a r k e d d e c r e a s e in t h e a v a i l a b i l i t y of
a r m y M - d a y u n i t s in Al l ied C o m m a n d E u r o p e , W i t h d r a w a l s of f o r c e s t o g e t h e r
wi th s o m e r e o r g a n i z a t i o n had d e p l e t e d t h e a r m y f o r c e s in t h e C e n t r a l Reg ion
to t h e ex ten t t ha t CINCENT had g r a v e r e s e r v a t i o n s r e g a r d i n g h i s ab i l i ty t o
c a r r y out h i s a s s i g n e d m i s s i o n in c a s e of w a r . The nava l f o r c e s had not
a t t a i n e d t h e r e q u i r e d l e v e l , and t h e f o r e c a s t fo r t h e f u t u r e w a s not p a r t i c u l a r l y
b r i g h t . Al though a i r f o r c e s a v a i l a b l e to SACEUR w e r e s t i l l be low t h e r e q u i r e d
l e v e l s , p r o g r e s s had been m a d e t o w a r d s ach iev ing t h e a g r e e d g o a l s . The
a t o m i c c a p a b i l i t y of t h e f o r c e s a v a i l a b l e to SACEUR had i m p r o v e d c o n s i d e r -
ab ly . R e q u i r e m e n t s f o r a g r o u n d d e l i v e r y c a p a b i l i t y had been d r a w n up f o r
t h e Sou the rn C o m m a n d , and t h e N o r t h e r n and C e n t r a l C o m m a n d s w e r e p r e -
p a r i n g s i m i l a r s t u d i e s . I m p l e m e n t a t i o n had a l r e a d y begun in t h e South. This
c a p a b i l i t y w a s , of c o u r s e , in addi t ion to f o r c e s r e t a i n e d u n d e r na t iona l c o m -
m a n d , wi th wh ich SACEUR' s p l a n s w e r e c o o r d i n a t e d .
S A C E U R ' s 1960-62 Study.
In 1956 t h e S H A P E Staff had m a d e a s tudy of the m i l i t a r y s i tua t ion which
would l i k e l y ex i s t in t h e y e a r s 1960-62 , and had e s t i m a t e d a s c l o s e l y a s p o s s i -
b l e t h e n u m b e r and t y p e s of t r o o p s and r e s o u r c e s which would be r e q u i r e d .
T h i s s tudy had been sen t to a l l a p p r o p r i a t e m i l i t a r y c o m m a n d e r s , to the n a -(7)
t i o n s invo lved , and t o S A C E U R ' s s u p e r i o r s in W a s h i n g t o n / '
D i v e r g e n c i e s of SACEUR and SACLANT F o r c e P o s t u r e S tud ies .
The Standing Group , upon e x a m i n i n g SACEUR's F o r c e P o s t u r e Study
and a s i m i l a r s tudy by SACLANT, had d e t e r m i n e d t h a t t h e r e w e r e c e r t a i n
d i f f e r e n c e s in b a s i c concep t which had to be r e s o l v e d b e f o r e t h e s e s t u d i e s
cou ld be a c c e p t e d by t h e Counci l a s the b a s i s f o r any de f in i t e ac t ion . T h e s e
(7) S H A P E / 2 3 1 / 5 6 , 28 Sep 56, F o r c e P o s t u r e Al l ied C o m m a n d E u r o p e 1960-62
^ a m m m m C O s m i C J T O P S t C R E T 1
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATCL C O ® DENTÏÂL
^ I w ^ f î t I d i f f e r e n c e s in concep t w e r e a s f o l l o w s . SHAPE had only c o n s i d e r e d t h e
p e r i o d f r o m i960 to 1962, but SACLANT had p r o j e c t e d h i s s tudy f o r w a r d
to 1967, a f a c t o r which m a d e c o m p a r i s o n of the two s t u d i e s e x t r e m e l y d i f f i -
cu l t , SACLANT had v i s u a l i z e d v a r i o u s t y p e s of w a r , r a n g i n g f r o m cold w a r
t h r o u g h l i m i t e d w a r , t o g e n e r a l n u c l e a r w a r . In t h i s l ight , he be l i eved tha t
the n a t i o n s of NATO, both in t h e i r na t iona l and t h e i r NATO r o l e s , m u s t
m a i n t a i n f l e x i b i l i t y to r e a c t wi th or wi thout e m p l o y m e n t of n u c l e a r w e a p o n s .
SACEUR, on t h e o the r hand, env i s aged only a g e n e r a l n u c l e a r w a r and s t a t e d
tha t w h e t h e r or not the Sovie ts u t i l i z e d n u c l e a r w e a p o n s , NATO m u s t do so
f r o m the o u t s e t .
A second v a r i a t i o n s p r a n g f r o m t h e d i f f e r e n t p o i n t s of v i ew which the
two c o m m a n d e r s e n t e r t a i n e d on t h e g e n e r a l n u c l e a r w a r . SACEUR f o r e s a w
a w a r of two p h a s e s in which o r g a n i z e d m i l i t a r y o p e r a t i o n s would not go beyond
30 days and the i n i t i a l p h a s e would be d e c i s i v e . SACLANT, on the o the r hand,
though v i s u a l i z i n g a w a r of two p h a s e s , did not c o n s i d e r t ha t t he f i r s t p h a s e
would n e c e s s a r i l y d e t e r m i n e t h e o u t c o m e . He be l i eved tha t w h e t h e r or not
the f i r s t p h a s e w a s d e c i s i v e , it m igh t not be a p p a r e n t at t he t i m e .
T h e s e conf l i c t ing v i e w s , of c o u r s e , p r o d u c e d a d i f f e r e n c e in e m p h a s i s .
While SACEUR e m p h a s i z e d D-day and f i r s t eche lon f o r c e s , SACLANT t e n d e d (8)
to e m p h a s i z e t h e f o r c e s f o r both p h a s e s .
When the Standing Group m e t wi th the M a j o r NATO C o m m a n d e r s in P a r i s
on 4 D e c e m b e r 1956, t h e s e d i f f e r e n c e s in concep t c a m e under d i s c u s s i o n .
SACEUR told t h e Standing Group tha t he did not be l i eve t h e s e d i v e r g e n c i e s
which they had po in t ed out w e r e so g r e a t a s migh t a p p e a r . He f e l t tha t t h e y
w e r e p lac ing too n a r r o w an i n t e r p r e t a t i o n upon h is s tudy and e x p r e s s e d wi l l i ng -
n e s s f o r h i s s taff to w o r k wi th S A C L A N T ' s Staff in an a t t e m p t to r e c o n c i l e
any d i f f e r e n c e s . SACLANT a g r e e d tha t t h e two s t u d i e s cou ld c e r t a i n l y be r e -
conc i l ed . CINCHAN's r e p r e s e n t a t i v e who w a s p re sen t s t a t e d tha t h i s c o m m a n d e r 1,%) SGM-706-56 , M e m o f o r M e m b e r s of t h e M i l i t a r y C o m m i t t e e , 16 Npv 56,
Long R a n g e P a t t e r n of F o r c e s Studies of SACEUR and SACLANT. •I,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
had d e l i b e r a t e l y d e l a y e d p r e p a r a t i o n of a p a r a l l e l p a p e r to t h o s e of SACEUR
and SACLANT un t i l t h e new P o l i t i c a l D i r e c t i v e had been r e c e i v e d f r o m the
Counc i l . But he i n s i s t e d tha t t he t r e n d a p p a r e n t in the two p a p e r s a l r e a d y
p r e p a r e d w a s d i s t u r b i n g to h i m b e c a u s e of t h e weight g iven to w e a p o n s o the r
t h a n n a v a l . He s t a t e d tha t a lways in h i s t o r y , f r o m the days of C a r t h a g e , t h e (9)
s i d e w h i c h c o m m a n d e d the s e a even tua l ly p r e v a i l e d .
NAC Act ion on t h e SACEUR and SACLANT F o r c e S tudies .
The N o r t h At lan t i c Counci l dec ided tha t b e c a u s e t h e s e d i f f e r e n c e s in
concep t w e r e u n r e s o l v e d , t h e f o r c e s t u d i e s of SACEUR and SACLANT would
not b e a p p r o v e d , but would be r e t u r n e d to t h e m i l i t a r y a u t h o r i t i e s f o r a p p r o -
p r i a t e r e s o l u t i o n of t h e d i f f e r e n c e s .
D e c i s i o n s m a d e at t he M a j o r NATO A u t h o r i t i e s ' M e e t i n g s in D e c e m b e r
1956 had a g r e a t i n f l u e n c e on t h e p lann ing at SHAPE dur ing 1957. The P o l i t i -
ca l D i r e c t i v e which w a s i s s u e d w a s of such a n a t u r e tha t a c o m p l e t e r e v i e w
of t h e s t r a t e g i c concep t (MC 14 s e r i e s ) and the m i n i m u m m i l i t a r y m e a s u r e s
n e c e s s a r y to i m p l e m e n t the concep t (MC 48) had to be u n d e r t a k e n . ^
R e - E x a m i n a t i o n and R e v i s i o n of S t r a t e g i c Concept and M i n i m u m M i l i t a r y M e a s u r e s D o c u m e n t s .
In addi t ion , t h e m i l i t a r y f o r c e o b j e c t i v e s e s t a b l i s h e d at L i s b o n in 1952
and c o u n t r y c o n t r i b u t i o n s to t h e s e f o r c e o b j e c t i v e s e s t a b l i s h e d annua l ly in the
Annual R e v i e w p r o c e s s , had to be r e - e x a m i n e d .
On 3 J a n u a r y the Standing Group to ld SACEUR tha t t hey w e r e going to
r e v i s e t h e s t r a t e g i c concep t and m i n i m u m m e a s u r e s d o c u m e n t s and tha t , b a s e d
on h i s r e v i s e d f o r c e s p o s t u r e p a p e r , t h e y would r e c o m m e n d t h e e s s e n t i a l
f o r c e s p o s t u r e c a l l e d f o r by t h e m i n i m u m m e a s u r e s . They w e r e p r e s s i n g
f o r w a r d with t h i s w o r k on an u r g e n t b a s i s , but an t i c ipa t ed tha t s o m e p h a s e s
(9) M i n u t e s , Mtg of S G N w i t h M a j o r C o m m a n d e r s , 4 Dec 56, SG 3 1 1 t h M t g , STSC 8 0 0 / 5 6 .
(10) See C h a p t e r II, P o l i c y and D i r e c t i o n .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of the s t u d i e s cou ld be u n d e r t a k e n s i m u l t a n e o u s l y . The Standing Group dêài r 'èd
to h a v e both MC 14 and MC 48 a s r e v i s e d r e a d y f o r c o n s i d e r a t i o n by t h e Coun-
ci l t o w a r d t h e end of F e b r u a r y , and to have the r e v i s e d f o r c e s p o s t u r e p a p e r s
in the hands of t h e na t i ona l a u t h o r i t i e s by l a t e Spr ing . Obvious ly , NATO c iv i l
and m i l i t a r y a u t h o r i t i e s w e r e going to h a v e t o t a k e f u r t h e r ac t ion in v iew of
t h e r e v i s i o n of NATO d e f e n s e p lann ing , and to r e v i s e t h e i r own na t iona l d e f e n s e
p r o g r a m s in l i ne wi th t h e new gu idance which would undoubted ly be f o r t h c o m -< (H) ing«
The Standing Group fe l t tha t a f o r e c a s t of na t iona l c o n t r i b u t i o n s f o r
s e v e r a l y e a r s in t h e f u t u r e w a s r e q u i r e d . The Counci l , of c o u r s e , would
d e t e r m i n e how t h i s f o r e c a s t would be ob ta ined and a s s e s s e d , and w h e t h e r
or not any change in t h e Annual R e v i e w p r o c e d u r e s would need to be m a d e .
P l a n n i n g and t h e Annual Rev iew.
The n a t i o n s of Al l ied C o m m a n d E u r o p e had not been g iven new SHAPE
gu idance fo r t h e 1956 Annual Rev i ew . C e r t a i n c o u n t r i e s in p r e p a r i n g t h e
1956 Annual R e v i e w did not submi t f o r c e g o a l s beyond 1957 and w e r e t h e r e -
f o r e having to r e - e x a m i n e t h e i r l a t e r g o a l s . O the r c o u n t r i e s had s u b m i t t e d
f o r c e g o a l s f o r 1958 and 1959 which had been in e x c e s s of the ac tua l r e q u i r e -
m e n t s se t f o r t h in t h e SHAPE 1960-1962 s tudy . T h i s s t e m m e d f r o m t h e l ack
of gu idance by NATO m i l i t a r y a u t h o r i t i e s on f o r c e g o a l s f o r t h e y e a r s a f t e r
1957. On 16 J a n u a r y SACEUR told the Standing Group tha t a n u m b e r of coun -( 12) t r i e s had a l r e a d y a s k e d f o r gu idance a s soon a s p o s s i b l e . '
Rev i ew of I n f r a s t r u c t u r e P r o g r a m s B a s e d on New F o r c e P o s t u r e .
The adopt ion of a f o r c e p o s t u r e env i s ioned in the 1960-1962 s t u d i e s
would a f fec t i n f r a s t r u c t u r e p r o g r a m s i m m e d i a t e l y . The r e v i e w of t h e s e p r o -
g r a m s w a s p r e s s i n g and u r g e n t . They could, h o w e v e r , only be c a r r i e d out if
(11) STAND 1789, 3 J a n 57. See Chapt II f o r d i s c u s s i o n of I P T s and SHAPE 'S p a r t i c i p a t i o n in t h i s m a t t e r .
(12) SH/33242, . SHAPTO 1387, 16 J a n 57, SACEUR to SGN.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a l l p l a n s f o r t h e b u i l d - u p of f o r c e s w e r e b a s e d on t h e s a m e f o r c e p o s t u r e .
SACEUR c o n s i d e r e d t h a t t he b e s t a v a i l a b l e b a s i s f o r t h e n e c e s s a r y
g u i d a n c e w a s h i s c u r r e n t f o r c e p o s t u r e s tudy . He r e a l i z e d tha t t h e r e v i s i o n
of t h e b a s i c p o l i c y d o c u m e n t s t h e n going on would a f f e c t t h e p o s t u r e p a p e r
to s o m e ex ten t . But he f e l t tha t t h e ou t l ine of t h e s tudy would r e m a i n v a l i d
and t h a t t h e r e v i s i o n would not be so g r e a t a s to i n v a l i d a t e s u b s t a n t i a l l y any
g u i d a n c e which m i g h t be i s s u e d f r o m i t .
"If t h e p r e s e n t l a c k of m i l i t a r y g u i d a n c e i s a l lowed t o con t inue , " he to ld
t h e Standing, " i t w i l l have a d e t r i m e n t a l e f f e c t on t h e b u i l d - u p and e f f i e i e n c y
of m i l i t a r y f o r c e s a s s i g n e d and e a r m a r k e d f o r NATO. It i s c o n s i d e r e d v i t a l
t h a t s o m e g u i d a n c e m a y not be a s f i r m a s w e would l i ke . O t h e r w i s e c o n f i d e n c e
i n NATO m i l i t a r y l e a d e r s h i p m a y be a d v e r s e l y a f f e c t e d . " He to ld ;the Standing
.Group tha t he w a s p l ann ing to a d v i s e e a c h na t ion of the t e n t a t i v e b r e a k d o w n
of t h e f o r c e s r e q u i r e d f r o m i t , on t h e b a s i s of h i s 1960-1962 F o r c e P o s t u r e
S t u d y . * 1 3 '
D i s c u s s i o n s of SGN wi th M a j o r NATO C o m m a n d e r s on Guidance B a s e d on P a t t e r n of F o r c e s Study.
The Standing G r o u p a s k e d M a j o r NATO C o m m a n d e r s , inc lud ing SACEUR,
to c o m e to Wash ing ton to d i s c u s s t h e m a t t e r , and on 4 F e b r u a r y 1957 in
Wash ing ton D. C. , t h e y exchanged v i e w s and c e r t a i n d e c i s i o n s w e r e r e a c h e d .
SACEUR to ld t h e Standing Group tha t he w a s p r o p o s i n g to i s s u e h i s b a s i c
g u i d a n c e f o r t h e Annual R e v i e w on or about 15 M a r c h . He in t ended to b a s e t h i s (14)
g u i d a n c e on t h e P a t t e r n of F o r c e s Study f o r 1960-62 .
Even though t h i s s tudy had not b e e n app roved , SACEUR fe l t tha t he m u s t
u s e i t a s a b a s i s f o r f u r n i s h i n g g u i d a n c e t o the na t i ons . It r e p r e s e n t e d t h e
b e s t j u d g e m e n t of t h e SHAPE Staff at t h e m o m e n t . F u r t h e r , SACEUR sa id t h a t u n l e s s he f o l l o w e d t h i s p r o c e d u r e , he would l o s e t i m e on i m p o r t a n t i n -f r a s t r u c t u r e p r o j e c t s which he cou ld i l l a f f o r d . He to ld t h e Standing Group
(13) R a d , SACEUR t o SGN, SHAPTO 1387, 16 J a n 57. (14) M i n u t e s of Mtg of SGN wi th M a j o r C o m m a n d e r s , 4 F e b 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 NATO X û ï •mijENTIAL
gu idance to t h e n a t i o n s . To do o t h e r w i s e would, he to ld t h e m , not r e f l e c t
h i s b e s t j u d g e m e n t and i t would invo lve a w a s t e of t i m e , e f f o r t and m o n e y .
T h e r e w a s no in ten t ion to p r e s s the Standing Group f o r a p p r o v a l of h i s
I96O-62 Study, no r of t h e p r o c e d u r e which he p r o p o s e d to fo l low. He would
m e r e l y u s e tha t s tudy in t h e n o r m a l c o u r s e of e v e n t s , u n l e s s t h e Standing
Group i n s t r u c t e d h i m not to do so.
SACLANT, whi le apprec ia t ing SACEUR' s decis ion and h i s d e s i r e f o r
r a p i d and d e c i s i v e ac t ion , f e l t tha t c e r t a i n d i f f i c u l t i e s m i g h t a r i s e if both he
and SACEUR u s e d t h e i r s t u d i e s f o r f u r n i s h i n g gu idance to t h e n a t i o n s . T h e r e
had been , a s p o i n t e d out p r e v i o u s l y , d i v e r g e n t v i e w s on s t r a t e g i c m a t t e r s and
d i v e r g e n t c o n c l u s i o n s . It w a s p o s s i b l e tha t t he n a t i o n s would be f a c e d wi th
two s e p a r a t e r e q u i r e m e n t s and c o n c e p t s of f u t u r e w a r s , and would be in a
q u a n d a r y . As an a l t e r n a t i v e so lu t ion , SACLANT u r g e d the Standing Group to
a c c e l e r a t e i t s w o r k in an a t t e m p t to t r a n s l a t e t h e P o l i t i c a l D i r e c t i v e in to a
S t r a t eg i c D i r e c t i v e to t h e M a j o r NATO C o m m a n d e r s , which would be u s e d in
l i eu of the F o r c e s Studies a s a b a s i s f o r f u r n i s h i n g gu idance to t h e n a t i o n s .
F u r t h e r d i s c u s s i o n of t h i s m a t t e r by the UK R e p r e s e n t a t i v e on the S tand-
ing Group deve loped tha t b e f o r e MC 1 4 / 2 (Rev i s ed) and MC 4 8 / 2 could be
i s s u e d a s a u t h o r i t a t i v e d o c u m e n t s , t he n a t i o n s would have t o a g r e e u n a n i m o u s l y
to t h e m , both in t h e M i l i t a r y C o m m i t t e e and in Ihe Counci l . U n f o r t u n a t e l y a l l
t he n a t i o n s w e r e d e l i b e r a t e l y avoiding r e a c h i n g c o n c l u s i o n s unt i l t h e y l e a r n e d
the v i e w s of e v e r y o n e e l s e . The UK R e p r e s e n t a t i v e po in ted out tha t if t he p r o -
p e r p r o c e d u r e w e r e fo l lowed, the n a t i o n s could not p o s s i b l y be f u r n i s h e d o f f i c i a l
f i r m gu idance by the M a j o r NATO C o m m a n d e r s un t i l a f t e r t h e M i l i t a r y C o m -
m i t t e e m e e t i n g which would be he ld to a p p r o v e MC 1 4 / 2 (Rev i sed) and MC 4 8 / 2 , (15) which would not t a k e p l a c e b e f o r e l a t e M a r c h /
The UK R e p r e s e n t a t i v e a l s o po in t ed out tha t t h e o b j e c t i v e s of a l l c o n c e r n e d
(15) T h i s m e e t i n g a c t u a l l y took p l a c e on 6 Apr i l .
NATO CONFIDENTIAL6
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
w e r e the s a m e , n a m e l y to p r o v i d e t h e v a r i o u s na t ions wi th a g r e e d g u i d a n c e
in o r d e r t h a t t hey m i g h t be in a p o s i t i o n to deve lop t h e i r na t iona l p l a n s . The
Standing Group f u l l y r e c o g n i z e d t h e log ic of S A C E U R ' s a r g u m e n t s , but fe l t
t h a t t h e po in t at i s s u e w a s of such i m p o r t a n c e tha t i t could not be l e f t to e a c h
c o m m a n d e r to i s s u e f i r m f i n a l g u i d a n c e to n a t i o n s b a s e d on h i s own i n t e r -
p r e t a t i o n of the s t r a t e g i c c o n c e p t .
The F r e n c h R e p r e s e n t a t i v e s t a t e d tha t no m a t t e r how m u c h t h e Standing
G r o u p d e s i r e d to do so , i t could not a c c e l e r a t e t h e p r o c e s s e s invo lved in
a p p r o v i n g t h e o f f i c i a l r e v i s i o n s of p o l i c y p a p e r s n e c e s s a r y . T h e r e f o r e , he
f e l t t ha t t h e Standing Group should not p r e v e n t M a j o r C o m m a n d e r s f r o m
i s s u i n g i n t e r i m g u i d a n c e t o n a t i o n s p r o v i d e d tha t b e f o r e such ac t ion w e r e
t a k e n , t h e Standing Group should have r e c e i v e d a l l na t iona l c o m m e n t s on t h e
d r a f t s of M C 1 4 / 2 (Rev i sed ) ( I P T 1 3 1 / 3 6 Dra f t ) and tha t t h e s e c o m m e n t s had
b e e n r e c o n c i l e d .
SACEUR to ld t h e o the r NATO o f f i c i a l s tha t he w a s in c o m p l e t e a g r e e m e n t
t h a t any g u i d a n c e which he should i s s u e to t h e n a t i o n s would be of a p r o v i s i o n a l
n a t u r e . He a g r e e d a l s o in p r i n c i p l e wi th what A d m i r a l Wright had sa id , tha t
g u i d a n c e shou ld not b e i s s u e d on d i f f e r e n t b a s e s . T h i s would, of c o u r s e , b e
a v e r y s e r i o u s m a t t e r if Al l ied C o m m a n d E u r o p e w e r e a t t emp t ing to i n c r e a s e
i t s f o r c e s . Since however SACEUR w a s a c t u a l l y p r o p o s i n g to a d v o c a t e s o m e
r e d u c t i o n s , he did not want t o t e l l n a t i o n s to bui ld up f o r c e s and l a t e r have
to t e l l t h e m tha t t h e s e f o r c e s w e r e not r e q u i r e d . He f e l t tha t t h e r e w a s a
d a n g e r of l a c k of c o n f i d e n c e in NATO m i l i t a r y p lann ing a t t h e m o m e n t , and h e
w a s a l s o in no doubt t ha t t h e n a t i o n s w e r e c u r r e n t l y c o n s i d e r i n g m i l i t a r y
r e d u c t i o n s . HE f e l t t h a t i t w a s v e r y , v e r y i m p o r t a n t to t e l l t h e n a t i o n s what
he thought w a s r e q u i r e d at once , o t h e r w i s e a y e a r ' s de l ay m i g h t r e s u l t .
SACLANT t h e n s t a t e d tha t if n a t i o n a l c o m m m t s on I P T 1 3 1 / 3 6 (Dra f t )
cou ld b e r e c o n c i l e d i n t i m e , he would h a v e no ob j ec t i on t o t h e i s s u a n c e of
g u i d a n c e to n a t i o n s by SACEUR and would h i m s e l f do the s a m e . G e n e r a l
N o r s t a d , h o w e v e r , s a i d tha t r e g a r d l e s s of w h e t h e r t h e s e c o m m e n t s had b e e n
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
nato confidential
r e c o n c i l e d by 1 5 M a r c h , he w a s going to i s s u e g u i d a n c e to t h e n a t i o n s u n l e s s
t h e Standing G r o u p i n s t r u c t e d h i m not t o do so.
The UK R e p r e s e n t a t i v e po in t ed out t h a t it w a s n e c e s s a r y to f a c e up to
t h e f a c t t ha t if na t iona l c o m m e n t s r e v e a l e d s e r i o u s d i f f e r e n c e s of opinion,
t h e Standing Group would be f o r c e d to t e l l SACEUR to d e f e r the i s s u a n c e of
such gu idance wh i l e i t a t t o n p t e d t o r e c o n c i l e t h e s e na t iona l v i e w s . It w a s
p o s s i b l e , a l though un l ike ly , t ha t the f i n a l r e c o n c i l i a t i o n of t h e s e v i e w s m i g h t
i n v a l i d a t e SACEUR' s P a t t e r n of F o r c e s Study to a c o n s i d e r a b l e e x t e n t / 1 ^
I s s u a n c e of P r o v i s i o n a l Gu idance to N a t i o n s .
SACEUR conc luded by saying tha t if t h e r e w a s by 1 5 M a r c h 1957 an
a g r e e d v e r s i o n of I P T 1 3 1 / 3 6 (Dra f t ) , he would obv ious ly be r e q u i r e d to b a s e
h i s gu idance to t h e n a t i o n s on t h i s d r a f t ; o t h e r w i s e , he did not f e e l tha t t h e
P o l i t i c a l D i r e c t i v e Subs tan t i a l ly a l t e r e d t h e c o n c l u s i o n s of h i s M i n i m u m F o r c e s
Study f o r Al l ied C o m m a n d E u r o p e .
A f t e r f u r t h e r d i s c u s s i o n wi th in the Standing Group , t h e M a j o r NATO
C o m m a n d e r s w e r e a u t h o r i z e d to i s s u e p r o v i s i o n a l gu idance to the n a t i o n s on
or a f t e r 15 M a r c h 1957, u n l e s s t hey h a d been i n s t r u c t e d not to do so p r i o r to
tha t d a t e . M a j o r C o m m a n d e r s w e r e d i r e c t e d to b a s e t h e i r gu idance on t h e
ex i s t ing P a t t e r n of F o r c e s Study, m o d i f i e d a s n e c e s s a r y in l ight of any d e v e l -
opment in the new P o l i t i c a l D i r e c t i v e and a l s o on the new r e p o r t on the o v e r a l l
s t r a t e g i c concept f o r t h e d e f e n s e of the NATO a r e a when tha t r e p o r t w a s o f f i -
(16) S A C E U R ' s P a t t e r n of F o r c e s Study 1960-62, having been b a s e d on m i l i t a r y r e q u i r e m e n t s a s t h e SHAPE staff saw t h e m , could not a c t u a l l y be i n v a l i -da t ed by f a i l u r e of t h e n a t i o n s to a g r e e . It m e r e l y m e a n t t ha t whi le the c o n c l u s i o n s of t h i s s tudy could be p e r f e c t l y va l id , t h e na t ions would not a g r e e t o . r e a c h t h e f o r c e r e q u i r e m e n t s e s t a b l i s h e d by t h e s tudy .
(17) The P o l i t i c a l D i r e c t i v e , P a r t I, w a s p r e f a c e d wi th a s e c t i o n en t i t l ed "Soviet I n t e n t i o n s . " In t h i s r e g a r d i t i s i n t e r e s t i n g to no te tha t s i n c e t h e d a y s of G e n e r a l R i d g w a y ' s c o m m a n d a s SACEUR, i t had been the S H A P E b a s i c po l i cy t o b a s e a l l p lann ing , not on e n e m y in t en t ions , but on e n e m y c a p a b i l i t i e s . . / . . .
(17) c i a l l y i s s u e d a s M C 1 4 / 2 / '
NATO CONFIDENTIAL 78
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
R e v i s i o n of F o r c e Study.
The Standing G r o u p , a w a r e of the t i m é p r o b l e m s involved in p r e p a r i n g
e s t i m a t e s of f o r c e s wi th changing d i r e c t i v e s be ing i n t r o d u c e d , d i r e c t e d SACEUR
t o u s e t h e d r a f t s t u d i e s of the I P T p a p e r s , d e s t i n e d to r e p l a c e MC 14 and
M C 48, a s a b a s i s f o r p r e p a r i n g h i s new f o r c e s t u d i e s . On 8 F e b r u a r y they
t o ld h i m tha t t he d o c u m e n t s in ques t i on , d e a l i n g with the S t r a t e g i c Concep t and
E s s e n t i a l M e a s u r e s , would when a p p r o v e d by the Counci l f o r m t h e m i l i t a r y
g u i d a n c e upon wh ich h i s f o r c e p o s t u r e would be b a s e d . But in o r d e r tha t h i s
r e c o m m e n d a t i o n s on f o r c e p o s t u r e could r e a c h it a s soon a s p o s s i b l e , t he
Standing Group a s k e d t h a t SACEUR begin f o r m u l a t i n g at once a r e c o m m e n d e d f o r c e
p o s t u r e f o r h i s c o m m a n d , u s ing the s u c c e s s i v e d r a f t s of the p a p e r s (IPT 178 /70
and I P T 131 /36) a s p r e l i m i n a r y g u i d a n c e . " T h e Standing Group r e a l i z e s , " he
w a s to ld , " tha t you wi l l not be ab le to s u b m i t your f ina l r e c o m m e n d a t i o n s unt i l
M C 1 4 / 2 and M C 4 8 / 2 a r e a p p r o v e d , but i t i s fe l t t ha t m u c h u s e f u l w o r k could (18)
be a c c o m p l i s h e d now.1-
SACEUR w a s r e q u e s t e d to c o m p u t e quan t i t a t ive f o r c e r e q u i r e m e n t s by
S e r v i c e and M a j o r Subord ina t e C o m m a n d w h e r e a p p r o p r i a t e , and t o c o v e r the
pe r iod 1958-1962 a s a m i n i m u m . He m i g h t , if he w i shed , extend t h i s s tudy
, 1 , , , In d i s c u s s i n g t h e p r o v i s o con ta ined in t h e P o l i t i c a l D i r e c t i v e which dea l t wi th p o s s i b l e l o c a l a t t a c k s , t h e Chief of Staff , SHAPE, to ld the a s s e m b l e d C h i e f s of Staff of M a j o r Subord ina t e C o m m a n d s on 19 F e b r u a r y : " T h e y ( the NAC) have added the p r o v i s o tha t we m u s t be p r e p a r e d to dea l wi th l o c a l i n c u r s i o n s and s m a l l a t t a c k s without n e c e s s a r i l y r e s o r t i n g to n u c l e a r w e a p o n s . We m u s t k e e p tha t in our m i n d s : we m u s t con t inue t o look a t ou r f o r c e s to m a k e s u r e t ha t they a r e capab le of handl ing t h i s p r o b l e m . It i s s o m e t i m e s a l i t t l e d i f f i cu l t t o u n d e r s t a n d what the Counc i l did have in v iew when they t a lk about " loca l i n c u r s i o n s " . T o u s , i t a p p e a r s v e r y p r o b a b l e tha t any l o c a l a t t ack or loca l i n c u r s i o n any p l a c e in SACEUR's a r e a , in NATO a r e a s , wi l l in al l p r o b a b i l i t y l e a d to a g e n e r a l w a r d e s p i t e our e f f o r t s to l o c a l i z e i t , which i s what the Coun-c i l w a n t s u s t o d o . " - S e m i - V e r b a t i m r e p o r t of G e n e r a l S c h u y l e r ' s m e e t i n g with C h i e f s of Staff of Subord ina te C o m m a n d s , 19 F e b 57.
(18) S G M - 1 0 5 - 5 7 , 8 F e b 57.
79
GOSMIC T O P ~ " S E C R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
j . jL^.
f u r t h e r t han 1962, but t h e y w a n t e d a r e a d i l y d i s c e r n i b l e p o s t u r e f o r 1962
in any even t . T i m e p h a s i n g of f o r c e s , w h e r e f e a s i b l e , w a s r e c o m m e n d e d .
"S ince t h e exac t t i m i n g of Counci l ac t ion on MC 1 4 / 2 and M C 4 8 / 2
cannot yet be d e t e r m i n e d , " he w a s to ld , " the Standing G r o u p i s a s ye t u n a b l e
to e s t a b l i s h a d e a d l i n e d a t e f o r s u b m i s s i o n of your f o r c e s p o s t u r e p a p e r s .
In v i ew of the u r g e n c y invo lved , h o w e v e r , i t i s p r o b a b l e tha t no m o r e than
two w e e k s wi l l be a v a i l a b l e to you, a f t e r Counc i l a p p r o v a l of MC 1 4 / 2 and
MC 4 8 / 2 to f i n a l i z e your s t u d i e s . The Standing Group d e s i r e s tha t t h e s e new
s t u d i e s not be g iven na t i ona l d i s t r i b u t i o n un t i l r e l e a s e d by the Standing G r o u p . "
On 12 M a r c h , ACOS P A N D P i s s u e d h i s i n s t r u c t i o n s to t h e Staff fo r r e v i -
s ion of t h e 1960-1962 s tudy . He p o i n t e d out tha t CM(56)138, t h e P o l i t i c a l
D i r e c t i v e , and t h e l a t e s t a v a i l a b l e d r a f t s of the I P T p a p e r s , wh ich w e r e in
a c t u a l i t y d r a f t s of new MC 48 and M C 14 p a p e r s , i n d i c a t e d that no s u b s t a n t i a l
a l t e r a t i o n of t h e f i na l f o r c e t a b s of t h e 1960-1962 p a p e r would be n e c e s s a r y .
" M o r e o v e r , " h e sa id , " the w o r k a c c o m p l i s h e d in developing na t iona l g u i d a n c e
f o r t h e AR 1957 c y c l e should p r o v i d e an a d e q u a t e b a s i s f o r t h e t i m e p h a s i n g
which m u s t be i n c o r p o r a t e d in t h e new s tudy . N o n e t h e l e s s , t he o r g a n i z a t i o n , (19) d r a f t i n g and c o o r d i n a t i o n of t h e new s tudy wil l c o n s t i t u t e a m a j o r t a s k . . . 1 "
E f f e c t of B r i t i s h R e d u c t i o n of F o r c e s on t h e 1960-1962 P a p e r s .
As i t deve loped , c e r t a i n e v e n t s t ak ing p l a c e c o n c u r r e n t l y changed t h e
p i c t u r e qui te r a d i c a l l y , and " r e v i s i o n " of t h e 1960-62 p a p e r took on a d i f f e -
r e n t a s p e c t . The f a c t o r which m o s t changed t h e s i tua t ion w a s the decision
announced by t h e Uni ted Kingdom on 14 F e b r u a r y 1957 to r e d u c e t h e s t r e n g t h
of i t s f o r c e s l o c a t e d on the m a i n l a n d of Ehirope and p l a c e d u n d e r c o n t r o l of
SACEUR. The f u l l e f f e c t s of t h i s d e c i s i o n on SHAPE p lann ing did not b e c o m e
a p p a r e n t f o r n e a r l y a m o n t h a f t e r the a n n o u n c e m e n t , ^ ^
(J9) M e m o , f o r a l l d i v i s i ons , R e v i s i o n of ACE F o r c e P o s t u r e Study 1960-62 , 12 M a r 57, sgd ACOS P A N D P .
(30) See C h a p t e r III, F o r c e s , f o r d i s c u s s i o n of B r i t i s h Réduc t ion of F o r c e s .
— - , • • y >• \ V- • r _ L X - • :80 v - -
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SACEUR had been a s k e d f o r h i s eva lua t ion of t h e B r i t i s h i n t en t ion to
r e d u c e t h e i r f o r c e s , and had f u r n i s h e d such an eva lua t ion to t h e N o r t h At lan t ic
Counc i l and t h r o u g h t h e m t o the W e s t e r n E u r o p e a n Union (See F o r c e s C h a p t e r ) .
The l a t t e r body, on 18 M a r c h , a f t e r c o n s i d e r i n g t h e op in ions e x p r e s s e d by i t s
own m e m b e r s and t h e v i e w s of SACEUR, c a l l e d upon the NAC to s tudy u r g e n t l y
c e r t a i n p r o p o s a l s m a d e by C h a n c e l l o r Adenaue r of G e r m a n y ca l l i ng fo r a new
o v e r a l l r e v i e w of t h e r e s o u r c e s of the NATO Al l i ance , c o v e r i n g :
a) M i l i t a r y r e q u i r e m e n t s and d e f e n s e a i m s ; b) R e l a t i o n s h i p be tween conven t iona l and a t o m i c w e a p o n s ; c) R e l a t i o n s h i p be tween m o d e r n a r m a m e n t and economic and
f i n a n c i a l r e s o u r c e s ;
d) C o m m o n p r o d u c t i o n of m o d e r n w e a p o n s .
P e n d i n g t h e r e s u l t of such a r e v i e w , the g o v e r n m e n t of t h e Uni ted King-
dom would go a h e a d wi th i t s p l a n s f o r 1957 and 1958 but would t a k e in to acoount
G e n e r a l N o r s t a d ' s v i e w s . In e f f e c t , t h i s m e a n t a reduc t ion of only 13, 500 m e n , ( 2 1 ) of wh ich t h e v a s t m a j o r i t y would be a d m i n i s t r a t i v e and a n t i - a i r c r a f t t r o o p s .
WEU Views on C o n c e p t s of F o r c e s P o s t u r e .
Fo l lowing t h i s d e c i s i o n by t h e W e s t e r n E u r o p e a n Union, P r o f e s s o r
H a l s t e i n , G e r m a n S e c r e t a r y of S t a t e f o r F o r e i g n A f f a i r s , a p p e a r e d b e f o r e
t h e NAC on 28 M a r c h and exp la ined in g r e a t e r de ta i l why the WEU had r e a c h e d
t h e d e c i s i o n to c a l l f o r a fu l l m i l i t a r y r e v i e w of t h e s t r u c t u r e . The m a i n
e f f e c t of H a l s t e i n ' s e x p o s e . w a s to r a i s e c e r t a i n b r o a d but p e n e t r a t i n g q u e s t i o n s
wh ich by t h e i r v e r y n a t u r e u n d e r s c o r e d e i t h e r a g e n e r a l m i s u n d e r s t a n d i n g of
S A C E U R ' s e a r l i e r p l a n s or an a c t u a l i n c o m p l e t e n e s s in t h e s e p l a n s .
The G e r m a n o f f i c i a l c a l l e d f o r a s tudy by G e n e r a l N o r s t a d which would
s e t f o r t h h i s c o n c e p t s of t h e Shield F o r c e s wi th p a r t i c u l a r a t t en t ion g iven to t h e
n e c e s s i t y to i n c r e a s e d e f e n s e e x p e n d i t u r e s to inc lude the new and e x p e n s i v e
w e a p o n s .
Whi le t h e WEU in a c o m p r o m i s e so lu t ion t h u s a g r e e d to a r e d u c t i o n of
13, 500 men of t h e f u l l 27, 000 m e n r e d u c t i o n which the B r i t i s h G o v e r n m e n t _
(21) A n n e x t o C-M(57)41 , 21 M a r 57. 81
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p r o p o s e d to m a k e , t hey p r o p o s e d tha t G e n e r a l N o r s t a d s tudy t h e i m p l i c a t i o n s
of any f u r t h e r reduc t ion and tha t h i s r e c o m m e n d a t i o n s be s u b m i t t e d to the
Counci l and t h e WEU f o r a d e c i s i o n in Oc tobe r 1957.
Th i s so lu t ion w a s b a s e d on p r o p o s a l s o r i g i n a l l y m a d e by t h e F e d e r a l
Repub l i c of G e r m a n y . The G e r m a n G o v e r n m e n t had been v e r y c o n c e r n e d
about t h e a d v e r s e e f f e c t s of t h e w i t h d r a w a l of B r i t i s h t r o o p s f e e l i n g tha t t h e
w i t h d r a w a l s m i g h t r e s u l t in f u r t h e r w i t h d r a w a l s by the o the r n a t i o n s . The
F r e n c h G o v e r n m e n t a l s o w a s c o n c e r n e d b e c a u s e at t he t i m e of the P a r i s
A g r e e m e n t s in 1954, it had i n s i s t e d tha t the B r i t i s h l e a v e fou r d i v i s i o n s on t h e
Cont inent a s a s a f e g u a r d .
On 12 A p r i l 1957 the N o r t h At lan t ic Counci l engaged in a l eng thy d i s -
c u s s i o n on how SACEUR should be d i r e c t e d to r e s p o n d to t h e p r o p o s a l s m a d e
by the WEU. It w a s s t r e s s e d tha t G e n e r a l N o r s t a d w a s being a p p r o a c h e d
in t h i s m a t t e r in two d i f f e r e n t c a p a c i t i e s , f i r s t a s S u p r e m e Al l ied C o m m a n d e r
E u r o p e , and s econd ly a s a highly qua l i f i ed and we l l -known e x p e r t in t h i s f i e l d .
The second a s p e c t w a s fo r p s y c h o l o g i c a l r e a s o n s . The Counci l , a f t e r m u c h
d i s c u s s i o n , f i n a l l y a g r e e d tha t t h e n a t i o n s wishing to a sk q u e s t i o n s should send
t h e m to t h e S e c r e t a r i a t of the Counci l who would c i r c u l a t e t h e m among a l l
de l ega t i ons , and if no de l ega t ion r a i s e d any ob jec t ion to any ques t i on wi th in (22) a week , tha t ques t i on could then be submi t t ed to G e n e r a l N o r s t a d /
A s s e s s m e n t of F o r c e R e q u i r e m e n t s P a p e r s .
At n e a r l y t h e s a m e t i m e , t h e NAC decided tha t MC 1 4 / 2 (Rev i sed ) and
MC 4 8 / 2 would be a p p r o v e d a s soon a s p o s s i b l e . They would then be sent to
S u p r e m e C o m m a n d e r s with i n s t r u c t i o n s to a s s e s s t h e i r M i n i m u m F o r c e R e -
q u i r e m e n t s . The t h r e e f o r c e r e q u i r e m e n t s p a p e r s w e r e due in t h e h a n d s of
the Standing Group f o u r t e e n days a f t e r a p p r o v a l by t h e Counci l of t h e s t r a t e g i c
gu idance p a p e r s . F ina l ly , t h e Standing Group on r e c e i p t of t h e s e t h r e e f o r c e
r e q u i r e m e n t s p a p e r s would a m a l g a m a t e t h e m into one p a p e r f o r s u b m i s s i o n
(22) C-R(57)23 , 12 Apr 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t o t h e Counc i l . T h i s p a p e r would be c a l l e d MC 70 and would be a v a i l a b l e in
J u n e .
T h e Counc i l a s k e d t h e C h a i r m a n of the SGN to a p p r o v e t h i s t i m e t a b l e .
He s a i d t h a t t h i s t i m e t a b l e would h a v e been c o r r e c t if the Counci l had not
d e c i d e d to a s k G e n e r a l N o r s t a d f o r t h e addi t iona l s tudy in connec t ion wi th
t h e G e r m a n p r o p o s a l s . G e n e r a l N o r s t a d could not put h i s f o r c e r e q u i r e m e n t s
p a p e r i n to f i n a l f o r m unt i l h e had c o m p l e t e d work on t h e new s tudy a s k e d f o r
by t h e Counc i l , s i n c e he would h a v e to e n s u r e tha t t h e r e w a s no i n c o n s i s t e n c y
in t h e two p a p e r s . Again, t h e Standing Group could not c o m p l e t e MC 70 un t i l it
had c a r e f u l l y e x a m i n e d G e n e r a l N o r s t a d ' s new s tudy. F o r t h e s e r e a s o n s it
w a s l i k e l y tha t t h e r e would be s o m e d e l a y in t h e i s s u e da te o r i g i n a l l y p l a n n e d
f o r t h e MC 70. The SGN C h a i r m a n a s s u r e d t h e Counci l tha t t he m i l i t a r y a u -
t h o r i t i e s would do t h e i r u t m o s t to s e e tha t t he dç lay , if d e l a y t h e r e had to be , (23)
w a s a s s h o r t a s p o s s i b l e .
The a c t i o n s of t h e Counci l and of t h e WEU had a l r e a d y b e e n no ted at
S H A P E . And G e n e r a l N o r s t a d had been c l o s e l y involved in d i s c u s s i o n s wi th
n a t i o n a l a u t h o r i t i e s on t h e s e p r o b l e m s .
M a j . G e n e r a l Gaz in , ACOS P A N D P , sent to the Chief of Staff on 18 A p r i l
a p r o p o s e d ou t l ine se t t ing f o r t h t h e p r o c e d u r e s which he f e l t should be fo l lowed
and t h e o b j e c t i v e s a c h i e v e d in c r e a t i n g t h e new s t u d i e s which would be r e -
q u i r e d / 2 ^
ACQS P A N D P ' s R e p o r t on F o r c e R e q u i r e m e n t s Study.
Deve lopmen t of t h e ou t l ine f o r t h e p r o p o s e d s tudy, M a j o r G e n e r a l Gaz in
s t a t e d , had been on t h e a s s u m p t i o n tha t not m o r e t han t h r e e m o n t h s t i m e
would be a v a i l a b l e f o r p r e p a r a t i o n . " T h e amount of new w o r k which can be
(23) C-R(57)24 , p a r a 27, 28, dtd 16 Apr 57. (24) M e m o f o r the C O F S t h r u DCP AN DP, ACE M i n i m u m F o r c e Study 1958-63 ,
18 Apr 57, sgd Gaz in (Act ion O f f i c e r : Col . St i lwel l ) . C -M(56)138 (F ina l ) , 13 Dec 56, P a r t 1,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
u n d e r t a k e n i s m i n i m a l , " he sa id , " and we a r e t h e r e f o r e l i m i t e d l a r g e l y to
u t i l i z ing p e r t i n e n t p r o j e c t s a l r e a d y p r e p a r e d or in p r o c e s s of p r e p a r a t i o n . "
T i m e l i m i t a t i o n s would p r e c l u d e any d e t a i l e d c o o r d i n a t i o n wi th r e g i o n a l c o m -
m a n d e r s , a l though the " b r o a d l i n e s of a p p r o a c h " could be c o o r d i n a t e d .
It w a s obvious tha t t he P A N D P Div is ion Chief fe l t t h i s new e f f o r t should
be a i m e d at j u s t i f y i n g t h e f o r c e s wh ich would be a s k e d f o r and " the d e c i s i o n
a s to w h e t h e r or not a p a r t i c u l a r sub j ec t i s i nc luded should h inge on i t s con -
t r i b u t i o n to tha t j u s t i f i c a t i o n . " B e c a u s e t h e expans ion of the 1960-62 Study
w a s being c a u s e d by t h e n a t i o n s in t h e c e n t e r , he be l i eved t h a t " f i r s t p r i o r i t y
m u s t go to t h e C e n t r a l A r e a . "
The l a t e s t a n a l y s i s of Soviet i n t e n t i o n s and genera l po l i cy showed a d e f i -
n i te p o s s i b i l i t y of t h e i r l aunch ing a t t a c k s us ing only conver t iona l w e a p o n s or
l o c a l a t t a c k s of v a r i o u s k i n d s . And t h e o r g a n i z a t i o n , equ ipment and dep loymen t
of f o r c e s m u s t , in t h e s tudy, be e x a m i n e d f o r adequacy to d e t e r or dea l wi th
a g g r e s s i o n o the r t han g e n e r a l w a r .
" T h e c o r e of t h e p r o b l e m , " he to ld the Chief of Staff , " i s t o c l a r i f y
t h e i n t e r - r e l a t i o n s h i p of S t r ike and Shield F o r c e s and t h e r e l a t i v e s t r e n g t h s
of each . Impl ic i t in t h i s i s expla ining tha t n u c l e a r and n o n - n u c l e a r w e a p o n s
s y s t e m s a r e not m u t u a l l y independen t , but r a t h e r c o m p l e m e n t a r y c a p a b i l i t i e s
to be i n t e g r a t e d in to a s ing le f o r c e s t r u c t u r e . "
The m a t e r i a l s a v a i l a b l e f o r u s e in t h e new p r o j e c t inc luded the s u b s i -
d i a r y s t u d i e s s t e m m i n g f r o m the o r i g i n a l 1960-62 F o r c e P o s t u r e p a p e r ;
• E x e r c i s e SOLVENT; E lements of the A C E 1957 C a p a b i l i t i e s P l a n ; and Cos t ing (25) and A n a l y s e s S tudies u n d e r t a k e n by the P r o g r a m s D i v i s i o n / '
(25) O p e r a t i o n SOLVENT, a s e r i e s of War G a m e s to e x a m i n e a n u m b e r of o p e r a t i o n a l s i t ua t ions which m i g h t a r i s e in Global War and in c o n f l i c t s s h o r t of such a w a r , w a s conduc ted by the S t r a t eg i c P l a n n i n g Staff dur ing the f i r s t half of 1957. M a n y of the c o n c e p t s which e m e r g e d f r o m O p e r a t i o n SOLVENT w e r e i n c o r p o r a t e d in t h e M i n i m u m F o r c e Study. SHAPE d i v i s i o n s p a r t i c i p a t e d in t h e a s p e c t s of O p e r a t i o n SOL-VENT which w e r e a p p r o p r i a t e to t h e i r an t i c ipa t ed w a r t i m e r o l e .
<aa rr
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
, § H A P E 57 /67 ...
syMi-St:.' ä! M a j o r G e n e r a l Gaz in p r o p o s e d tha t t h e s tudy c o n s i s t of a b a s i c docu-
ment w h i c h would be e s s e n t i a l l y t h e M i n i m u m F o r c e Study, and a s e r i e s of
a n n e x e s e l a b o r a t i n g on t h e b a s i c d o c u m e n t . A c o m p l e t e l i s t of s u g g e s t e d
a n n e x e s and t h e d i v i s i o n s r e s p o n s i b l e f o r t h e i r p r e p a r a t i o n w a s f o r w a r d e d to
t h e Chief of Staff . It w a s s u g g e s t e d tha t t he study could be p r e p a r e d and c o o r -
d i n a t e d a t t h e Staff l e v e l by 15 Augus t .
G e n e r a l N o r s t a d G i v e s Gu idance f o r t h e Study.
On 23 Apr i l , SACEUR called t o g e t h e r h i s k e y p lanning o f f i c e r s and in
a l e n g t h y and e x t r e m e l y s ign i f i can t s e s s i o n , l a id down c e r t a i n r u l e s which
w e r e to b e fo l lowed in p r e p a r i n g t h e s t u d i e s which would now be r e q u i r e d .
At t h e s a m e t i m e he out l ined h i s p e r s o n a l v i e w s on s o m e of the m a j o r p r o b l e m (26)
a r e a s which f a c e d h i m and a l l NATO a u t h o r i t i e s . '
G e n e r a l N o r s t a d opened the m e e t i n g by s ta t ing tha t he a c c e p t e d the
p a p e r which M a j o r G e n e r a l Gaz in had s u b m i t t e d a s a r e a s o n a b l e m e t h o d of
a p p r o a c h to the r e v i s i o n of the 1960-62 Studies and tha t he a p p r o v e d i t a s
g u i d a n c e f o r f u r t h e r b a s i c s tudy of the p r o b l e m . In the s u b s e q u e n t d i s c u s s i o n ,
h o w e v e r , he d e m o n s t r a t e d qui te c l e a r l y tha t he did not in f a c t a g r e e wi th a l l
t h e p r o v i s o s of t h e m e m o r a n d u m , p a r t i c u l a r l y tha t p o r t i o n which p r e s c r i b e d
on ly a " m i n i m a l " amoun t of new w o r k .
He to ld t h e s taff o f f i c e r s p r e s e n t tha t he did not want t h e new M i n i m u m
F o r c e Study d i r e c t e d to giving s p e c i f i c a n s w e r s to any s p e c i f i c ques t i on . The
s tudy should, i n s t e a d , p r o v i d e h i m wi th an a u t h o r i t a t i v e b a s i s f o r a n s w e r i n g
any q u e s t i o n s wh ich m i g h t c o m e f r o m t h e n a t i o n s . The a n s w e r s would depend
on h i s j u d g e m e n t , no n a t t e r how t h e s tudy w a s d i r e c t e d . Only he could f o r -
m u l a t e the a n s w e r s , but he m u s t have t h e s tudy a s a p r o p e r b a s i s f o r h i s
j u d g e m e n t in é a c h c a s e .
(26) M e m o r a n d u m f o r R e c o r d , sub : C o n f e r e n c e of SACEUR wi th Key O f f i c e r s , 23 Apr 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 C o 0 M l o S Ë G R Ê l ?
Ni \ f O u 0NyN'VO^.^ ' :.
SACEUR s t a t e d tha t , had t h e m a t t e r of the B r i t i s h r e d u c t i o n of f o r c e s
not a r i s e n , it would have been p o s s i b l e to have con t inued with t h e 1960-62
f o r c e s tudy and to h a v e put i t in f i na l f o r m ; With t h i s new d e v e l o p m e n t ,
h o w e v e r , ano the r b a s i c s tudy, s i m i l a r to t h e Al l ied C a p a b i l i t i e s P l a n 1957
m a d e in 1954, would have to be m a d e .
HE had no ob j ec t i on to t h e staff u s ing the old s tudy a s the b a s i s f o r t h e
new b a s i c s tudy. But he wan ted each f i e l d of s tudy and each a s p e c t of every
p r o b l e m e x a m i n e d aga in , f r o m t h e v e r y beg inn ing . If t h e s tudy m a d e in 1954
w a s s t i l l va l id f o r the y e a r s 1960-62, f o r ins tance , tha t would be c o m p l e t e l y
a c c e p t a b l e , "If you want to c r i b t h e whole thing, " G e n e r a l N o r s t a d s t a t ed ,
" tha t i s qui te a l l r i g h t wi th m e - - p rov id ing you have given it tha t b a s i c con-
s i d e r a t i o n and f ind tha t it i s s t i l l c o r r e c t in 1957 f o r t h e p e r i o d 1 9 6 0 - 6 2 , "
SACEUR e m p h a s i z e d tha t he w a s not d i r e c t i n g a v e r d i c t , but he f e l t
tha t t h e r e s u l t s of t h e s tudy would not d i f f e r g r e a t l y f r o m the c o n c e p t s a l r e a d y
deve loped and tha t no s ign i f i can t m o d i f i c a t i o n w a s going to be r e q u i t e d .
A s s u m p t i o n s f o r t h e New Studies .
SACEUR sa id tha t the new s t u d i e s m u s t be b a s e d upon a s s u m p t i o n s , and
the b a s i c a s s u m p t i o n w a s tha t t he d e t e r r e n t w a s the key to the d e f e n s e of
W e s t e r n E u r o p e . Another f u n d a m e n t a l a s s u m p t i o n m u s t be tha t the r e t a l i a -
t o r y f o r c e s , which would f o r m p a r t of the d e t e r r e n t , w e r e e f f ec t i ve . One
of the po in t s which w a s going to have to be e x p l o r e d t ho rough ly and " f r o m
s c r a t c h " w a s t h e d e g r e e of e f f e c t i v e n e s s of the r e t a l i a t o r y f o r c e s and whe t he r
t h e i r e f f e c t i v e n e s s had i n c r e a s e d or d e c r e a s e d . SACEUR p l a c e d one h u n d r e d
p e r c e n t dependence upon the e f f e c t i v e n e s s of the r e t a l i a t o r y f o r c e s b e c a u s e
he be l i eved they w e r e r e a l l y f i r s t c l a s s f o r c e s .
G e n e r a l N o r s t a d then t u r n e d to t h e b a s i c i m p o r t a n c e of the Shield F o r c e s .
The c o u n t r i e s of W e s t e r n E u r o p e jo ined t oge the r in NATO fo r t h e i r d e f e n s e ,
and to t h e m , p a r t i c u l a r l y the con t inen ta l c o u n t r i e s , d e f e n s e m e a n t s o m e t h i n g
v e r y s p e c i f i c . In t h i s v iew the t a s k w a s not t h e s i m p l e , a c a d e m i c or theori.fc»c/>/
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
one of f igh t ing a w a r a g a i n s t t h e R u s s i a n s . To t h e Cont inen ta l , i t m e a n t
p r e v e n t i n g NATO t e r r i t o r i e s and p e o p l e f r o m being o v e r r u n . And u n l e s s the
f i f t e e n NATO n a t i o n s m o d i f i e d t h e t r e a t y tha t would have to r e m a i n the o b j e c -
t i v e and t h e m i s s i o n of SACEUR.
The r e t a l i a t o r y f o r c e s a lone , no m a t t e r how good, could not a c c o m p l i s h
t h a t o b j e c t i v e . Without the Shield F o r c e s , SACEUR could not g ive a s s u r a n c e
t ha t , in t h e event of w a r , e n e m y f o r c e s would not be ab le to o v e r r u n NATO
t e r r i t o r y and p e o p l e s , w h e t h e r on D-day , D - p l u s - 3 , o r D - p l u s - 3 0 .
The concep t u n d e r which the Shield F o r c e s had been p l a n n e d and the
b a s i s on wh ich SACEUR had w o r k e d in t h e p a s t w a s t h a t " t he l e a s t t h a t we
m u s t do i s t h e m o s t tha t we should d o . " G e n e r a l N o r s t a d s t a t e d tha t tha t
c o n c e p t w a s s t i l l va l i d and would be u s e d . The f o r w a r d l i ne m u s t be he ld
and t h e NATO t e r r i t o r i e s and p e o p l e s a v e d f r o m being o v e r r u n . He be l i eved
t h a t , w i th in t h e e c o n o m i c p e r i m e t e r s which had been se t by t h e na t i ons , t h i s
w a s about a s m u c h a s he could p l a n on doing.
D e t e r r e n t C a p a b i l i t i e s of SACEUR' s F o r c e s .
G e n e r a l Norstaid did not ob j ec t to h i s p l a n n e r s th inking about p o s s i b l e
exp lo i t a t ion in c a s e of wa r - - b u t the f o r c e s and m e a n s of exp lo i t a t ion w e r e
beyond t h e s c o p e of t h e p r e s e n t p r o b l e m and s tudy. NATO w a s not g e n e r a t i n g
f o r c e s f o r exp lo i t a t ion . The Shield F o r c e s w e r e r a i s e d to hold t h e f o r w a r d
l i n e f o r a s u f f i c i e n t p e r i o d of t i m e to a l low the o p e r a t i o n s of t h e r e t a l i a t o r y
f o r c e s to t a k e e f f e c t and to t u r n t h e t i de in f a v o r of NATO. G e n e r a l N o r s t a d
no t ed tha t t h i s a s p e c t of t h e Shield F o r c e s w a s an old one, but t ha t now he
f e l t t h e r e w a s a new a s p e c t a l s o , and one not g e n e r a l l y u n d e r s t o o d . T h i s new
a s p e c t w a s t h e con t r i bu t i on which t h e Shield F o r c e s a c t u a l l y m a d e t o the d e t e r -
r e n t , wh ich he b e l i e v e d to be the i m p o r t a n t f unc t ion of t h e s e Shield F o r c e s .
G e n e r a l N o r s t a d d e c l a r e d tha t t h e NATO na t ions had r e a c h e d a poin t in
t h e i r p r e p a r e d n e s s - and had in h i s opinion r e a c h e d i t s e v e r a l y e a r s p r e v i o u s l y -
which m a d e the c o s t to the Sovie ts of a World War III so g r e a t tha t t h e y would
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
tJ t;" -ti
not m a k e a d e l i b e r a t e d e c i s i o n to go to w a r , The Sovie t s knew tha t NATO
had t h e c a p a b i l i t y of d e s t r o y i n g t h e m if t h e y should go to w a r , a c a p a b i l i t y
wh ich had e x i s t e d f o r s e v e r a l y e a r s and would con t inue to ex i s t . The p o s s e s -
s ion by t h e R u s s i a n s of a s i m i l a r c a p a b i l i t y did not change t h e s i g n i f i c a n c e
of t h i s f a c t in G e n e r a l N o r s t a d 1 s opinion. No m a t t e r how g r e a t a c a p a b i l i t y
the R u s s i a n s had, t h e a b s o l u t e qua l i ty of the NATO d e t e r r e n t s t i l l e x i s t e d .
And t h e r e w a s l i t t l e to be ga ined by saying "we wi l l d e s t r o y the other s i de t o o . "
The inequa l i t y w a s tha t t h e R u s s i a n s w e r e t h e only o n e s , so f a r a s NATO w a s
c o n c e r n e d , who would s t a r t a w a r ; NATO n a t i o n s would not .
SACEUR po in t ed out tha t he be l i eved t h a t a d e l i b e r a t e , c o l d - b l o o d e d
d e c i s i o n to s t a r t a w a r had now b e c o m e , at l e a s t f o r the p r e s e n t and in the
f o r e s e e a b l e f u t u r e , an i m p o s s i b i l i t y . The only c h a n c e now of w a r would c o m e
t h r o u g h i g n o r a n c e , e r r o r , or a s the r e s u l t of h o t - h e a d e d t r e a t m e n t of a s m a l l
i nc iden t tha t got out of hand. Thus the l ine dividing NATO na t ions f r o m t h e
Soviet Union and i t s S a t e l l i t e s w a s t h e m o s t d a n g e r o u s and s e n s i t i v e l ine in
t h e w o r l d . It m u s t , G e n e r a l N o r s t a d told h i s s taf f o f f i c e r s , be de fended in
s o m e r e a s o n a b l e f o r c e .
If the R u s s i a n s m a d e the m i s t a k e of push ing or p r o b i n g a c r o s s the l ine ,
they m u s t r u n in to f o r c e . In p r i n c i p l e , they would r u n in to f o r c e and bounce
off t he l ine , which would g ive t h e m a c h a n c e to t a k e a c l o s e r look and r e a l i z e
tha t t hey w e r e on the v e r g e of s t a r t i n g Wor ld War III, in which they would be
d e s t r o y e d , if they con t inued t h e i r p r o b i n g .
T h i s w a s t h e b a s i c i m p o r t a n c e of the Shield F o r c e s a s a p a r t of the
d e t e r r e n t . G e n e r a l N o r s t a d d e p l o r e d t h e u s e of such t e r m s a s "p la t e g l a s s
window" and " t r i p - w i r e " in t h i s connec t ion . Even though he had p e r h a p s co ined
t h e f i r s t p h r a s e h i m s e l f , i t had b e e n m i s i n t e r p r e t e d and de f ined in a d i f f e r e n t
l ight than he had had in m i n d . In o the r w o r d s , m e r e w a r n i n g of an a t t a ck w a s
not enough. The f o r c e to s top the a t t a ck and g ive t h e e n e m y t i m e to change
hi s mind , m u s t ex i s t on t h e spot .
^L' À ., V-^V >". Y « V ' O - V J J
88
tW)«MH.-WStt&AJ»Mil«l I r r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
L .
I • : V -
i ' ) • V t
G e n e r a l N o r s t a d env i s ioned t h a t time! w a s work i ng on t h e s ide of
NATO. If t h e NATO n a t i o n s p r o v i d e d su f f i c i en t Shield F o r c e s and kep t t h e
e n e m y f r o m m a k i n g t h e f a t a l e r r o r , w a r would not o c c u r . And any c o m p a -
r i s o n of 1945 t h r o u g h 1949 wi th 1957 would show tha t t h e NATO n a t i o n s w e r e
d e f i n i t e l y in a m u c h b e t t e r s i t ua t ion on the l a t t e r da t e .
The s taff w a s w a r n e d by G e n e r a l N o r s t a d tha t t he t i m e had now c o m e
when t h e y w e r e going to have to be spe: c i f i c in p r o v i d i n g h i m wi th e s t i m a t e s of
t h e d u r a t i o n of any f u t u r e w a r . He wan ted to be ab le to s ay to t h e Counci l ,
in O c t o b e r o r l a t e r , j u s t how long t h e f igh t would p r o b a b l y b e . If he did not
p r o v i d e a s p e c i f i c t i m e p e r i o d , t h e n a t i o n s would demand one, a s t h e y had
a r i g h t to do.
O b j e c t i v e s and P r i o r i t i e s of R e q u i r e m e n t s .
F r o m h i s o b s e r v a t i o n s at C P X VII and f r o m ta lk ing wi th o the r NATO
m i l i t a r y a u t h o r i t i e s , G e n e r a l N o r s t a d had conc luded , he to ld h i s s t a f f , tha t
s p e c i f i c d e c i s i o n s w e r e going to have to be m a d e on t h e t a s k s to be done.
CINCHAN had m a d e a v e r y e loquent p l e a aga in s t t he e s t a b l i s h m e n t of e x c l u s i v e
and n a r r o w p r i o r i t i e s . G e n e r a l N o r s t a d had a g r e e d , but po in t ed out tha t c e r -
t a i n t h i n g s w e r e going to have to be done f i r s t . If t h e y w e r e not done f i r s t
t h e r e would be no c a u s e to w o r r y about what happened a f t e r w a r d s - t h e r e would
not be any a f t e r w a r d s . G e n e r a l N o r s t a d s t r e s s e d t h a t t h e p l a n m u s t cove r
t h e f i r s t p h a s e adequa t e ly , b a s e d on b r o a d gu idance a l r e a d y a v a i l a b l e and
s p e c i f i c s wh ich he would d i s c u s s wi th h i s s taff a s n e c e s s a r y . Subsequent
p h a s e s m u s t be c o n s i d e r e d , but s u r v i v a l of the f i r s t p h a s e w a s the big th ing .
F i r s t p h a s e r e q u i r e m e n t s would have an i m p o r t a n t b e a r i n g on subsequen t
p h a s e s . Such q u e s t i o n s a s the r e l a t i v e i m p o r t a n c e of s t r a t e g i c r e s e r v e d iv i -
s i o n s in t h e Uni ted S ta tes would h a v e to be dec ided , f o r i n s t a n c e . G e n e r a l
N 0 r s t a d w a n t e d t h e s taff t o p r e p a r e the s tudy without c o m p r o m i s e . He wan ted
no e c o n o m i c o r p o l i t i c a l j u d g e m e n t s f r o m the s t a f f , j u s t f a c t s . He would
a l w a y s be a v a i l a b l e f o r consu l t a t i on with the s t a f f , and he wan ted nothing h idden
o r o b s c u r e d by c o m p r o m i s e . If d i f f e r e n c e s of opinion a r o s e be tween s taff
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
g r o u p s , G e n e r a l N o r s t a d s t a t e d tha t he p e r s o n a l l y would r e s o l v e t h e m .
T h i s p a p e r would not be a s t r i c t r e q u i r e m e n t s s tudy but would t a k e in to
accoun t r e q u i r e m e n t s and capab i l i t i e s , u s i n g t h e r u l e s a l r e a d y e s t a b l i s h e d
f o r a s s u m p t i o n s a s to f o r c e s which could be gene ra t ed . When a s k e d if SHAPE
p lann ing w a s t o be coDdinated wi th other c o m m a n d s , he r e p l i e d tha t o ther
c o m m a n d s would be kep t i n f o r m e d but not a s k e d f o r coo rd ina t i on .
Cont inuat ion of Annual R e v i e w .
G e n e r a l N o r s t a d s t a t e d , in r e p l y to ano the r ques t i on , t ha t t h e Annual
Rev i ew would be con t inued . Although i n a d e q u a t e , the Annual Rev i ew w a s the
b e s t th ing a v a i l a b l e . He would t a k e t h i s up with ind iv idua l n a t i o n s if n e c e s s a r y
to p e r s u a d e t h e m tha t t h e Annual Rev i ew m u s t be cont inued . He d i r ec t ed tha t
the s u b o r d i n a t e c o m m a n d e r s be kep t i n f o r m e d ai*d be a s k e d f o r c o m m e n t and
adv ice whi le t h e s tudy w a s in p r o g r e s s , not a f t e r i t w a s c o m p l e t e d . If m a t t e r s
of b r o a d p r i n c i p l e c a m e in to d i s p u t e b e t w e e n SHAPE staff and the c o m m a n d s ,
they should be b rough t to h i m f o r r e s o l u t i o n .
DCPANDP Gu idance .
Air M a r s h a l Cons t an t i ne , DCPANDP, c a l l e d a l l t h e p lanning o f f i c e r s
c o n c e r n e d in to a c o n f e r e n c e on 25 Apr i l and i s s u e d t h e m h i s own gu idance .
At t h i s m e e t i n g i t w a s a g r e e d tha t t he a n n e x e s to the p l an would dea l only
wi th ACE p r o b l e m s . SACLANT and CINCHAN would be i n f o r m e d of the work
being done and would be consu l t ed a s a p p r o p r i a t e w h e r e coo rd ina t i on of na t iona l
c o n t r i b u t i o n s to SACEUR' s nava l f o r c e s w e r e c o n c e r n e d .
NAC R e q u e s t f o r R e p l i e s by SACEUR to WEU Q u e s t i o n s .
On 26 A p r i l 1957, G e n e r a l N o r s t a d w a s f o r m a l l y i n s t r u c t e d to p r e p a r e
r e p l i e s fo r t h e Counci l a n s w e r i n g q u e s t i o n s r a i s e d by t h e WEU, p a r t i c u l a r l y
conce rn ing m i l i t a r y r e q u i r e m e n t s and d e f e n s e a i m s and t h e r e l a t i o n s h i p
be tween convent iona l and a t o m i c w e a p o n s . In p r e p a r i n g t h e s e r e p l i e s , he
nato confidentf
G IT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
• /
w a s i n s t r u c t e d t o t a k e in to accoun t the m i l i t a r y a s p e c t s of t h e r e l a t i o n s h i p
b e t w e e n m o d e r n a r m a m e n t s and e c o n o m i c and f i n a n c i a l r e s o u r c e s in t h e
l igh t of t h e g e n e r a l p o l i c y of t h e A l l i ance a s a p p r o v e d by the Counc i l . He
w a s t o l d a l s o to t a k e in to accoun t t h e exp lana t ion of t h e WEU1S d e c i s i o n wh ich
had b e e n m a d e by P r o f e s s o r H a l s t e i n .
It w a s an t i c i pa t ed , of c o u r s e , tha t o the r q u e s t i o n s would be sent h i m
t h r o u g h t h e Counc i l . T h e Standing G r o u p i n s t r u c t e d G e n e r a l N o r s t a d t o s u b -
m i t h i s r e p l i e s s i m u l t a n e o u s l y to t h e m and to t h e Counci l in o r d e r tha t t he
Counc i l cou ld c o m m e n c e s tudying t h e m without de l ay . The Standing Group
u n d e r s t o o d tha t S A C E U R ' s r e p l i e s to the Counci l d i r e c t i v e would be con ta ined
in t h e n e w e s t M i n i m u m F o r c e Study, and tha t owing to t h e s e new cond i t ions
j u s t i m p o s e d , t h i s M i n i m u m F o r c e Study would be de layed f o r t h r e e or fou r
m o n t h s .
With s p e c i f i c r e g a r d to the M i n i m u m F o r c e Study, t h e Standing Group
s t a t e d tha t a l l of t h e s t u d i e s by a l l M a j o r NATO C o m m a n d e r s should de f ine
t h e c o m m a n d e r ' s m a i n m i s s i o n and t a s k ; de f ine t h e a s s u m p t i o n s f r o m which
t h e f o r c e r e q u i r e m e n t s w e r e g e n e r a t e d ; and con ta in the f o r c e r e q u i r e m e n t s
e i t h e r by c o u n t r y o r , if not p o s s i b l e , by a r e a c o m m a n d .
G e n e r a l N o r s t a d and the o the r c o m m a n d e r s w e r e a s k e d t o submi t
t h e i r M i n i m u m F o r c e Studies to t h e Standing Group not l a t e r t h a n 1 S e p t e m b e r
S H A P E Staff A c t i o n s .
T h e p r e l i m i n a r y f o r m of t h e s tudy and the accompany ing a n n e x e s w e r e
se t out by Ai r M a r s h a l C o n s t a n t i n e in a m e m o r a n d u m to t h e SHAPE Staff
on t h e s a m e day. The b a s i c d o c u m e n t w a s in tended to c o m p r i s e t h r e e m a i n
c h a p t e r s - - The Concep t , F o r c e C r i t e r i a , and F o r c e S t r u c t u r e . The S u m m a r y
1 9 5 7 . ' 2 7 »
(27) M e m o f o r S A C E U R f r o m SGN, SGN-279-57 , 26 Apr 57. DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of A C E P a t t e r n of F o r c e s R e q u i r e d and t h e , F o r c e T a b s would be inc luded
i n t h e l a s t c h a p t e r . T h e Annexes , f o u r t e e n in n u m b e r , A t h r o u g h N, w e r e (28) e n u m e r a t e d and a s s i g n e d to d i v i s i o n s of p r i m a r y i n t e r e s t / '
SACEUR' s B r i e f i n g of NAC at SHAPE.
On 28 M a y 1957, t h e N o r t h At lan t ic Counci l v i s i ted G e n e r a l N o r s t a d
a t SHAPE. A f t e r b r i e f i n g t h e s e o f f i c i a l s on the g e n e r a l m i l i t a r y s i tua t ion ,
G e n e r a l N o r s t a d e m p h a s i z e d c e r t a i n f a c t o r s which h e f e l t a f f e c t e d h i s c u r r e n t
s tudy on m i n i m u m f o r c e s . He r e v i e w e d fo r t h e m t h e c o m m a n d s t r u c t u r e of
A C E and the e s sen t i a l d i r e c t i v e s to h i m which w e r e con ta ined in t h e p o l i t i c a l
direct ive- . He r e - s t a t e d h i s m i s s i o n and e m p h a s i z e d tha t t he d e t e r r e n t p o r t i o n
of h i s m i s s i o n r e q u i r e d the u s e not only of t h e r e t a l i a t o r y f o r c e s and the
Shield, but t h e wi l l to u s e t h e m . Out l ining f o r t h e s e a u t h o r i t i e s h i s r e l a t i o n -
ship wi th SAC and s i m i l a r e x t e r n a l f o r c e s , G e n e r a l N o r s t a d p r e s e n t e d in
de t a i l t h e a t o m i c f o r c e s which w e r e a v a i l a b l e to h i m . And he d e m o n s t r a t e d
wi th c h a r t s t h e d i s p o s i t i o n of h i s a i r f i e l d s which m a d e i t i m p o s s i b l e fo r t h e
Soviets, even by s u r p r i s e a t t ack , t o e l i m i n a t e the A C E capab i l i t y to r e t a l i a t e (29)
and d e s t r o y t h e m /
With s p e c i f i c r e f e r e n c e to t h e Shield, G e n e r a l N o r s t a d r e - e m p h a s i z e d
tha t i t w a s an i n t e g r a l p a r t of the d e t e r r e n t . It m u s t b r i d g e t h e gap in t i m e
be tween the o u t b r e a k of h o s t i l i t i e s and the a t t a i n m e n t of the fu l l e f f ec t of the
r e t a l i a t o r y f o r c e s . He to ld the Counci l tha t he w a s th inking in t e r m s of w e e k s .
T h e Shield, b e s i d e s i t s o the r f u n c t i o n s , a s s i s t e d the r e t a l i a t o r y f o r c e s by
p r o t e c t i n g t h e e l e c t r o n i c gu idance f a c i l i t i e s n e e d e d by t h e l a t t a r . G e n e r a l
N o r s t a d i m p r e s s e d upon t h e Counci l t h e i m p o r t a n t f a c t t h a t NATO had t h e
ab i l i ty to d e s t r o y any s p e c i f i c t a r g e t i t w i s h e d in R u s s i a . The po ten t i a l e n e m y ' s
knowledge of t h i s f a c t would p r e v e n t h i m f r o m s t a r t i n g a w a r , except t h r o u g h
m i s c a l c u l a t i o n . (29) M e m o f r o m DCPANOP to Div i s ions , sub : A C E M i n i m u m F o r c e Study
1958-63, 26 Apr 57, P A W D P 12409, w / e n c l o s u r e . (29) M s g 281730z LOSTAN 2070, 28 M a y 57.
i iBimiurf T ô t * fftfl 'B ITfr
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
G e n e r a l N o r s t a d to ld t h e v i s i t i n g Counci l m e m b e r s t ha t he f o r e s a w
no d r a s t i c o r r e v o l u t i o n a r y c h a n g e s a s a r e s u l t of the f o r t h c o m i n g M i n i m u m
F o r c e &udy , and t h a t he fe l t t h e r e would be nothing c o m p a r a b l e to t h e v e r y
s i g n i f i c a n t c h a n g e s w h i c h had c o m e out of t h e 1957 C a p a b i l i t i e s Study« But
h e a d v i s e d t h e m t h a t if t h e y w i s h e d t o r e d u c e f o r c e s , t h e y m u s t th ink about
r e m o v i n g f r o m t h e P o l i t i c a l D i r e c t i v e s o m e of t h e t a s k s se t f o r t h t h e r e i n .
He added t h a t he did not s e e how any of t h e s e t a s k s could be r e m o v e d .
Q u e s t i o n s by t h e Na t iona l R e p r e s e n t a t i v e s and SECGEN.
In opening t h e q u e s t i o n p e r i o d , SACEUR po in ted out t ha t he now had
l e s s t h a n half t h e f o r c e s in C e n t r a l E u r o p e which he c o n s i d e r e d n e c e s s a r y
t o i m p l e m e n t the f o r w a r d s t r a t e g y on t h e l ine he c o n t e m p l a t e d hold ing . He
a l s o s t a t e d tha t t h e gu idance wh ich he had i s s u e d f o r t h e 1957 Annual R e v i e w
w a s b a s e d on 1960-62 th inking and not on MC 48, and tha t i t t h e r e f o r e inc luded
f u t u r e t r e n d s and f o r c e r e q u i r e m e n t s which he f e l t w e r e i n e v i t a b l e . He e x -
p r e s s e d g r e a t c o n f i d e n c e in t h e val id i ty of h i s gu idance a s i s s u e d .
The B e l g i a n R e p r e s e n t a t i v e a s k e d why, s i nce t h e Shield w a s p r e s e n t l y
a t h e o r e t i c a l and not a r e a l th ing , should we not r e d u c e i t t o s o m e t h i n g
at ta inable.-- SACEUR a n s w e r e d tha t wi th the r e t u r n of F r e n c h u n i t s and wi th
t h e G e r m a n c o n t r i b u t i o n he would h a v e some th ing n e a r 30 d i v i s i o n s , and he
b e l i e v e d he could s t i l l m e e t t h e goa l . He sa id tha t the 30 d i v i s i o n s f o r c e w a s
r i d i c u l o u s l y s m a l l and w a s a c c e p t a b l e only wi th t h e i n t e g r a t i o n and u s e of
n u c l e a r w e a p o n s . He d e c l a r e d tha t t he p r i c e t o pay f o r any r e d u c t i o n w a s
t o o g r e a t . He p o i n t e d out t h a t E u r o p e m i g h t not be t h e f i r s t a r e a s u b j e c t e d
to n u c l e a r a t t a c k and tha t in t h e m e a n t i m e NATO could not a c c e p t the o v e r -
r u n n i n g of c o u n t r i e s l i k e B e l g i u m , t h e N e t h e r l a n d s and G e r m a n y . He added
t h a t m a i n t e n a n c e of n e c e s s a r y f o r c e s w a s not a " c o n v e n i e n t " b u s i n e s s , t ha t
t h i s would be the w o r s t t i m e to r e d u c e f o r c e s s i n c e i t s e e m e d to h i m NATO
w a s not winning t h e p o l i t i c a l b a t t l e . E v e r y c o u n t r y could p r o b a b l y do t w i c e
a s m u c h a s i t w a s c u r r e n t l y doing f o r d e f e n s e .
93 /
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 ÜÜÜM1U " T O P ^SEC \ • • ' • /
T h e P o r t u g u e s e R e p r e s e n t a t i v e a s k e d wha t would happen in t h e even t
of t h e o u t b r e a k of w a r b e f o r e t h e bu i ld ing up of 30 d i v i s i o n s . SACEUR
a n s w e r e d t h a t h e cou ld not hope to c a r r y out t h e f o r w a r d s t r a t e g y a s c o n t e m -
p l a t e d , but would do t h e b e s t h e cou ld w i t h f u l l u s e of n u c l e a r w e a p o n s . He
a g a i n r e f e r r e d t o t h e g r a d u a l i m p r o v e m e n t r e s u l t i n g f r o m F r e n c h and G e r m a n
a c t i o n .
T h e N e t h e r l a n d s R e p r e s e n t a t i v e a s k e d if A C E cou ld r e l y on t h e e m p l o y -
m e n t of e x t e r n a l f o r c e s s u c h a s SAC and UK B o m b e r C o m m a n d . SACEUR
r e p l i e d t ha t he h a d a s s u r a n c e s of s u c h e m p l o y m e n t f r o m the US and tha t h i s
p o s i t i o n i n t h i s r e s p e c t w a s a s s t r o n g a s h i s c o n f i d e n c e in t h e two c o u n t r i e s
i n v o l v e d . T h e N e t h e r l a n d s R e p r e s e n t a t i v e a l s o p o s e d t h e c o n s t i t u t i o n a l q u e s -
t i on a s i t a f f e c t e d t h e u s e of n u c l e a r w e a p o n s on t h e o u t b r e a k of w a r . SACEUR
r e p l i e d t h a t he f e l t t h i s w a s l a r g e l y an a c a d e m i c . q u e s t i o n and tha t NATO wou ld
u s e t h e n e c e s s a r y w e a p o n s even b e f o r e f o r m a l d e c l a r a t i o n of w a r .
T h e S e c r e t a r y G e n e r a l a s k e d if S A C E U R ' s v i e w of t h e i n t e r r e l a t i o n s h i p
of t h e r e t a l i a t o r y and Shield p o r t i o n s of t h e d e t e r r e n t w a s a g r e e d in by o t h e r
m i l i t a r y a u t h o r i t i e s , NATO and na t iona l . SACEUR a n s w e r e d tha t g e n e r a l
a g r e e m e n t w a s e x p r e s s e d in M C 48, a g r e e d to be a l l n a t i o n s , tha t he k n e w
of no oppos i t i on , but t ha t t h e s p e c i f i c e m p h a s i s on t h e i m p o r t a n c e of t h e
Shield a s a p a r t of t h e d e t e r r e n t w a s p a r t i c u l a r l y a p e r sonna i v iew of h i s
d e v e l o p e d d u r i n g t h e l a s t s ix m o n t h s .
T h e S e c r e t a r y G e n e r a l a l s o a s k e d if n a t i o n s cou ld con t inue to r e d u c e
t h e n u m b e r of d i v i s i o n s r e q u i r e d by i n c r e a s i n g t h e i r f i r e p o w e r c a p a b i l i t y .
SACEUR a n s w e r e d t h a t h e h a d a l r e a d y t a k e n t h e new w e a p o n s in to a c c o u n t .
NATO h a d r e a c h e d a p o s i t i o n w h e r e t h e r e cou ld b e no m o r e d r a s t i c r e d u c t i o n s
in s t r e n g t h b e c a u s e of i n c r e a s e d n u c l e a r f i r e p o w e r .
The S e c r e t a r y G e n e r a l a s k e d how b e s t to a n s w e r t h e f e a r of m a n y
n a t i o n s t h a t t h e y cou ld not a f f o r d t o have both n u c l e a r and n o n - n u c l e a r f o r c e s .
SACEUR a n s w e r e d t h a t t h e c o s t w a s h igh and t ha t i t wou ld i n c r e a s e , but h e
p o i n t e d out t h a t g r o s s n a t i o n a l p r o d u c t s h a d b e e n i n c r e a s i n g wi thout a c o r r e s -
ponding i n c r e a s e of d e f e n s e b u d g e t s , and he thought t h i s m i g h t p r o v i d e p a r t of
t h e a n s w e r . ^ ^ ^ ^ ^ S E F ^ - Ï Ï « . «^«»«^H«^ '."»
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
F i n a l l y , t h e S e c r e t a r y G e n e r a l a s k e d f o r a c l a r i f i c a t i o n of N A T O ' s t
p o s i t i o n wi th r e s p e c t to the u s e of a t o m i c w e a p o n s . SACEUR a n s w e r e d
tha t i t w a s not d e c i d e d beyond t h e p r o v i s i o n of MC 48, wh ich g r a n t e d au tho -
r i t y f o r p lann ing on t h e u s e of a t o m i c w e a p o n s at t he o u t s e t .
The G r e e k R e p r e s e n t a t i v e a s k e d SACEUR to c o n f i r m t h e F i e l d M a r s h a l ' s
c o n t e n t i o n in C P X VII tha t t h e Sovie t s could not s u r p r i s e ACE wi th a g e n e r a l
a t t a c k . G e n e r a l N o r s t a d r e p l i e d tha t wh i l e the Sovie ts could a t t a ck wi thout
w a r n i n g , h e b e l i e v e d tha t in event of t h e i r d e l i b e r a t e l y in i t i a t ing h o s t i l i t i e s
w e woxild p r o b a b l y b e ab le to d e t e c t i n d i c a t i o n s of t h e i r i n t e n t i o n s .
T h e N o r w e g i a n R e p r e s e n t a t i v e asked if t h e r e had been any s ign i f i can t
Soviet r e d e p l o y m e n t wi th in t h e p a s t s ix m o n t h s . SACEUR a n s w e r e d tha t t h e r e
h a d b e e n none excep t in Hunga ry . The Norweg ian R e p r e s e n t a t i v e a l s o a s k e d
if t h e f low of i n t e l l i g e n c e w a s now s a t i s f a c t o r y to SACEUR; SACEUR r e p l i e d
t h a t a l though t h e r e had been a g e n e r a l i m p r o v e m e n t due to c o o p e r a t i o n by
n a t i o n a l a u t h o r i t i e s , h i s a n s w e r w a s s t i l l nega t ive a s app l i ed to c u r r e n t day -
t o - d a y i n t e l l i g e n c e . He added tha t h e f e l t he w a s f u r n i s h e d t h e b e s t s t r a t e g i c
i n t e l l i g e n c e ( l o n g - t e r m Soviet c a p a b i l i t i e s } ava i l ab l e to the W e s t e r n P o w e r s .
Q u e s t i o n s R a i s e d by Nat iona l A u t h o r i t i e s of F r a n c e and G e r m a n y .
The q u e s t i o n s r a i s e d by t h e WEU and D r . H a l s t e i n w e r e a u g m e n t e d dur ing
M a y by add i t iona l q u e s t i o n s f r o m t h e G e r m a n G o v e r n m e n t and f r o m t h e F r e n c h
G o v e r n m e n t . T y p i c a l of t h e t y p e of q u e s t i o n s a s k e d of G e n e r a l N o r s t a d w e r e *
t h e f o l l o w i n g : "Could G e n e r a l N o r s t a d m a k e a c o m p a r i s o n b e t w e e n t h e non-
a t o m i c f o r c e s wh ich have b e e n e s t i m a t e d a s n e c e s s a r y f o r t h e d e f e n s e of
NATO fo l lowing t h e L i s b o n C o n f e r e n c e and the ' m o d e r n ' f o r c e s now d e e m e d
n e c e s s a r y f o r t h e 1960-65 d e f e n s e p r o g r a m ; " and, " Is i t p o s s i b l e to c o n t e m -
p l a t e w i t h d r a w i n g c e r t a i n s o - c a l l e d conven t iona l a r m a m e n t s f r o m t h e ' m o d e r n *
f o r c e s of the t h r e e S e r v i c e s ? If so , which i t e m s cou ld be w i t h d r a w n ? "
(30) R D C / 1 7 4 / 5 7 , 6 M a y 57, A c o m p l e t e l i s t of a l l t h e s e q u e s t i o n s i s con ta ined in M e m o f r o m G e n e r a l Gaz in to Div i s ions , sub : ACE M i n i m u m F o r c e Study 1958-60 , 20 Jun 57.
(COSMIC T O P S E C R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
P r o g r e s s of ACE M i n i m u m F o r c e Study,
The p r e p a r a t i o n of t h e b a s i c s tudy and i t s a n n e x e s got unde r way i m -
m e d i a t e l y . By e a r l y J u n e a r e p o r t on t h e p r o g r e s s of the M i n i m u m F o r c e
Study w a s r e n d e r e d by Ai r M a r s h a l Cons t an t i ne , and at t he Chief of S t a f f ' s
m e e t i n g on 5 J u n e , he s t a t e d tha t in t h e i n t e r e s t s of t h e study he p r o p o s e d to
hold a p e r i o d i c p r o g r e s s m e e t i n g to e n s u r e t h a t t h e r e w e r e no b o t t l e n e c k s .
He p r o p o s e d to ho ld t h e f i r s t m e e t i n g on 18 J u n e , and a s k e d that Oiv isbn
Ch ie f s c o m e in p e r s o n .
When t h e M i l i t a r y C o m m i t t e e m e t in P a r i s f o r i t s 17th Sess ion , G e n e r a l
N o r s t a d , a long wi th the o the r m a j o r NATO c o m m a n d e r s , a p p e a r e d b e f o r e t h e
C o m m i t t e e to t e l l t h e m of h i s p r o g r e s s on t h e M i n i m u m F o r c e Study. On
10 J u l y he exp la ined to t h e C o m m i t t e e tha t c e r t a i n f a c t o r s had been i n t r o d u c e d
which had changed t h e g e n e r a l f o r m , the s cope and the s u b s t a n c e of h i s s tudy,
p a r t i c u l a r l y t h e r e spons ib i l i t i e s i m p o s e d on h im by the Counci l of the WEU
and the NATO Counc i l . What w a s now expec ted of h i m w a s a s tudy which would
p r o v i d e a b a s i s f o r a n s w e r i n g t h e m o s t p r e s s i n g and d i f f i cu l t ques t i ons in
the f i e ld of m i l i t a r y r e q u i r e m e n t s , such a s , f o r e x a m p l e , t h e r e l a t i o n s h i p
be tween conven t iona l w e a p o n s and the s o - c a l l e d new w e a p o n s . He s t a t e d tha t
t h i s s tudy would be c o n s i d e r a b l y l a r g e r and f a r m o r e c o m p r e h e n s i v e than
w a s o r i g i n a l l y c o n t e m p l a t e d . It w a s hoped, h o w e v e r , t ha t t he 1 S e p t e m b e r
dead l ine set by the Standing Group could be m e t . G e n e r a l N o r s t a d to ld the
m e m b e r s of t h e M i l i t a r y C o m m i t t e e tha t wh i l e he did not w i s h to p r e j u d g e
h i s s tudy, or to g ive t h e i m p r e s s i o n tha t any f i r m c o n c l u s i o n s had yet been
r e a c h e d , he expec t ed n e i t h e r any d r a s t i c change or sh i f t in t h e b a l a n c e of
f o r c e s , and c e r t a i n l y no v a s t r e d u c t i o n in r e q u i r e m e n t s . No new f a c t o r s had
been i n t r o d u c e d and the b a s i c a s s u m p t i o n s r e m a i n e d unchanged . The P o l i t i c a l
D i r e c t i v e c e r t a i n l y did not r e d u c e the s i z e of t h e t a s k . Indeed, whi le the
D i r e c t i v e had a s s i g n e d h i m no new m i s s i o n s , s o m e m i s s i o n s w e r e r e - e m p h a -(31) s i zed which had been a l m o s t f o r g o t t e n s ince 195) or 1952.
(31) MC 17th Ses s ion , 29 J u l y 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SACEUR*a A p p r a i s a l of M i n i m u m F o r c e Study D e v e l o p m e n t .
Dur ing t h e p a s t eight m o n t h s SACEUR had r e - e x a m i n e d t h e r e q u i r e m e n t p
f o r t h e s o - c a l l e d Shield F o r c e s . It a p p e a r e d tha t t h e s e r e q u i r e m e n t s w e r e ,
if any th ing , more f i r m l y s u p p o r t e d t h a n t h e y w e r e in e a r l i e r y e a r s . And h e
r e i t e r a t e d h i s p e r s o n a l conv ic t ion of t h e v a l u e of t h e Shield a s an e s s e n t i a l
p a r t of t h e d e t e r r e n t . He s a i d tha t t h e p r e s e n t a t i o n s to be m a d e t o w a r d t h e
end of 1957 would r e a l l y h inge on tha t p a r t i c u l a r poin t a s t h e m o s t s ign i f i can t
new d e v e l o p m e n t of t h e p r e s e n t s tudy . G e n e r a l N o r s t a d s a i d tha t he hoped to
p r e s e n t a b r i e f i n g on h i s s tudy to t h e M i l i t a r y C o m m i t t e e and to t h e Counci l
i n s u c h a w a y a s to m a k e i t p o s s i b l e f o r t h e m to c o n s i d e r t h e m e r i t s of t h i s
p a r t i c u l a r f u n c t i o n and to d e c i d e tha t it should or should not be c a r r i e d out .
He f e l t t ha t NATO h a d long s i n c e p a s s e d t h e poin t w h e r e r e q u i r e m e n t s could
b e a s s e s s e d and t h e n A r b i t r a r i l y r e d u c e d , b e c a u s e i t .would be i m p o s s i b l e to
c a r r y out t h e a s s i g n e d t a s k s if t h e r e w e r e any f u r t h e r whi t t l ing away . He
b e l i e v e d t h a t t h e m i n i m u m b a s i c s t r u c t u r e had now been r e a c h e d .
New C o n c e p t s of ACE T a s k s - Delay in P r o g r e s s .
Ai r M a r s h a l C o n s t a n t i n e c a l l e d the Staff O f f i c e r s who w e r e p r i m a r i l y
c o n c e r n e d wi th t h e p r e p a r a t i o n of t h e M i n i m u m F o r c e Study to a m e e t i n g on
11 J u l y , at wh ich he e x a m i n e d in de t a i l t h e c u r r e n t s t a t u s of t h e s tudy and
a t t e m p t e d to d e t e r m i n e the m a j o r p r o b l e m s ly ing ahead . At t h i s m e e t i n g ,
i t w a s d e v e l o p e d tha t P A N D P had evo lved a new concep t of t h é t a s k s of Al l ied
C o m m a n d E u r o p e , o r i g i n a l l y Annexes B and C. It w a s now p r o p o s e d to
deve lop a p a p e r wh ich would r e f l e c t SACEUR' s s t r a t e g i c a p p r e c i a t i o n o r
ComiiBnder 1S E s t i m a t e . C o - l a t e r a l l y , t h i s p a p e r would a d d r e s s i t s e l f t o the
m a j o r q u e s t i o n s p o s e d by t h e Counci l and t h e na t iona l a u t h o r i t i e s , ques t ions
w h i c h w e r e not dea l t wi th e l s e w h e r e in t h e s tudy. An e x a m p l e of such a
q u e s t i o n w a s tha t of t h e r e l a t i o n s h i p be tween n u c l e a r and n o n - n u c l e a r a r m s .
P r o g r e s s on t h e s tudy w a s not up t o t h e s c h e d u l e wh ich o r i g i n a l l y had
b e e n p r o p o s e d by P A N D P . P a r t i c u l a r l y , t h e annex c o v e r i n g t h e D e f e n s e of
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
V- > y
/
L a n d F r o n t i e r s w a s l agg ing behind , p r o b a b l y the m o s t i m p o r t a n t annex
i n s o f a r a s t h e q u e s t i o n s wh ich h a d b e e n p o s e d by t h e Counci l w e r e c o n c e r n e d .
The g e n e r a l l ag in c o m p l e t i o n of t h e e a r l i e r a n n e x e s to t h e M i n i m u m F o r c e
Study t h r e a t e n e d t o r e d u c e t h e t i m e a v a i l a b l e f o r t r a n s l a t i n g t h e s e a n n e x e s
in to s p e c i f i c f o r c e r e q u i r e m e n t s and f o r developing t h e l o g i s t i c and f i n a n c i a l
i m p l i c a t i o n s .
DCPANDP P r o p o s a l s f o r Comple t ion of F o r c e s Study.
Air M a r s h a l C o n s t a n t i n e had e m p h a s i z e d f o r a l l t h e d iv i s i ons c o n c e r n e d
what s t i l l n e e d e d to be done, and t h e i r s p e c i f i c r e s p o n s i b i l i t i e s . He a s s i g n e d
to P A N D P Div is ion t h e t a s k of coo rd ina t ing c o n t e n t s and developing, in con-
junc t ion wi th t h e Adju tan t G e n e r a l , t he a d m i n i s t r a t i v e d e t a i l s fo r o rgan iz ing ,
a s s e m b l i n g , and r e p r o d u c i n g t h e Study.
Air M a r s h a l (Konstantine p r o p o s e d to t h e Chief of Staff f o r a p p r o v a l a
n u m b e r of a c t i o n s and r e q u i r e d a r r a n g e m e n t s . He p r o p o s e d a t i m e t a b l e «
se t t ing f o r t h d a t e s by which bo th in i t i a l and f i na l d r a f t s of t h e b a s i c documen t
and of each annex should be p r e p a r e d . T h i s p r o v i d e d f o r c o m p l e t i o n dur ing
August in m o s t c a s e s , and in no c a s e l a t e r t han 15 Augus t . He r e c o m m e n d e d
a m e t h o d of handl ing t h e s tudy by t h e C o m m a n d Eche lon , sugges t ing tha t
SACEUR should c o n c u r g e n e r a l l y wi th the con ten t s of Annex B (The S t r a t eg i c
A p p r e c i a t i o n of C o m m a n d e r ' s E s t i m a t e ) , wh ich would be f o r w a r d e d not l a t e r
t han 5 August , and tha t SACEUR should of c o u r s e s p e c i f i c a l l y a p p r o v e t h e
b a s i c documen t . Addi t iona l ly , he fe l t tha t t he C o m m a n d Eche lon should be
b r i e f e d on t h e m a i n p o i n t s of the o the r a n n e x e s . T h i s b r i e f i n g would t a k e at
l e a s t four h o u r s , and be g iven by a b r i e f i n g t e a m f r o m t h e s taff be tween 15
and 23 Augus t . He r e c o m m e n d e d tha t t h e Chief of Staff should, a s a m i n i m u m ,
r e a d the a n n e x e s on a i r d e f e n s e , n u c l e a r d e l i v e r y f o r c e s , d e f e n s e of l a n d (32) f r o n t i e r s , and f o r c e r e q u i r e m e n t s /
(32) M e m o f o r Chief of Staff , 15 J u l 57, sub : M i n i m u m F o r c e Study, sgd H. A. Cons t an t ine , D C P A N D P . Act ion O f f i c e r : Col . St i lwel l ; w / E n g l . -1 T i m e t a b l e .
98
.. V J W -
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
D C P A N D P R e c o m m e n d a t i o n s C o n c e r n i n g MSCs .
Ai r M a r s h a l C o n s t a n t i n e to ld G e n e r a l Schuyler t h a t t h e ac t ion o f f i c e r s
h a d fo l lowed S A C E U R ' s gu idance g iven on 23 Apr i l and h a d sought a d v i c e
and c o u n s e l a s r e q u i r e d f r o m knowledgeab l e o f f i c e r s wi th in t h e s u b o r d i n a t e
c o m m a n d s . They had a l s o c a r r i e d on c o n s i d e r a b l e l i a i s o n wi th r e s p e c t to
c e r t a i n a n n e x e s . As a f u r t h e r m e a s u r e , DCPANDP p r o p o s e d t h a t t h e M a j o r
S u b o r d i n a t e C o m m a n d e r s be a c q u a i n t e d t h r o u g h f o r m a l p r e s e n t a t i o n s wi th
t h i s v e r y i m p o r t a n t d o c u m e n t . Al though t i m e m i g h t not a l low fu l l f a m i l i a r i -
za t ion wi th i t and c o m m e n t f r o m t h e s e k e y o f f i c e r s , he f e l t t ha t a f t e r 15 Au-
g u s t b r i e f i n g s should be g iven t o t h e m and to t h e i r p r i n c i p a l p l a n n e r s by t h e
S H A P E s t a f f .
D i s t r i b u t i o n of t h e Study.
As to t h e d i s t r i b u t i o n of t h i s M i n i m u m F o r c e Study, M a j o r G e n e r a l
G a z i n would r e c o m m e n d d i s t r i b u t i o n wi th in ACE and a d j a c e n t NATO c o m m a n d s .
T h e Standing Group , of c o u r s e , h a d a l r e a d y d i r e c t e d s i m u l t a n e o u s t r a n s m i t t a l
t o t h e m s e l v e s and to t h e Counci l . Air M a r s h a l Cons t an t ine p r o p o s e d to a s k
t h e Standing Group what d i s t r i b u t i o n , if any, should be m a d e to MODs . T h e r e
w a s s o m e q u e s t i o n a s to w h e t h e r the p a t t e r n fo l lowed in sending t h e 1960-62
F o r c e P o s t u r e Study to t h e MODs w a s s t i l l va l id s i nce t h e even tua l pub l i ca t i on
of M C 70 m i g h t h a v e a l t e r e d t h e c i r c u m s t a n c e s .
On 26 August t h e Standing Group i n f o r m e d the N o r t h At lan t ic Counci l
t h a t b e c a u s e of " p r a c t i c a l d i f f i c u l t i e s " , SACEUR's s tudy would be de l ayed .
And t h e y f u r t h e r p o i n t e d out t h a t t h i s would c a u s e a d e l a y in r e c e i p t by the
Counci l of c o m m e n t s of t h e i r cons t i t u t i ona l m i l i t a r y a d v i s e r s on SACEUR' s (33) r e p l i e s t o F r e n c h and G e r m a n q u e s t i o n s and on p r o d u c t i o n of MC 70.
P r o g r e s s R e p o r t on t h e M i n i m u m F o r c e Study by A COS P A N D P .
At a m e e t i n g wh ich G e n e r a l Schuyler he ld wi th a l l Div is ion Ch i e f s on
(33) R a d , D E F 928578, SGN to SGREP, 26 Aug 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
22 Augus t , M a j o r G e n e r a l Gaz in , ACOS P A N D P , gave a de t a i l ed accoun t ing
of t h e s t a t u s of t h e M i n i m u m F o r c e Study, wi th p a r t i c u l a r e m p h a s i s on t h e
i n f l u e n c e of SACEUR in d i r e c t i n g c e r t a i n p o r t i o n s of t h e s tudy . G e n e r a l
N o r s t a d w a s fo l lowing c l o s e l y t h e a c t i o n s of t h e staff in p r e p a r i n g t h i s • (34) p r o j e c t .
S A C E U R ' s D i r e c t i v e s f o r R e v i s i o n s .
C h a p t e r s 1 and 2 of Vo lume 1 had been a p p r o v e d in p r i n c i p l e by
SACEUR, but he d i r e c t e d tha t t h i s p o r t i o n be r e w r i t t e n f o r g r e a t e r c l a r i t y
and p a r t i c u l a r l y to b r i n g out the i m p o r t a n c e of the Shield F o r c e s in l i ne wi th
h i s e x p r e s s e d v i e w s . He had a l s o d i r e c t e d a new c h a p t e r added to Volune 1
to s u m m a r i z e m a i n c o n c l u s i o n s d r a w n f r o m d i f f e r e n t a n n e x e s and f r o m which
the m a i n p o i n t s to be i nc luded in the l e t t e r to t h e Standing Group would be
e x t r a c t e d .
G e n e r a l N o r s t a d f e l t tha t t h e r e w e r e t h r e e m a i n p o i n t s which m u s t
be b rough t out by h i s s tudy and which m u s t be e m p h a s i z e d and m a d e p e r f e c t l y
c l e a r by h i s s taff in w r i t i n g t h e d o c u m e n t .
F i r s t , he w i s h e d a c l e a r and l u c i d c o m p a r i s o n p r e s e n t e d , i n t e r m s
tha t would be u n m i s t a k a b l y a p p r e c i a t e d , of the e c o n o m i c c o s t s of the m i l i t a r y
m a c h i n e r y shown a s n e c e s s a r y in t h e s tudy a s opposed to t h e m i l i t a r y r i s k s
which would ex i s t if t h i s m a c h i n e r y w e r e not m a d e a v a i l a b l e . His s econd
r e q u i r e m e n t w a s f o r a vivid a n a l y s i s of t h e n e e d f o r v i g i l a n c e and r e a d i n e s s
and t h e a c t u a l s t a t e of tha t v i g i l a n c e . T h i r d l y , G e n e r a l N o r s t a d w i s h e d
b rough t out h i s op in ions and though t s about the n e c e s s i t y of ba lanc ing f o r c e s
f o r e c o n o m i c r e a s o n s .
G e n e r a l N o r s t a d had a l s o d i r e c t e d c e r t a i n a c t i o n s a f t e r having r e v i e w e d
s o m e of t h e m a j o r a n n e x e s in d r a f t f o r m . He e x p r e s s e d c o n c e r n at t h e " o v e r -
k i l l i n g " f a c t o r wh ich a p p e a r e d in Annex B, N u c l e a r S t r ike F o r c e s . The s a m e
(34) See V e r b a t i m R e c o r d of COFS Mtg wi th Div is ion Ch ie f s , 22 Aug 57, f o r d e t a i l s of t h i s d i r e c t i o n ,
v'i?t t Ji '4 NATO CONRDENTIAL10In .¾ I
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
" o v e r - k i l l i n g " o r o v e r - a b u n d a n c e of a t o m i c c a p a b i l i t i e s a l s o e x i s t e d in t h e
l e v e l of n u c l e a r d e l i v e r y m e a n s shown in Annex C, D e f e n s e of L a n d F r o n t i e r s .
But G e n e r a l N o r s t a d f e l t t ha t t h e l a c k of f l e x i b i l i t y of ground d e l i v e r y s y s t e m s
ob l iged h i m to h a v e an abundance of m e a n s beyond t h o s e which would at f i r s t
a p p e a r a d e q u a t e .
G e n e r a l N o r s t a d had a l s o s tud ied t h e r e m a i n d e r of t h e a n n e x e s and
d i r e c t e d c e r t a i n ac t i on on e a c h of t h e m .
The d i v i s i o n s r e s p o n s i b l e f o r p r e p a r i n g t h e a n n e x e s w e r e d i r e c t e d to
c o m p l e t e t h e m in f i n a l d r a f t and to s u b m i t t h e m to DCPANDP by 24 Augus t .
F i n e d ed i t ing of t h e s e a n n e x e s f o r s ty le , c o n s i s t e n c y and e l i m i n a t i o n of dup l i -
c a t i o n wovild be a c c o m p l i s h e d by a t a s k g r o u p h e a d e d by Colonel G r i f f i t h ,
w o r k i n g u n d e r t h e i m m e d i a t e d i r e c t i o n of D C P A N D P .
On 11 S e p t e m b e r , G e n e r a l Schuyler to ld h i s d iv i s ion c h i e f s tha t m o s t
of t h e a n n e x e s of t h e M i n i m u m F o r c e Study 1958-63 w e r e in t h e f i na l s t a g e s of
d r a f t i n g and would be r e a d y f o r r e p r o d u c t i o n v e r y s h o r t l y . T h e r e would be
two v o l u m e s : V o l u m e 1 would con ta in f i v e c h a p t e r s dea l ing wi th g e n e r a l p h i -
l o sophy , p l u s t h e f o r c e t a b l e s ; and V o l u m e 2 would c o n s i s t of s e v e n suppor t ing
a n n e x e s going in to g r e a t e r de t a i l in suppor t of g e n e r a l i t i e s c o v e r e d in Vo lume 1.
T h e s a m e n u m b e r of c o p i e s of both vo lumes would be p r o d u c e d , but only v e r y
l i m i t e d d i s t r i b u t i o n would be m a d e of Vo lume 2, which would p r o b a b l y be one
of t h e m o s t s e n s i t i v e d o c u m e n t s eve r p r o d u c e d by t h i s h e a d q u a r t e r s .
T h e M a j o r Subord ina t e C o m m a n d e r » would be b r i e f e d on t h i s s tudy
on 16 S e p t e m b e r ; t h e Ch i e f s of Staiff of t h e NATO C o u n t r i e s on 18 S e p t e m b e r ; (35) and t h e NATO Counc i l on 2 O c t o b e r , * '
B r i e f i n g f o r Ind iv idua l s C o n c e r n e d in t h e Study.
All r e s p o n s i b l e o f f i c i a l s wi th in t h e h e a d q u a r t e r s w e r e a g r e e d tha t in
o r d e r t h a t t h e M i n i m u m F o r c e Study should be f u l l y u n d e r s t o o d by t h o s e
(35) M i n u t e s of t h e C O F S M e e t i n g wi th Div is ion Ch ie f s , 11 Sep 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
• I
i nd iv idua l s who would e i t h e r be a f f e c t e d by* or who would t h e m s e l v e s
a f f e c t , t h e c o n c e p t s and p r o v i s i o n s of t h e s tudy, d e t a i l e d b r i e f i n g s should
be set up . A c c o r d i n g l y , t h i s b r i e f i n g p h a s e a s s u m e d g r e a t e r and g r e a t e r
i m p o r t a n c e du r ing l a t e s u m m e r and e a r l y a u t u m n .
On 16 S e p t e m b e r , M a j o r Subord ina te C o m m a n d e r s v i s i t e d S H A P E w h e r e
t h e y w e r e b r i e f e d on t h e M i n i m u m F o r c e Study. Two days l a t e r , Ch ie f s of
Staff of a l l NATO c o u n t r i e s were g iven a s i m i l a r b r i e f i n g , and on 2 Oc tobe r
the P e r m a n e n t R e p r e s e n t a t i v e s of t h e NAC c a m e to SHAPE w h e r e t h e s tudy
w a s exp la ined to t h e m in g r e a t de t a i l . At h i s m e e t i n g with the Counci l ,
G e n e r a l N o r s t a d fo l l owed t h e s a m e l i ne of b r i e f i n g which he had u s e d in
b r i e f i n g the na t i ona l Ch ie f s of Staff . He po in t ed out to t h e m however tha t wh i l e
h i s s tudy c o n t a i n e d t h e b a s i s f o r r e p l i e s to t h e G e r m a n and F r e n c h q u e s t i o n s
r a i s e d in connec t ion wi th t h e WEU p r o b l e m of UK r e d u c t i o n of f o r c e s , i t did (36)
not con ta in t h e s p e c i f i c a n s w e r s to t h e s e q u e s t i o n s .
The r e a c t i o n s of the Ch ie f s of Staff and t h e P e r m a n e n t R e p r e s e n t a t i v e s
w e r e , in g e n e r a l , f a v o r a b l e . Some na t i ons , h o w e v e r , w e r e c o n c e r n e d wi th
t h e f o r c e r e c o m m e n d a t i o n s made in t h e s tudy which i n d i c a t e d tha t t hey would
have to p r o v i d e c e r t a i n c o s t l y new f o r c e s o r , in s o m e c a s e s , r e d u c e f o r c e s
which they w a n t e d to k e e p . T h e r e w a s a l s o c o n c e r n ove r t h e p r o p o s e d r e d u c -
t ion of the ex i s t ing 2nd Eche lon Div i s ions w h o s e equ ipmen t w a s c o n s i d e r e d
to be a d e q u a t e f o r t h e p r e s e n t and which could be e m p l o y e d by the n a t i o n s on
na t iona l t a s k s .
The M i n i m u m F o r c e Study fo r ACE 1958-63 i s P u b l i s h e d .
The M i n i m u m F o r c e Study f o r Al l ied C o m m a n d E u r o p e , 1958-1963,
w a s i s s u e d on 1 O c t o b e r 1957. The a i m of t h e s tudy w a s def ined a s : "To
d e t e r m i n e the m i n i m u m f o r c e wi th which Al l ied C o m m a n d E u r o p e could
c a r r y out i t s m i s s i o n t h r o u g h 1963 and to p l a n t h e n e c e s s a r y t r a n s i t i o n
(36) Rad , SGREP to SGN LOSTAN 2208, 2 Oct 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
ÇÛS&IIC . TQEL -SFTRATRN
beg inn ing 1958 . "
T h e s tudy c o n s i s t e d of two v o l u m e s a s p l a n n e d , t he B a s i c Study in
V o l u m e 1, and t h e A n n e x e s in V o l u m e 2. T h e d i s t r i b u t i o n of V o l u m e 2 w a s
m u c h m o r e l i m i t e d t h a n t h a t of Vo lume 1, b e c a u s e of t he s e n s i t i v i t y of the
i n f o r m a t i o n c o n t a i n e d in t h e a n n e x e s . W h e r e a s a t o t a l of 250 E n g l i s h and
120 F r e n c h c o p i e s of Vo lume 1 w e r e p r o d u c e d and d i s t r i b u t e d t o NATO
a u t h o r i t i e s and t o t h e n a t i o n s of NATO a s wel l a s t o t h e S H A P E Staff , only (37) ~
70 E n g l i s h and 22 F r e n c h c o p i e s of V o l u m e 2 w e r e d i s t r i b u t e d .
R e s u m e s of C o n t e n t s of Vol . 1 by C h a p t e r s , and Vol . 2 by Annex T i t l e s .
As f i n a l l y p r o d u c e d , Vo lume 1 c o n t a i n e d f i v e c h a p t e r s . C h a p t e r I,
T h e T h r e a t , s e t f o r t h t he c o m p a r a t i v e n u c l e a r p o s i t i o n s of t h e NATO n a t i o n s
and t h e Sovie t B l o c ; an a n a l y s i s of t he Soviet c a p a b i l i t i e s o v e r - a l l and t he
p o s s i b l e c o u r s e s wh ich a g g r e s s i o n a g a i n s t NATO m i g h t t a k e . T h e s e l a t t e r
i n c l u d e d , a s i d e f r o m a g e n e r a l w a r , c e r t a i n p o s s i b i l i t i e s in t h e f i e l d of
l i m i t e d a g g r e s s i o n s u c h a s i n c u r s i o n s and i n f i l t r a t i o n s and l o c a l a t t a c k .
C h a p t e r II, A Shield f o r NATO, d i s c u s s e d , without n a m i n g i t so,
S A C E U R ' s m i s s i o n to p r e v e n t w a r , if p o s s i b l e , but if w a r o c c u r r e d , to win
i t . T h e C e n t r a l S t r a t e g y , b a s e d on t h e d e t e r r e n t , se t f o r t h t h e p h i l o s o p h y
in t h e two c a s e s of g e n e r a l w a r or l i m i t e d a g g r e s s i o n . The s e c o n d half of
t h i s c h a p t e r d e f i n e d t h e n e e d f o r r eady f o r c e s and t h e f u n c t i o n s of both t h e
S t r i k e F o r c e s and the Shield F o r c e s . In t h i s connec t ion , G e n e r a l N o r s t a d ' s
c o n c e p t i o n of t h e Shield F o r c e s a s a p a r t of t h e ac tua l d e t e r r e n t w a s e m p h a s i z e d .
C h a p t e r III, C e r t a i n M e a s u r e s R e q u i r e d , i nc luded a s tudy of c r i t i c a l
m a r g i n s ; t h e n e c e s s i t y f o r a d e q u a t e w a r n i n g of a t t a c k ; and i n t r o d u c e d two
c o n c e p t s w h i c h w e r e t o t a k e on g r e a t e r i m p o r t a n c e wi th in S H A P E in coming
m o n t h s . T h e s e c o n c e p t s or p r i n c i p l e s , f i r s t m e n t i o n e d h e r e , w e r e t h o s e of
(37) S H A P E / 1 5 4 / 5 7 and S H A P E / 1 5 4 - 1 / 5 7 , 1 O c t o b e r 1957.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S r t A F ü , S t I O t UOfiMic rem
(38) G r a d u a t e d R e a d i n e s s and Co l l ec t i ve B a l a n c e d F o r c e s .
Chap t e r IV p r e s e n t e d t h e a s s u m p t i o n s on wh ich the P a t t e r n of F o r c e s
in t h e s tudy w a s b a s e d , and t h e n p r e s e n t e d in s u m m a r y t h e F o r c e T o t a l s ,
by c o m m a n d , by na t ion and by s e r v i c e f o r A C E which had been deve loped
wi th in t h i s p a t t e r n .
The S u m m a r y , Chap te r V, w a s a d d r e s s e d , in p a r t at l e a s t , t o na t iona l
a u t h o r i t i e s , and l o n g - t e r m c o n s i d e r a t i o n s i nc luded a ca l l f o r a l o n g - r a n g e
c o s t p l an a s a l o g i c a l c o m p l e m e n t of t h e l o n g - r a n g e f o r c e p l a n . T h s conc lud -
ing p a r a g r a p h of Vo lume 1 s t a t e d : "In deve lop ing t h i s f o r c e , Al l ied C o m m a n d
E u r o p e h a s been gu ided by two f a c t s : F i r s t tha t our s t r e n g t h depends on t h e
economic hea l t h of t h e NATO n a t i o n s ; second , and p a r a m o u n t , tha t m u c h of
t h e hope f o r p e a c e and f r e e d o m depends upon t h e a c c o m p l i s h m e n t of t h e
NATO m i s s i o n - - t o p r e v e n t w a r , but , if a t t a cked , to de fend our p e o p l e s
and t e r r i t o r i e s . "
Vo lume 2, t h e a n n e x e s , c o m p r i s e d in f ina l f o r m : Annex A - t h e Soviet
T h r e a t ; Annex B - t h e N u c l e a r S t r i ke F o r c e s ; Annex C - D e f e n s e of Land
F r o n t i e r s ; Annex D - Air D e f e n s e of NATO E u r o p e ; Annex E - D e f e n s e and
Explo i ta t ion of the Sea A r e a s of Al l ied C o m m a n d E u r o p e ; Annex F - L o g i s t i c s
I m p l i c a t i o n s ; Annex G - P r o g r a m m i n g I m p l i c a t i o n s .
The f i r s t v o l u m e , the B a s i c Study, con t a ined m a i n l y a p h i l o s o p h i c a l
d i s c u s s i o n and a n a l y s i s of SACEUR's m i s s i o n , and m e a n s and m e t h o d s of
a c c o m p l i s h i n g tha t m i s s i o n . It a t t e m p t e d to s y n t h e t i z e m i l i t a r y thought in to
t e r m s u n d e r s t a n d a b l e to t h e l a y m a n . In m a n y i n s t a n c e s , t he l a y m e n at whom
t h i s w a s a i m e d w e r e na t iona l c iv i l i an o f f i c i a l s of c o n s i d e r a b l e i n f l uence p o l i -
t i ca l ly , but of l i m i t e d e x p e r i e n c e m i l i t a r i l y . Without f u l l u n d e r s t a n d i n g of
SACEUR's n e e d s and of t h e r e a s o n s u n d e r l y i n g h i s r e q u i r e m e n t s , t h e fu l l
suppor t of t h e s e o f f i c i a l s migh t not be f o r t h c o m i n g . On the other hand, t h e
s tudy had to be su f f i c i en t l y " P r o f e s s i o n a l " to c a p t u r e and hold the a t t en t ion
of the p r o f e s s i o n a l m i l i t a r y m e n in NATO and p a r t i c u l a r l y t h e Nat ional S ta f f s .
(38) F o r De ta i l s of f u r t h e r ac t ion t a k e n on t h e s e two m a t t e r s in 1957 s e e
i ^ ^ ^ - t f r r ' r a i r n PT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
nato conf T h e a s s u m p t i o n s on which the p a t t e r n of M i n i m u m F o r c e s w a s b a s e d
had b e e n r e q u e s t e d by t h e Standing Group« Although s e v e n a s s u m p t i o n s w e r e
l i s t e d in C h a p t e r IV, P a t t e r n of F o r c e s 1963, t h r e e of t h e s e w e r e p a r t i c u l a r -
l y s i g n i f i c a n t and h a d t h e g r e a t e s t i n f l u e n c e on t h e s tudy . It w a s a s s u m e d ,
f o r e x a m p l e , t h a t S A C E U R ' s f o r c e s would be equipped wi th o p e r a t i o n a l new
e q u i p m e n t and w e a p o n s s y s t e m s , inc lud ing a n u c l e a r d e l i v e r y capab i l i t y
w h e n e v e r r e q u i r e d . T h e p e a k r e q u i r e m e n t s would be d e t e r m i n e d by t h e c r i -
t i c a l opening p h a s e of any w a r , and t h e m i n i m u m f o r c e would be c o m p u t e d on
t h e m i n i m u m t a s k to de fend , not to a d v a n c e and occupy any t e r r i t o r y .
T h e i n t r o d u c t i o n of g round n u c l e a r d e l i v e r y u n i t s in to t h e ACE a r s e n a l
and of a i r - t o - g r o u n d m i s s i l e s a l lowed c e r t a i n r e d u c t i o n s in m a n n e d a i r c r a f t
and s o m e t y p e s of a n t i - a i r c r a f t a r t i l l e r y .
C o u n t e r p a r t of the d i s c u s s i o n of n ine c a m p a i g n s which had b e e n se t f o r t h
in t h e A C E Capabi l i t ies Study 1957 w a s Annex C, D e f e n s e of t h e L a n d F r o n t i e r s ,
wh ie iud i - scussed the__fitrategy_for defending e a c h of t h e a r e a s c h a r g e d t o
^SACEUR^__.
P r o g r a m m i n g , w h e r e i n SHAPE u n d e r t o o k to e x a m i n e t h e cos t of the
m i l i t a r y f o r c e s a s i t would a f f e c t t h e na t ions , w a s se t out . The s tudy w a s
b a s e d on l i m i t e d d a t a a v a i l a b l e t h r o u g h Annual Rev i ew Q u e s t i o n n a i r e s .
B r i e f i n g t h e Counci l a f t e r Soviet Sa te l l i t e Launch ing and ICBM C l a i m s .
T h e Soviet a n n o u n c e m e n t of t h e i r s u c c è s s f u l l aunch ing of an e a r t h
s a t e l l i t e and t h e i r c l a i m tha t t h e y p o s s e s s e d an ICBM r a i s e d s p e c u l a t i o n in
s o m e q u a r t e r s of NATO a s t o t h e va l i d i t y of the A C E M i n i m u m F o r c e Study.
G e n e r a l N o r s t a d m e t wi th t h e P e r m a n e n t R e p r e s e n t a t i v e s of t h e Nor th At lant ic
Counci l on 22 O c t o b e r to d i s c u s s t h i s p a r t i c u l a r a s p e c t of t h e s tudy, and
r e m a i n e d to a n s w e r q u e s t i o n s wh ich w e r e a s k e d of h i m by t h e Counci l m e m b e r s .
. / . . . AG 1 2 4 0 / 2 P AN DP, 31 Dec 57, " C o l l e c t i v e B a l a n c e d F o r c e s Study, " and P A N D P 1240 /1 , 10 Oct 57, "Study on G r a d u a t e d R e a d i n e s s . "
NÄT0 CONFiDcNTlAjT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
He d r e w t h e a t t e n t i o n of t h e Counc i l t o t h e opening p a r a g r a p h of C h a p t e r I
of t h e s tudy w h i c h s t a t e d t h a t t h e g r o w t h of t h e n u c l e a r c a p a b i l i t i e s of both
s i d e s w a s t h e m o s t i m p o r t a n t s i ng l e f a c t o r g o v e r n i n g NATO p lann ing t h r o u g h
1963, and h e p o i n t e d t o Annex A of t h e s tudy wh ich s t a t e d t h a t by m i d - 1 9 6 3
a t t h e l a t e s t Soviet f o r c e s cou ld have o p e r a t i o n a l n u m b e r s of I C B M s of h igh
p e r f o r m a n c e c h a r a c t e r i s t i c s . He a s s u r e d a l l p r e s e n t t h a t t he s tudy h a d b e e n
b a s e d on t h e s e a s s u m p t i o n s , and tha t no th ing h a d o c c u r r e d which wou ld r e q u i r e
a r e v i s i o n o r m o d i f i c a t i o n of e i t h e r t h e a s s u m p t i o n s o r t h e s tudy . ^ ^
Cos t of Ma in t a in ing A C E F o r c e s .
The c o s t of f o r c e s c a l l e d f o r by t h e M i n i m u m F o r c e Study w a s s o m e -
what h i g h e r t han t h a t of m a i n t a i n i n g c u r r e n t A C E a s s i g n e d or e a r m a r k e d f o r c e s
of Con t inen ta l E u r o p e a n c o u n t r i e s . A s i d e f r o m t h e c a p i t a l e x p e n d i t u r e invo lved ,
t h e c o s t of m a i n t a i n i n g t h e s e new f o r c e s would be s o m e 10 o r 15 p e r c e n t
h i g h e r . G e n e r a l N o r s t a d po in t ed out t o t h e m e m b e r s of t h e Counci l , s o m e
of w h o m h a d e x p r e s s e d c o n c e r n ove r t h e s e c o s t s , t h a t t h e P o l i t i c a l D i r e c t i v e
had b e e n a p p r o v e d i n D e c e m b e r 1956. It h a d a m p l i f i e d t h e d i r e c t i v e s t o t h e
M i l i t a r y A u t h o r i t i e s on t h e i r m i s s i o n s and had , at t h e s a m e t i m e , d r a w n
a t t en t i on t o t h e n e e d f o r p r e s e r v i n g t h e e c o n o m i c s t r e n g t h of t h e A l l i a n c e .
G e n e r a l N o r s t a d f e l t t h a t h i s t a s k w a s to d e t e r m i n e t h e m e a n s n e c e s s a r y
to c a r r y out t h e m i s s i o n s c h a r g e d to h i m by t h e Counc i l . It w a s not , h o w e v e r ,
h i s r e s p o n s i b i l i t y to p r o v i d e t h o s e m e a n s . In t h e p a s t t h e p r o b l e m of b a l a n c -
ing s t a t e d r e q u i r e m e n t s and a v a i l a b i l i t i e s h a d b e e n a p p r o a c h e d by apply ing
f i x e d s t a n d a r d s to a l l f o r c e s , wi thout r e f e r e n c e to l oca t i on o r m i s s i o n . SHAPE
i n t e n d e d now, h o w e v e r , t o t a k e in to a c c o u n t t h e s p e c i a l t a s k s to b e p e r f o r m e d
by ind iv idua l u n i t s of a c o u n t r y ' s f o r c e s , and would a s s i s t n a t i o n s in de f in ing
t h e s e s p e c i a l t a s k s and in dec id ing what new e q u i p m e n t w a s n e c e s s a r y to
c a r r y out t h e s e t a s k s . It m i g h t be p o s s i b l e t o m a k e r e d u c t i o n s in c a p i t a l
r e q u i r e d t h r o u g h t h i s m e a n s .
(39) C-R(57)64 , 25 Oct 57, STSC 1 2 ^ 5 ^ - L i m i t e d Dis t r ibu t ion^-* •' ' ; ',. x.'Sr A . . .
WATO CONFjDE-WTMI106 " ~ -
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
In t h e p a s t , e a c h na t ion h a d b a l a n c e d . i t s f o r c e r e q u i r e m e n t s a g a i n s t
i t s r e s o u r c e s , o f t e n wi th t h e a s s i s t a n c e of SHAPE. T h i s p r o c e d u r e , G e n e r a l
N o r s t a d f e l t , shou ld b e con t inued a n d expanded , wi th n a t i o n s b r i n g i n g f o r w a r d
p a r t i c u l a r p r o b l e m s , such a s d e f i c i e n c i e s or d i s c r e p a n c i e s , t o SHAPE. T h e
b a s i s of t h e e x a m i n a t i o n wou ld be , a s i n t h e p a s t , SHAPE r e c o m m e n d a t i o n s
c o n c e r n i n g p r i o r i t y of t a s k s and f o r m a t i o n s . T h e p r o g r a m a s a w h o l e should
b e p r e s e n t e d t o t h e Counci l t h r o u g h s o m e p r o c e s s s i m i l a r t o t h e Annual
R e v i e w , so t h a t t h e Counci l cou ld w e i g h t h e i m p o r t a n c e of t h e d e f i c i e n c i e s .
S H A P E wotiid h a v e t o i n t e r p r e t i h e d e f i c i e n c i e s in t e r m s of t h e e f f e c t on t h e
t a s k s which* a s a c o n s e q u e n c e , t h e c o m m a n d m i g h t not be a b l e t o c a r r y out .
G e n e r a l N o r s t a d e m p h a s i z e d , in conc luding h i s p r e p a r e d r e m a r k s ,
t h a t t h e p o l i t i c a l , s c i e n t i f i c and t e c h n i c a l d e v e l o p m e n t s of the p a s t f e w w e e k s
did not n e c e s s i t a t e any m o d i f i c a t i o n of h i s s tudy , - and wh i l e h e w a s a w a r e
t h a t a gap m i g h t e x i s t b e t w e e n f o r c e g o a l s and a p p a r e n t r e s o u r c e s , t h i s gap
wou ld h a v e to b e e v a l u a t e d in t e r m s of t h e o v e r a l l r i s k i nvo lved .
NAC Q u e s t i o n s on t h e M i n i m u m F o r c e Study.
Fo l lowing G e n e r a l N o r s t a d 1 s r e m a r k s , v i r t u a l l y a l l m e m b e r s of t h e
Counc i l e x p r e s s e d t h e i r t h a n k s t o h i m f o r the exce l l en t p r e p a r a t i o n of t h e
M i n i m u m F o r c e Study, and a l l a g r e e d t h a t i t w a s an e x c e p t i o n a l l y d e t a i l e d
and conv inc ing p i e c e of w o r k . T h e ind iv idua l m e m b e r s m a d e c e r t a i n p o i n t s
and e x p r e s s e d some v i e w s on behal f of t h e i r g o v e r n m e n t s , and a n u m b e r of
q u e s t i o n s r e l a t i v e to t h e s tudy and t h e concep t behind t h e s tudy w e r e a s k e d
of Gene rad N o r s t a d .
T h e B e l g i a n R e p r e s e n t a t i v e , f o r i n s t a n c e , c o m m e n t e d t h a t in .analyzing
t h e f u n c t i o n s and n e e d s of t h e Shield, e m p h a s i s had been l a i d on t h e n e c e s s i t y
f o r p r e s e n t i n g a conv inc ing a p p e a r a n c e of e f f e c t i v e n e s s . T h e u n d e r l y i n g
a s s u m p t i o n , h e s a i d , w a s t h a t t h e r e w a s a n e e d t o equip t h e Shie ld F o r c e s
w i th t h e new t a c t i c a l n u c l e a r w e a p o n s , and h i s G o v e r n m e n t c o n s i d e r e d t h a t
t h i s shou ld be t h e b a s i s f o r d e t e r m i n i n g the c o n t r i b u t i o n of t h e W e s t e r n E u r o -
p e a n c o u n t r i e s . B e l g i u m w a s g l a d t o s e e tfcje e m p h a s i s w h i c h t h e s tudy h a d
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 OGWWfP" 1
N A T O C O N F I D & i v s S A I L
p l a c e d on t h e n e c e s s i t y f o r a high m e a s u r e of i n t e g r a t i o n in a i r d e f e n s e . T h e
B e l g i a n R e p r e s e n t a t i v e a l so p r a i s e d t h e concep t of c o l l e c t i v e b a l a n c e d f o r c e s ,
po in t ing out t h a t i t h a d e x i s t e d f r o m t h e e a r l y d a y s of the Al l i ance , and t h a t
t h e r e v i v a l of t h i s concep t in t h e r e p o r t h a d w i d e i m p l i c a t i o n s . He s a i d tha t
h i s m i l i t a r y a u t h o r i t i e s w e r e r e a d y t o d i s c u s s wi th SHAPE how t h i s p r i n c i p l e
cou ld b e app l i ed in b r i n g i n g about a g r e a t e r s p e c i a l i s a t i o n of f u n c t i o n s and a
c l o s e r i n t e g r a t i o n of f o r c e s . At t h e s a m e t i m e , he w a r n e d tha t t h e i d e a of
b a l a n c e d f o r c e s w a s not c o m p a t i b l e wi th a n y w i t h d r a w a l of na t iona l f o r c e s t o
m e e t c o m m i t m e n t s o u t s i d e of NATO, and tha t i t m u s t be r e c o g n i z e d tha t a s
i n t e g r a t i o n / f o r c e s b e c a m e m o r e c o m p l e t e , t h e e f f e c t of such w i t h d r a w a l s on
NATO d e f e n s e would b e e x t r e m e l y s e r i o u s . He a s k e d G e n e r a l N o r s t a d to e x -
p l a i n t o h i m t h e r o l e of t h e i n t e r n a t i o n a l d i v i s i o n which had been b r o u g h t up
when t h e r e p r e s e n t a t i v e s m e t a t SHAPE on 2 O c t o b e r . His second ques t i on ,
i n t h e i n f r a s t r u c t u r é f i e l d , Was "What would be t h e i m p l i c a t i o n s f o r the i n f r a -
s t r u c t u r e p r o g r a m of t h e c o n t e m p l a t e d w i d e r d i s t r i b u t i o n of new t a c t i c a l w e a p o n s
a m o n g t h e Shield F o r c e s ? "
The F r e n c h R e p r e s e n t a t i v e e x p r e s s e d t h e a p p r o v a l of h i s g o v e r n m e n t in
t h e g e n e r a l l i n e s of t h e M i n i m u m F o r c e Study, but he b rough t up s o m e p o i n t s
wh ich w e r e of c o n c e r n t o h i s G o v e r n m e n t and wh ich had b e e n e x a m i n e d in t h e
s tudy . He s a i d t h a t t h e c o u n t r i e s w e r e be ing a s k e d t o spend a g r e a t d e a l of
m o n e y on e a r l y w a r n i n g and c o m m u n i c a t i o n s s y s t e m s , m e r e l y in o r d e r to g a i n
a f e w m i n u t e s , or even s e c o n d s , of a d v a n c e n o t i c e . Since t h i s w a s so, i t w a s
e s s e n t i a l t ha t t h i s s l igh t ga in should not be l o s t t h r o u g h d d a y s c a u s e d by t h e
l a c k of i m m e d i a t e a v a i l a b i l i t y of a t o m i c w a r h e a d s . Since F r a n c e w a s one of
t h e n a t i o n s wh ich h a d b e e n f o r c e d f r o m t i m e to t i m e t o w i t h d r a w heavy n u m b e r s
of m e n and m u c h equ ipmen t f r o m Con t inen ta l E u r o p e to m e e t t h r e a t s e l s e w h e r e ,
t h e F r e n c h d e l e g a t e w a s p a r t i c u l a r l y c o n c e r n e d wi th what t h e e f f e c t of t h e new
f o r c e s p r o g r a m would be , and w h e t h e r o v e r and above t h e e x t r a c o s t of m a i n -
ta in ing t h e s e f o r c e s , t h e y would have t o f a c e t h e add i t iona l e x p e n d i t u r e of
m e e t i n g t h e i r n o n - N A T O c o m m i t m e n t s . T h i s w a s p a r t i c u l a r l y t r u e of t h e
of
NATO CONFIDENTIAL
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
e q u i p m e n t , s i n c e G e n e r a l N o r s t a d ' s r e p o r t c a l l e d f o r h igh ly s p e c i a l i z e d t y p e s
w h i c h would p r o b a b l y not be a d a p t a b l e t o o p e r a t i o n s in o the r a r e a s . He f e l t
i t m i g h t b e p o s s i b l e t o deve lop m u l t i - p u r p o s e t y p e s of e q u i p m e n t . T h i s i n d i -
c a t e d a n e e d f o r a new e f f o r t t o w a r d s c o o r d i n a t i o n and s t a n d a r d i z a t i o n , and he
a g r e e d wi th t h e B e l g i a n R e p r e s e n t a t i v e tha t t he i n f r a s t r u c t u r e p r o g r a m would
h a v e t o b e d r a s t i c a l l y r e v i s e d in t h e l igh t of t h e new c o n c e p t .
T h e I t a l i a n m e m b e r of t h e Counci l p r a i s e d t h e r e p o r t , and m a d e t h e
po in t t h a t in o r d e r t o a c h i e v e e c o n o m y in p r o v i d i n g t h e l a t e s t w e a p o n s t o t h e
E u r o p e a n m e m b e r s of t h e A l l i ance , p r o d u c t i o n of t h e s e w e a p o n s should w h e r -
e v e r p o s s i b l e be p e r f o r m e d in E u r o p e . He a g r e e d w h o l e h e a r t e d l y in t h e i m -
p o r t a n c e of e s t a b l i s h i n g an i n t e g r a t e d a i r d e f e n s e .
N o r w a y ' s R e p r e s e n t a t i v e on t h e Counci l d r e w a t t en t i on t o t h e r e f e r e n c e
t o " g r a d u a t e d r e a d i n e s s . " He s t a t e d tha t t h i s p r i n c i p l e w a s e n c o u r a g i n g to
h i m b e c a u s e i n t h e p a s t t h e c o u n t r i e s had f e l t s o m e t i m e s tha t s t a n d a r d s w e r e V
be ing a p p l i e d t o o r i g i d l y o v e r t h e w h o l e NATO a r e a , and tha t c o n c l u s i o n s i n
t h e c o m b a t e f f e c t i v e n e s s r e p o r t s i s s u e d t o SACEUR o v e r t h e p a s t f e w y e a r s
h a d b e e n undu ly p e s s i m i s t i c . H i s g o v e r n m e n t , he sa id , would w e l c o m e m o r e
d e t a i l s a s t o how n u c l e a r w e a p o n s cou ld b e m o r e w ide ly d i s t r i b u t e d a m o n g
t h e Shield F o r c e s , and he r a i s e d two q u e s t i o n s r e g a r d i n g t h e c o m p a r a t i v e
c a p a b i l i t i e s of t h e NATO and Soviet B loc . R e f e r r i n g t o a s t a t e m e n t in Chap-
t e r 1 of t h e s tudy , t h a t NATO would con t inue to have t h e a d v a n t a g e in w e a p o n s
and d e l i v e r y s y s t e m s , and of c o u r s e g e o g r a p h y , he a s k e d w h e t h e r t h e a s s u m p -
t i on s t a t e d l a t e r i n t h e r e p o r t t h a t t h e Sovie t s would h a v e 700 s u b m a r i n e s by
1963, s o m e of t h e m equipped wi th n u c l e a r m i s s i l e s , would not t e n d t o nu l l i f y
N A T O ' s g e o g r a p h i c a l a d v a n t a g e . He po in t ed out a l s o tha t t h e r e p o r t , wh i l e
g r a n t i n g t h e Sovie tb t c a p a b i l i t y f o r I C B M s by 1963, c l a i m e d tha t t h e s e m i s s i l e s
would not be l i k e l y to t i l t t h e m i l i t a r y b a l a n c e of p o w e r a g a i n s t NATO. G e n e r a l
N o r s t a d had to ld t h e Counci l t ha t t he m o s t i m p o r t a n t po in t w a s t h a t t he Sovie t s
k n e w tha t NATO had t h e ab i l i t y t o d e s t r o y t h e m if a t t a c k e d , and tha t t h e ac tua l
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MATO confidential
S H A P E 5 7 / 6 7
The Norwegian Representative said he thought that the two statements were
perhaps somewhat contradictory, and he believed that if the deterrent were
effective as a deterrent, NATO could not expect any military advantage by
using it.
General Norstad replied immediately to the last point by quoting from
the report a section which pointed out that the growth of nuclear capabilities I
on both sides was the most important factor in planning through the period,
and that the period would see an evolution toward a complete nuclear footing.
The same section had analyzed the various miss i l e systems which would be
available to both sides. He pointed out that at no time had the study minimi-
zed the Capabilities which the Russians would attain, that Annex A of Volume 2
had even mentioned the Soviet intention to launch an earth satellite in 1957,
and that Western scientists had given full credit in this study to the Soviet
f o r t e s for their probable increase in nuclear capability. Nevertheless, . the
study concluded, and General Norstad agreed, that in spite of Soviet, advances
the military balance would not swing against the West during the planning
period. He continued to believe that the ICBM announcement by the Soviet
Government would not be sufficient to disturb the balance of power.
The consensus at the meeting showed clearly that the Council was
disappointed that the Standing. Group consolidation of the Major NATO Com*
mandera* force studies -MC 70- was going to be delayed. The United Kingdom
Representative, however, pointed out that the i s sues involved were extremely
vital and were too large to permit a hasty and partial study. He said that he
was glad to hear General Norstad say that he felt an Annusd Review process
would be necessary to reconcile needs and costs. His own government's view
at this time was that two stages wotild be necessary. First, would be a fact-
finding process which could not begin until MC 70 was ready and had been con-
sidered by the NATO Governments. He suggested that perhaps a special
fact-finding group could be se tup using members of the international staff *
who normally worked on the A n n u a l c R ^ ^ ^ a i ^ s o m i ^ N A T O representatives. • ^^ ^Oj h • ' '
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
Thi8 grqup wôula negotiate with countries tp see what the problem areas
were and how far the requirements emerging from the reports established
by the Supreme Commanders and from MC 70 could be met without disturbing
existing national policies.
The Canadian Representative stated his GovernmenttS support for
asking the Standing Group to provide a preliminary comment on the studies
during the Ministers1 discussion of defense problems at the coming December
meetings in Paris . The necessary measures to meet these requirements
were, of course, a matter for collective NATO action. When MC 70 had
been presented to the Council, the most useful procedure would probably
be for Defense Ministers only to discuss i ts conclusions and recommenda-
tions in detail, but the preliminary discussion at thé Ministerial Meeting in
December would serve to bring.the attention of the Foreign and Finance
Ministers to the general implications of the need for adequate defense forces.
He felt that after the meeting of the Defense Ministers, the most practical
approach would be to have bi-lateral talks between the Supreme Commanders
and appropriate countries, which could then be followed by an adapted Annual
Review procedure.
The Standing Group Representative who was present told the members
of the Council that the Standing Group would be able to give some prelimi-
nary comments on MC 70 by December, which would include a status report
of the document, the broad aspects of the document, and the main i tems
^yrhich would eventually require action at the Council level and/or by national
authorities.
/ ^ r . Spaak's Analysis of the Minimum Force Study1S Impact on Planning.
Mr. Spaak, Chairman of the Council, said that there appeared to him
tp be three salient points emerging both from the report and from the present
discussion. These were:
a) the new developments in general strategy;
b) the needs of SACEUIU— c) Sbw governments were to meet $hese needs.
" / / / . . .V
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
M. Spaak recalled that the 1954 Study, MC 48, had fixed the strategy of
the Alliance. At that time NATO authorities had stated that the West would
be forced to use nuclear weapons to res i s t aggression even if attacked by
only conventional weapons. As for the present report, it drew the definite
distinction between general war and situations which fell short of this, and
the Chairman asked whether this distinction implied a fundamental departure
from the 1954 directive. He said he found it personally difficult to differen-
tiate between a limited and a general war within the NATO area. Turning
to SACEUR's requirements and the means for meeting these, he noted that
the report established categorically the overall requirements both for the
Shield and the deterrent. The question as to how these requirements could
be met was one of great urgency which governments should consider now. .
His impression was that there was some slight decrease in numbers of the
forces now planned but that this was balanced by a great increase in f ire
power through the development of tactical nuclear weapons. The fundamental
question was who should supply these arms to the forces and by what means.
Extremely difficult financial and economic problems were involved and,
although he agreed that these were not within the competence of SACEUR,
he wotild welcome his views. The primary preoccupation of most members
of the Council was the modification in the weapons program called for in the
report, since it implied an enormous effort in the coming years.
As regards the procedure to examine and implement the recommendations
of the report, M. Spaak thought that this would have to be determined later.
It appeared to be generally agreed that the report would be discussed by the
Ministers in December, when some preliminary comments would be available
from the Standing Group. It was clear that na final decisions could be taken
before MC 70 had been presented. A meeting of Defense Ministers to consider
UC 70 when it was available appeared to him a very useful suggestion. With
^ttgard to the questions raised by the WEU, he pointed out that there were
IrWt aspects of the matter. Th&e was on the one hand the specific question
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
relating to the United Kingdom forces, and on the other a number of questions
involving the whole problem of NATO defense. On the specific question, he
thought it should be possible to provide the elements of a reply to the WEU
but that the broader questions should be reserved for further study by NATO.
SACEUR's Replies to Questions Raised by Chairman NAC.
General Norstad replied f irst to the Chairman's question on whether
there had been a change in the strategic concept enunciated in 1954 in MC 48
and envisaging a NATO response with atomic weapons to any aggression on
NATO territory. General Norstad stated that, although many of the funda-
mental principles of MC 48 were still valid, there was one significant change
which affected NATO strategy. At the time the 1954 Study was made, the
West had, if not a monopoly of atomic weapons, at least a very great supe-
riority. This superiority was e j e c t e d to last through 1957. Under these
conditions, the West could plan on using atomic weapons against any threat.
However, by 1963, or even before, both sides would have the ability to destroy
the other with mass ive atomic attacks, and NATO at that time could not rely
on mass ive atomic retaliation as the sole means of dealing with every situation.
The main difference between the present study and that of 1954, the
ACE Capabilities Plan 1957, was that we were now planning to provide ade-
quate response to a situation short of a general war with means l e s s than
mass ive retaliation. NATO's object was to prevent war -al l war, large and
small. He feared that a limited war in a critical NATO area could not be
restricted. It must be our object, therefore, to prevent such a limited war
from starting. The fact that NATO could clearly cope decisively with a limited
offensive would go a long way towards preventing it. Otherwise, each time
that there arose the threat of a limited war or minor offensive operation,
the NATO countries and the Council would be faced with the difficult decision
of whether to employ mass ive retaliation.
Turning to the question raised by several members as to how atomic
113
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
weapons could be made available, General Norstad said that this was a
matter beyond his competence but on which, nevertheless, he held strong
views and had made strong recommendations. It was his belief that these
weapons could be made available and that the requirements could be met
in the relatively near future, without too much difficulty. As he had said
before, it was not his concern whether any individual country possessed
atomic weapons or not. It was, however, his business to^see that the forces
placed at his disposal had the necessary weapons to carry out their tasks.
A wider distribution of nuclear weapons among these forces was needed. He
had tried to work out in principle certain proposals as to how the military
requirements might be met -though not necessari ly the political requirements-
without involving changes in countries' laws or in existing regulations. These
proposals were based on the existence of what was in effect a NATO stock-
pile of atomic weapons. He would emphasize that, even tinder the present system,
atomic weapons did not belong to individual units. A central control and sup-
ply system to ensure that the miss i l e s could be brought to the delivery units
with sufficient speed already existed, and he considered that it could be ex-
tended without raising questions of ownership.
Changes in Infrastructure Programs.
Several representatives had raised the question of infrastructure. He
agreed that the new study would imply changes in the infrastructure programs
as at present approved. During the last year, as a result of trends developed
in the study, certain infrastructure projects had in fact already been modi-
fied and work on others stopped. Acceptancè of the implications of his report
would mean stopping work on about 20 airfields. This might effect a saving
of about L> 50 million. The expenditure necessary for miss i le infrastructure
up to 1963 would probably be about L l l O million. The problem of how this
addtionnal expenditure should be financed fell outside the competence of the
military authorities, but common financing appeared to be the only solution,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
since the concentration of mis s i l e s in certain areas would mean that the
burden of cost would otherwise be very unevenly spread.
Concerning standardization, he said that the military favored the
maximum reasonable standardization. There were difficulties because no
means existed for integrating production capacity. Turning to the suggestion
by the French Representative that an effort might be made to develop equip-
ment capable of performing several different functions, he thought that there
was not much scope for reducing costs in this way. Greater, rather than
l e s s , specialization was required. To achieve versatility, top level perfor-
mance for particular functions would have to be sacrificed. It appeared more
likely that economies could be achieved through specialization rather than
through versatility. For example, a light weight strike fighter had been
developed under the aegis of SHAPE and several types were now being tested.
He hoped that the result of these tests would be standardization and procure-
ment of the aircraft which had the best performance.
During the past four years, he had repeatedly stressed the importance
from the military point of view of an assured source of military equipment.
One way to achieve this would be coordination of European production capa-
city. No single European country was in a position to produce, on an econo-
mic basis, aircraft to meet its own requirements. No other way existed of
meeting the new, or indeed the old, requirements for aircraft and mis s i l e s • »
from European production at a reasonable cost other than by coordinated
production programs.
As for NATO's geographical advantage, he emphasized that the map
showed that a destructive attack could be launched on the Soviets from all
360 of the compass. The Wpst was developing an Early Warning System which
in due course, when the studies now under way had been completed, would
IXO doubt be capable of dealing also with guided miss i les . This would elimi-
nate the danger to the West of simultaneous surprise attacks on our world-
v4de base complex. He therefore tended to believe that the advantage of
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SHAPE 57/67 M M t t i ü l i j^f.i
• fei u
geography would still l ie with the West in 1963 and might even be enhanced
in the future.
Turning to the question of cost, the Supreme Commander said that
perhaps his study had tended to over-emphasize his preoccupation with this
problem. He must emphasize, however, that there was only one fixed point -
the tasks to perform. In the last analysis cost ceilings must accommodate
themselves to these tasks. This, however, was a decision for the Council.
He had done his utmost to cut the costs in assess ing his minimum force re -
quirements, but he, as Supreme Allied Commander, had not and could not
accept costs as the controlling factor in establishing force goals. He had set
out what in his judgement were the minimupti forces necessary to preserve
the peace and to protect the people of NATO. In carrying out his study he
had done his utmost to relate the forces to the tasks which were required of
them by the Cotincil.
His report raised a number of major problems and he personally hoped
that at least some of these would be discussed by Ministers at their meeting
in December, and indeed that decisions on some of them could then be taken.
In conclusion, General Norstad emphasized the need for the Alliance
to present an appearance of strength and of unity. During the past four years
there had been divergencies of approach to certain problems and these diver-
gencies had been apparent. Now was the time to show the world that NATO
|Bd a common purpose toward which all its members were working. The
prime need of the moment was to reach decisions on the broad objectives.
Only when these decisions had been reached should detailed discussion begin
at to how the force levels required could be ach ieved .^^
f a c t i o n s of Major Subordinate Commanders.
On 30 October, when General Schuyler held his conference with the
Cfc^efs of Staff of Major Subordinate Commands, he informed them that
( 4 ^ C-R(57)64, 25 Oct 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SHAPE briefing teams would be coming to their headquarters to brief them
on the study. Air Marshal Constantinef DCPANDP, would head the team
visiting AFSOU TH and AFM ED, and Major General Gazin, ACOS P AN DP,
would take the SHAPE team to AFNORTH and AFCENT. Representatives from
Programs and Logistics Divisions as well as from the appropriate regional
planning sections of the Operational Plans Branch of PANDP would be on
these teams. The object of the briefings was to familiarize the off icers of
these commands with the study and to attempt to answer any of their questions
concerning local problems pertaining to the study. General Schuyler asked
that the audience at each briefing be as large as possible, since the more
off icers familiar with the details of the study, the better the implementation
would b e . ^ ^
Briefing Teams Visits to MSCs.
The team headed by Major General Gazin visited AFNORTH on 5 No-
vember and AFCENT on 14 November. Air Marshal Constantine took a team
to AFSOUTH on 20 November and to AFMED on 22 November.^42^
in the discussion which followed each of the briefings, a considerable
number of questions and comments were raised by the local commanders or
(41) Minutes, COFS Meeting with Chiefs of Staff of MSCs, 30 Oct 57. (42) The SHAPE Officers who actually presented the Minimum Force Study
in the Major Subordinate Commands consisted of Colonel Griffith, Colonel Stilwell, both US Army; Colonel Borreill, French Army; Co-lonel Cramer, German AF; and Captain Lewis, Royal Navy. In addi-tion to these officers, representatives from OANDP, PROG, LOö and Operational Plans Branch of PANDP, were present at all briefings. The latter did not participate in the briefing, but were available during the question period in case their specialized knowledge was required. Colonel Griffith and Colonel Stilwell alternated in discussing the philo-sophy of the Study as in Chapters I, II and III of Vol. 1. Colonel Borreill presented the land battle, stressing the specific geographical area being visited. Colonel Cramer discussed Strike forces and the covering air defense. Captain Lewis presented the naval operations and logist ics im-plications, and finally one of the American Army officers, Colonel Grif-fith or Colonel Stilwell, then presented Force Tabs.
' ( • . - «2** r .. . .,. * Î IT '* U1'V''• ••'•
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
their staff off icers. In most instances, SHAPE representatives were able (43)
to provide the necessary amplification or clarif ication/ '
AFSOUTH. At AFSOUTH Headquarters, in Naples, the bulk of the
post-briefing discussion centered on the problem of contingency planning for
situations short of general war. However, the representatives of LANDSOUTH
also questioned the role of 2nd Echelon land forces. This was a very vital
i ssue to all three countries of the Southern European Command. The situa-
tion was complicated by the fact that neither the Minimum Force Study nor
the national authorities were fully objective on the subject of 2nd Echelon
forces. The Minimum Force Study did not cover the rear area security need a
nor did it take into account national requirements for sustaining the prescribed
level of forces throughout the intensive period of count er-combat. Although
the security of rear areas and provision of replacements for the Shield Forces
was a national responsibility, SHAPE recognized that it needed to arrive at
a better appreciation of what these requirements were, if it were to provide
sound guidance in the development of national'military plans. These national
plans were widely divergent, and most of them wholly out of step with the
nuclear age.
The AFSE staff noted .the absence of any reference to the initial em-
ployment of strategic reserve (ready ground force units located in North
America).
AFMED. The conclusion of the briefing in Headquarters AFMED was
marked by several points of i ssue raised by officers of that command. CINC-
AFMED noted that there seemed to be a lack of attention in the study to the latter
states of any general war. He pointed out that his command had a responsibi-
lity not shared by other regional commanders to keep open the sea lanes for
resupply of the Mediterranean nations immediately following any nuclear
(43) The following paragraphs are based on Memo for .DCPANDP, Sub: Major Problem Areas Uncovered During Briefing Trips to Subordinate Com-mands, 27 Nov 57, sgd by Maj.Gen. Gazin, PANDP 1240.
V ,i '• V ' '• \ . - ' - V-
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
• I .-
attack. He did not propose that this necessar i ly required additional forces ,
but he did suggest that it indicated a need for closet- planning and l iaison
with SACLANT since he faced the same problem in another area«
Another problem which bothered of f icers of this command was that of
destroying enemy VLF stations (long-range transmitters for the control of
the submarine fleet) . Plans for doing this had not been included in the
Strike Campaign or the Campaign for defense/Exploitation of Sea Areas*
AFNORTHi In the Northern command« SHAPE briefers found them-
se lves questioned on employment of 2nd Echelon Oroutid Forces in that area ,
and on the level of AFNE Naval Forces» The question with regard to the
ground forces was whether or not they should be considered as part of the
Shield or should be committed to internal security tasks« And some of the
NAVNORTH staff felt that the study contained naval forces in excess of those
which would be required in their region.
AFCENT. Considerable discussion was engendered at the briefing ôf
the Commander and staff in the Center. The LANDCENT fltâff cr i t ic i sed the
study in that it did not cover the requirements for subsequent operations)
nor were they fully satisf ied with the explanation of the SHAPE philosophy«
The SHAPE briefing team was asked whether SHAPE had studied the
question of how best to provide unit replacements to ground force unitB. Cen-
ter authorities felt that depots must contain similar Units to those committed
to combat so that any destroyed organisation could promptly be replaced in
An interesting point was raised by NAVCËNT, who pointed out that
the study showed lower minesweeper requirements for the German Navy
than were actually allowed by the Par i s Agreement. German naval authorities
feared that their government might use this as a reason for reducing the naval
budget.
Plans for using air defense aircraft in the initial nuclear strikes,
caused General Chassin to demand that these aircraft be reserved for their
kind.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
d e s i g n e d t a s k , e s p e c i a l l y in the f i r s t t h r e e d a y s of w a r ; o t h e r w i s e , he c h a r g e d ,
t h e a i r d e f e n s e b a t t l e would b e l o s t .
One of the p u r p o s e s of t h e M i n i m u m F o r c e Study - a s e c o n d a r y p u r p o s e
s u r e l y f r o m t h e m i l i t a r y s t andpo in t - h a d b e e n t o f u r n i s h SACEUR wi th a
b a s i s f o r a n s w e r i n g t h e q u e s t i o n s p o s e d in t h e Spr ing of 1957 by n a t i o n s of
t h e W e s t e r n E u r o p e a n Union and by O r . H a l s t e i n . H o w e v e r , a l though t h e
s tudy 1 d id p r o v i d e such a b a s i s , t h e n a t i o n s w e r e a p p a r e n t l y in no h u r r y f o r
s p e c i f i c a n s w e r s or f e l t tha t t h e s tudy by i t s e l f p r o v i d e d t h e i n f o r m a t i o n w h i c h
t h e y r e q u i r e d . At any r a t e , no n a t i o n r e f e r r e d t o t h e m a t t e r d u r i n g the d i s -
c u s s i o n s of t h e Counci l in N o v e m b e r , n o r a s k e d f o r any such a n s w e r s . A c c o r -
d ingly , a l though t h e P A N D P Div i s ion did p r e p a r e s p e c i f i c a n s w e r s t o e a c h
q u e s t i o n , t h e Chief of Staff and D C P A N D P d e c i d e d not to f o r w a r d t h e s e a n s w e r s
un t i l a de f i n i t e r e q u e s t w e r e m a d e by t h e na t ion c o n c e r n e d . M a j o r G e n e r a l
G a z i n w a s t o ld by Air M a r s h a l Cons t an t i no to k e e p t h i s c o m p i l a t i o n of a n s w e r s
a t hand in c a s e G e n e r a l N o r s t a d shou ld be called upon f o r t h e i n f o r m a t i o n at
s h o r t n o t i c e / 4 4 ^
P r o g r e s s of MC 70.
It had been d e c i d e d t h a t t h e M i n i m u m F o r c e S tudies <of t h e t h r e e m a j o r
NATO m i l i t a r y c o m m a n d s , SACEUR, SACLANT and CINCH AN, would be
c o m b i n e d by t h e Standing Group in to a s ing le d o c u m e n t , MC 70, wh ich would
t h e n be p r e s e n t e d to t h e n a t i o n s and u l t i m a t e l y to t h e Counci l f o r a p p r o v a l
t h a t i t m i g h t have f o r c e and e f f e c t . O r i g i n a l l y i t w a s hoped tha t t h i s d o c u m e n t
cou ld be f i n i s h e d in t i m e f o r c o n s i d e r a t i o n by t h e NATO p o l i t i c a l l e a d e r s at
t h e i r P a r i s m e e t i n g in D e c e m b e r 1957. Dur ing O c t o b e r , h o w e v e r , t h e S tand-
ing G r o u p informed t h e S e c r e t a r y - G e n e r a l tha t t h e t i m e r e q u i r e d to p r o d u c e
o v e r a l l f o r c e r e q u i r e m e n t s b a s e d on t h e t h r e e s e p a r a t e s t u d i e s , and t o a l low
f u l l c o n s i d e r a t i o n of the i m p l i c a t i o n s of t h e s e d o c u m e n t s by na t i ona l a u t h o r i -
t i e s , would not p e r m i t MC 70 to be r e a d y f o r c o n s i d e r a t i o n in D e c e m b e r .
(44) M e m o f o r ACOS P A N D P , sub : A C E M i n i m u m F o r c e Study 1958-63 , 18 Nov 57, sgd : AM C o n s t a n t i n e . . . <
fYVv .'<'<-> Ï..J
T X f f - - ! " " n 120
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
T h e Standing G r o u p p r o p o s e d , and t h e S e c r e . t a r y - G e n e r a l a g r e e d , t h a t a
p r o g r e s s r e p o r t on M C 70 be p r e s e n t e d i n s t e a d at t he December m e e t i n g s .
T h i s p r o g r e s s r e p o r t would i nc lude a s t a t u s of MC 70 at tha t da te , b r o a d
a s p e c t s of M C 70, and m a i n i t e m s w h i c h m i g h t even tua l l y r e q u i r e a c t i on at
Counc i l L e v e l a n d / o r by na t i ona l au tho r i t i e s . .
A d m i r a l Denny, C h a i r m a n of t h e Standing G r o u p , v i s i t e d P a r i s i n
O c t o b e r and a s k e d , a t tha t t i m e , t ha t a S H A P E P l a n n i n g T e a m , f u l l y f a m i l i a r
w i th t h e M i n i m u m F o r c e Study, c o m e t o Wash ing ton D. C. t o d i s c u s s t h e (45)
d r a f t s tudy wi th t h e Standing G r o u p p l a n n e r s /
S H A P E R e p r e s e n t a t i v e s Mee t ing wi th SGN in Wash ing ton D. C.
At t h e i n v i t a t i o n of t h e Standing G r o u p , a t e a m of p lann ing o f f i c e r s
f r o m SHAPE, h e a d e d by M a j o r G e n e r a l Gaz in , f l ew to Washing ton D. C. i n
e a r l y N o v e m b e r . T h e s e o f f i c e r s , a l l of w h o m had been c l o s e l y invo lved in
t h e p r e p a r a t i o n of t h e SHAPE M i n i m u m F o r c e Study, went t o Wash ing ton t o
d i s c u s s c e r t a i n a s p e c t s of tha t s tudy wi th t h e Standing G r o u p p l a n n e r s who (46) w e r e i n t h e p r o c e s s of t r y i n g t o deve lop M C 7 0 / '
SGN C o n s o l i d a t i o n of SACEUR f SACLANT and CINCHAN Studies ( P r e p a r a t i o n of M C 70.
The Standing G r o u p f e l t tha t SACEUR w a s too o p t i m i s t i c in a s s u m i n g
t h a t t h e Sovie t s would s t i l l h a v e to u s e t h e h e a v y b o m b e r f o r s t r a t e g i c a i r
o p e r a t i o n s i n 1963. T h e y f e l t t ha t by t h a t t i m e , t h e gu ided m i s s i l e would b e
c a r r y i n g out t h e r o l e of the h e a v y b o m b e r in t h e Soviet a r s e n a l . M a j o r G e -
n e r a l S c h w e i z e r , ACOS I N T E L , exp la ined , upon h i s r e t u r n f r o m Washington ,
t h a t a l though in p r e p a r i n g t h e i n t e l l i g e n c e annex t o t h e Minimxun F o r c e Study
h e had b a s e d h i s e s t i m a t e s upon t h e Standing Group b a s i c i n t e l l i g e n c e d o c u -
m e n t , SG I 6 I / I O , i t h a d been n e c e s s a r y t o p r o j e c t t h e e s t i m a t e s to 1963,
(45) M i n u t e s of C O F S Mtg w / C h i e f s of Staff of MSCs , T a b A, ACE M i n i m u m F o r c e Study 1958-63 , P A N D P 1240, 30 Oct 57.
(46) V e r b a t i m R e c o r d , C O F S M e e t i n g wi th Div is ion Ch ie f s , 20 Nov 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
two y e a r 8 beyond t h e p e r i o d c o v e r e d b y t h e b a s i c g u i d a n c e p a p e r . He did
not f e e l t ha t SHAPE h a d b e e n in e r r o r in c r e d i t i n g t h e R u s s i a n s w i th g r e a t e r
n u m b e r s of b o m b e r s and l e s s m i s s i l e s t han t h e Standing G r o u p now b e l e v e d
would be t h e c a s e . It w a s s i m p l y t h a t t h e R u s s i a n l aunch ing of two "Sjputniks"
had a r o u s e d l a t e r s p e c u l a t i o n tha t t h e Soviet Bloc would b e a b l e t o r e p l a c e
b o m b e r s wi th m i s s i l e s m u c h f a s t e r t h a n had b e e n b e l i e v e d w h e n t h e M i n i m u m
F o r c e Study had b e e n p r e p a r e d .
G e n e r a l Schuyler s u m m e d up t h e p r o b l e m s u c c i n t l y by t e l l i n g M a j o r
G e n e r a l Schwe ize r on 20 N o v e m b e r : "Our t r o u b l e w a s tha t w e w r o t e i t b e f o r e
t h e Sputniks went u p . "
T h e Standing G r o u p w a s a p p a r e n t l y not going t o t r y t o r e c o n c i l e the
d i v e r g e n t v i e w s c o n t a i n e d i n t h e s t u d i e s of SACEUR, SACLrANT and CINCH AN,,
but would m e r e l y r e g i s t e r t h e s e v a r i o u s p o i n t s of v i e w wh ich d i f f e r e d m a i n l y
b e c a u s e of t h e v a r y i n g m i s s i o n s and g e o g r a p h i c a l l o c a t i o n of t h e c o m m a n d s .
As r e q u e s t e d by t h e N o r t h At l an t i c Counci l , t h e Standing G r o u p p r e p a r e d
a r e p o r t on t h e p r o g r e s s w h i c h w a s be ing m a d e in conso l ida t ing t h e Minimxim
F o r c e Studies of t h e M a j o r NATO C o m m a n d e r s and p r e s e n t e d t h i s r e p o r t a t
t h e D e c e m b e r m e e t i n g s in P a r i s . T h e p u r p o s e of p r e p a r i n g M C 70 w a s de f ined
a s " to p r e s e n t the N o r t h At lan t i c Counci l w i th an a p p r e c i a t i o n of t h e M i n i m u m
E s s e n t i a l F o r c e s r e q u i r e d to i m p l e m e n t the Nor th At lan t ic T r e a t y O r g a n i s a t i o n
S t r a t eg i c Concept d e r i v e d f r o m t h e t a s k s . o f t h e M i l i t a r y A u t h o r i t i e s by t h e
P o l i t i c a l D i r e c t i v e f o r t h e p e r i o d ending 1 J a n u a r y 1963 ." T h e Standing G r o u p
a l s o w a n t e d i t c l e a r l y u n d e r s t o o d tha t M C 70 would p r e s e n t f o r c e r e q u i r e m e n t s ;
not p l a n s f o r m i l i t a r y o p e r a t i o n s . T h e y p r o p o s e d tha t t h e Coxincil a d d r e s s
i t s e l f , in i t s p o l i c y e x a m i n a t i o n s , not t o the s e p a r a t e s t u d i e s p r e p a r e d by i t s
t h r e e c o m m a n d e r s , but t o t h e c o n s o l i d a t i o n . When c o m p l e t e d , t h e r e f o r e ,
M C 70, would be u s e d by a l l NATO and na t i ona l m i l i t a r y a u t h o r i t i e s and
M a j o r NATO Comzxanders a s a b a s i c m i l i t a r y d o c u m e n t . T h e M i l i t a r y C o m -
m i t t e e would, i n t h i s p a p e r , c l e a r l y l a y down f o r t h e u s e of M a j o r NATO
C o m m a n d e r s , i n p r e p a r i n g l a t e r m i l i t a r y plans, t h e l a t e s t i n t e l l i g e n c e a v a i l a b l e ;
• > v. •• \ Vv-yj „ L ' a . i 122
' 1 • Jr :
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
• > -uy-ji -^..^1-1 u / -
a s t r a t e g i c a p p r a i s a l ; t h e m i s s i o n s , t a s k s and r e s p o n s i b i l i t i e s ; and a p p r o -
p r i a t e m i n i m u m f o r c e r e q u i r e m e n t s . "MC 70 i s be ing p r o d u c e d by t h e M i l i -
t a r y C o m m i t t e e a f t e r a de t a i l ed e x a m i n a t i o n of t h e C o m m a n d e r s ' s t u d i e s ,
e n s u r i n g t h a t t h e r e a r e no o m i s s i o n s n o r o v e r l a p s , no r m i s c o n c e p t i o n s , " (47)
t h e Standing G r o u p ' s r e p o r t s t a t e d . '
Va l id i t y of M C 1 4 / 2 (Rev) in P r e p a r a t i o n of M C 70.
A p p a r e n t l y s o m e doubt h a d a r i s e n a m o n g a u t h o r i t i e s i n s o m e n a t i o n s
a s t o t h e v a l i d i t y of t h e s t r a t e g i c concep t con t a ined in MC 1 4 / 2 (Revised) , t h e
l a t e s t s t a t e m e n t of t h e concep t . The Standing G r o u p f e l t t h i s m i g h t s t e m f r o m
a be l ie f by t h e s e au thor i t ies i n t h e p o s s i b i l i t y of a n u c l e a r s t a l e m a t e a n d / o r
of a l i m i t e d w a r c o n c e p t . T h e Standing G r o u p r e f u t e d t h e s e p o s s i b i l i t i e s and
i n s u p p o r t of t h e i r s t and , quoted t h e a p p r o p r i a t e s e c t i o n of MC 1 4 / 2 ( R e v i s e d ) .
T h e y a s s e r t e d t h a t t h e y and t h e M a j o r NATO C o m m a n d e r s a f t e r c o n s u l t a t i o n
h a d a g r e e d tha t t h i s concep t w a s s t i l l v a l i d and t h a t t h e y i n t ended .to c o m p l e t e
t h e d e v e l o p m e n t of M C 70 on t h i s b a s i s .
T h e r e p o r t d e f i n e d c l e a r l y and in d e t a i l t h e r e q u i r e m e n t s wh ich c o n s -
t i t u t e d t h e b e s t de f i n i t i on of a m i n i m u m f o r c e . In o r d e r to a c c o m p l i s h i t s
m i s s i o n , s u c h a f o r c e m u s t m e e t c e r t a i n cond i t i ons , s o m e of wh ich w e r e
s i g n i f i c a n t t o S A C E U R ' s s i t ua t i on . T h e s e m a i n cond i t i ons w e r e : b a s i c i n t e l -
l i g e n t e ; e a r l y w a r n i n g ; g r a d u a t e d r e a d i n e s s ; an a l e r t s y s t e m ; o p e r a t i o n a l
i n t e l l i g e n c e ; an a c t i v e i n t e g r a t e d a i r d e f e n s e s y s t e m in p e a c e and w a r ; an
a p p r o p r i a t e c o m m a n d c o n t r o l o r g a n i z a t i o n ; and a p p r o p r i a t e m a n p o w e r and
l o g i s t i c s u p p o r t .
T h e Standing G r o u p i n c l u d e d a long a n a l y s i s of a i r d e f e n s e a l s o / * * ^
In c o n c l u s i o n , i t s r e p o r t s t a t e d : "It i s hoped t h a t MC 70 wi l l be a v a i l a b l e
t o t h e M i l i t a r y C o m m i t t e e i n F e b r u a r y and t o t h e N o r t h At lan t ic Counc i l soon
a f t e r . "
(47) S G M - 7 7 9 - 5 7 (Rev i sed ) , 9 Dec 57, M e m o f o r SACEUR, sub : P r o g r e s s R e p o r t on M i n i m u m E s s e n t i a l F o r c e R e q u i r e m e n t s - MC 70.
(48) See Sec t ion , P l a n g i g g C h a p t e r . Ai r D e f e n s e .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
CHAPTER V
T R A I N I N G
SACEUR'B Terms of Reference Concerning Training.
SACEUR was charged by his t erms of reference with the organization
with the national authorities concerned. In addition he was assigned "direct
control over the higher training of all forces assigned to his command in
peacet ime and the inspection of training of all forces assigned to his command.
Furthermore he should be given faci l i t ies by the nations to inspect the train-
ing of those cadre and other forces within the area of Allied Command Europe
earmarked for his c o m m a n d . " ^
SHAPE Staff Duties Concerning Training of ACE Forces .
In order to carry out this important training function, SACEUR main-
tained an Organization and Training Division to coordinate training and to
supervise the systems, of training inspection throughout Allied Command
Europe.
SHAPE supervised and directed the training of major mil itary formations
throughout Allied Command Europe by observing training and passing on to
appropriate authorities recommendations for improving the state of readiness
of forces . By far the major contribution to the training throughout Allied
Command Europe lay in the various exerc i se s and maneuvers held under
supervision of SHAPE and of MSCs.
(1) MC 53 (Final), 7 Jul 55; Revised Terms of Reference for the Supreme Allied Commander Europe.
and training of his forces into an effective integrated force , to include the
exercizing of these forces in maneuvers after consultation, as appropriate,
1*24
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
F^ » I f V . . . . . . r ( ,
• • ; 7 , I • .. " • • ' -,
S H A P E 5 7 / 6 7 NATO S E C R E T
P l a n s f o r t h e t r a i n i n g w h i c h took p l a c e in 1957 had b e e n Bet out
b r o a d l y by G e n e r a l G r u e n t h e r i n 1954. At t h a t t i m e , m a k i n g a t h r e e - y e a r
f o r e c a s t , G e n e r a l G r u e n t h e r t o l d h i s m a j o r s u b o r d i n a t e c o m m a n d s t h a t w h i l e
i t w a s no t p o s s i b l e t o m a k e p r e c i s e p l a n s f o r t h e f u t u r e , h e would g ive t h e m
t h e m a i n f e a t u r e s of t h e y e a r 1957 t r a i n i n g p e r i o d . T h e r e would be t h e u s u a l
C P X i n l a t e A p r i l 1957. F u l l - s c a l e l and , s e a and a i r m a n e u v e r s would b e
h e l d i n t h e N o r t h e r n C o m m a n d , if p o s s i b l e i n c o n j u n c t i o n wi th s o m e of .
SACl iANT t S f o r c e s and t h e N o r t h e r n e l e m e n t s of t h e C e n t r a l C o m m a n d . T h e
S o u t h e r n C o i n m a n d would s t a g e a c o m b i n e d m a n e u v e r wi th t h e M e d i t e r r a n e a n
C o m m a n d . In t h e C e n t r a l C o m m a n d , p r i o r i t y would b e g iven t o t e s t i n g of t h e
a i r d e f e n s e s y s t e m s of C e n t r a l E u r o p e inc lud ing , G e n e r a l G r u e n t h e r hoped ,
t h a t of t h e U n i t e d K ingdom. T h e f i n a l i n t e g r a t i o n of t h e G e r m a n f o r c e s i n to
t h e s t r u c t u r e of A C E would t a k e p l a c e i n 1957. G e n e r a l G r u e n t h e r conc luded
s a y i n g , " In 1957 t h e r e i s a l s o a cont inu ing n e e d f o r t h e a t e r - w i d e a i r m a n e u -(2) v e r s t o t e s t a l l a s p e c t s of a t o m i c o p e r a t i o n s . " 1 '
T r a i n i n g A i m s and O b j e c t i v e s of E x e r c i s e s i n Al l ied C o m m a n d E u r o p e ,
As b a c k g r o u n d f o r a l l e x e r c i s e s in ACE, SHAPE had i s s u e d in 1956
a t r a i n i n g d i r e c t i v e w h i c h s t a t e d tha t t h e a i m of a l l e x e r c i s e s w a s t o a c h i e v e
t h e m a x i m u m t r a i n i n g v a l u e f o r t h e a r m or a r m s of t h e s e r v i c e f o r w h i c h
t h e e x e r c i s e w a s d e s i g n e d . In s o m e e x e r c i s e s , t h e o b j e c t i v e s would s t r e s s
t h e t r a i n i n g of a i r f o r c e s , and t h e a r m y and n a v y p a r t i c i p a t i o n would b e
t a i l o r e d t o s u p p o r t t h e a t t a i n m e n t of a i r f o r c e o b j e c t i v e s . T h i s p o s i t i o n ,
of c o u r s e , wou ld b e r e v e r s e d when e x e r c i s e s w e r e d e s i g n e d p r i m a r i l y to
t r a i n e i t h e r l a n d o r s e a f o r c e s . T h e g e n e r a l o b j e c t i v e s of t h e S H A P E - s p o n -
s o r e d J o i n t A t o m i c E x e r c i s e s w e r e t h e t e s t i n g of t h e ASP and t h e i m p l e m e n t a -
t i o n of i t s c u r r e n t S O P s . Such e x e r c i s e s would n o r m a l l y h a v e a s u r p r i s e
(2) AG 1702 OT, 18 Nov 54, s u b : T h e B r o a d P a t t e r n of Higher T r a i n i n g 1955 t o 1957.
» 1
. • . -. > W - . - -
125
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
attack setting, beginning on D-day, with the air counter-offensive receiving
the greatest emphasis. SHAPE-sponsored Joint Atomic Exercises would
have priority and precedence over all other exercises held in ACE.
The regional commanders would be responsible for determining objec-
t ives and training appropriate to their requirements in regional exerc i ses ,
whether they were to be linked to or totally separate from the Joint Atomic
Exerc i se s / 3 ^
Commanders' Exercises Reports.
Before and after all exerc ises and maneuvers, commanders were
required to submit certain reports to SHAPE in order that SHAPE in turn
might develop its Allied Command Europe Exercise and Maneuvers schedule,
and that it might report to higher authority on the results and observations
resulting from the exercise. SHAPE required four reports on NATO exerc ises :
a. A tentative forecast of exerc ises .
b. A detailed brief of planned NATO exercises .
c. A preliminary report. (4) d. A final report / '
(3) AG 2333 OT, 7 May 56, Training Directive No 18. (4) AG 3950, 16 Dec 57, Training Directive No 19.
For a complete recapitulation of all exercises held within ACE during the period 20 Nov 56 to 31 Dec 57 the reader may consult Periodic Re-ports to the Standing Group issued quarterly during the year. Fi le references are PR 51, SH 46/57, 28 Feb 57; PR 52 AG 2210 SEC, 15 May 57; PR 53 AG 2210 SEC, 8 Aug 57; PR 54 AG 2210 SEC, 30 Oct 57; PR 55 AG 2210 SEC, 28 Jan 58. These documents also contain information on national exercises . See also Allied Command Europe Exercise and Maneuver Schedule 1957-58, 4 Jun 56, as amended by Itr of 6 May 1957. Throughout the year SHAPE observers attended exerc ises held in the various commands as well as observing the training of national units in national exercises.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
Planning for Exercise STRIKE BACK.
It had originally been intended that the general atomic exercise for
1957 should be called Exercise STRIKE BACK. In mid-January represent-
atives of the Major Subordinate Commanders and of SACLANT and CINCHAN
visited SHAPE so that the arrangements for the exercise , particularly the
public information procedures, could be coordinated. At that time the NATO
Council had not been apprised of the magnitude of the exercise plan which
the Standing Group intended to present to them in February. It was fully
recognized at SHAPE that the political implications of such an exercise might
be great and the public relations aspect, particularly, must be very carefully
handled/5^
Modification of Exercise STRIKE BACK.
The North Atlantic Council insisted that if Exercise STRIKE BACK were i
to take place it should take place not earlier than 15 October 1957. They
reasoned that too much significance would be attached to an exercise of the
magnitude of STRIKE BACK at the time of an election in Western Germany,
and the political unde sir ability of abnormal air activity in Western Germany
close to i ts election time, was highly evident.
SHAPE accepted the Standing Group suggestion for a compromise by
scheduling a ser ies of separate exerc ises with individual names which in
some cases would run concurrently between 19 and 28 September 1957. It
was stated that the press re leases would be passive and would avoid the im-
pression that the ser ies of exercises were linked by an overall concept, and
that such aspects of the exercises which would cause political concern would
either be modified or eliminated. SHAPE definitely did not want to postpone
the exercise , since ACE was concerned over possible adverse weather con-
ditions, the calling up of reserves , and the disruption of training s c h e d u l e s . ^
(5) SEC 2032, Minutes of COFS Mtg, 9 Jan 57. (6) SEC 2030, Minutes of COFS Mtg, 22 Feb 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
Exercise Counter Punch.
Following a visit by SACEUR's representatives to the Standing Group
in March 1957, it was agreed that SHAPE would recommend continuation of
Exercise STRIKE BACK with operational changes under the new name of
COUNTER PUNCH, This new exercise contemplated attacking no targets in (7)
Germany because of the election which coincided with the exercise date /
Scheduled for 19 through 21 September 1957, COUNTER PUNCH was
designed to test, to practice and to evaluate the current plans, policies and
procedures of SACEUR and his Major Subordinate Commanders for employing
nuclear weapons in defense of Allied Command Europe, The 1956 Atomic
Exercise had brought to light many deficiencies in the atomic employment
and all training officials were agreed that it was necessary to put to the test
the ability of SACEUR's forces to react quickly and effectively against any
enemy surprise attack.
Exercise instructions for COUNTER PUNCH were issued to MSCs, to (8)
nations and to appropriate unit commanders on 25 February 1957. '
The political situation was such in other parts of Europe that it was
decided to curtail or ßt least to modify parts of the exercise in order to avoid
undesirable political reactions. In the Center, for instance, all aircraft were (a) ordered to keep above 21, 000 feet in flying missions during the e x e r c i s e / '
The four major aims of COUNTER PUNCH were:
a. To test the plans for. using the full potential of the conventional weapons
aircraft in support of the Atomic Strike Plan in a joint effort to destroy the , I
enemy's air and atomic capability, p1 • — — —
{7) SEC 2030, Minutes of COFS Mtg, 13 Mar 57. In view of political implications, detailed public relations policies were issued for this exercise - - s e e SH 37669, 6 Aug 57.
(0) See ACE Joint Atomic Exercise Instructions COUNTERPUNCH, AG 1730.2 AO, 25 Feb 57, for complete instructions.
{«> Radio, SACEUR to COMAIRCENT, SM 35589, 27 Apr 57. This documents gives an interesting picture of the negotiation between SACEUR and his major commanders in preparing for such exercises as COUNTER PUNCH.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
b. To t e s t p l a n s f o r m e e t i n g t h e o v e r - a l l r e c o n n a i s s a n c e r e q u i r e m e n t
of a i r and g round c o m m a n d e r s t h r o u g h a s s i g n i n g s p e c i f i c r e c o n n a i s s a n c e
m i s s i o n s to a i r c r a f t f ly ing on c o - l a t e r a l t a s k s .
c . To t e s t c u r r e n t p l a n s f o r t i m e l y r e c o n n a i s s a n c e n e e d e d by S A C E U R ' s
Schedu led A i r f i e l d P r o g r a m and t h e R e g i o n a l Survei l lance A i r f i e l d P r o g r a m .
d. To t e s t t h e a i r f o r c e s ' c a p a b i l i t y in d i r e c t suppor t of g r o u n d f o r c e s
dur ing t h e f i r s t 72 h o u r s of h o s t i l i t i e s , wi th r e g a r d t o a t o m i c a t t a c k s , c o n -
v e n t i o n a l s t r i k e s , and r e c o n n a i s s a n c e .
T h e s e t t i ng of p l a y f o r COUNTER P U N C H a s s u m e d tha t in e a r l y 1957
r e l a t i o n s h i p s b e t w e e n NATO Ehiropean c o u n t r i e s and un iden t i f i ed a g g r e s s o r
c o u n t r i e s had d e t e r i o r a t e d to a po in t w h e r e h o s t i l i t i e s t h r e a t e n e d , and SACEJR
h a d b e e n a u t h o r i z e d t o pu t in to e f f e c t h i s c o u n t e r s u r p r i s e m i l i t a r y a l e r t
s y s t e m . T h e i n t e l l i g e n c e s c e n a r i o w a s s u p p l e m e n t e d when na t i ona l a u t h o r i t i e s
a 8 w e l l a s S H A P E b e g a n sending p r e - p l a n n e d i n t e l l i g e n c e m e s s a g e s t w o d a y s
b e f o r e t h e beg inn ing of t h e e x e r c i s e , t h u s enabl ing the c o m m a n d e r s t o bu i ld
up a s i t u a t i o n at t h e end of D - I wh ich d i c t a t e d t h e d i s p e r s i o n of t h e i r f o r c e s .
A g g r e s s o r f o r c e s w e r e a s s u m e d t o be l o c a t e d in t h e USSR and Sa te l l i t e S t a t e s .
Ac tua l f ly ing by f r i e n d l y a i r c r a f t w a s , of c o u r s e , p e r f o r m e d o v e r equ iva l en t
t a r g e t s and m i s s i o n s of a i r d e l i v e r y w e a p o n s l o c a t e d wi th in A C E . E v e r y
a t t e m p t w a s m a d e t o p l an t h e e x e r c i s e s o r t i e s so a s t o p r o v i d e t h e m a x i m u m
b e n e f i t t o a i r d e f e n s e f o r c e s t h r o u g h o u t A C E .
In add i t ion t o t h e l and , nava l and a i r f o r c e s a s s i g n e d o r e a r m a r k e d t o
SACEUR, f o r c e s e m p l o y e d in COUNTER P U N C H i n c l u d e d e l e m e n t s of t h e U S
S t r a t e g i c Ai r C o m m a n d and t h e UK B o m b e r C o m m a n d , and a i r f o r c e s f r o m
B e l g i u m , t h e N e t h e r l a n d s and F r a n c e . While a l l a i r f o r c e s p a r t i c i p a t e d on
a l i v e b a s i s , l and and nava l f o r c e s had t h e opt ion of p a r t i c i p a t i n g e i t he r on a
l i v e o r a C P X b a s i s . H o w e v e r , t h e s e l a t t e r f o r c e s w e r e r e q u i r e d t o a s s i s t
in t h e jo in t p r q > a r a t i o n of r e g i o n a l e x e r c i s e p l a n s t o m a n t h e J C O C s a s r e q u i r e d
u n d e r S A C E U R ' s ASP 1 / 5 7 , and to put i n to p l a y a l l g round a t o m i c d e l i v e r y
f o r c e s . O r i g i n a l l y i t had been p l a n n e d to i n c l u d e a l a r g e a m o u n t of low l e v e l
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
flying in COUNTER P U N C H . H o w e v e r , p o l i t i c a l i m p l i c a t i o n s , p a r t i c u l a r l y
t h e e l e c t i o n s in t h e F e d e r a l R e p u b l i c of G e r m a n y , m a d e it n e c e s s a r y t o e l l*
m i n a t e t h i s low l e v e l f l y ing . P l a n n i n g f o r COUNTER P U N C H w a s h a m p e r e d
t o s o m e d e g r e e by d e l a y e d p r e p a r a t i o n of e x e r c i s e a t o m i c p lans* P e r f o r -
m a n c e of t h e e x e r c i s e w a s h a m p e r e d p a r t i c u l a r l y by c o m m u n i c a t i o n s d i f f -
c u l t i e s . T h e r e w e r e d e l a y s in hand l ing and t r a n s m i t t i n g o p e r a t i o n a l d a t a a s
w e l l a s i n p r o c e s s i n g and d i s s e m i n a t i n g t h e l a r g e a m o u n t of I n f o r m a t i o n p r o -
duced by t h e r e c o n n a i s s a n c e a i r c r a f t .
C o n c l u s i o n s d r a w n f r o m COUNTER P U N C H ,
The m a i n c o n c l u s i o n s d r a w n f r o m COUNTER P U N C H w e r e :
C o m m u n i c a t i o n s : The p r i n c i p l e of u s ing c o n f e r e n c e c i r c u i t s w a s ex*
t e n d e d du r ing COUNTER P U N C H t o t h e N o r t h e r n , and Sou the rn R e g i o n s of A C E .
W h e r e a s t h i s t ype of c i r c u i t ( t e l ephone) in t h e C e n t e r R e g i o n s e r v e d v e r y
w e l l , t h e Sou the rn c i r c u i t ( t e l e type ) w a s not r e l i a b l e . In both N o r t h e r n and
Sou the rn R e g i o n s l ack of f a m i l i a r i t y wi th the s p e c i a l i z e d p r o c e d u r e s i nvo lved
c a u s e d t r o u b l e . C o m m u n i c a t i o n s wi th bo th t h e Sixth F l e e t in t h e South and
S T R I K F L T L A N T in t h e N o r t h Reg ion l e f t m u c h to b e d e d r e d .
I n t e l l i g e n c e : I n t e l l i g e n c e d a t a Was i i n dome c a s e s , s u b m i t t e d t oo l a t e
t o be of v a l u e in t h e p l a y of t h e e x e r c i s e .
O p e r a t i o n s : Al though t h e d e d r e d t e m p o of t h e e x e r c i s e w a s not f u l l y
a c h i e v e d excep t in t h e C e n t r a l Reg ion , t h e M a j o r Subo rd ina t e C o m m a n d s
c o n s i d e r e d COUNTER P U N C H to be t h e b e s t p l a n n e d and e x e c u t e d J o i n t A tomic
E x e r c i s e t o be he ld to t ha t da t e , A c o n s i d e r a b l e amoun t of u s e f u l d a t a w a s
p r o v i d e d by a S H A P E q u e s t i o n n a i r e , d e s i g n e d f o r t h e p u r p o s e of e x a m i n i n g in
de t a i l s p e c i f i c o p e r a t i o n a l p r o b l e m s and p r o v i d i n g SHAPE wi th f a c t u a l d a t a
t h a t cou ld b e a n a l y z e d , a s s e s s e d , and u s e d i n d e t e r m i n i n g w e a k n e s s e s Itt
both t h e e x e r c i s e and t h e a t o m i c s t r i k è p l a n . A n a l y s i s of t h e e x e r c i a e i n d i c a t e d
t h a t a high d e g r e e of p r e - a r r a n g e d p lann ing h a d b e e n achieved* H o w e v e r ,
t h e r e w a s r o o m f o r f u r t h e r i m p r o v e m e n t in r e c o n n a i s s a n c e * In p a r t i c u l a r ,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
g r e a t e r e f f i c i e n c y w a s n e e d e d i n t h e t i m e l y execu t ion of r e c o n n a i s s a n c e t a s k s
Lto m e e t t h e s p e e d of e x e c u t i o n r e q u i r e d by the A t o m i c S t r ike P l a n . M u c h
u s e f u l d a t a w a s ob t a ined on t h e p r o b l e m of a s s e s s i n g the a i r f o r c e s ' ab i l i t y
t o p r o v i d e A r m y C o m m a n d e r s wi th t h e a i r s u p p o r t n e e d e d du r ing t h e f i r s t
72 h o u r s of w a r . The p r o b l e m w a s s c h e d u l e d f o r f u r t h e r e x a m i n a t i o n in t h e
n e x t A l l i ed C o m m a n d E u r o p e J o i n t A t o m i c E x e r c i s e . The a n a l y s i s of COUNTER
P U N C H e m p h a s i z e d t h e b a s i c p r i n c i p l e tha t t h o r o u g h knowledge of concep t
and p r o c e d u r e s i s e s s e n t i a l t o any s u c c e s s f u l opera t ions . Th i s f u n d a m e n t a l
r e q u i r e m e n t w a s r e - e m p h a s i z e d to a l l a s s o c i a t e d wi th i m p l e m e n t a t i o n of
S A C E U R ' s A t o m i c S t r i k e P l a n .
R e c o m m e n d a t i o n s m a d e a f t e r C O U N T E R - P U N C H - C o m m u n i c a t i o n s .
R e c o m m e n d a t i o n s to a l l e v i a t e one of t h e m a j o r d e f i c i e n c i e s b r o u g h t t o
l igh t i n COUNTER P U N C H - C o m m u n i c a t i o n s - w e r e :
a . C o n f e r e n c e c i r c u i t s , t e l e p h o n e o r t e l e t y p e m u s t be p r o v i d e d and u s e d
c o n s t a n t l y i n p e a c e t i m e , to e n s u r e an a d e q u a t e s t a t e of t r a i n i n g of both Oper-
a t i o n s smd c o m m u n i c a t i o n s s t a f f s a s s o c i a t e d wi th i t s u s e in t i m e of w a r .
b . The p r o b l e m of r e l i a b l e r a d i o c o m m u n i c a t i o n s t o S T R I K F L T L A N T ,
f r o m a p r o p a g a t i o n in N o r t h e r n a r e a a s p e c t , w a s being s tud ied by SHAPE
Ai r D e f e n s e T e c h n i c a l C e n t e r . The 9th Sl ice h i g h - p o w e r SSB r a d i o i n f r a -
s t r u c t u r e p r o j e c t would p r o v i d e s a t i s f a c t o r y c o m m u n i c a t i o n s t o t h e 6th F l e e t .
In add i t ion , a p r o j e c t f o r the p r o c u r e m e n t of low p o w e r SSB r a d i o e q u i p m e n t f o r
b a c k - u p and c o n f e r e n c e c o m m u n i c a t i o n s wi th 6th F l e e t w a s p r e p a r e d f o r p r e -
s e n t a t i o n t o t h e M B C . ^ ^
E x e r c i s e P L A Y BACK.
Mak ing u s e of the h e a v y v o l u m e of communica t ion 1 b e tween t h e h e a d -
q u a r t e r s of A C E wh ich took p l a c e d u r i n g E x e r c i s e COUNTER PUNCH, SHAPE
(10) B r i e f i n g F o l d e r f o r C O F S C o n f e r e n c e , 30 Oct 57, Red T a b B.
131
NATO " S Î Ë C R S L ^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
J - M «>
s t a g e d a c o m m u n i c a t i o n s e x e r c i s e i n Oc tobe r 1957 which w a s d e s i g n a t e d
E x e r c i s e P L A Y BACK, d e s i g n e d t o p r a c t i s e the SHAPE O p e r a t i o n a l E c h e l o n
and i t s s u p p o r t i n g c o m m u n i c a t i o n s i n t h e SHAPE w a r h e a d q u a r t e r s s i t e . I t s
p u r p o s e w a s t w o - f o l d : f i r s t , t o t e s t t he SOP f o r the SHAPE o p e r a t i o n a l e c h e -
lon f o r mov ing in to and o p e r a t i n g f r o m t h e w a r h e a d q u a r t e r s s i t e ; and s e c o n d ,
to t e s t c o m m u n i c a t i o n s in t h e w a r h e a d q u a r t e r s s i t e . A 12 -hour p e r i o d w a s
s e l e c t e d f r o m the p r e c e d i n g E x e r c i s e COUNTER P U N C H , and a l l m e s s a g e s
t r a n s m i t t e d and r e c e i v e d du r ing t h i s p e r i o d w e r e p l a y e d back . T h i s p e r m i t t e d
t h e u s e of t h e s e t t i ng , p l a n s , and t h e w e a p o n s and p r o c e d u r e s u s e d d u r i n g
COUNTER P U N C H . The SHAPE o p e r a t i o n a l eche lon w a s a l e r t e d , b r o u g h t to
SHAPE, m o v e d to t h e w a r h e a d q u a r t e r s s i t e , and f u n c t i o n e d a c c o r d i n g to t h e
SOPs which had been e s t a b l i s h e d . The e x e r c i s e l a s t e d a p p r o x i m a t e l y 24 h o u r s ! * ^
E x e r c i s e s B L U E ICE, BLIND E Y E and BROWN JUG.
When E x e r c i s e STRIKE BACK w a s c o n v e r t e d t o E x e r c i s e COUNTER
P U N C H and a s e r i e s of s m a l l e r e x e r c i s e s s e t up, t h e e x e r c i s e s in t h e N o r t h
w e r e d iv ided in to t h r e e s e p a r a t e c o m p o n e n t s . T h e s e e x e r c i s e s w e r e B L U E
ICE, BLIND EYE, and BROWN JUG. B L U E I C E w a s a t h r e e - s e r v i c e e x e r c i s e
wi th two s i d e s p a r t i c i p a t i n g . It w a s s p o n s o r e d and d i r e c t e d by CINCNORTH
and took p l a c e in N o r t h e r n N o r w a y f r o m 23 to 28 S e p t e m b e r 1957. BLIND EYE,
a l s o s p o n s o r e d by CINCNORTH, w a s a s m a l l s c a l e s e a and m a r i t i m e a i r
m a n e u v e r h e l d in t h e S k a g e r r a k and Sou the rn N o r w a y du r ing t h e s a m e p e r i o d .
In D e n m a r k , A F N O R T H s p o n s o r e d and c a r r i e d out f r o m 19 t o 25 S e p t e m b e r
an a m p h i b i o u s m a n e u v e r known a s BROWN JUG.
M a j o r c o n c l u s i o n s d r a w n f r o m t h e s e r e l a t e d e x e r c i s e s w e r e : t h e
N o r t h e r n E u r o p e a n C o m m a n d C o m m u n i c a t i o n s s y s t e m w a s i n a d e q u a t e t o c a r r y
t h e g r e a t l dad of s i g n a i s , even though i t w a s r e i n f o r c e d by n a t i o n a l e q u i p m e n t ,
wh ich would not be a v a i l a b l e in an e m e r g e n c y ; and t h e w o r k of i n t e l l i g e n c e
(11) F o r i n s t r u c t i o n s i s s u e d on E x e r c i s e P L A Y BACK, s e e AG 1730.3, 16 Aug 57; and SCO OUT 37550, 31 J u l 57.
132 m m m m x - x m .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO COMDENTWL NAT© SECRET
staffs showed that much greater knowledge of procedures and intelligence
training was required. CINCNORTHf as a result of this exerc ise , told
SHAPE that he needed additional signal personnel, units and equipment and
that h is intell igence staff at all levels needed more training.
Ebcercise DEEP WATER.
In Southern Europe a joint and combined large - sca le land, sea and air
maneuver known as Exercise DEEP WATER was held in AFSOUTH's area
under the direction of CINCSOUTH from 23 to 28 September 1957. The aims
of Exerc i se DEEP WATER were to practice the implementation of a SACEUR
Strategic-Reserve Force in a delaye<| setting from D+ 39 to D+43, to pract ise
the commanders and staffs in exercis ing control of their units, t o p r a c t i s e
l ia ison between the serv ices and, of course, to pract ise all personnel and
staffs in the function of their assigned duties. (
Following exerc i se DEEP WATESl it was determined ttyrouph critique
that the . communication s system in Southern European Command did not support
the concept of a war in the P+40 setting; that, as in the Northern Command,
all intell igence staffs lacked training and were unfamiliar with proper oper-•• ; V- • ;
ational procedures; and that certain log is t ics procedures would have to be
developed or improved.
CINCAFMED directed a large scale Mediterranean-wide exerc i se set in
the f i r s t week of any future war. Jh i s exerc i se was held from 5 to 12 May 1957,
primari ly to test the alert measures and the emergency defense plans of
CINCAFMED and his subordinate commanders in the event of a war with only
48 hours warning, and to exerc ise his forces in carrying out their duties in
the f i r s t eight days of this war. CINCAFMED reported that while his alert
m e a s u r e s were generally implemented in a satisfactory manner, there were
a number of def ic iencies in mine warfare, in submarine operation, in anti-(12)
submarine warfare, and in Navy control of shipping.
(12) MC 43/5 , 14 May 58, Annexes A through E. MÄTÜ eû^^DÉ'MTÂ 133
j4ATfr= S F T a j j g g r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
"Y1 ' X i " ^ JVJ1 :. I i FL.
C P X VH.
C P X VII w a s h e l d u n d e r the d i r e c t i o n of F i e l d M a r s h a l M o n t g o m e r y ,
Deputy S u p r e m e Al l i ed C o m m a n d e r E u r o p e , at S H A P E f r o m 15 A p r i l t o
18 A p r i l 1957.
The e x e r c i s e w a s a t t ended by t h e NATO Counci l and s e n i o r m e m b e r s
of t h e I n t e r n a t i o n a l Staf f , by m e m b e r s of the Standing Group , by t h e C h i e f s
of Staff of a l l t h e n a t i o n s of t h e Atlantic A l l i ance , by t h e S a p r e m e C o m m a n d e r
and s e l e c t e d s e n i o r o f f i c e r s of Al l i ed C o m m a n d At lan t i c , by t h e Al l i ed C o m -
mander s - in -Ch ie f and s e n i o r o f f i c e r s of Channel C o m m a n d , and by r e g i o n a l
CommaLnders - in -Chie f and o the r s e n i o r o f f i c e r s of Al l ied C o m m a n d E u r o p e .
The p u r p o s e of the e x e r c i s e w a s to s tudy t h e p a t t e r n of f o r c e s r e q u i r e d
by t h e NATO c o u n t r i e s f o r the y e a r 1966. The e x e r c i s e w a s no t r e s t r i c t e d t o
d i s c u s s i o n of t h e r e q u i r e m e n t s f o r u n l i m i t e d n u c l e a r w a r only. The f o r c e s
n e c e s s a r y f o r l i m i t e d and co ld w a r a c t i v i t i e s w e r e a l s o c o n s i d e r e d .
The p r o v i s i o n of one a i r b o r n e o r a i r - t r a n s p o r t a b l e i n t e r n a t i o n a l d iv i s ion
u n d e r SACEUR's c o m m a n d , f o r " F i r e B r i g a d e " d u t i e s , w a s r e c o m m e n d e d .
T h e Higher M i l i t a r y S t r u c t u r e of NATO, t h e o r g a n i z a t i o n of NATO C o m m a n d s ,
and C o m m a n d b o u n d a r i e s , w e r e a l s o d i s c u s s e d . ^
Fol lowing t h e conc lu s ion of C P X VII on 18 A p r i l , F i e l d M a r s h a l M o n t -
g o m e r y , a s w a s h i s c u s t o m , a d d r e s s e d t h e o f f i c e r s a s s e m b l e d f r o m t h r o u g h -
out A C E . He d i s c u s s e d t h e p r o b l e m of t h e m i s s i l e , c i t ing i t s a d v a n t a g e s
and d i s a d v a n t a g e s . He Said t h a t t h e p i l o t e d a i r c r a f t w a s at p r e s e n t and in
t h e f o r e s e e a b l e f u t u r e t h e only means by wh ich r e a l a c c u r a c y wi th b o m b a r d -
m e n t cou ld be ob ta ined . "Don ' t l e t u s g ive up a l l our a i r p o w e r un t i l w e h a v e
an a c c u r a t e and r e l i a b l e m i s s i l e - wh ich i s not in s ight y e t , "
F i e l d M a r s h a l M o n t g o m e r y m a d e s o m e r a t h e r s t a r t l i n g o b s e r v a t i o n s
i n po in t ing out t h e n e e d f o r r e o r g a n i z a t i o n in NATO. He c l a i m e d tha t t h e
Standing G r o u p , f o r i n s t a n c e , shou ld h a v e an i n t e r n a t i o n a l c h a i r m a n and t h a t
i t should be b rough t t o P a r i s r a t h e r t h a n r e m a i n in Washington . He c a l l e d f o r
(13) AG 1700 OT, 2t6 F e b 58, R e p o r t on NATO E x e r c i s e s 1957.
134 UMO
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a c e n t r a l i z e d a i r f o r c e c o m m a n d ove r a l l a i r m i s s i l e a r m s of t h e W e s t e r n
A l l i a n c e . He q u e s t i o n e d t h e b o u n d a r y b e t w e e n SACLANT and t h e Channe l
Commauid l s ay ing t h a t t h e Channe l C o m m a n d shou ld p r o b a b l y b e r e s p o n s i b l e
f o r t h e n a r r o w w a t e r s and SACLANT f o r t h e g r e a t o c e a n . He s u g g e s t e d tha t
p e r h a p s D e n m a r k shou ld b e i n c l u d e d in t h e C e n t r a l C o m m a n d , and t h a t o p e r -
a t i o n s in t h e T u r k i s h S t r a i t s and t h e B l a c k Sea shou ld b e t h e r e s p o n s i b i l i t y
of CINCSOUTH. Going f u r t h e r , h e s u g g e s t e d t h a t p e r h a p s t h e NATO Counci l
shou ld a b o l i s h t h e Standing G r o u p and o r g a n i z e a S u p r e m e C o m m a n d e r s '
C o m m i t t e e .
F i e l d M a r s h a l M o n t g o m e r y w a r n e d a g a i n s t a t t a ck ing R u s s i a wi th l a n d
f o r c e s . He f o r e c a s t t h a t i n t e n s i v e w a r would b e c a r r i e d on by s u b m a r i n e s
and t h a t t h e s i d e w i th t h e g r e a t e s t c a p a c i t y t o s u s t a i n l o s s e s and t o r e o r g a n i z e
woxxld in t h e end p r e v a i l in any f u t u r e w a r .
The n a t i o n s of E u r o p e , t h e F i e l d M a r s h a l s a i d , n e e d e d t o c a r r y out
a f u n d a m e n t a l r e - d e s i g n of t h e i r m i l i t a r y m a c h i n e s wh ich would m a k e t h e m
r e a d y t o f igh t on D - d a y , not on D+lO o r D + l 5 . T h e F i e l d M a r s h a l c o n c l u d e d
by s a y i n g " "I would a b o l i s h t h e M i l i t a r y C o m m i t t e e , t h e Standing G r o u p , and'
t h e M i l i t a r y R e p r e s e n t a t i v e s C o m m i t t e e . I would a b o l i s h Channe l C o m m a n d /
a s an i n d e p e n d e n t NATO C o m m a n d , and o r g a n i z e t h a t a r e a a s a s u b - c o m m a n d
of SACLANT - t h u s having one S u p r e m e C o m m a n d e r in c h a r g e of a l l t h e s e a
a r e a s of NATO excep t t h e M e d i t e r r a n e a n . A s f o r t h e M e d i t e r r a n e a n i t s e l f ,
I wou ld m a k e i t one n a v a l c o m m a n d u n d e r one c o m m a n d e r - i n - c h i e f , i n s t e a d
of t h e c u r i o u s s e t - u p w e h a v e t h e r e at p r e s e n t . I would g ive e a c h A m b a s s a d o r
on t h e NATO Counc i l i n P a r i s an i n t e r - s e r v i c e t e a m of a d v i s e r s . I would
o r d e r t h a t SACEUR and SACLANT f o r m a S u p r e m e C o m m a n d e r s C o m m i t t e e ,
j o i n t l y r e s p o n s i b l e f o r a l l m i l i t a r y a d v i c e to t h e NATO Counci l and f o r a l l
o p e r a t i o n a l p l a n n i n g . The NATO Counc i l would t h e n ge t i t s a d v i c e f r o m (14) C o m m a n d e r s w i th p o w e r t o a c t . "
(14) DSAC 1 7 0 5 / 7 / 18 Apr 57, F i n a l A d d r e s s by DSACEUR a t C P X VII.
. * 7-135
NATO &1UJ&ÉT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r : / . . . . .
A i r D e f e n s e / A t o m i c S t r i k e E x e r c i s e s .
C O M A I R C E N T , on 9 M a y 1957, r e c o m m e n d e d t h a t t h e J o i n t A t o m i c E x -
e r c i s e b e h e l d oAly e v e r y o t h e r y e a r and t ha t an A i r D e f e n s e E x e r c i s e b e
h e l d i n t h e a l t e r n a t e y e a r s . S H A P E d id not f e e l t h i s a r r a n g e m e n t wou ld b e
s a t i s f a c t o r y . ^ ^
C O M A I R C E N T t h e n r e c o m m e n d e d t h a t t h e J o i n t A t o m i c E x e r c i s e and
t h e A i r D e f e n s e E x e r c i s e b e c o m b i n e d e a c h y e a r , w i t h e m p h a s i s a l t e r n a t i n g
b e t w e è n a t o m i c s t r i k e and a i r d e f e n s e . S H A P E h a d c o n d u c t e d a s t udy on t h e
n e c e s s i t y of ho ld ing an a t o m i c e x e r c i s e a s w e l l a s r e q u i r i n g t h e s u b o r d i n a t e
' c o m m a n d e r s t o ho ld an a n n u a l a i r d e f e n s e e x e r c i s e w i t h i n t h e i r r e g i o n s . T h i s
s t u d y c o n c l u d e d t h a t t h e r e w a s a c o n t i n u a l r e q u i r e m e n t f o r t h e two e x e r c i s e s .
When t h e m a t t e r w a s b r o u g h t to t h e a t t e n t i o n of G e n e r a l N o r s t a d , h e s t r o n g l y *
s t a t e d h i s belief t h a t a r e q u i r e m e n t f o r an a n n u a l joint: a t o m i c e x e r c i s e e x i s t e d
a s w e l l a s a r e q u i r e m e n t f o r s u b o r d i n a t e c o m m a n d e r s t o conduc t an a n n u a l * ,, • ( 1 6 ) a i r d e f e n s e e x e r c i s e .
As t h e r e s u l t of a l e t t e r f r o m C O M A I R C E N T on 19 J u l y , h o w e v e r , t h e
S H A P E s ta f f w a s d i r e c t e d to p r e p a r e a c o m p l e t e s t udy on t h e p r o b l e m of
c o m b i n i n g an a i r d e f e n s e e x e r c i s e wi th a j o in t a t o m i c e x e r c i s e in 1958. T h i s
s tudy c o n c l u d e d t ha t a l t h o u g h SACEUR's e x e r c i s e s c h e d u l e s f o r 1958 and
1959 p l a c e d a h e a v y l o a d on t h e M a j o r S u b o r d i n a t e C o m m a n d e r s , ho ld ing
j o i n t a t o m i c e x e r c i s e s a t r e g i o n a l l e v e l e v e r y y e a r w a s e s s e n t i a l t o t h e p r e -
p a r e d n e s s of NATO E u r o p e . C o m b i n i n g t h e s e two e x e r c i s e s in o r d e r t o a s s i s t
t h e t r a i n i n g l o a d of t h e M S C s would l e s s e n t h e i r v a l u e t o an u n a c c e p t a b l e d e g r e e .
T h i s s tudy , w i th i t s c o n c l u s i o n s , w a s f o r w a r d e d to C I N C E N T on 29 A u -
g u s t w i t h a s t a t e m e n t t ha t G e n e r a l N o r s t a d a g r e e d wi th t h e c o n c l u s i o n s of t h e
. , U d y . ' ' 7 '
(15) L t r C O M A I R C E N T to S H A P E , A A F C E , O T R 1 2 5 2 / 1 4 1 2 " P r o g r a m of M a j o r E x e r c i s e s , " 9 M a y 57; L t r S H A P E t o C O M A I R C E N T , s a m e t i t l e , AG 1730 O T 14 J u n 57.
(16) R a d S H A P E 37844, 14 Aug 57. F o r S H A P E P o l i c y on Air D e f e n s e E x e r c i s e s s e e AG 1730, 20 Apr 57, w / A p p e n d i x A.
(17) L t r t o C I N C E N T , AG 1730 OT , 29 Aug 57 w / e n c . Ai r D e f e n s e E x e r c i s e s 1958.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
mw* ftT^ -VV.; S H A P E 5 7 / 6 7 -NATO S f i G f t B T ^ 1
On 29 O c t o b e r 1957, COMAIRCENT c a m e to SHAPE to d i s c u s s wi th t
SACEUR and h i s k e y p lann ing o f f i c e r s t h e s u b j e c t of c o m b i n i n g t h e annua l
j o in t a t o m i c e x e r c i s e and t h e annua l a i r d e f e n s e e x e r c i s e . Fo l lowing t h i s
m e e t i n g , G e n e r a l N o r s t a d c h a n g e d h i s p o s i t i o n and d i r e c t e d t h a t u n l e s s
w i t h i n 30 d a y s an e x a m i n a t i o n of t h e p r o b l e m showed s o m e i m p o r t a n t r e a s o n
t o t h e c o n t r a r y , t h e a i r d e f e n s e and a t o m i c s t r i k e e x e r c i s e s would b e c o m -
b i n e d in 1958. T h e Ai r and Special O p e r a t i o n s Div i s ion , in c o n j u n c t i o n wi th
Ai r D e f e n s e Div i s ion and OANDT Div is ion , w a s d i r e c t e d to c a r r y out t h i s
e x a m i n a t i o n .
T h e M a j o r Subord ina t e C o m m a n d e r s w e r e a s k e d t o s u b m i t t h e i r r e q u i -
r e m e n t s f o r an a i r d e f e n s e e x e r c i s e by 5 S e p t e m b e r to enab le S H A P E t o a m a l -
g a m a t e t h e m a j o r i t y of t h e s e r e q u i r e m e n t s in t h e j o in t a t o m i c e x e r c i s e . T h e
q u e s t i o n s t o b e e x a m i n e d w e r e m a i n l y : - should t h e a t o m i c e x e r c i s e app ly to
a l l M a j o r S u b o r d i n a t e C o m m a n d s o r only to t h e C e n t e r - s h o u l d t h e a t o m i c
s t r i k e e x e r c i s e b e g iven p r i o r i t y and - w h a t would be t h e t e r m s of r e f e r e n c e
f o r f u t u r e > e x e r c i s e s . ^ ^
D i s c u s s i o n s on Conduct ing C o m b i n e d Jo in t A tomic And Air D e f e n s e E x e r c i s e s .
On 27 N o v e m b e r 1957, a m e e t i n g w a s he ld at SHAPE to d i s c u s s the
f e a s i b i l i t y of c o m b i n i n g the jo in t a t o m i c and a i r d e f e n s e e x e r c i s e s i n 1958.
Ai r V i c e M a r s h a l M c G r e g o r , Ass is t su i t Chief of Staff , Ai r D e f e n s e Div i s ion ,
s e r v e d a s t h e c h a i r m a n . He opened the c o n f e r e n c e by s t a t ing tha t o r i g i n a l l y
i t had b e e n i n t e n d e d f o r SHAPE t o ho ld only an annua l jo in t a t o m i c e x e r c i s e
and f o r t h e r e g i p n s t o o r g a n i z e t h e i r own a i r d e f e n s e e x e r c i s e s . T h e r e had
b e e n s o m e s t r o n g c r i t i c i s m of t h i s by t h e r e g i o n s , m a i n l y by COMAIRCENT
on f i n a n c i a l g r o u n d s , wh ich h a d r e s u l t e d in a p r o p o s a l by COMAIRCENT t h a t
t h e a i r d e f e n s e a n d a t o m i c s t r i k e e x e r c i s e s b e c o m b i n e d . SACEJR h a d d i r e c t e d
t h a t t h i s b e done if p o s s i b l e . The c o n f e r e n c e h a d b e e n called t o w o r k out wha t
(18) M e m o r a n d u m f o r R e c o r d , " Jo in t A tomic & R e g i o n a l Air D e f e n s e E x e r c i s e , " 29 Oct 57, s i g n e d C o n s t a n t i n e . D C P P / 4 7 7 / 5 7 . -
. :. A *• ".Tf ^ " "" M * "1 * -TTH
J \ ? , .. . - - • - ' •*»/«,*.
137
<SU1> I U -SiLUKtiT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
d i f f i c u l t i e s t h e r e w e r e , and to f o r m u l a t e m e a n s of so lv ing t h e s e d i f f i c u l t i e s .
COMAtRCENT 1 s p r o p o s a l s w e r e tha t t h e c o m b i n e d : e x e r c i s e s be .held annua l ly ,
but tha t t h e e m p h a s i s on ä r d e f e n s e and on t h e ASP be a l t e r n a t e d , s t a r t i n g
in 1958 on a i r d e f e n s e . A f t e r a d e t a i l e d e x a m i n a t i o n of t h e p r o b l e m by r e p r e -
s e n t a t i v e s of a l l t h e M a j o r Subord ina t e C o m m a n d s , G e n e r a l N o r s t a d d i r e c t e d
tha t t he 1958 e x e r c i s e would be conduc ted a s a c o m b i n e d jo in t a t o m i c and a i r , , • (19) d e f e n s e e x e r c i s e .
On 25 N o v e m b e r 1957, SHAPE i s s u e d to t h e M a j o r Subo rd ina t e C o m -
m a n d e r s a po l i cy s t a t e m e n t a m p l i f y i n g ex i s t i ng d i r e c t i v e s on the s i m u l a t e d u s e
of a t o m i c w e a p o n s in m a n e u v e r s and e x e r c i s e s . T h i s d i r e c t i v e had been d e -
ve loped a s a r e s u l t of m a n e u v e r s and e x e r c i s e s conduc t ed wi th in Al l ied C o m -(2°) m a n d Lu r o p e .
E s t a b l i s h m e n t of Specia l Weapons C o u r s e at Ober a m m e r g a u .
With the i n c r e a s i n g e m p h a s i s on a t o m i c w a r f a r e , . the s h o r t a g e of t r a i n e d
a t o m i c w a r f a r e i n s t r u c t o r s f o r NATO had to be r e s o l v e d . CINCSOUTH on
5 A p r i l to ld SHAPE tha t he l a cked t r a i n e d w e a p o n s a n a l y s t s and o the r o f f i c e r s .
To o v e r c o m e t h i s he r e c o m m e n d e d that a c o u r s e be e s t a b l i s h e d at Ober a m m e r -
gau, and tha t l e s s o n p l a n s u s e d t h e r e be d i s t r i b u t e d f o r u s e in NATO s c h o o l s .
In J u n e 1957, SHAPE announced t h e e s t a b l i s h m e n t of a f o u r - w e e k NATO n u -
c l e a r w e a p o n s e m p l o y m e n t c o u r s e at O b e r a m m e r g a u . While t h i s c o u r s e w a s
p r i m a r i l y m e a n t to p r o v i d e r e p l a c e m e n t s f o r US w e a p o n s e m p l o y m e n t o f f i c e r s
(19) AG 1730/1 AD, 5 Dec 57 - M i n u t e s of m e e t i n g at SHAPE 27 Nov 57. R a d S H A P E 39844, 20 Nov 57.
(20) AG 1780 OT, 25 Nov 57, P l a y of Atomic Weapons in M a n e u v e r s and E x e r c i s e s . F o r add i t iona l de t a i l ed i n f o r m a t i o n s e e : C u r r e n t SACEUR E D P ; C u r r e n t SACEUR ASP; SACEUR Atomic S t a n d a r d O p e r a t i n g P r o -c e d u r e s , AG 2333 ÜT, T r a i n i n g D i r e c t i v e No 17, " R e p o r t s on E x e r c i s e s and M a n e u v e r s , " 1 2 F e b 54; ACE Stamdard Data f o r Jo in t Atomic E x e r c i s e s ; AG 2333 OT, T r a i n i n g D i r e c t i v e No 19, "Repor t s on E x e r -c i s e s and M a n e u v e r s , 4 M a y 56; AG 1780 PID, P u b l i c I n f o r m a t i o n P o l i c y , 11 May 55.
m i w Q CONHOEWiniU M J i r n Oiri-P
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m m C O N F I D E N T I A L S H A P E 5 7 / 6 7 NATO" S E G I t E T
at t h a t t i m e w o r k i n g on t h e i n t e r n a t i o n a l s t a f f s , o f f i c e r s g r a d u a t i n g f r o m t
t h i s s c h o o l cou ld be i n c o r p o r a t e d in to t h e s t a f f s in o t h e r p o s i t i o n s but u s e d
a s i n s t r u c t o r s on a t o m i c w a r f a r e on a p a r t - t i m e b a s i s . It w a s p l a n n e d tha t
t h i s s p e c i a l c o u r s e wou ld p r o d u c e about 160 g r a d u a t e s e a c h y e a r .
All i n f o r m a t i o n on n u c l e a r w e a p o n s e m p l o y m e n t wh ich h a d b e e n r e l e a s e d
t o NATO by t h e U n i t e d S t a t e s w a s d i s t r i b u t e d t o NATO s t a f f s . S H A P E had ,
h o w e v e r , no a u t h o r i t y t o d i s t r i b u t e a t o m i c d a t a to n a t i o n a l s t a f f s and s c h o o l s .
T h i s cou ld be ob t a ined , h o w e v e r , if a u t h o r i z e d t h r o u g h b i - l a t e r a l a r r a n g e m e n t * (21) wi th t h e Un i t ed S t a t e s / '
A C E R e a d i n e s s T e s t P r o g r a m P r o p o s a l s .
S ince t h e beg inn ing of SHAPE, p l ann ing h a d b e e n b a s e d on t h e a s s u m p -
t i on t h a t t h e e n e m y would l a u n c h any a t t a c k on A C E wi th l i t t l e or no w a r n i n g
and t h a t h e would b e a b l e t o a c h i e v e a c e r t a i n d e g r e e of s u r p r i s e . T h e p a r a -
m o u n t f a c t o r in s u c c e s s f u l r e t a l i a t i o n t o e n e m y a t t a c k would be t h e r e a d i n e s s
of S A C E U R ' s f o r c e s t o r e a c t p r o m p t l y and swi f t l y . . SACEUR, t h e r e f o r e , w a s
d e t e r m i n e d t h a t t h e r e a d i n e s s p o s t u r e of h i s m i l i t a r y f o r c e s should be a s
g r e a t a s p o s s i b l e . While p r o g r e s s h a d b e e n a c h i e v e d in r a i s i n g the r e a d i n e s s
p o s t u r e of f o r c e s , m a n y a r e a s s t i l l r e q u i r e d f u r t h e r i m p r o v e m e n t , and con -
t i nued p r a c t i c e and e x e r c i s e w e r e o b v i o u s l y n e e d e d .
Dur ing 1957 S H A P E began to d e v e l o p a p r o g r a m of t e s t s f o r i m p r o v i n g
t h e r e a d i n e s s p o s t u r e of f o r c e s , and on 12 N o v e m b e r f o r w a r d e d c e r t a i n p r o -
p o s a l s t o t h e M S C s . The f i r s t R e a d i n e s s T e s t P r o g r a m which S H A P E p r o -
p o s e d w a s d e s i g n e d f o r p a r t i c i p a t i o n of on ly t h e a i r f o r c e s of ACE, bo th l a n d
b a s e d and s e a b a s e d , in t h e i r r e t a l i a t o r y r o l e and wi th e i t h e r c o n v e n t i o n a l
or a t o m i c w e a p o n s . T h i s w a s not b e c a u s e S H A P E f a i l e d to r e c o g n i z e t h e g r e a t
n e e d f o r r e a d i n e s s in l and and n a v a l f o r c e s , but b e c a u s e i t w a s c o n s i d e r e d
(21) S H A P E T r a i n i n g D i r e c t i v e No 20, 27 J u n 57; and B r i e f i n g F o l d e r f o r C O F S C o n f e r e n c e , 30 Oct 57, B lue T a b N.
139
nato confidential ^MATO nrrp TTT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 N A T O — S E É À E R
jfdèire p r a c t i c a l t o ga in e x p e r i e n c e in t e s t i n g a i r d e f e n s e s b e f o r e l aunch ing t
t h e r e a d i n e s s t e s t p r o g r a m f o r t he o t h e r f o r c e s . The in t en t ion w a s e v e n t u a l l y
t b i n t e g r a t e a l l t y p e s of f o r c e s in to an A C E - w i d e r e a d i n e s s t e s t p r o g r a m .
The S H A P E concep t of a r e a d i n e s s t e s t p r o g r a m c a l l e d fo r t e s t i n g of
t h r e e m a i n a s p e c t s : s u r v i v a l d u r i n g i n i t i a l a g g r e s s i o n , a t o m i c r e t a l i a t i o n ,
a n d c o n v e n t i o n a l w e a p o n s and r e c o n n a i s s a n c e o p e r a t i o n s . T h e s e c o n c e p t s
w e r e d e v e l o p e d in s o m e d e t a i l and f o r w a r d e d t o t he M a j o r C o m m a n d e r s f o r
t h e i r c o m m e n t and s tudy and f u r t h e r e l a b o r a t i o n w i th a v i ew t o d e t e r m i n i n g
s p e c i f i c i t e m s which should b e i n c l u d e d in p r o p o s e d teBts or i n i t i a l t e s t s .
S H A P E p a r t i c u l a r l y wan ted c o m m e n t s f r o m t h e M a j o r C o m m a n d e r s on t he
s c a l e of t h e i n i t i a l p r o g r a m and t h e r a t e at wh ich i t should be expanded to
i n c l u d e a l l e c h e l o n s of c o m m a n d ; t h e f r e q u e n c y and d u r a t i o n of e a c h t e s t ; t h e
m e a n s of i n t e g r a t i n g r e a d i n e s s t e s t s i n to n o r m a l t r a i n i n g and s c h e d u l e d o p e r -
a t i o n a l a c t i v i t i e s t o r e d u c e i n t e r f e r e n c e ; f i n a n c i a l i m p l i c a t i o n s ; and na t i ona l
r e a c t i o n s . T h e M S C s w e r e a s k e d t o submi t b e f o r e 1 December t h e i r r e a c t i o n
t o t h e t e s t s , s o m e eva lua t i on of n a t i o n a l r e a c t i o n s and r e c o m m e n d a t i o n s on
v a r i o u s a s p e c t s of t h e t e s t s . A m e e t i n g would be h e l d at S H A P E e a r l y in 1958 (22) t o c o n s o l i d a t e a l l t h e p r o p o s a l s f r o m t h e M S C s .
Annua l NATO T r a i n i n g C o n f e r e n c e .
T h e Standing G r o u p appo in t ed SACEUR to c h a i r and c o o r d i n a t e t h e
Annua l NATO T r a i n i n g C o n f e r e n c e f o r 1957, wh ich w a s to b e he ld in t he P a l a i s
de Cha i l lo t f r o m 10 t h r o u g h 12 J u l y / 2 3 ) On 10 J u l y 1957 t h e M a j o r NATO
C o m m a n d e r s , inc lud ing SACEUR, c o n f e r r e d wi th t h e i r r e s p e c t i v e s u b o r d i n a t e
c o m m a n d s . On the s u c c e e d i n g d a y s r e p r e s e n t a t i v e s f r o m t h e t h r e e M a j o r
N A T O C o m m a n d s a s we l l a s f r o m o u t s i d e a g e n c i e s p a r t i c i p a t e d in d e t a i l e d
d i s c u s s i o n . A i r M a r s h a l C o n s t a n t i n e of SHAPE, c h a i r m a n of t h e c o n f e r e n c e
on 12 J u l y , p o i n t e d out t ha t t h e a i m of t he m e e t i n g w a s to c o o r d i n a t e t h e e x e r -
c i s e s c h e d u l e s of t he t h r e e m a j o r NATO c o m m a n d s and to get f i r m na t iona l
(22) AG 2201 AO, 12 Nov 57, A C E R e a d i n e s s T e s t P r o g r a m , to a l l M S C s . (23) M e m o , AG 1700 OT, 29 M a r 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m m •NATO S E C R E T
c o n t r i b u t i o n s to NATO e x e r c i s e s f o r 1958 and t e n t a t i v e c o n t r i b u t i o n s f o r
e x e r c i s e s in 1959. F u r t h e r , t h e c o n f e r e n c e o f f e r e d an exce l l en t oppo r tun i t y
f o r d i s c u s s i n g t r a i n i n g p r o b l e m s c o m m o n to a l l t h r e e c o m m a n d s . R e p r e -
s e n t a t i v e s f r o m SACLANT, CINCHAN, CINCM AIR CHAN and SHAPE p r e s e n t e d
t h e e x e r c i s e s to be s p o n s o r e d by t h e i r c o m m a n d s in 1958 and 1959, and in
t h e c a s e of SACLANT in i 960 .
As a r e s u l t of t h e s e p r o j e c t e d e x e r c i s e s c h e d u l e s , f o r c e a l l o c a t i o n s and
o the r p e r t i n e n t da t a w e r e p u b l i s h e d in a r e v i s e d Al l ied C o m m a n d E u r o p e
E x e r c i s e and M a n e u v e r Schedule f o r 1958 and 1959.
Among t h e o the r p r o b l e m s d i s c u s s e d at t h e c o n f e r e n c e w e r e t h e n e e d
f o r a NATO nava l t a c t i c a l t r a i n i n g c e n t e r in N o r t h e r n E u r o p e ; the p r o p o s e d
concep t which SACLANT had deve loped f o r an N C P X th roughou t NATO in
1959; t h e g e n e r a l concep t f o r a l a r g e s c a l e l i ve e x e r c i s e in i 960 , and t h e
s t a n d a r d i z a t i o n of e x e r c i s e s c h e d u l e s and e x e r c i s e r e p o r t s , »
In concluding the c o n f e r e n c e , Air M a r s h a l Cons t an t ine po in t ed out t ha t
t h e r e w e r e tcrqf m a n y e x e r c i s e s s c h e d u l e d in ACE to a l low the d e s i r e d ends to
be a c h i e v e d . While combin ing e x e r c i s e s p r o v i d e d a so lu t ion in s o m e c a s e s ,
t h e d a n g e r e x i s t e d of t r y i n g to a c h i e v e too m u c h in one e x e r c i s e , t h u s robb ing
p a r t i c i p a n t s of t h e m a x i m u m b e n e f i t . He e m p h a s i z e d t h e v i t a l n a t u r e of t h e
t r a i n i n g ques t i on , po in t ing out t ha t NATO po l i cy w a s b a s e d on t h e concep t
tha t Soviet f o r c e s cannot be f a c e d m a n to m a n ; only with smaUer f o r c e s b a c k e d
wi th a t o m i c w e a p o n s could NATO de fend i t s e l f . Atomic r e t a l i a t i o n , t h e b a s i s
of NATO s t r a t e g y , had to t a k e f i r s t p r i o r i t y in NATO t r a i n i n g . Ai r d e f e n s e
wi th i t s e a r l y w a r n i n g c a p a b i l i t y w a s a l s o v i t a l and fo l lowed a c l o s e s econd
in p r i o r i t y . The f o r c e s at t he d i s p o s a l of NATO w e r e u s e l e s s unt i l t h e y (24) w e r e m a d e c o m b a t - e f f e c t i v e t h r o u g h t r a i n i n g and m a n e u v e r s /
Land T r a i n i n g A r e a s - C e n t r a l Region .
The p r o b l e m of p r o v i d i n g l a n d t r a i n i n g a r e a s f o r the f o r c e s of A C E
(£4) AG 2030.OT, 20 Sep 57, R e p o r t on NATO T r a i n i n g C o n f e r e n c e 1957.
141 DjÄo 'O O ^ i X i r î ^ i i i i r â ii a Ä L
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
h a d b e e n a cont inu ing one s i n c e 1954. The N o r t h At lan t ic Counci l a g r e e d
t h a t add i t iona l t r a i n i n g a r e a s w e r e n e c e s s a r y a s e a r l y a s 1951 and p r o v i s i o n
w a s m a d e in the 3 rd and 4th I n f r a s t r u c t u r e P r o g r a m s f o r the c o m m o n funding
of t h e s e t r a i n i n g a r e a s . Owing to t h e d i f f i cu l ty of obta in ing f u r t h e r l and , i t
had not been p o s s i b l e to p r o v i d e any NATO t ra in ing a r e a s .
In J u l y 1956, CINCENT s t a t e d tha t t he p o s i t i o n r e g a r d i n g t r a i n i n g a r e a s
and f a c i l i t i e s w a s becoming m o r e and m o r e c r i t i c a l . The t r a i n i n g a r e a s tha t
w e r e a v a i l a b l e w e r e i n a d e q u a t e even f o r c u r r e n t n e e d s . In v iew of the f u t u r e
r e q u i r e m e n t s , i t w a s f e l t tha t d i s c u s s i o n s wi th t h e G e r m a n M i n i s t e r of D e f e n s e
shou ld be s t a r t e d , and tha t SHAPE should be r e s p o n s i b l e f o r t h e oonduct of
t h e s e d i s c u s s i o n s . CINCENT a s k e d SHAPE f o r gu idance on the p r o b l e m .
S H A P E r e p l i e d a g r e e i n g tha t r e s p o n s i b i l i t y f o r NATO Contact wi th t h e G e r -
m a n MOD should be i t s own r e s p o n s i b i l i t y , and i n f o r m e d CINCENT tha t t h e (25)
who le q u e s t i o n of t r a i n i n g a r e a s w a s now unde r s tudy.
A s e r i e s of m e e t i n g s b e t w e e n o f f i c e r s f r o m LANDCENT, NORTHAG,
CINCENT and S H A P E w a s he ld du r ing t h e f i r s t p a r t of 1957 and a s taf f s tudy
w a s u n d e r t a k e n wi th in OANDT Div i s ion . The c o n c l u s i o n s of t h e s e c o n f e r e e s
w a s t h a t ex i s t ing t r a i n i n g a r e a s in G e r m a n y w e r e " i n s u f f i c i e n t f o r t h e p r e s e n t
NATO f o r c e s " and would be t o t a l l y i n a d e q u a t e when t h e G e r m a n f o r c e s w e r e
b r o u g h t up to s t r e n g t h . SHAPE had been i n f o r m e d by MOD G e r m a n y tha t no
f u r t h e r l and could be made a v a i l a b l e in G e r m a n y . The ex i s t ing t r a i n i n g a r e a s
in G e r m a n y c o v e r e d a to t a l of 1 , 1 1 5 s q u a r e k i l o m e t e r s ; and t h e add i t iona l
l a n d r e q u i r e d u n d e r ex i s t ing S H A P E p l a n s a m o u n t e d to 1, 400 s q u a r e k i l o m e t e r s .
T h e t o t a l a r e a e i t he r a l r e a d y u s e d o r p r o j e c t e d amoun ted to a l i t t l e m o r e than
one p e r cen t of the t o t a l a r e a of l and in W e s t e r n G e r m a n y .
E f f o r t s to s e c u r e t r a i n i n g a r e a s ou t s ide G e r m a n y had not been s u c c e s s -
f u l , n e i t h e r B e l g i u m nor t h e N e t h e r l a n d s being ab le to p r o v i d e enough t r a i n i n g
(25) A F C E L t r to SHAPE, 6 l 0 2 / O P S / l 5 4 , 23 Ju l 56. L t r f r o m S H A P E t o CINCENT, AG 6 1 0 2 / O T ^ 2 9 J a n 57.
^ w i * , J w
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MÂT© -NATO S E C R E T
a r e a s f o r t h e i r own f o r c e s , and i t w a s c o n s i d e r e d tha t F r a n c e w a s too f a r
, f r o m the u n i t s ' du ty s t a t i o n s . It w a s a p p a r e n t tha t , should e f f o r t s to ob ta in
t h e n e c e s s a r y l a n d f o r t r a i n i n g p r o v e u n s u c c e s s f u l , a r edac t ion in t r a i n i n g /26V
s t a n d a r d s would i nev i t ab ly r e s u l t .
The V o g e l s a n g - E l s e n b o r n T r a i n i n g A r e a .
Whils t t h e q u e s t i o n of l and t r a i n i n g a r e a s a s a whole w a s be ing e x a m i n e d ,
SHAPE dea l t d i r e c t l y wi th MOD G e r m a n y on t h e s p e c i f i c t r a i n i n g a r e a of
V o g e l s a n g - E l s e b o r n . SHAPE had o r i g i n a l l y p r o p o s e d tha t t h e s e two ex i s t i ng
t r a i n i n g a r e a s should be a m a l g a m a t e d and MOD G e r m a n y had a g r e e d to t h i s
p r o p o s a l . H o w e v e r , in M a y 1957 SHAPE w a s i n f o r m e d by MOD G e r m a n y ,
t h a t , owing to d i f f i c u l t i e s b e t w e e n B e l g i u m and G e r m a n y r e g a r d i n g the u s e of
t h i s t r a i n i n g a r e a , nothing f u r t h e r cou ld be done on t h i s p a r t i c u l a r p r o j e c t .
In Oc tobe r 1957 SHAPE r e c o m m e n d e d t h e delet ion of t h i s t r a i n i n g a r e a f r o m
c u r r e n t i n f r a s t r u c t u r e p l a n s and t h e p r o j e c t w a s in f ac t s u s p e n d e d . H o w e v e r ,
by the end of 1957 t h e s i tua t ion i m p r o v e d s o m e w h a t and, sub j ec t t o f o r m a l
a g r e e m e n t by t h e MODs of B e l g i u m and G e r m a n y on the u s e of V o g e l s a n g -
E l s e n h o r n , SHAPE a g r e e d to r e c o m m e n d tha t the s u s p e n s i o n of t h e a r e a be
(26) M e m o f r o m ACOS OANDT to COFS, OT 6102, 6 Sep 57. (27) See F i l e he ld in OANDT R e c o r d R o o m en t i t l ed " T r a i n i n g A r e a s C e n t r a l
Region, ' inc lud ing t h e fo l lowing l e t t e r s : C O F S to MOD G e r m a n y , 22 Dec 55; IX Bl 1 - 9 1 0 - 4 9 11/56, MOD G e r m a n y to COFS, 29 F e b 56; COFS to MOD G e r m a n y , 20 Dec 56; V A 4 - I X B / l - 4 G 2, 21 May 57, MOD G e r m a n y to COFS; COFS to MOD G e r m a n y , 12 Jtxn 57. See a l s o Staff Study, OANDT Divis ion , OT 6102, 9 May 57.
l i f ted , (27)
143 WATO COWRDBfiiTOL'
NATO " SECR 1Kl~
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
C H A P T E R VI
COMMAND S T R U C T U R E AND ORGANIZATION
G e n e r a l B a c k g r o u n d .
Beh ind a l l p lann ing in Al l i ed C o m m a n d E u r o p e l a y the a s s u m p t i o n
t h a t t h e e n e m y would l aunch a s u r p r i s e a t t a c k . A g r e a t dea l of m o n e y had
b e e n spen t by NATO in o r d e r tha t S A C E U R ' s f o r c e s migh t have t h e c a p a -
b i l i t y to r e a c t v e r y quickly to any p e n e t r a t i o n by e n e m y a i r c r a f t . In o r d e r
t o p r o v i d e c o m m u n i c a t i o n s , f o r i n s t a n c e , so tha t the a t o m i c s t r i k e p l a n and
t h e e m e r g e n c y d e f e n s e pleins could be c a r r i e d out qu ick ly and e f f e c t i v e l y ,
n e a r l y L 200, 000, 000 had b e e n i n v e s t e d . F u r t h e r , a l m o s t L 19, 000, 000
had b e e n spent f o r the c o n s t r u c t i o n of t h e w a r h e a d q u a r t e r s . Combin ing
t h e s e wi th t h e e x p e n s e of a i r f i e l d s and t h e e a r l y warning s y s t e m , a l m o s t
L 800, 000, 000 of NATO f u n d s had , by 1957, been a l l o c a t e d to p r o v i d e f o r
t h e s u r v i v a l of and r e t a l i a t i o n by the a r m e d f o r c e s of A C E . In sp i t e of t h i s
huge e j q j e n d i t u r e , t h e r e r e m a i n e 4 g r a v e w e a k n e s s e s in the c a p a c i t y of the
m a j o r h e a d q u a r t e r s of ACE to c o n t r o l and c o m m a n d t h e i r f o r c e s in w a r -
t i m e . The f a c t w a s a l l too obvious tha t t he s t r u c t u r e of A C E had been se t
up f o r p e a c e t i m e , and w a s too unwie ldy and too s low f o r w a r t i m e o p e r a t i o n . '
) R e s p o n s i b i l i t i e s of SACEUR and His C o m m a n d s .
S A C E U R ' s T e r m s of R e f e r e n c e s t a t e d tha t in w a r t i m e he would e x -
e r c i s e t h e fu l l p o w e r s of a s u p r e m e c o m m a n d e r and tha t he would be r e s -
p o n s i b l e to the Standing Group f o r t h e o v e r a l l d i r e c t i o n and conduct of w a r -
t i m e o p e r a t i o n s wi th in h i s c o m m a n d a r e a . Spec i f i ca l ly h i s f u n c t i o n s in
w a r t i m e would b e :
(1) L t r AG 6120 P A N D P (Dra f t ) , 13 Dec 57, C o m m a n d & Con t ro l in ACE.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a . To e n s u r e t h e r a p i d and e f f e c t i v e i m p l e m e n t a t i o n of the a t o m i c
s t r i k e p l a n .
b. To s u p e r v i s e and c a r r y out e m e r g e n c y d e f e n s e p l a n s .
c . To e s t a b l i s h and m a i n t a i n l i a i s o n wi th na t iona l a u t h o r i t i e s and
t h e N o r t h At l an t i c Counc i l .
d . To t a k e m i l i t a r y d e c i s i o n s on t h e conduct of o p e r a t i o n s , t ak ing
in to a c c o u n t t h e p r o g r e s s of the w a r and t h e i n f o r m a t i o n sen t h i m by h i s
s u b o r d i n a t e c o m m a n d e r s and by na t i ona l a u t h o r i t i e s .
SHAPE 'S o r g a n i z a t i o n could be c o m p a r e d to tha t of a na t iona l M i n i s t r y
of D e f e n s e , se t up to d e a l wi th m i l i t a r y p r o b l e m s and p o l i t i c a l and e c o n o m i c
q u e s t i o n s a f f e c t i n g the m i l i t a r y p lann ing wi th in the r e s p o n s i b i l i t y of SACEUR.
The M a j o r Subord ina t e C o m m a n d s (MSCs) a l s o w e r e o r g a n i z e d in p e a c e - t i m e
t o d e a l w i th p r o b l e m s which , l i ke t h o s e of SHAPE, w e r e p a r t l y p o l i t i c a l and
p a r t l y e c o n o m i c . H o w e v e r , wi th t h e excep t ion of CINCAFMED, the M S C s
had a p r i m a r y r e s p o n s i b i l i t y f o r p l ann ing f o r and execu t ion of d e f e n s i v e
o p e r a t i o n s on l and . The MSCs w e r e r e s p o n s i b l e f o r the conduct of NATO
o p e r a t i o n s in t h e i r a r e a , and f o r c l o s e c o o r d i n a t i o n wi th na t iona l t r o o p s .
^ S i n c e the beg inn ing of SHAPE t h e v a r i o u s c o m m a n d e r s had p o n d e r e d the
q u e s t i o n of c o m m a n d and o r g a n i z a t i o n , but had b e e n f o r c e d in m a n y c a s e s
b e c a u s e of p o l i t i c a l or f i n a n c i a l r e a s o n s t o c o m p r o m i s e in e s t a b l i s h i n g t h e i r
h e a d q u a r t e r s . Throughou t 1957 p r o b l e m s of c o m m a n d o r g a n i z a t i o n con -
t inued to be s tud ied by SACEUR, and c e r t a i n c h a n g e s w e r e put in to e f f e c t .
The m a j o r c h a n g e s and m a j o r a c t i o n s wi th r e g a r d to c o m m a n d and c o n t r o l
t h roughou t A C E a r e s e t f o r t h in the fo l lowing s e c t i o n . )
It had b e e n r e c o g n i z e d s i n c e t h e e s t a b l i s h m e n t of Al l ied C o m m a n d E u -
r o p e tha t a r r a n g e m e n t s f o r c o m m a n d of f o r c e s in the v i t a l C e n t e r a r e a l e f t
m u c h t o be d e s i r e d . While t h i s w a s t r u e of a i r and nava l f o r c e s a s we l l ,
C o m m a n d S t r u c t u r e in the C e n t e r .
MMO Q Q M m B M i m L
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t h e g r e a t e s t a p p a r e n t d i s c r e p a n c i e s ex i s t i ng in 1957 w e r e t h o s e in t h e (2)
l a n d f o r c e s c o m m a n d s t r u c t u r e and a r r a n g e m e n t s / '
Both t h e c o m m a n d s t r u c t u r e and t h e p h y s i c a l d i s p o s i t i o n of f o r c e s in
C e n t r a l E u r o p e b o r e the m a r k and a f t e r - e f f e c t s of the Al l i ed Occupa t ion of
G e r m a n y d u r i n g t h e p o s t - w a r y e a r s . In t h e opinion of m a n y top m i l i t a r y
a u t h o r i t i e s not only w a s the c o m m a n d s t r u c t u r e unwie ldy , but s u c h f o r c e s
a s w e r e l o c a t e d in t h e a r e a w e r e not d i s p o s e d p r o p e r l y to m e e t t h e m o s t
s e r i o u s t h r e a t f a c i n g t h e m on t h e g r o u n d ; the bulk of Soviet f o r c e s m a s s e d
i n E a s t G e r m a n y .
The f i r s t c o n s i d e r a t i o n in t h e m i n d s of S H A P E o f f i c e r s , inc luding
SACEUR, w a s to evolve a c o m m a n d a r r a n g e m e n t wh ich would p r o v i d e g r e a t e r
f l e x i b i l i t y and e a s e of c o m m a n d i n w a r t i m e .
SACEUR and CINCENT had d i s c u s s e d in de t a i l t he l and s t r u c t u r e in t h e
C e n t e r , p a r t i c u l a r l y be low t h e , l e v e l of ,LANDCENT. On 7 F e b r u a r y 1957,
G e n e r a l Va l luy sen t to S H A P E a d e t a i l e d m e m o r a n d u m c o n c e r n i n g t h e o r g a n i -A
za t i on of h i s c o m m a n d , in wh ich h e a t t e m p t e d to t a k e in to c o n s i d e r a t i o n the
c o n d i t i o n s of w a r f a r e f r o m i 9 6 0 o n w a r d s which would have d i r e c t i n f l u e n c e
on t h e o r g a n i z a t i o n of d i v i s i o n s , and on the cha in of c o m m a n d . He s t a t e d
t h a t t h e r e w e r e c l ea r ly too m a n y l e v e l s in the o r g a n i z a t i o n of C e n t r a l E u r o p e .
If one l e v e l could be e l i m i n a t e d the o r g a n i z a t i o n could be s i m p l i f i e d . T h i s
p r o b l e m w a s t o be i n t e n s i f i e d soon by the i n t e g r a t i o n of twe lve G e r m a n d iv i -
s i o n s and p e r h a p s t h r e e or fou r c o r p s which would be s u p e r i m p o s e d on the
e x i s t i n g o r g a n i z a t i o n . In addi t ion , t h e cha in of c o m m a n d w a s not the s a m e
in C e n t r a l A r m y Group and N o r t h e r n A r m y Group , w h e r e the a r m y l e v e l of
c o m m a n d w a s not r e p r e s e n t e d . C I N C E N T ' s m a j o r c o n c e r n w a s to s e e how
d i v i s i o n s could b e s t be p l a c e d in to m a j o r f o r m a t i o n s so t h a t an e f f e c t i v e cha in
of c o m m a n d could g u a r a n t e e tha t d e c i s i o n s would be qu ick ly t a k e n and quick ly
c a r r i e d ou t . He s u g g e s t e d s e v e r a l p o s s i b i l i t i e s , such a s g roup ing d i v i s i o n s ' " ' " I ! . - ^ • •
(2) F o r i n f o r m a t i o n on e f f o r t s t o i m p r o v e Air C o m m a n d in the C e n t e r , s e e R idgway V o l u m e , C h a p t e r III, C o m m a n d in the A i r .
146
NATO SECR £,"1
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
• • ' . - • • ^ « » C ' . L ,
S H A P E 5 7 / 6 7 NATO M i . f l H k T -
l a a h o m o g e n e o u s a r m y c o r p s , o r a t t a ch ing d i v i s i o n s d i r e c t l y to a c o m m o n
a g e n c y of the a r m y type , c a p a b l e of a s s u m i n g a s t r a t e g i c m i s s i o n . A s to
t h e q u e s t i o n of doing away wi th or r e t a i n i n g the a r m y g r o u p l e v e l of c o m m a n d ,
i t d id not a p p e a r t ha t t h i s should be done b e c a u s e of the p r o b a b l e n a t u r e of
a f u t u r e w a r
G e n e r a l N o r s t a d a g r e e d wi th G e n e r a l Val luy 1 s v i ew tha t one e c h e l o n
of c o m m a n d in t h e C e n t e r could be e l i m i n a t e d , and he a s k e d CINCENT to
s tudy t h i s m a t t e r f u r t h e r and to submi t r e c o m m e n d a t i o n s to h i m a f t e r C P X VH
a s to which l e v e l of c o m m a n d should be a b o l i s h e d . Genera l N o r s t a d p o i n t e d
out f a c t o r s which he s u g g e s t e d CINCENT k e e p in m i n d du r ing the s tudy . T h e s e
f a c t o r s w e r e t h e t a c t i c a l and l o g i s t i c a l i m p a c t on the c o m m a n d s t r u c t u r e
of the i n t r o d u c t i o n of m i s s i l e s and the i n c r e a s i n g ava i l ab i l i t y of g r o u n d a t o m i c
d e l i v e r y m e a n s in the C e n t e r ; t he i n f l u e n c e of SHAPE'S f o r w a r d s t r a t e g y con -
cep t and t h e s h o r t e n e d in i t i a l p h a s e of a f u t u r e w a r ( l e s s t han 30 days ) on t h e
c o m m a n d s t r u c t u r e ; e s s e n t i a l r e q u i r e m e n t s f o r an e f f i c i en t and c l o s e a r m y -
a i r a s s o c i a t i o n to f ight the l a n d - a i r b a t t l e (if p o s s i b l e the two h e a d q u a r t e r s
should be in the s a m e g e o g r a p h i c a l a r e a ) ; t he need f o r e c o n o m y in p e r s o n n e l ,
in c o m m u n i c a t i o n s and in w a r h e a d q u a r t e r s i n f r a s t r u c t u r e . G e n e r a l N o r s t a d
r e c o m m e n d e d tha t G e n e r a l Val luy c o n s i d e r t h e new P e n t o m i c p r i n c i p l e u n d e r
wh ich new U S d i v i s i o n s w e r e be ing o r g a n i z e d , poin t ing out tha t t h e m a j o r
c o m b a t u n i t s of t h e s e d i v i s i o n s w e r e f i ve c o m b a t g r o u p s , and tha t p e r h a p s t h i s
p r i n c i p l e of c o n t r o l , one c o m m a n d e r con t ro l l i ng e f f i c i en t l y f o u r o r f i ve o the r (4)
c o m m a n d e r s , could be app l ied to t h e o r g a n i z a t i o n in the C e n t e r . '
G e n e r a l Va l luy in an i n t e r i m r e p l y a g r e e d t o s tudy t h i s m a t t e r and to
g ive G e n e r a l N o r s t a d f i r m r e c o m m e n d a t i o n s on the p r o b l e m i m m e d i a t e l y
a f t e r C P X V I l / 5 )
(3) M e m o r a n d u m f r o m G e n e r a l Val luy , A F C E / 4 2 / C I N C , 7 F e b 57. (4) SACEUR t o CINCENT, AG 2600 P AN D P , 12 M a r 57, (5) C I N C E N T t o SACEUR 1 0 0 0 / l l / C I N C / l 2 9 / 5 7 , 22 M a y 57.
147
nato confidential - -NATO SEGRiST
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
Fo l lowing C P X VII, a s G e n e r a l N o r s t a d had r e q u e s t e d , G e n e r a l
V a l l u y sen t h i s v i e w s on t h e s t r u c t u r e of c o m m a n d f o r C e n t r a l E u r o p e . H i s
v i e w s had b e e n deve loped i n c l o s e c o n s u l t a t i o n wi th h i s s u b o r d i n a t e c o m -
m a n d e r s down to t h e a r m y g r o u p and A T A F l e v e l . The p r o p o s a l s dea l t a l m o s t
e x c l u s i v e l y wi th l and f o r c e s s i n c e CINCENT 1 s nava l f o r c e s w e r e s m a l l and,
a s he s a i d , "Ai r f o r c e s of C e n t r a l E u r o p e a r e not e x c l u s i v e l y u n d e r my c o m -
m a n d . " The l and f o r c e s . G e n e r a l Va l luy f e l t , w e r e l a r g e r and m o r e r i g i d ,
m u c h h a r d e r to m a n i p u l a t e , and r e m a i n e d m o r e na t i ona l in complex ion .
G e n e r a l Va l luy w a s conv inced t h a t i t w a s e x t r e m e l y i m p o r t a n t to a c h i e v e t h e
l a r g e s t p o s s i b l e d e g r e e of u n i f o r m i t y i n d iv i s i ona l s t r u c t u r e and convent ional
e q u i p m e n t b e t w e e n h i s u n i t s . "In t h i s way , " he s a id , "we should be a b l e to
w e l d t o g e t h e r the m a j o r f o r m a t i o n s of t h e e ight d i f f e r e n t n a t i o n s , u s e t h e m
i n a t r u e i n t e r - a l l i e d m a n n e r , and we should no l o n g e r h a v e to a c c e p t t h e l i m i -
t a t i o n s of na t i ona l f o r c e s be ing t i e d t o t h e i r na t i ona l depo t s and l i n e s of c o m -
m u n i c a t i o n s , s o m e t i m e s even t o t h e i r na t iona l p r e j u d i c e s . "
The k e y t o t h e p r o p o s a l s deve loped by CINCENT and h i s s taff w a s t h e
e l i m i n a t i o n of t h e c o r p s f r o m the c o m m a n d s t r u c t u r e of the l a n d f o r c e s . He
had p r e s e r v e d t h e a r m y g r o u p / A T A F l e v e l , which he c o n s i d e r e d e x t r e m e l y
i m p o r t a n t , and he h a d m a d e p r o v i s i o n f o r a " C o m m a n d A s s i s t a n c e Eche lon
b e t w e e n d iv i s i on and a r m y in c a s e i t should be n e e d e d . " G e n e r a l Va l luy w a s
c o n v i n c e d of the v a l u e of the s o - c a l l e d " m i x e d " a r m i e s in which n a t i o n a l type
a r m y h e a d q u a r t e r s would c o n t r o l d i v i s i o n s of s e v e r a l n a t i o n a l i t i e s , u s ing a
s ta f f t o wh ich w e r e a s s i g n e d l i a i s o n o f f i c e r s f o r t r a n s m i t t i n g o r d e r p , a s we l l
a s an i n t e r n a t i o n a l l o g i s t i c s s e c t i o n . ^ (6) L t r C INCENT to SACEUR, 1 2 4 1 / j P O / P P / 2 5 2 , 2 J u l 57, wi th e n c l o s u r e s
d td 27 J u n 57, and annex . See a l s o L t r to SACEUR f r o m G e n e r a l Ely , 21 F e b 57, Div i s ion 1, 3322 E M F A / 1 2 . B . 5 3 2 1 , 135 E M F A / S S ; and L t r SACEUR t o G e n e r a l E ly , s u b : C o m m a n d O r g a n i z a t i o n of Al l i ed F o r c e s C e n t r a l E u r o p e , 12 M a r 57. D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
f • r ' . ' ""T -̂. r™-- j m a • V - T j - ^ C i V H i A L
JJATO SECR ET
G e n e r a l Speidel , C o m m a n d e r , Land F o r c e s C e n t r a l E u r o p e , f o r w a r d e d
to G e n e r a l Val luy de ta i l ed c o m m e n t s which con ta ined an a n a l y s i s of the con-
s i d e r a t i o n s which had to be f a c e d , p a r t i c u l a r l y on the m a t t e r of b o u n d a r i e s (7)
be tween m a j o r f o r m a t i o n s / '
CINCENT c a m e to SHAPE on 18 J u l y t o d i s c u s s with SACEUR the sub-
j e c t of h i s c o m m a n d o rgan iza t ion . In t h e s e d i s c u s s i o n s it g e n e r a l l y w a s
a g r e e d tha t one eche lon of c o m m a n d in both the g round and a i r f o r c e s could
and should be abo l i shed . CINCENT f a v o r e d t h r e e g round e c h e l o n s : a r m y
g roup , a r m y and d iv is ion , but w a s p r e p a r e d t o accep t o ther n a m e s fo r t h e s e
eche lons if d e e i r e d .
SACEUR, on the o ther hand, at t h i s t i m e tended to f avo r a r m y , corps
and d iv is ion , and a l s o had no objec t ion to a l t e r i n g the n a m e s of t h e s e e c h e l o n s
if d e s i r a b l e .
It w a s a g r e e d tha t wha tever t he t o p m o s t eche lon , a r m y group or a r m y ,
t h e s e should be two in n u m b e r and i n t e r n a t i o n a l in compos i t ion . The d iv i s ion
eche lon should be na t iona l . CINCENT fe l t tha t t he i n t e r m e d i a t e eche lon ,
e i the r a r m y or c o r p s , m u s t be i n t e r n a t i o n a l ; SACEUR f a v o r e d in p r i n c i p l e
a na t iona l o rgan i za t i on wi th al l d iv i s ions i n the unit being a s ingle na t iona l i ty .
He could f o r e s e e excep t ions to th i s r u l e in one o r two c a s e s , howeve r .
C I N C E N T ' s pos i t ion s t e m m e d f r o m h i s v iewpoint tha t log i s t i c and a r e a con t ro l
p r o b l e m s could not be solved na t iona l ly .
No f ina l d e c i s i o n s were m a d e , but SACEUR d i r e c t e d h i s staff t o s tudy
c l o s e l y G e n e r a l V a l l u y ' s thinking, and CINCENT a g r e e d to study the p o s s i b i -(8)
I i ty of having na t iona l commands at the i n t e r m e d i a t e l eve l . '
On 23 August , G e n e r a l N o r s t a d f o r w a r d e d to key m i l i t a r y o f f i c i a l s of
the UK, G e r m a n y , the US, Be lg ium, the N e t h e r l a n d s and F r a n c e , two p r o -
p o s a l s f o r r e v i s i n g the c o m m a n d s t r u c t u r e of C e n t r a l E u r o p e . The f i r s t
(7) L t r COMLANDCENT to CINCENT, 1240£>PÏA>/526, 2 Ju l 57, Study of C o m m a n d S t r u c t u r e in C e n t r a l E u r o p e a n T h e a t r e .
(8) M e m o r a n d u m f r o m C O F S f o r DCPANDP and DCLA, 18 Jxil 57, C o m m a n d Organ iza t ion in the C e n t e r .
149 nato confidential
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a l t e r n a t i v e p r o v i d e d f o r a s t r u c t u r e be low A I R C E N T / L A N D C E N T of two
i n t e r n a t i o n a l a r m y g r o u p s wi th two A T A F s a s s o c i a t e d , wi th s i x n a t i o n a l
a r m i e s , e ach be ing r e p r e s e n t e d in t h e h e a d q u a r t e r s of o the r n a t i o n s dep loyed
in t h e s e c t o r , and the e l i m i n a t i o n of the c o r p s eche lon . T h i s so lu t ion would
h a v e the a d v a n t a g e of m a i n t a i n i n g t h e pressent c o m m a n d s t r u c t u r e and i t
would s i m p l i f y c o o r d i n a t i o n wi th the a i r f o r c e s . In add i t ion , i t would r e t a i n
t h e conven t iona l a r m y eche lon and would s i m p l i f y t h e so lu t ion of l o g i s t i c s
p r o b l e m s . S t r a t e g i c a l l y i t would d iv ide C e n t r a l E u r o p e in to two m a i n a r e a s
of r e s p o n s i b i l i t y , t h e N o r t h e r n E u r o p e a n p l a in , and the C a s s e l - F r a n k f u r t
zone inc lud ing t h e s o u t h e r n a p p r o a c h e s t h r o u g h B a v a r i a . The s e c o n d p r o p o s a l
p r o v i d e d f o r f o u r i n t e r n a t i o n a l a r m i e s unde r L A N D C E N T , wi th a l l suppor t i ng
c o r p s . T h u s , t h e two a r m y g r o u p s would be e l i m i n a t e d . T h i s so lu t ion would
r e t a i n t h e conven t iona l r o l e s of the a r m y c o r p s and d iv i s ion , would p r o v i d e
a m a j o r c o m m a n d f o r e a c h of t h e t h r e e m a j o r a x e s of a d v a n c e f o r f r i e n d l y
f o r c e s , t h e t h r e e m o s t l i ke ly a x e s of advance f o r e n e m y f o r c e s , p l u s an
a d d i t i o n a l c o m m a n d to s e c u r e the southern f l a n k .
G e n e r a l N o r s t a d a s k e d tha t t h e s e n i o r o f f i c e r s , including F i e l d M a r s h a l
T e m p l e r of the UK, G e n e r a l H e u s i n g e r of G e r m a n y , G e n e r a l H a s s e l m a n of
t h e N e t h e r l a n d s , G e n e r a l H a r t o o n of B e l g i u m , G e n e r a l P a l m e r of the US,
and G e n e r a l E ly of F r a n c e , r e c e i v e s e n i o r s taff o f f i c e r s f r o m SHAPE to (9)
c o n s i d e r t h i s p r o b l e m when they had had t i m e to g ive it s u f f i c i e n t thought . '
G e n e r a l Va l luy , t a l k e d wi th G e n e r a l N o r s t a d at s o m e l eng th on 1 5 Oc -
t o b e r c o n c e r n i n g t h e r e o r g a n i z a t i o n of h i s f o r c e s . In addi t ion , t he s e n i o r
o f f i c e r s f r o m t h e n a t i o n s t o w h o m G e n e r a l N o r s t a d had w r i t t e n f o r w a r d e d to
h i m t h e i r c o m m e n t s on the m a t t e r of c o m m a n d s t r u c t u r e in the C e n t e r .
On 20 D e c e m b e r 1957 G e n e r a l N o r s t a d s u m m e d up h i s l a t ç s t th inking
on t h e m a t t e r f o r Generad Va l luy in a p e r s o n a l l e t t e r . The f a c t o r which m o s t
i n f l u e n c e d h i s th ink ing a t t ha t t i m e w a s t h e r e a l i z a t i o n tha t the n a t i o n s w e r e
(9) S H A P E / 1 6 4 / 5 7 , 23 Aug 57, w i th e n c l o s u r e s .
l Ä H c , - J ' - . . 150
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
, V ~ ^ - •• • J.
t hen c o n s i d e r i n g the b r o a d p r o g r a m of f o r c e s se t f o r t h in the M i n i m u m
F o r c e Study, and tha t , if t h i s p r o g r a m w e r e app roved , s i gn i f i can t c h a n g e s
would be p r o d u c e d in the c a p a b i l i t i e s of h i s f o r c e s . He be l i eved , t h e r e f o r e ,
t ha t whi le c e r t a i n m i n i m u m c h a n g e s in c o m m a n d o r g a n i z a t i o n could be m a d e ,
m o r e r a d i c a l s t e p s should not be t a k e n at t he t i m e . " R a t h e r , " he sa id ,
"I would p r e f e r in the next two or t h r e e y e a r s to m a k e m a x i m u m u s e of the
p r e s e n t o r g a n i z a t i o n and i t s i m p o r t a n t i n f r a s t r u c t u r e , changing i t only w h e r e
n e c e s s a r y in the p r o c e s s of i n t e g r a t i n g the new G e r m a n f o r c e s . "
He a s k e d G e n e r a l Val luy to s tudy t h i s m a t t e r m u c h m o r e c l o s e l y and
gave h i m c e r t a i n gu idance , The m a i n p o i n t s of t h i s gu idance w e r e tha t t he
a r m y g r o u p s and t h e i r a s s o c i a t e d A T A F s would be r e t a i n e d f o r the p r e s e n t .
In due c o u r s e one eche lon of c o m m a n d b e t w e e n the a r m y g r o u p and the d iv i s ion
p r o b a b l y could be r e m o v e d . The r e m a i n i n g eche lon , w h e t h e r it be an a r m y
o r c o r p s h e a d q u a r t e r s , should be na t iona l in c o m p o s i t i o n with o f f i c e r s of
o t h e r n a t i o n s being added to i t s s taff only when n e c e s s a r y . T h e r e would be
no change in the n o r t h e r n bounda ry of t h e C e n t e r c o m m a n d at tha t t i m e .
G e n e r a l N o r s t a d gave G e n e r a l Val luy c e r t a i n o the r gu idance a s to boun-
d a r i e s be tween h i s two a r m y g r o u p s and a s k e d that he r e v i e w aga in h i s p r o -
p o s a l s and deve lop such c h a n g e s a s migh t be n e c e s s a r y to c o n f o r m with the i
g u i d a n c e he had been g i v e n . ^ ^ ^
A s s i g n m e n t of G e n e r a l Speidel to L A N D C E N T .
In the l a t e 1955, G e n e r a l G r u e n t h e r had p r o p o s e d a m a j o r r e o r g a n i z a t i o n
of the h e a d q u a r t e r s at F o n t a i n e b l e a u which would have c o n s o l i d a t e d Al l ied
L a n d F o r c e s C e n t r a l E u r o p e with Al l ied F o r c e s C e n t r a l E u r o p e . ^ ^
The Standing G r o u p w a s unab l e to r e a c h a g r e e m e n t on the p r o p o s e d
r e o r g a n i z a t i o n at t h e t i m e and no ac t ion w a s t a k e n f o r m o r e than a y e a r .
(10) L e t t e r f r o m G e n e r a l N o r s t a d to G e n e r a l Val luy, 20 Dec 57. (11) L t r AG 2510 P P O , 31 Dec 55, O r g a n i z a t i o n and C o m m a n d R e l a t i o n s h i p s
Al l ied F o r c e s C e n t r a l E u r o p e .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
On 5 J a n u a r y 1957 G e n e r a l N o r s t a d w i t h d r e w the p r o p o s a l and s t a t e d tha t
he i n t e n d e d to k e e p t h e gene ra l h e a d q u a r t e r s s t r u c t u r e at F o n t a i n e b l e a u a s
i t t hen e x i s t e d . At t h e s a m e t i m e , h e i n f o r m e d t h e Standing Group that
h e h a d ob ta ined f r o m the n a t i o n s c o n c e r n e d the formel l a g r e e m e n t in p r i n c i p l e
t o h a v e a G e r m a n o f f i c e r a s s u m e the p o s t of C o m m a n d e r , L a n d F o r c e s C e n t r a l (12)
E u r o p e , on 1 A p r i l 1957. '
At t h i s t i m e a l s o , G e n e r a l Schuyler v i s i t e d MOD G e r m a n y in Bonn
and c o n f e r r e d wi th h i m on t h e p o s s i b i l i t y of p l ac ing a G e r m a n o f f i c e r in
c o m m a n d of L A N D C E N T . The D e f e n s e M i n i s t e r i n d i c a t e d tha t t he G e r m a n
g o v e r n m e n t w a s p r e p a r e d t o f u r n i s h an o f f i c e r , on about 1 Apr i l . On 8 J a n u -(13)
a r y t h i s r e q u e s t w a s m a d e o f f i c i a l l y to the F e d e r a l Repub l i c of G e r m a n y .
On 24 J a n u a r y i t w a s announced that L t G e n e r a l Hans Speidel had b e e n
n o m i n a t e d f o r the p o s t of C o m m a n d e r , Land F o r c e s C e n t r a l E u r o p e . G e n e r a l
Spe ide l w a s appo in ted to the p o s t on 7 F e b r u a r y and a s s u m e d h i s d u t i e s on
2 A p r i l .
A s s i g n m e n t of Comba t G r o u p B l .
In J a n u a r y 1957 G e r m a n a u t h o r i t i e s a u t h o r i z e d SACEUR to u s e Comba t
G r o u p B l , one of two c o m b a t g r o u p s in t h e i r I s t I n f a n t r y Divis ion , in the
even t of an e m e r g e n c y in S c h l e s w i g - H o l s t e i n . SACEUR in t u r n a l l o c a t e d t h i s
un i t t o CINCNORTH f o r u s e in an e m e r g e n c y in t h i s a r e a . When in Ju ly G e r -
m a n a u t h o r i t i e s a s s i g n e d the I s t I n f a n t r y d iv i s ion along wi th o the r un i t s to
SACEUR, SHAPE a s s i g n e d the i n f a n t r y d iv i s ion in t u r n to CINCENT. Comba t
G r o u p B l , l o c a t e d in the H a m b u r g a r e a and an o r g a n i c uni t of the d iv i s ion ,
w a s t h e r e f o r e a l s o a s s i g n e d to CINCENT. T h r o u g h an a d m i n i s t r a t i v e e r r o r
CINCNORTH w a s not a d v i s e d of t h i s change .
When the G e r m a n a u t h o r i t i e s l e a r n e d tha t the comba t g r o u p had been
(12) R a d , S H A P E t o SGN, SH 32972, 5 J a n 57. (13) M i n u t e s , C O F S Mee t ing wi th Div is ion Ch ie f s , 9 J a n 57, SEC 2032.
I .,-N ^ - N - • •• I W n - ^ •
152
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
:. j •
SHAPE 5 7 / 6 7 NATO S E G i t E I —
t r a n s f e r r e d f r o m c o n t r o l of AFNORTH t o A F C E N T they a s k e d tha t SACEUR
c o n s i d e r a l lowing the u n i t s located in t h e H a m b u r g a r e a to cont inue t h e i r
d e f e n s e c o m m i t m e n t s in S c h l e s w i g - H o l s t e i n un t i l the G e r m a n b u i l d - u p a l lowed
fo r s t a t ion ing of s t r o n g e r f o r c e s in the a r e a . The G e r m a n g o v e r n m e n t in tended
t h a t t he e l e m e n t s of t h e f i r s t i n f a n t r y d iv i s ion s t a t ioned t h e r e would provide the
n u c l e u s of a new i n f a n t r y d iv i s ion to be a c t i v a t e d l a t e r and to be s t a t i oned in
S c h l e s w i g - H o l s t e i n . CINCNORTH, upon l e a r n i n g of the changed s t a t u s of
C o m b a t Group B l , r e q u e s t e d c l a r i f i c a t i o n s t a t ing , " T h i s uni t i s v i t a l to the
d e f e n s e of S c h l e s w i g - H o l s t e i n . "
On 11 S e p t e m b e r 1957, SACEUR a d v i s e d both MSCs tha t Comba t G r o u p
B l w a s to be r e t u r n e d to the o p e r a t i o n a l c o n t r o l of CINCNORTH pending h i s
d e c i s i o n on a p r o p o s a l which the G e r m a n s had m a d e on the o r g a n i z a t i o n f o r (14)
d e f e n s e of S c h l e s w i g - H o l s t e i n .
The CINCENT v iew which w a s e x p r e s s e d f o r c e f u l l y by G e n e r a l Speidel ,
COMLANDCENT, and which w a s backed e n t i r e l y by G e n e r a l Val luy , w a s tha t
t h e c o m p o n e n t s of the f i r s t i n f a n t r y d iv i s ion , inc luding Combat Group B l ,
should r e m a i n a s s i g n e d to CINCENT b e c a u s e if f o r c e s w e r e sp l i t , he f e l t it (15)
would endange r the d e f e n s e of W e s t e r n G e r m a n y .
G e n e r a l N o r s t a d , a f t e r c o n s i d e r i n g the v i ewpo in t s of both CINCENT and
CINCNORTH, to ld CINCENT tha t he c o n s i d e r e d that o p e r a t i o n a l c o n t r o l of
Comba t Group B l m u s t be r e t a i n e d by CINCNORTH f o r the t i m e be ing . His
d e c i s i o n w a s an i n t e r i m one pending t h e f ina l so lu t ion to t h e p r o b l e m which
would fo l low a s e t t l e m e n t of the bounda ry q u e s t i o n be tween CINCENT and
CINCNORTH and t h e ques t i on of c o m m a n d a r r a n g e m e n t s in S c h l e s w i g - H o l s t e i n . ^ ^
(14) IOCS, A C O F S P A N D P to SACEUR, 16 Sep 57, G e r m a n Comba t Group B l , wi th e n c l o s u r e , Br ie f on G e r m a n Comba t Unit B l .
(15) L t r CINCENT to SACEUR, 0931 / J P O / P P 3 2 3 , 13 Sep 57, sub : A s s i g n m e n t of an e l e m e n t of t h e G e r m a n I s t I n f a n t r y Divis ion in an E m e r g e n c y to t h e d e f e n s e of S c h l e s w i g - H o l s t e i n ; w / e n c l I t r 1 2 2 0 / O P T / 5 1 1 , 6 Sep 57, f r o m COMLANDCENT.
(16) AG 1100 P A N D P , 30 Sep 57, SACEUR t o CINCENT, O p e r a t i o n a l C o n t r o l of Comba t G r o u p B l .
1M'Vt v\y J1' "'' ; V-. v'V;
153
— N A l S = = S S f i f i S
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
Al l i ed N a v a l C o m m a n d in t h e B a l t i c .
One of the w e a k e s t a r e a s in S A C E U R ' s c o m m a n d so f a r a s c o m m a n d
c o n t r o l w a s c o n c e r n e d w a s in the nava l c o m m a n d in the Ba l t i c a r e a . An
a l l i e d n a v a l c o m m a n d in the Ba l t i c w a s n e e d e d to c o m m a n d a l l NATO nava l
and a i r f o r c e s t ha t would t a k e p a r t in any b a t t l e in the Ba l t i c S t r a i t s . Th i s
b e c a m e even m o r e u r g e n t in 1957 wi th the i n t r o d u c t i o n of G e r m a n n a v a l u n i t s
i n t o t h e a r e a . On 24 Ju ly 1956, SACEUR had f o r w a r d e d a p r o p o s e d d r a f t
d i r e c t i v e f o r e s t a b l i s h m e n t t h r o u g h the Standing Group of a nava l c o m m a n d ,
COMNAVBALT, in t ha t a r e a . D a n m a r k had not c o n c u r r e d wi th the p r o p o s e d
d i r e c t i v e , SACEUR w a s to ld s e v e r a l m o n t h s l a t e r tha t D e n m a r k had a p p r o a c h e d
t h e Standing Group , which had a s s u r e d tha t na t ion tha t pending i t s c o n c u r r e n c e
SGN would t a k e no f u r t h e r ac t ion to a p p r o v e S A C E U R ' s p r o p o s a l or to n o m i n a t e
a c o m m a n d e r f o r the Ba l t i c A p p r o a c h e s . Danish a p p r o v a l of e s t a b l i s h m e n t of
t h i s n a v a l c o m m a n d would not , it w a s r e a l i z e d , be f o r t h c o m i n g b e f o r e the (17)
A u t u m n of 1957 fo l lowing e l e c t i o n s in D e n m a r k /
SACEUR p r o p o s e d to CINCENT in N o v e m b e r 1956 tha t R e a r A d m i r a l
Si r C a m p b e l l - W a l t e r , UK, COMNAVNORCENT, r e c e i v e a t e m p o r a r y appo in t -
m e n t to s tudy t h i s m a t t e r and to o b s e r v e the ac t iva t ion of G e r m a n nava l f o r c e s
in t h e B a l t i c . Genezial Val luy s t a t ed tha t he had no ob jec t ion to R e a r A d m i r a l
Si r C a m p b e l l - W a l t e r doing t h i s if he wa i t ed unt i l a f t e r the e s t a b l i s h m e n t of
t h e G e r m a n N o r t h Sea Naval C o m m a n d , but he a s k e d tha t SACEUR t a k e no
d e c i s i o n un t i l t he Ba l t i c C o m m a n d e r had had a change to submi t h i s p r o p o s a l s .
" T h e d e f e n s e of t h e Ba l t i c and the S c h l e s w i g - H o l s t e i n a r e a , " G e n e r a l Val luy (18)
s t a t e d , " i s a m a t t e r wi th i m p o r t a n t i m p l i c a t i o n s f o r the C e n t e r R e g i o n . " 1
On 28 N o v e m b e r 1956, G e n e r a l Val luy sent a l e t t e r t o Gener sd Schuyler
s t a t i ng t h a t he had begun s t u d i e s on t h e e n t i r e p rob l em of c o m m a n d in h i s a r e a
(17) A F N E 3300 /1 , 31 Ju l 56, and S t a f f B r i e f , Naval C o m m a n d i n t h e B a l t i c , P A N D P , 21 J a n 57.
(18) R a d , SHAPE t o CINCENT, 31738; Rad , CINCENT to SHAPE, P P C E 79956 SCO IN 15100, 23 Nov 56. r-r ,
-t: • \ v> ' >..o:>r' •
154
- NATO ODCaUET -
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
f ^ A T O CG^J- 'ÜfJ . : :?« i 'iiAL NATO SECRET
and t h e s e s tud ie s would inc lude the p rob lem of Bal t ic Naval C o m m a n d . He
sent along f i r m p r o p o s a l s f o r solving t h i s p r o b l e m , p r o p o s a l s tha t inc luded
t he c r e a t i o n of an addi t ional c o m m a n d or t h e a t e r s i tua ted at what he t e r m e d
the h inge of the N o r t h e r n and C e n t r a l E u r o p e a n t h e a t e r s , " in i t i a l ly t o be
d i r e c t l y under SACEUR and to be c o m m a n d e d by a B r i t i s h or A m e r i c a n g e n e r a l
o f f i c e r . Th i s spec i a l t h e a t e r or c o m m a n d would include a G e r m a n a r m y c o r p s ,
a Danish a r m y c o r p s , and combined Danish and G e r m a n un i t s . G e n e r a l Valluy
a l r e a d y had d i s c u s s e d t h i s with B r i t i s h m i l i t a r y and civi l a u t h o r i t i e s . He s ta ted
tha t he was p r e p a r e d to m a k e the n e c e s s a r y con tac t s with N o r t h e r n E u r o p e (19)
to examine the m e a n s of se t t ing up t h i s new o rgan iza t ion .
The SHAPE viewpoint , which was sent to G e n e r a l Val luy on 5 D e c e m b e r
1956, s t a ted , "It i s c l e a r that a p e r m a n e n t solut ion to the p r o b l e m of a nava l
c o m m a n d in the Bal t ic m u s t wai t unt i l a f t e r the Danish e l ec t ions in mid -1957 , and
it i s fo r th i s r e a s o n that we a r e p r e p a r i n g to i m p l e m e n t a s soon a s p o s s i b l e
the i n t e r i m solut ion in which you have a l r e a d y c o n c u r r e d . " SHAPE had l e a r n e d
tha t po l i t i ca l f a c t o r s in the N o r t h e r n a r e a w e r e such that p r o g r e s s could be
m a d e only v e r y s lowly and changes could be only evo lu t ionary . The COMNAV-
BALT p l a n s w e r e only a f i r s t s tep to o ther c o m m a n d changes that might be
found m i l i t a r i l y d e s i r a b l e in that a r e a .
Although the F o r c e P o s t u r e ACE 1962 p a p e r had not been c o n s i d e r e d
va l id by the M i l i t a r y C o m m i t t e e , i t had shown c e r t a i n th ings v e r y c l e a r l y .
One w e a k n e s s in ACE was the o v e r a l l c o m m a n d s t r u c t u r e , and it was fe l t by
G e n e r a l Schuyler tha t any c o m m a n d s t r u c t u r e fo r con t ro l of the Bal t ic S t r a i t s
m u s t be f o r m u l a t è d within th i s o v e r a l l c o m m a n d s t r u c t u r e , and t h i s could be
u n d e r t a k e n only by SHAPE.
SHAPE had no objec t ion to CINCENT studying command s t r u c t u r e ,
p a r t i c u l a r l y a s p e c t s involving h i s f l a n k s , and c e r t a i n l y any d i s c u s s i o n s CINCENT
wished to c a r r y on with CINCNORTH w e r e in o r d e r . However , b e c a u s e of the
(19) L e t t e r , G e n e r a l Valluy to Generad Schuyler , 28 Nov 56.
SOT® ©gpaOi&WM,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p o l i t i c a l s e n s i t i v i t i e s involved , G e n e r a l Val luy w a s a s k e d to avoid f u r t h e r
d i s c u s s i o n wi th n a t i o n a l a u t h o r i t i e s awa i t ing S A C E U R ' s a g r e e m e n t to such
p r o p o s a l s a s G e n e r a l Val luy m i g h t m a k e . ^ " ^
The n e e d f o r i m p r o v i n g c o m m a n d a r r a n g e m e n t s in the Ba l t i c b e c a m e
m o r e u r g e n t when SHAPE w a s a d v i s e d tha t t he F e d e r a l M i n i s t e r of D e f e n s e ,
. G e r m a n y , had o r d e r e d the a c t i v a t i o n of a G e r m a n nava l h e a d q u a r t e r s ,
C o m m a n d e r Nava l F o r c e s Ba l t i c , on 1 J a n u a r y 1957. The G e r m a n n a v a l
h e a d q u a r t e r s would be a c t i v a t e d on 1 A p r i l 1957 and b e c o m e o p e r a t i v e du r ing
the c o u r s e of the s u m m e r . T h i s h e a d q u a r t e r s would be l o c a t e d i n i t i a l l y at Kie l .
A f t e r a f u l l e x c h a n g e of v i e w s with CINCENT on 28 D e c e m b e r 1956 at SHAPE,
G e n e r a l N o r s t a d d i r e c t e d t h a t c e r t a i n s t e p s be t a k e n wi th a v iew to c a r r y i n g
out t h e e s t a b l i s h m e n t of an i n t e r i m c o m m a n d . Unde r t h e s e i n t e r i m a r r a n g e -
ments, t h e C o m m a n d e r Al l ied Nava l F o r c e s C e n t r a l E u r o p e would m o v e a
p o r t i o n of h i s h e a d q u a r t e r s to Hol tenau , and would ac t t h r o u g h CINCENT and
COMNAVCENT, u s ing such p e a c e t i m e a u t h o r i t y a s w a s d e l e g a t e d h i m by
SACEUR ove r t h e G e r m a n Ba l t i c u n i t s when they w e r e a s s i g n e d . He would have
a s m a l l a l l i ed i n t e g r a t e d s taff c o m p o s e d of a f e w B r i t i s h , G e r m a n and A m e r i c a n
n a v a l o f f i c e r s . ^ ^
At the s a m e t i m e , COMNAVCENT would beg in s t u d i e s to f ind an a p p r o -
p r i a t e p e r m a n e n t so lu t ion f o r the nava l a s p e c t s of the c o m m a n d p r o b l e m f o r
t h e Ba l t i c a p p r o a c h e s . He a l s o would s tudy t h e m a t t e r of f u t u r e NATO nava l
e x e r c i s e s in tha t a r e a , and in deve lop ing h i s w a r p l a n s , would t a k e in to con-
s i d e r a t i o n an i n c r e a s i n g G e r m a n nava l c apab i l i t y . SACEUR's d r a f t d i r e c t i v e
would s e r v e a s a b a s i s in def in ing t h e m i s s i o n which , b r i e f l y s t a t ed , w a s
" t o c o n t r o l t h e Ba l t i c s t r a i t s , p r o v i d e d i r e c t s u p p o r t f o r the C e n t e r ' s l e f t f l ank ,
c a r r y out o f f e n s i v e o p e r a t i o n s in the Ba l t i c aga in s t e n e m y nava l f o r c e s and
l i n e s of c o m m u n i c a t i o n s , and p r o t e c t f r i e n d l y L O C s . " In o r d e r to do t h i s ,
(20) S H A P E / 2 6 4 / 5 6 , 5 Dec 56, L t r t o G e n e r a l Val luy f r o m G e n e r a l Schuy le r . (21) M e m o f o r R e c o r d , 28 Dec 56, "SACEUR Dec i s ion Conce rn ing an I n t e r i m
A r r a n g e m e n t f o r D i s c h a r g e of Naval R e s p o n s i b i l i t i e s in t h e A r e a of the Ba l t i c A p p r o a c h e it
-NAgQ AECK -Rl
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
D u ! i'/ V« „ t . J r « K ,. ÙÙ J »
NATO S E C R E T
COMNAVCENT w a s a u t h o r i z e d to o r g a n i z e an add i t iona l s taf f t o be known
a s a N o r t h / C e n t e r P l a n n i n g Group which would c o n s i s t of a s m a l l g r o u p of
n a v a l o f f i c e r s of Danish, G e r m a n , Un i t ed Kingdom and A m e r i c a n na t i ona l i t y .
On 22 Jauiuary SHAPE sent i t s p r o p o s a l s to the g o v e r n m e n t s c o n c e r n e d
a u t h o r i t i e s did not concur in SHAPE 'S p r o p o s a l , but s t a t e d tha t f o r m a t i o n and
e m p l o y m e n t of a s p e c i a l i n t e g r a t e d s taf f t o e x e r c i s e p e a c e t i m e a u t h o r i t y over
' the German . Ba l t i c f o r c e s w a s not c o n s i d e r e d n e c e s s a r y . " T h e i n t e r p o s i t i o n
of a s p e c i a l i n t e g r a t e d s taff j u s t f o r t h e s e f o r c e s a p p e a r s h a r d l y j u s t i f i e d
b e c a u s e t h e f o r c e s of only one na t ion would be u n d e r such a s t a f f , and c o n s e -
quen t ly the c a l l f o r i n t e g r a t i o n d o e s not a p p e a r to be m a n d a t o r y . " The G e r m a n
M i n i s t e r of D e f e n s e m a d e it v e r y cleatr t ha t he c o n s i d e r e d t h i s only an i n t e r i m
so lu t ion , v a l i d "unt i l such t i m e a s c o m p r e h e n s i v e new a r r a n g e m e n t s can be
m a d e c o n c e r n i n g the c o m m a n d s t r u c t u r e in the S c h l e s w i g - H o l s t e i n / D e n m a r k
and W e s t e r n B a l t i c / S o u t h e r n N o r w a y r e g i o n . "
On 23 F e b r u a r y 1957, SACEUR p r o p o s e d t o the Standing Group tha t the
G e r m a n N o r t h Sea S u b - A r e a be e s t a b l i s h e d a s a NATO c o m m a n d on 1 A p r i l
1957, t h e d a t e on which G e r m a n N o r t h Sea f o r c e s would b e c o m e o p e r a t i v e .
T h i s NATO h e a d q u a r t e r s , to be l o c a t e d at Cuxhaven, would be n e c e s s a r y f o r
t h e e x e r c i s e of the a u t h o r i t y d e l e g a t e d by SACEUR t o the C o m m a n d e r of the
G e r m a n N o r t h Sea S u b - A r e a in s u p p o r t of d i r e c t i v e s f r o m h ighe r a u t h o r i t y .
In i t i a l ly the h e a d q u a r t e r s would be s t a f f e d by Germauis only, and no i n t e r n a t i o n a l (23) f i n a n c i a l s u p p o r t would be n e e d e d .
As a r e s u l t of the G e r m a n o b j ec t i on to the SHAPE p r o p o s a l s of 22 Jauiuary,
(22) Staff B r i e f , Al l i ed Naval C o m m a n d in the Ba l t i c , dtd 21 J a n 57; L t r , Al l i ed Nava l Command A r r a n g e m e n t s in the Ba l t i c , 22 J a n 57, AG 1 5 3 0 / 6 P A N D P .
(23) L t r AG 2800 A F N E , 17 J a n 57, G e r m a n C o m m a n d e r Naval F o r c e s B a l t i c ; L t r AG 1 5 3 0 / 4 P A N D P , 23 F e b 57, E s t a b l i s h m e n t of the G e r m a n N o r t h Sea S u b - A r e a . N o t e : The T e r m s of R e f e r e n c e f o r COMNORSEACENT w e r e i nc luded in t h i s l a t t e r d o c u m e n t .
and a s k e d f o r f o r m a l a g r e e m e n t to t h e s e a r r a n g e m e n t s . ' The G e r m a n
157
^ T f t T O ffnnriEi
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a c o n f e r e n c e w a s h e l d a t SHAPE on 14 M a r c h at wh ich w e r e p r e s e n t r e p r e -
s e n t a t i v e s f r o m the G e r m a n M i n i s t r y of D e f e n s e , f r o m SHAPE, f r o m COM-
NAVNORTH and f r o m CINCENT. At t h i s c o n f e r e n c e c e r t a i n w o r d i n g s of
t h e SHAPE p r o p o s a l w e r e c h a n g e d and the p r i m a r y t a s k s of the p r o p o s e d i n t e -
g r a t e d s taf f w e r e r e - d e f i n e d a s : (1) to s tudy o r g a n i z a t i o n and c o m m a n d p r o -
b l e m s and t h e n a v a l s t r a t e g y in t h e a r e a and t o m a k e a p p r o p r i a t e r e c o m m e n -
d a t i o n s to SACEUR; and (Z) to a d v i s e and a s s i s t t h e G e r m a n n a v a l Ba l t i c f o r c e s
c o n c e r n i n g t h e i r b u i l d - u p and i n i t i a l a s s i g n m e n t to NATO.
It w a s a g r e e d a t the c o n f e r e n c e tha t the N o r t h / C e n t e r P l a n n i n g Group
in Ho l t enau should be f o r m e d and should be a s s i g n e d t h e t a s k of f o r m u l a t i n g
w a r p l a n s f o r a l l n a v a l Ba l t i c f o r c e s and should u n d e r t a k e NATO e x e r c i s e
p l a n n i n g in t h e a r e a . It w a s a l s o a g r e e d that t h e p e a c e t i m e a u t h o r i t y of SACEUR
ove r G e r m a n nava l f o r c e s a s s i g n e d to NATO and l o c a t e d in t h e Ba l t i c would
be d e l e g a t e d t h r o u g h CINCENT, COMNAVCENT, and t h e o f f i c e r t o be d e s i g n a t e d
C O M N O R S E A C E N T (the NATO t i t l e of C o m m a n d e r G e r m a n Nava l F o r c e s Nor th
Sea S u b - A r e a ) . The MODs of the UK, D e n m a r k and G e r m a n y , a s we l l a s the
U. S. D e p a r t m e n t of D e f e n s e , w e r e no t i f i ed of t h e s e c h a n g e s to SHAPE 'S p r o -(24)
p o s a i s of 22 J a n u a r y . '
A f t e r f u r t h e r s tudy of t h i s p r o b l e m in t h e SHAPE Staff , on 17 M a y SHAPE
s e n t a p r o p o s a l inc lud ing t e r m s of r e f e r e n c e f o r the Al l ied Naval C o m m a n d
Organizar - ion in the Ba l t i c on an i n t e r i m b a s i s t o the a u t h o r i t i e s of the US,
UK, D e n m a r k and G e r m a n y , a s we l l a s to CINCNORTH and CINCENT. Deta i led
t e r m s of r e f e r e n c e f o r COMNAVNORCENT and the N o r t h / C e n t e r Nava l P l a n -
ning G r o u p w e r e i n c l u d e d . SACEUR p r o p o s e d , in t h e a b s e n c e of any ob jec t ion
by any of t h e s e a u t h o r i t i e s , to f o r w a r d t h i s p r o p o s a l to t h e Standing G r o u p in
o r d e r tha t t he o r g a n i z a t i o n migh t get u n d e r way . C o n s i d e r i n g tha t t h e r e w e r e
no m a j o r o b j e c t i o n s f r o m the n a t i o n s , SHAPE on 15 J u l y 1957 f o r w a r d e d t o
t h e Standing G r o u p t h e p r o p o s e d p l a n . The key s t a t e m e n t of the l e t t e r to the
(24) P A N D P 1530 /6 , 14 M a r 57, Al l ied N a v a l C o m m a n d A r r a n g e m e n t s i n t h e B a l t i c ; and MOD Bonn l e t t e r IV A 181 11 /57 , 9 F e b 57.
158
MjVTQ _nFir.B.FiT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
\
Standing G r o u p s a i d :
" A s an i n t e r i m m e a s u r e , t h e C o m m a n d e r Al l ied Nava l F o r c e « N o r t h e r n A r e a C e n t r a l Europe (COMNAVNORCENT) and p e r s o n a l s taf f t r a n s f e r t o Hol tenau , G e r m a n y , and wi th an i n t e g r a t e d s taf f a d v i s e and a s s i s t G e r m a n Nava l Ba l t i c f o r c e s in a l l m a t t e r s c o n c e r n i n g t h e i r a s s i g n m e n t to NATO. F o r t h i s r e s p o n s i b i l i t y he wi l l c o m e u n d e r C o m m a n d e r - i n -Chie f , Al l ied F o r c e s C e n t r a l E u r o p e (CINCENT) t h r o u g h t h e C o m m a n d e r Al l i ed Nava l F o r c e s C e n t r a l E u r o p e (COMNAVCENT). In add i t ion , u n d e r t h e c h a i r m a n s h i p of COMNAVNORCENT, a N o r t h / C e n t e r P l a n n i n g G r o u p w i l l be f o r m e d c o m p o s e d of m e m b e r s f r o m Al l ied F o r c e s N o r t h e r n E u r o p e and Al l ied F o r c e s C e n t r a l E u r o p e , inc luding m e m b e r s f r o m the i n t e g r a t e d s t a f f , and wi l l be r e s p o n s i b l e to CINCENT ( th rough COMNAV-CENT) and t h e C o m m a n d e r - i n - C h i e f Al l ied F o r c e s N o r t h e r n E u r o p e (CINCNORTH) t h r o u g h t h e C o m m a n d e r Al l ied Nava l F o r c e s N o r t h e r n E u r o p e (COMNAVNORTH) f o r t h e fo l lowing t a s k s :
a . Study the o r g a n i z a t i o n and c o m m a n d p r o b l e m s and the n a v a l s t r a t e g y in t h e Ba l t i c a r e a and m a k e a p p r o p r i a t e r e c o m m e n d a t i o n s .
b. F o r m u l a t e w a r p l a n s fo r a l l Al l ied Ba l t i c Naval F o r c e s and u n d e r -t a k e NATO e x e r c i s e p lann ing in t h i s a r e a . "
As a r e s u l t of c e r t a i n o b j e c t i o n s by G e r m a n a u t h o r i t i e s , s o m e m i n o r m o -(25)
d i f i c a t i o n s i n t h e p r o p o s e d o r g a n i z a t i o n of the i n t e g r a t e d s taf f w e r e m a d e . '
On 20 Augus t G e n e r a l N o r s t a d a s k e d the Standing G r o u p to a p p r o v e t h e
p r o p o s a l s which he had m a d e . In v i ew of the f a c t tha t the n a t i o n s c o n c e r n e d
had a g r e e d in p r i n c i p l e to the i n t e r i m p l a n he saw no r e a s o n why i t should
not be p o s s i b l e f o r the Standing G r o u p to a p p r o v e i t , and s t a t e d t h a t he f e l t
qu ick ac t i on w a s n e c e s s a r y to r e s o l v e t h i s long s tanding p r o b l e m .
On 12 S e p t e m b e r t h e M i l i t a r y C o m m i t t e e a p p r o v e d SHAPE'S p r o p o s a l s t h a t
hftd b e e n f o r w a r d e d by the Standing G r o u p . SHAPE then a d d r e s s e d the n a t i o n a l
m i l i t a r y a u t h o r i t i e s of F r a n c e , . G e r m a n y , the UK and the US, a sk ing tha t ,
ill o r d e r to a c t i v a t e t h e o r g a n i z a t i o n a s soon a s p o s s i b l e , they a s s i g n the p e r -
sonne l n e c e s s a r y f o r t h i s o r g a n i z a t i o n . The p e r s o n n e l w e r e d e s i r e d at Hol tenau ,
Q g ^ m a n y , not l a t e r t han 15 O c t o b e r . A d m i r a l C a m p b e l l - W a l t e r of the UK
(2$) SHAPE 37894, 19 Aug 57, and l e t t e r f r o m G e r m a n NMR to SACEUR dtd 1 Aug 57.
nato confidential 159
N A i U JBlüiUiJ1*
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
b e c a m e c h a i r m a n of t h e p l ann ing g r o u p , which began i t s w o r k in m i d - O c t o b e r .
COMNAVNORCENT c o m p l e t e d t h e m o v e of h i s h e a d q u a r t e r s to Hol tenau
on 17 O c t o b e r / 2 6 ^
L a n d B o u n d a r y in S c h l e s w i g - H o l s t e i n .
A b o u n d a r y be tween A F C E N T and A F N O R T H had been e s t a b l i s h e d i n
S A C E U R ' s E D P 1 / 5 7 a s r u n n i n g a long the n o r t h bank of the E lbe R i v e r t o the
n o r t h of H a m b u r g , t h e n c e g e n e r a l l y e a s t t o Ste t t in and Danzig . In the C a p a -
b i l i t i e s P l a n f o r A C E 1957, the d e f e n s e of the S c h l e s w i g - H o l s t e i n a r e a had b e e n
p a r t of M a j o r C a m p a i g n No 3, the a i m of which w a s to a r r e s t the Soviet l and
a d v a n c e in C e n t r a l E u r o p e . Th i s would s e e m t o i n d i c a t e a change of the boun-
d a r y b e t w e e n N o r t h e r n and C e n t e r C o m m a n d to a l i ne f u r t h e r to the N o r t h .
The C e n t e r C o m m a n d e r had be l i eved f o r s o m e t i m e tha t t he land b o u n d a r y
b e t w e e n h i s c o m m a n d and tha t of the n o r t h e r n c o m m a n d e r should be the D a n i s h /
G e r m a n b o r d e r . CINCNORTH, on t h e other hand, had to ld SHAPE in F e b r u a r y
1957 tha t h e did no t b e l i e v e t h e b o u n d a r y should be^bhanged unt i l a t r u e f o r w a r d
s t r a t e g y w a s i m p l e m e n t e d and tha t when t h i s w a s done , t h e r e would be a b a s i s
f o r d i s c u s s i o n of t h i s p r o g r a m . It wi l l be a p p r e c i a t e d that t he p r o b l e m of t h e
l and b o u n d a r y of t h i s a r e a w a s t ied in wi th the p r o b l e m of nava l c o m m a n d
o r g a n i z a t i o n f o r t h e Ba l t i c A p p r o a c h e s , a s wel l a s the p rob l em of f u t u r e c o m -
m a n d o r g a n i z a t i o n f o r the C e n t e r , and t h a t a d e c i s i o n on any one of t h e s e t h r e e
p r o b l e m s would i n f l u e n c e t h e o the r two .
E x t e n s i o n of C I N C E N T ' s a r e a of r e s p o n s i b i l i t y n o r t h to inc lude Sch le swig -
H o l s t e i n would have s e v e r a l e f f e c t s . It would g ive CINCENT c o n t r o l over t h i s
b a t t l e a r e a , a l lowing h i m to p r o v i d e m o r e adequa t e a i r and a t o m i c s u p p o r t f o r
(26) AG 1 5 3 0 / 6 P A N D P , 17 M a y 57, I n t e r i m P r o p o s a l f o r Al l i ed Naval C o m m a n d O r g a n i z a t i o n in t h e B a l t i c ; AG 1 5 3 0 / 6 P AN D P , I S J u l 57, s a m e s u b j e c t . AG 4030 P A , 23 Sep 57, s a m e s u b j e c t . P A N D P 1530 /6 , 31 Oct 57, s u b j : COMNAVBALTAP. SG 7 0 / 4 0 , 12 Sep 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
A f u r t h e r c o m p l i c a t i o n a r o s e b e c a u s e of C I N C A F M E D ' a i n t e r e s t in
t h e p r o b l e m . H o w e v e r , p r o g r e s s w a s m a d e d u r i n g the y e a r , and a s tudy on
t h e p r o b l e m w a s u n d e r t a k e n by CINCSOUTH. The T u r k i s h G e n e r a l Staff
s e t up a P l a n n i n g B o a r d , wh ich i nc luded r e p r e s e n t a t i v e s f r o m COMLAND-
SOUTHEAST, SIXATAF and t h e T u r k i s h A r m e d F o r c e s . No f u r t h e r p r o g r e s s (28) w a s made d u r i n g 1957 on t h i s p r o b l e m .
J o i n t C o m m a n d and O p e r a t i o n s C m t e r s .
The A tomic S t r ike P l a n w a s d e v e l o p e d on the a s s u m p t i o n tha t jo in t a i r /
ground a c t i o n s would be d i r e c t e d f r o m jo in t o p e r a t i o n c e n t e r s . The p r i n c i p l e
of jo in t o p e r a t i o n c e n t e r s in t h e p l ann ing , c o o r d i n a t i n g and d i r e c t i n g of a i r I
g r o u n d o p e r a t i o n s had been p r o v e d to be t h e m o s t e f f e c t i v e s y s t e m in w a r t i m e .
P r i o r to August 1956, SHAPE had not i s s u e d a s p e c i f i c d i r e c t i v e on t h e jo int
o p e r a t i o n c e n t e r s . It had b e e n a s s u m e d tha t t h e s e Jo in t O p e r a t i o n s C e n t e r s
w e r e a c t u a l l y func t ion ing in Al l ied C o m m a n d E u r o p e a t a p p r o p r i a t e l e v e l s ,
and tha t t h e jo in t p lann ing and jo in t a c t i o n s r e q u i r e d d u r i n g an a t o m i c w a r
would be a c c o m p l i s h e d at the e x i s t i n g c e n t e r s . The r e s u l t s of a t o m i c e x e r c i s e s ,
such a s BEAR CLAW, had d e m o n s t r a t e d tha t e f f e c t i v e jo in t o p e r a t i o n s c e n t e r s
w e r e d i s a p p e a r i n g . In s o m e c a s e s , i t had been found tha t t h e l a c k of l i a i s o n
b e t w e e n c o m m a n d e r s had r e s u l t e d in d e l a y s wh ich c o m p l e t e l y d e s t r o y e d the
e f f e c t i v e n e s s and t i m e l i n e s s of the a c t i o n s r e q u i r e d by a t o m i c w a r f a r e and
t h e a t o m i c control p o l i c y a s se t f o r t h in t h e A t o m i c S t r ike P l a n .
On 6 August 1956, G e n e r a l G r u e n t h e r d i r e c t e d that J o i n t C o m m a n d
and O p e r a t i o n C e n t e r s ( J C O C s ) be e s t a b l i s h e d at a l l jo in t l e v e l s of c o m m a n d ,
down to and inc luding f i e l d a r m y / t a c t i c a l a i r f o r c e / n a v a l task, g r o u p l e v e l (29) or equ iva l en t .
(28) See P A N D P 1220 A F S E - D e f e n s e of the T U r k i s h S t r a i t s - C o m m a n d O r g a n i z a t i o n . F r o m A C O S P A N D P to D C P A N D P dtd 28 M a r 57. A l s o L A N D S O U T H E A S T / 1 3 / 5 8 p a g e s 21-24 , H i s t o r y dtd 1 J i d 57 t o 31 Dec 57 ( A F S 0 U T H / 1 4 3 / 5 8 ) .
(29) See AG 1520 AO dtd 6 M a r 57: " S H A P E Concept of Jo in t C o m m a n d and O p e r a t i o n C e n t e r s . " . - . . . . . . . *
,..: c ') . • -- •• - --162
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r • \
t h e b a t t l e . It would c o n c e n t r a t e t h e G e r m a n l and f o r c e s u n d e r a s i ng l e
m a j o r s u b o r d i n a t e c o m m a n d e r and i t would r e m o v e c e r t a i n p o s s i b l e p o l i t i c a l
d i f f i c u l t i e s r e l a t i n g to t h e c o m m a n d . On t h e o the r hand , r e t a i n i n g the p r e s e n t
b o u n d a r y had a d v a n t a g e s too . It would t e n d t o p r o m o t e c o o r d i n a t i o n and coop-
e r a t i o n b e t w e e n G e r m a n and D a n i s h f o r c e s in t h e d e f e n s e of J u t l a n d and t h e
B a l t i c S t r a i t s , and i t would m a k e p o s s i b l e t h e e s t a b l i s h m e n t of a g e n e r a l
u n i f i e d c o m m a n d and would e l i m i n a t e the d iv i s i on of r e s p o n s i b i l i t i e s in t h e
B a l t i c S t r a i t s .
At a m e e t i n g in Copenhagen in O c t o b e r 1957, CINCNORTH and CINCENT
m u t u a l l y a g r e e d t h a t the p r e s e n t b o u n d a r y of A F N O R T H and AFCENT should
be m a i n t a i n e d and tha t a jo in t c o m m a n d should be e s t a b l i s h e d f o r t h e D e n m a r k / (27) S c h l e s w i g - H o l s t e i n / B a l t i c a r e a . '
The T u r k i s h S t r a i t s P r o b l e m .
P l a n n i n g f o r t h e d e f e n s e of the T u r k i s h S t r a i t s w a s a f f e c t e d by two f a c -
t o r s t ha t c a u s e d anx ie ty in 1957. It w a s hoped tha t t h e g round a t o m i c
d e l i v e r y f o r c e s p r o p o s e d by SHAPE would help to s t r e n g t h e n the d e f e n s e s ,
but t h e r e e x i s t e d a l s o a s e r i o u s s h o r t a g e of a i r d e f e n s e w e a p o n s and u n d e r -
w a t e r s e a w a r d d e f e n s e equ ipmen t .
The s e c o n d f a c t o r w a s the p r o b l e m of c o m m a n d s t r u c t u r e in t h e a r e a .
T h e C o m m a n d e r F i r s t T u r k i s h A r m y had been g iven the m i s s i o n by COM-
LANDSOUTHEAST of defending t h e T u r k i s h S t r a i t s . A s i m i l a r m i s s i o n w a s
g iven to t h e C o m m a n d e r S t r a i t s A r e a and M a r m a r a Sea (COMSAMAR) by
t h e T u r k i s h n a t i o n a l a u t h o r i t i e s . No a p p a r e n t l ink in p e a c e t i m e b e t w e e n t h e s e
two c o m m a n d e r s w a s in e f f ec t and no jo in t p lann ing took p l a c e . The w a r t i m e
a r r a n g e m e n t s w e r e c o m p l i c a t e d and u n s a t i s f a c t o r y . C I N C S O U T H f o r m e d a
p l ann ing t e a m to s i m p l i f y the c o m m a n d s t r u c t u r e f o r t h e e f f i c i en t d e f e n s e of
t h e S t r a i t s in w a r t i m e .
(27) P A N D P 1100, C O F S C o n f e r e n c e wi th MSCs , 30 Oct 57, Blue Tab D, "Land B o u n d a r y in S c h l e s w i g - H o l s t e i n ; a n d R e p o r t by G e n e r a l Sugden, 28 Nov, w / e n c l A F N O R T H 1160 CS.
161
NCTT-—frfôCRST.. > ' J / . '
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
« - i J vv̂ w bL ,,. j _„•
SHAPE 57/67 JSATQ SECRET -
It was found tha t f u r t h e r c l a r i f i c a t i o n w a s needed and SHAPE w a s
r e q u e s t e d to c l a r i f y i t s concept a s s t a t e d by G e n e r a l G r u e n t h e r . At a Chief
of Staff C o n f e r e n c e he ld at SHAPE on 19 F e b r u a r y 1957, a p r e s e n t a t i o n w a s
m a d e dur ing which t he SHAPE J C O C concept was examined . "Our goal i s to
r e a l i z e m a x i m u m exploi ta t ion of SACEUR's a tomic f i r e - p o w e r . Th i s goal i s
a t t a i nab l e only t h r o u g h f a s t and e f f ec t ive coord ina t ion and con t ro l of a l l joint
a s p e c t s of convent ional or a tomic w a r f a r e . F a s t and e f f ec t i ve coord ina t ion
and con t ro l can be ach ieved only t h rough a s t r e a m l i n e d chain of con t ro l sup-
p o r t e d by a r e a s o n a b l e c o m m u n i c a t i o n s s y s t e m . A s t r e a m l i n e d chain of con t ro l
r e q u i r e s a Joint C o m m a n d and O p e r a t i o n at each joint l eve l down t h r o u g h f i e ld
a r m y / t a c t i c a l a i r f o r c e / n a v a l t a s k f o r c e g roup leve l or equivalent .
On 7 J a n u a r y SACEUR d i r e c t e d a change in the n a t u r e of h i s Air O p e r -
a t ions C e n t e r . The SHAPE O p e r a t i o n s Cen te r w a s e s t a b l i s h e d in l ieu of the
Air O p e r a t i o n s Cen te r in Room 8 - B - l l , SHAPE, wi th the m i s s i o n of s e r v i n g
a s SACEUR's c o m m a n d pos t in the event of hos t i l i t i e s and dur ing e x e r c i s e s .
He r e c o m m e n d e d tha t it be m a n n e d and equipped to p r o v i d e t he m e a n s fo r
SACEUR to m a i n t a i n g e n e r a l s u r v e i l l a n c e over the d i spos i t ion of h i s own f o r c e s
and the g e n e r a l s i tua t ion fac ing h i s c o m m a n d ; to m a k e t i m e l y d e c i s i o n s in
t he o v e r a l l d i r e c t i o n of o p e r a t i o n s and to t r a n s m i t t h e s e d e c i s i o n s p r o m p t l y
to a p p r o p r i a t e c o m m a n d e r s ; and to a s s u r e the r a p i d and e f f ec t ive i m p l e m e n -
tation of h i s Atomic S t r ike P l a n . While in p e a c e t i m e the SHAPE O p e r a t i o n s
Cen te r (SHOC) would be m a n n e d and equipped only su f f i c i en t ly to m a i n t a i n
SACEUR's and the MSCs t w a r p l a n s and to p rov ide c u r r e n t i n f o r m a t i o n on
Al l ied and Soviet bloc dep loymen t s , i t m u s t be p r e p a r e d for i m m e d i a t e t r a n -(31)
s i t ion to i t s w a r t i m e r o l e .
In m i d - 1 9 5 7 a d r a f t SOP fo r the SHAPE opera t iona l jschelon w a s isBued
se t t ing f o r t h the m i s s i o n and spec i f i c func t ions to be c a r r i e d out by the four
(30) Ibid, Footno te No (6). (31) D i r ec t i ve , SACEUR's SOP No 4 - SHAPE O p e r a t i o n s C e n t e r ,
7 J an 57, AG 1731/AO.
163 w f f T f F
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P S o p e r a t i o n a l g r o u p s , wh ich c o n s i s t e d of a C o m m a n d Group , O p e r a t i o n s
G r o u p (SHOC), O p e r a t i o n s Suppor t G r o u p , and a S e r v i c e Suppor t G r o u p .
S A C E U R ' s SOP No 4 of 7 J a n u a r y 1957 w a s c a n c e l l e d s i n c e t h e s e p r o v i s i o n s (32) w e r e i n c l u d e d in t h e d r a f t S O P . v '
P e r s o n n e l R e d u c t i o n s .
In m i d - 1 9 5 6 , t h e Standing G r o u p e x p r e s s e d c o n c e r n tha t t h e h e a d q u a r t e r s '
s t a f f s t h r o u g h o u t NATO m i l i t a r y o r g a n i z a t i o n s w e r e g rowing too l a r g e . The
Standing G r o u p p o i n t e d out tha t s o m e NATO n a t i o n s w e r e f ind ing i t d i f f i cu l t
t o m e e t t h e g r o w i n g c o s t s of m a i n t a i n i n g the n u m e r i c a l s t r e n g t h of t h e i r
a s s i g n e d f o r c e s , and t h a t e v e r y t h i n g p o s s i b l e should be done to a l l e v i a t e t h i s
s i t u a t i o n . "One way in which c o n c r e t e ev idence of t h i s could be d e m o n s t r a t e d , "
t h e Standing G r o u p to ld SACEUR, "would be to m a k e a s ign i f i can t r e d u c t i o n in
t h e i n t e r n a t i o n a l ce i l ing of t h e s t a f f s u n d e r your c o m m a n d . " It po in ted out
t h a t m a n y of t h e p lann ing t a s k s t ha t o r i g i n a l l y r e q u i r e d l a r g e s t a f f s should then
h a v e b e e n a c c o m p l i s h e d . SGN no ted tha t wh i l e a c e r t a i n d e g r e e of dup l i ca t ion
w a s i n e v i t a b l e in an i n t e r n a t i o n a l s t a f f , t he e x p e r i e n c e the na t i ona l r e p r e s e n t a -
t i v e s had g a i n e d t h r o u g h work ing on t h e s e s t a f f s should p e r m i t s o m e s t r e a m -
l in ing . SACEUR w a s t o ld t h a t t h e t a r g e t f o r o v e r a l l r e d u c t i o n s should be 10%
of t h e i n t e r n a t i o n a l ce i l i ng , and he w a s r e q u e s t e d to r e v i e w t h e i n t e r n a t i o n a l
s ta f f o r g a n i z a t i o n wi th in ACE wi th a v i ew to m ak i ng w h a t e v e r r e d u c t i o n s w e r e
4U1 ( 3 3 )
p o s s i b l e .
By N o v e m b e r 1956, SACEUR had sen t to t h e Standing G r o u p an i n t e r i m
r e p l y to i t s p r o p o s a l t ha t t he ACE p e r s o n n e l ce i l ing be r e d u c e d by am o v e r a l l
10%. T h i s p roposed had been sent to t h e MSCs f o r t h e i r s tudy a s we l l . SACEUR
p o i n t e d out , c o m m a n d by c o m m a n d , the s i tua t ion wi th r e g a r d to the s t a f f s .
He p o i n t e d out t ha t s o m e r e d u c t i o n s had adready been m a d e in A C E and tha t
(32) M e m o , P A N D P / 6 l 2 0 / l , 21 Jun57 , D r a f t SOP f o r SHAPE O p e r a t i o n a l Eche lon . (33) M e m o f o r SACEUR f r o m SGN, CSGM-466, dtd 20 Jun 56.
164
NAJXL SEUÜ.ET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t h e a c t u a l w o r k l o a d In t h e m a j o r i t y of h e a d q u a r t e r s had i n c r e a s e d c o n s i d e r a b l y
d u r i n g t h e p a s t y e a r s . Us ing SHAPE a s an e x a m p l e , he sa id t h a t t h e w o r k l o a d
i n S H A P E had i n c r e a s e d a p p r o x i m a t e l y o n e - t h i r d s i n c e 1953, a l though t h e
a u t h o r i z e d p e r s o n n e l w a s be low t h e f i g u r e f o r t ha t t i m e . T h i s r e p l y w a s in
a c t u a l i t y a r é c l a m a a g a i n s t any 10% r e d u c t i o n , and w a s a c c o m p a n i e d by a
d e t a i l e d g r a p h showing p e r s o n n e l p r o d u c t i v i t y at SHAPE. The c o n c l u s i o n s
r e a c h e d at SHAPE w e r e tha t Al l i ed C o m m a n d Europe a s a whole could no t
a b s o r b an o v e r a l l 10% r e d u c t i o n of i t s a u t h o r i z e d p e r s o n n e l ce i l ing of 12, 153
s p a c e s ; t h a t no p e r s o n n e l r e d u c t i o n could be app l ied to t h e s u p p o r t t r o o p s ,
f o r w h o m t h e r e w a s an i n c r e a s i n g r e q u i r e m e n t ; and tha t a f i n a l d e c i s i o n on
t h e d e g r e e of a p o s s i b l e p e r s o n n e l r e d u c t i o n m u s t awai t f u r t h e r s tudy on (34)
t h i s and on t h e i n t e g r a t i o n of G e r m a n s in to ACE.*
On 23 J a n u a r y 1957 SHAPE sen t to t h e Standing Group aga in a p r o g r a m
f o r a p e r s o n n e l r e d u c t i o n in t h e h e a d q u a r t e r s s taff at SHAPE. In addi t ion
t h i s p r o g r a m out l ined t h e p r o c e d u r e f o r i n t e g r a t i n g the G e r m a n p e r s o n n e l in to
S H A P E . In e s s e n c e , t he p r o g r a m p r o p o s e d to r e d u c e 17 o f f i c e r p o s t s and
11 o the r r a n k and c iv i l i an p o s t s at SHAPE, a t o t a l of 28 pos t s . In addi t ion
t h e p r o g r a m p r o p o s e d the t r a n s f e r of 75 o f f i c e r and o the r r a n k p o s t s to G e r -
m a n y . It w a s e s t i m a t e d tha t c o m p l e t i o n of t h i s p r o g r a m would t a k e at l e a s t
two y e a r s .
The Standing Group w a s to ld tha t p l a n s w e r e be ing p r e p a r e d f o r p o s s i b l e
r e d u c t i o n s in c e r t a i n o the r h e a d q u a r t e r s of ACE, and tha t p l a n s f o r t h e s e (35)
would be f o r w a r d e d s e p a r a t e l y a s t h e y w e r e c o m p l e t e d / '
In sp i t e of SHAPE 'S o b j e c t i o n s tha t no s u b s t a n t i a l p e r s o n n e l cut could
b e m a d e , and d e s p i t e the token p r o g r a m f o r r e d u c t i o n f o r w a r d e d in J a n u a r y ,
t h e Standing Group d i r e c t e d a d e f i n i t e and m i n i m u m r e d u c t i o n in p e r s o n n e l
a s s i g n e d to the i n t e r n a t i o n a l h e a d q u a r t e r s of Al l ied C o m m a n d E u r o p e . On
17 A p r i l 1957, SACEUR r e c e i v e d a SGN m e m o r a n d u m tha t s t a t e d t h a t t h e
Counc i l had c o n c e r n e d i t s e l f w i th t h e ques t ion of s imp l i fy ing A C E h e a d q u a r t e r s ^
s t r u c t u r e s in o r d e r to . / . . . (34) L t r to SGN, AG 4030 P A , 5 Nov 56, I n t e r n a t i o n a l P e r s o n n e l Ce i l ing . (35) L t r t o SGN, AG 4030 P A , 23 J a n 57, P e r s o n n e l R e d u c t i o n and G e r m a n
I n t e g r a t i o n P r o g r a m f o r SHAPE.
wpm œ w m m i m ^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r e d u c e p e r s o n n e l and c o s t s . The Standing G r o u p a g r e e d tha t r e d u c t i o n s should
b e m a d e , but f e l t tha t the m i l i t a r y a u t h o r i t i e s should d e t e r m i n e w h e r e t h e s e
c u t s could be b e s t a c c o m p l i s h e d . They c o n s i d e r e d tha t a de t a i l ed r e v i e w of
f u n c t i o n s a t a l l l e v e l s of t h e i n t e r n a t i o n a l c o m m a n d would p r o d u c e r e d u c t i o n s
in p e r s o n n e l . F u r t h e r p o s t s wh ich w e r e c r e a t e d to m a i n t a i n t h e b a l a n c e b e t w e e n
n a t i o n a l i t i e s p r o b a b l y could be de l e t ed . The n e c e s s i t y f o r p e r s o n n e l ce i l ing
r e d u c t i o n s w a s r e i t e r a t e d and w a s b l a m e d on t h e d i f f i cu l ty t h e NATO n a t i o n s
w e r e f ind ing in m e e t i n g t h e i r r e q u i r e m e n t s to NATO both in p e r s o n n e l and
b u d g e t a r y s u p p o r t . The n a t i o n s w e r e r e l u c t a n t t o a p p r o v e f u r t h e r i n c r e a s e s
n e c e s s a r y to m e e t a i r d e f e n s e and o the r p e r s o n n e l r e q u i r e m e n t s un t i l e a c h
n a t i o n ' s s h a r e w a s known. " A c c o r d i n g l y , " SACEUR w a s to ld , " the Standing
G r o u p f i n d s i t n e c e s s a r y to r e d u c e t h e A C E P e r s o n n e l ce i l ing by 900 p o s t s . "
T h i s w a s not qu i t e the 10% r e d u c t i o n o r i g i n a l l y r e q u e s t e d by t h e Standing Group .
The SGN s t a t e d tha t t h e r e would be no change in the m i s s i o n s and f u n c -
t i o n s a s s i g n e d t o SHAPE and ItB s u b o r d i n a t e h e a d q u a r t e r s . R e d u c t i o n s m u s t
be m a d e by " t r u e o r g a n i z a t i o n a l e c o n o m i e s " a f f e c t i n g staff p o s t s a s we l l a s
s u p p o r t p e r s o n n e l . A high p r o p o r t i o n of the 900 p o s t s to be e l i m i n a t e d would
be f r o m t h o s e tha t w e r e a c t u a l l y occup ied . Suppor t p e r s o n n e l only would be
cut when o the r r e o r g a n i z a t i o n had r e n d e r e d t h e i r d u t i e s no longer n e c e s s a r y .
SACEUR w a s d i r e c t e d to put the ce i l ing r e d u c t i o n in to e f f ec t f r o m 1 M a y 1957.
The F o u r t h and F i f t h A T A F s w e r e t o be inc luded u n d e r the new ce i l ing and
the a c t u a l p e r s o n n e l n u m b e r s which a u t h o r i z e d 2303 o f f i c e r s and 8950 o the r
r a n k s and c i v i l i a n s th roughou t ACE w e r e to be r e d u c e d to ce i l ing l e v e l by
1 J a n u a r y 1958. The Standing Group d i r e c t e d SACEUR to submi t h i s p l anned
r e o r g a n i z a t i o n r e f l e c t i n g the new ce i l ing fo r the i n t e r n a t i o n a l h e a d q u a r t e r s
p r i o r to 1 J u l y 1 9 5 7 . ^
F a c e d wi th t h i s r e q u i r e m e n t , SHAPE i m m e d i a t e l y began ac t ion to e f f e c t
t h i s r e d u c t i o n . Working c l o s e l y wi th the p e r s o n n e l a u t h o r i t i e s of the m a j o r
(36) M e m o f r o m SGN to SACEUR, SGM-260-57 , 17 Apr 57, sub : P e r s o n n e l .
166
UATT?—afiggRjpT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
/" ''N sir. « ^ » •;
.Ci AT O S E C R E T
s u b o r d i n a t e c o m m a n d s , t h i s r e d u c t i o n w a s p l anned to h a v e the l e a s t i l l e f f e c t
on t h e e f f i c i e n c y of A C E o p e r a t i o n s . On 18 J u n e 1957, SHAPE to ld the Standing
G r o u p t h a t t he 900 p o s t r e d u c t i o n s had b e e n a l l o c a t e d a m o n g s t SHAPE and the
MSCs a s f o l l o w s :
S H A P E - 79 O f f i c e r s and 148 Othe r R a n k s and C iv i l i ans
A F N O R T H - 8 O f f i c e r s and 10 Other R a n k s and C iv i l i ans
A F C E N T - 61 O f f i c e r s and 273 O t h e r R a n k s and C iv i l i an s
AFSOUTH - 73 O f f i c e r s and 244 Othe r R a n k s and C iv i l i an s
A F M E D - 4 O f f i c e r s .
The p e r s o n n e l ce i l ing r e d u c t i o n w a s e f f e c t i v e 1 M a y 1957 and t h e a c t u a l
p e r s o n n e l s t r e n g t h would be r e d u c e d to the new ce i l ing l e v e l by 1 J a n u a r y 1958.
The m i s s i o n s and f u n c t i o n s a s s i g n e d to SHAPE and s u b o r d i n a t e h e a d q u a r t e r s
r e m a i n e d unchanged . R e d u c t i o n s would be m a d e in both s taf f and s u p p o r t
p e r s o n n e l . Since the m a j o r i t y of the p o s t s t o be r e d u c e d would be p o s t s which
w e r e a c t u a l l y occup ied , a s u b s t a n t i a l sav ing of p e r s o n n e l would r e s u l t . The
r e d u c t i o n of p o s t s would be m a d e p r o p o r t i o n a / t e l y f o r e a c h n a t i o n r e p r e s e n t e d
i n t h e h e a d q u a r t e r s , wi th d e p a r t u r e f r o m t h i s p r i n c i p l e only in s p e c i a l c a s e s .
No r e o r g a n i z a t i o n of t h e o v e r a l l c o m m a n d s t r u c t u r e o r h e a d q u a r t e r s
cf A C E w a s p l a n n e d b e c a u s e of t h e s e r e d u c t i o n s , but s o m e i n t e r n a l ' r e o r g a n i z a -
t i on of s o m e of t h e A C E h e a d q u a r t e r s m i g h t be n e c e s s a r y . When they had been
d e t e r m i n e d , the exac t p o s t s to be r e d u c e d would be r e v e a l e d to the a p p r o p r i a t e
M i n i s t e r s of D e f e n s e . If MODs and SHAPE could not a g r e e on the m a n n e r of (37)
r e d u c t i o n s , t he SGN would be f u r t h e r a d v i s e d / '
The A C E p o s t s s e l e c t e d fo r r e d u c t i o n w e r e out l ined in f u l l de t a i l to
t h e Standing Group , showing the j o b t i t l e , s e r v i c e , r a n k and na t iona l i t y f o r
806 p o s t s . The d e t a i l s of t h e r e m a i n i n g 94 p o s t s w e r e not s u b m i t t e d s i n c e t h e s e
w e r e t h e p o s t s of t h e US 61st G e n e r a l D i s p e n s a r y which w e r e r e m o v e d f r o m
t h e SHAPE p e r s o n n e l t a b l e s in A p r i l 1954. On 24 S e p t e m b e r 1957, SHAPE sen t
(37) AG 4030 P A , 18 J u n 57, A C E P e r s o n n e l Cei l ing .
167 ife wjA l
lITT- 8TTCnDT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 ä f c p n A L
t o t h e Standing G r o u p a s u m m a r y by na t i ona l i t y , s e r v i c e and g r a d e , of t h e
r e d u c t i o n which would be m a d e in the S H A P E p e r s o n n e l ce i l ing by 1 J a n u a r y
P e r s o n n e l R e q u i r e m e n t s P r o g r a m .
At t h e s a m e t i m e tha t A C E P e r s o n n e l Cei l ing w a s r e d u c e d by o r d e r of
t h e Standing G r o u p , SACEUR s u b m i t t e d a n u m b e r of r e q u e s t s f o r i n c r e a s e s
in i t s p e r s o n n e l ce i l ing in o r d e r to t a k e c a r e of s u c h add i t iona l n e e d s a s A i r
Addi t iona l ly , du r ing a b r i e f i n g of t h e Staiding Group at SHAPE on
10 J u l y 1957, S A C E U R ' s u r g e n t r e q u i r e m e n t s f o r c o m m u n ! ca t ion s - e l e c t r o n i c s
p e r s o n n e l w e r e se t f o r t h .
On 31 Ju ly , t h e Standing G r o u p told SACEUR tha t i t c o n s i d e r e d t h i s a
p i e c e m e a l a p p r o a c h which w a s c a u s i n g a n u m b e r of NATO n a t i o n s c o n s i d e r a b l e
d i f f i c u l t y i n eva lua t i ng p e r s o n n e l r e q u i r e m e n t s be ing l e v i e d aga in s t t h e m and
i n p lann ing s u f f i c i e n t l y in a d v a n c e f o r p r o v i s i o n of the n e c e s s a r y p e r s o n n e l .
The Standing G r o u p e m p h a s i z e d tha t a l l n a t i o n s w e r e e x p e r i e n c i n g d i f f i cu l t y
in p r o v i d i n g h igh ly s p e c i a l i z e d p e r s o n n e l in s u c h f i e l d s a s c o m m u n i c a t i o n s -
e l e c t r o n i c s .
The Standing Group r e q u e s t e d tha t SACEUR i m m e d i a t e l y begin t o m a i n -
t a i n an A C E P e r s o n n e l R e q u i r e m e n t s P r o g r a m ( P R P ) c o v e r i n g a f i v e - y e a r
p e r i o d beg inn ing wi th t h e next c a l e n d a r y e a r . T h i s p r o g r a m would be r e v i s e d
(38) L t r to SGN, AG 4030 P A , 24 Sep 57, A C E P e r s o n n e l Ce i l ing .
L t r AG 4030 P A , 2 Aug 57, sub : P e r s o n n e l r e d u c t i o n s at SHAPE; L t r AG 4030 P A , 23 Aug 57, s u b : P e r s o n n e l r e d u c t i o n s at A F M E D & AFNORTH L t r AG 4030 P A , 29 Aug 57, sub : P e r s o n n e l r e d u c t i o n s at A F S O U T H j L t r AG 4030 .PA, 10 Sep 57, sub : P o s t r e d u c t i o n s at A F C E N T ; SGN M s g , D E F 927642 (STAND 204) ; SGN M s g , D E F 928254 (STAND 2062).
(39) AG 4030 P A , 18 J u n 57; SHAPTO 1453, 13 Apr 57; SHAPTO 1481, 6 J u n 57; AG 4030 P A , 14 Sep 56; AG 4030 S I G / P T , 28 J u n 57.
1958.<3 8>
D e f e n s e , SHOC, and t h e E a r l y Warn ing S y s t e m . (39)
See a l s o :
168
~tii\iTO i i r r i i n T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a n n u a l l y on t h e b a s i s of t h e b e s t p lann ing a v a i l a b l e and would b e sen t t o t h e
Standing G r o u p not l a t e r t h a n 1 N o v e m b e r of e a c h y e a r . The p r o g r a m would
i n c l u d e a p l a n l i s t i n g a l l o f f i c e r s and o the r r a n k s r e q u i r e m e n t s wi th in A C E
s t a f f s and a c t i v i t i e s by n a t i o n and s e r v i c e F u l l j u s t i f i c a t i o n would be g iven
f o r any r e q u e s t t o c h a n g e t h e A C E p e r s o n n e l c e i l i n g s . The Standing G r o u p
s p e c i f i e d t h a t t h i s p r o g r a m would i n c l u d e a l l r e q u e s t s a l r e a d y be ing c o n s i d e r e d
by i t w i th t h e excep t ion of t h e r e q u e s t s f o r c o m m u n i c a t i o n s - e l e c t r o n i c s p e r -
s o n n e l ; t h i s r e q u e s t would be he ld in a b e y a n c e in v i e w of a n t i c i p a t e d add i t iona l
r e q u e s t s f o r p e r s o n n e l . Any s u b s e q u e n t r e q u e s t s f o r i n c r e a s e s in p e r s o n n e l
would b e c o n s i d e r e d only a f t e r r e c e i p t of the P e r s o n n e l R e q u i r e m e n t s P r o g r a m .
"It i s e m p h a s i z e d , " t h e SGN m e m o r a n d u m conc luded , " tha t r e q u e s t s f o r
p e r s o n n e l m u s t be k e p t to t h e a b s o l u t e m i n i m u m .
B e c a u s e of t h e s h o r t t i m e a v a i l a b l e b e f o r e s u b m i s s i o n of the f i r s t r e p o r t ,
w h i c h w a s due on 1 N o v e m b e r , i t w a s dec ided tha t i t would be p r e p a r e d at
SHAPE without r e f e r e n c e to M S C s . SHAPE b e l i e v e d tha t t h e r e w e r e two a r e a s
in wh ich p e r s o n n e l i n c r e a s e s were c l e a r l y j u s t i f i e d . The f i r s t of t h e s e w a s in
c o m m u n i c a t i o n s and e l e c t r o n i c s , f o r which the Chief Signal O f f i c e r had c o m p i l e d
a n t i c i p a t e d r e q u i r e m e n t s . The s e c o n d w a s in t h e a r e a of a i r d e f e n s e . SHAPE
would no t be r e a d y by 1 N o v e m b e r to p r e s e n t an o v e r a l l p r o g r a m to t h e Standing
G r o u p on a i r d e f e n s e but a p a r t i a l r e p o r t inc luding s igna l c o m m u n i c l a t i o n s r e q u i -
r e m e n t s w a s d i r e c t e d by the Chief of Staff . T h e r e w e r e m a n y c r i t i c a l a i r
d e f e n s e d e c i s i o n s to be m a d e b e f o r e d e t a i l e d p e r s o n n e l r e q u i r e m e n t s could be
d e t e r m i n e d . ^ ^
In c o m p l i a n c e wi th t h e Standing G r o u p ' s d i r e c t i o n , a p e r s o n n e l R e q i d r e m e n t s
P r o g r a m f o r A C E f o r 1958 t h r o u g h 1962 w a s f o r w a r d e d t o the SGN on 17 O c t o b e r .
Admi t t ed ly , t h i s w a s not a c o m p l e t e l y a c c u r a t e f o r e c a s t of the p e r s o n n e l r e -
q u i r e m e n t s but i t did inc lude an a c c u r a t e f o r e c a s t of p e r s o n n e l f o r C e n t e r
C o m m a n d o r g a n i z a t i o n and s o m e o the r p r o g r a m s . The f i r s t p a r t of t h e p r o g r a m
(40) SGM- 504-57 , 31 J u l 57, s u b : A C E P e r s o n n e l R e q t d r e m e n t s . (41) SEC 2030, C O F S M t g , 22 Aug 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
w a s a s e r i e s of s u m m a r y t a b l e s of p e r s o n n e l r e q u i r e m e n t s inc lud ing an o v e r a l l
f o r A C E and a b r e a k d o w n f o r SHAPE and e a c h of the M a j o r Subord ina t e C o m -
m a n d s . The s e c o n d and p r o b a b l y m o s t i m p o r t a n t p a r t of t h e P R P w a s the
d e t a i l e d r e q u e s t s wi th j u s t i f i c l a t i o n in each c a s e f o r the v a r i o u s p e r s o n n e l t o (42)
s u p p o r t u r g e n t p r o j e c t s , m o s t of t h e m s igna l p r o j e c t s /
P e r s o n n e l f o r Air D e f e n s e and E a r l y Warn ing .
On 11 J u n e 1957, SHAPE sen t to t h e Standing G r o u p an a p p r a i s a l of t h e
i n c r e a s e tha t would be n e e d e d in p e r s o n n e l f o r a i i /de fense m i s s i o n s i n v i e w of
S A C E U R ' s b r o a d a i r d e f e n s e r e s p o n s i b i l i t y . SHAPE w a s s eek ing no i n c r e a s e
in i t s own s p e c i a l i z e d a i r d e f e n s e s t a f f . It w a s obvious , however , tha t a i r
d e f e n s e s t a f f s in t h e r e g i o n a l c o m m a n d s would h a v e to be s t r e n g t h e n e d .
In t h e l e t t e r t o t h e Standing G r o u p t h e s e r e q u i r e m e n t s w e r e d i s c u s s e d
by r e g i o n , w i th a s u m m a t i o n tha t showed tha t a i r d e f e n s e s t a f f s of the r e g i o n a l
c o m m a n d s would r e q u i r e an a p p r o x i m a t e i n c r e a s e of 20 s taf f o f f i c e r p o s t s .
In add i t ion , i t w a s n e c e s s a r y tha t a i r w a r n i n g c o m p o n e n t s be e s t a b l i s h e d at
S H A P E and in c e r t a i n a r e a s wi th in t h e r e g i o n a l c o m m a n d s . To e s t a b l i s h
t h e s e a i r w a r n i n g c o m p o n e n t s c a l l e d f o r an i n c r e a s e of 25 o f f i c e r s and 97
other r a n k s . The e a r l y w a r n i n g s y s t e m had been a c t i v a t e d on 30 A p r i l 1956,
but i t had b e e n n e c e s s a r y t o m a n the SHAPE and r e g i o n a l c e n t e r s wi th t e m p o -
r a r y p e r s o n n e l p r o v i d e d on loan f r o m n a t i o n a l a u t h o r i t i e s . T h i s w a s a s h o r t
t e r m exped ien t t o s e t t he s y s t e m in mo t ion , and i t w a s d e s i r e d tha t p e r m a n e n t
p e r s o n n e l should b e a s s i g n e d without de l ay . S H A P E had not d e t e r m i n e d t h e
ne t p e r s o n n e l i n c r e a s e which would be r e q u i r e d t o a c t i v a t e the a i r d e f e n s e and
a i r w a r n i n g c o m p o n e n t s wi th in SHAPE and t h e r e g i o n a l c o m m a n d s . The Standing
G r o u p w a s i n f o r m e d tha t r e c o m m e n d a t i o n s r e g a r d i n g n e c e s s a r y i n c r e a s e s
wou ld be m a d e wi th in the n e a r f u t u r e .
(42) AG 4 0 3 0 / 4 P A , 17 Oct 57, P e r s o n n e l R e q u i r e m e n t s P r o g r a m f o r ACE, 1958-1962 .
170
SACHET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
^ ^ ^ w \lu „ i V ^ i U Lb-^Lin
-NATO S E C R E T
On 12 D e c e m b e r 1956 t h e p l a n f o r t h e L o n g - R a n g e E a r l y Warn ing
S y s t e m w a s sen t t o t h e Standing G r o u p and to a l l t he n a t i o n s . Inc luded with t h i s (43)
p l a n w a s a Ust of r e q u i r e m e n t s f o r p e r s o n n e l t o m a n the s y s t e m . '
On l i A p r i l 1957, t h e Standing Group a s k e d tha t SACEUR s u b m i t h i s
p r o p o s a l s on the p e r s o n n e l t o be r e q u i r e d f o r a i r d e f e n s e , t o i n c l u d e d e t a i l e d
n a t i o n a l b r e a k d o w n s a s a g r e e d by the n a t i o n s and a l s o any p r o p o s a l s t o wh ich
t h e n a t i o n s had not ye t been a g r e e d , so tha t t h e Standing G r o u p could a t t e m p t
t o ob ta in ou t s t and ing n a t i o n a l a p p r o v a l s . T h i s c o u r s e of a c t i on would a l low
t h e Standing Group and e a c h na t ion to know the f u l l ex ten t of t h e p e r s o n n e l c o s t s
' fo r the a i r d e f e n s e s t a f f s .
The Standing Group a l s o no ted SACEUR' s s t a t u s r e p o r t on the L o n g - R a n g e
E a r l y Warn ing S y s t e m and a s k e d h i m t o send f u l l e r d e t a i l s on h i s p r o p o s a l s f o r
e s t a b l i s h i n g and m a n n i n g the p o s t s by na t iona l i t y . It r e q u e s t e d t h e s a m e i n f o r -(44)
m a t i o n on the F o r w a r d S c a t t e r S y s t e m /
The Standing Group had i n d i c a t e d tha t i t would c o n s i d e r r e q u e s t s f o r
add i t i ona l p e r s o n n e l f o r the R e g i o n a l O r g a n i z a t i o n f o r Air D e f e n s e and f o r the
S H A P E O p e r a t i o n s C e n t e r , a f t e r r e c e i p t f r o m SHAPE of the f u l l d e t a i l s of
t h e p o s t s to be r e d u c e d . On 24 S e p t e m b e r SHAPE a s k e d tha t t he Standing G r o u p
con t inue i t s c o n s i d e r a t i o n of t h e s e two i m p o r t a n t r e q u e s t s f o r add i t iona l p e r -
sonne l wi th a v i ew t o w a r d an e a r l y d e c i s i o n . As r e q u e s t e d by t h e Standing Group ,
t h e s e two r e q u e s t s f o r add i t iona l p e r s o n n e l would be i nc luded in the SHAPE
P e r s o n n e l R e q u i r e m e n t s P r o g r a m t o be s u b m i t t e d to t h e Standing Group by
1 N o v e m b e r 1957.^4 5^
(43) L t r f r o m SACEUR to SGN, AG 4030 P A , 11 Jun 56, Reg iona l O r g a n i s a t i o n f o r Air D e f e n s e . L t r AG 3170 /1 S I G / E L , 12 Dec 56, L o n g - R a n g e E a r l y Warning Sys t em.
(44) SGM-260- 57, 17 Apr 57. (45) L t r to SGN, AG 4030 P A , 24 Sep 57, ACE P e r s o n n e l Cei l ing .
171
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
C H A P T E R VII
LOGISTICS AND I N F R A S T R U C T U R E
P a r t I - L o g i s t i c s
I n t r o d u c t i o n .
Among t h e m o s t s e r i o u s p r o b l e m s fac ing Al l i ed C o m m a n d E u r o p e f r o m
i t s i n c e p t i o n i n 1951 had been tha t of i n s u r i n g tha t w e a p o n s , a m m u n i t i o n , and
m a t e r i e l would b e r e a d y f o r u s e by S A C E U R ' s f o r c e s on t i m e and in suff ic ient
quan t i t y . T h i s i m p l i e d not only s t o c k s on hand f o r i m m e d i a t e u s e , but p r i o r
a r r a n g e m e n t s to k e e p t h e s e v i t a l s u p p l i e s com i ng to w h e r e v e r t hey w e r e wan ted ,
r e g a r d l e s s of the d i s r u p t i o n and t h e i n e v i t a b l e c o n f u s i o n which would fo l low
any i n v a s i o n of W e s t e r n E u r o p e . S e r i o u s a s t h i s l o g i s t i c s p r o b l e m had been
u n d e r c o n d i t i o n s of conven t iona l w a r f a r e , t he advent of n u c l e a r w a r , on which
S A C E U R ' s s t r a t e g i c p l a n s w e r e b a s e d , p r o m i s e d t o i n c r e a s e t h e s e d i f f i cu l t i e s ,
m a n y t i m e s o v e r .
Dur ing 1957, t h e n a t i o n s of NATO b e c a m e i n c r e a s i n g l y r e l u c t a n t to
c o m m i t t h e m s e l v e s f i n a n c i à l l y un t i l t he l o g i s t i c i m p l i c a t i o n s of the u s e of
n u c l e a r w e a p o n s w e r e f u l l y exp la ined to t h e m . M a n y d i s c u s s i o n s took p l a c e
on t h e s u b j e c t of c o s t s , and f r e q u e n t o b j e c t i o n s by t h e n a t i o n s r e s u l t e d in t h e
s lowing down of p r o g r e s s in both p lann ing and c o n s t r u c t i o n . C e r t a i n i n f r a s t r u c t u r e
p r o j e c t s w e r e s u s p e n d e d pend ing d e c i s i o n s on f u t u r e c o s t s , and p l a n n e d c o n s -
t r u c t i o n w a s s t r i n g e n t l y s e r e n e d . It w a s a p p a r e n t tha t a poin t had been r e a c h e d
w h e r e ex i s t i ng p l a n s f o r l o g i s t i c suppor t had to be a l t e r e d to f i t in to new
s t r a t e g i c c o n c e p t s . At the s a m e t i m e , p l a n n e d c o n s t r u c t i o n had to be r e - a l i g n e d
p a r t i c u l a r l y in t h e c a s e of a i r f i e l d s . In addi t ion , f u t u r e i n f r a s t r u c t u r e n e e d s
w e r e c l o s e l y t i e d t o t h e ques t i on of m i s s i l e c o s t s , and a d e c i s i o n w a s awa i t ed »
f r o m t h e N o r t h A t l an t i c Counci l a s to how t h e s e m i s s i l e s should b e f i n a n c e d .
172 mß) s ^ r ^ x m D
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
P l a n n i n g - SACEUR' s R e s p o n s i b i l i t i e s .
A m a j o r p r o b l e m in a l l a t t e m p t s t o p l a n t h e l o g i s t i c s u p p o r t s y s t e m of
A l l i ed C o m m a n d E u r o p e h a d b e e n t h e q u e s t i o n of def in ing e x a c t l y SACEUR' s
r e s p o n s i b i l i t y . In D e c e m b e r 1950, t h e N o r t h At lant ic Counc i l a g r e e d t o a c c e p t
of t h e i r own f o r c e s , wh i l e SACEUR would be r e s p o n s i b l e f o r t h e c o o r d i n a t i o n
of t h e l o g i s t i c s u p p o r t f o r t h e f o r c e s u n d e r h i s c o m m a n d . T h i s d e c i s i o n w a s
m a d e t o s a f e g u a r d t h e s o v e r e i g n t y of t h e n a t i o n s by l eav ing t h e d i r e c t i o n of
n a t i o n a l l o g i s t i c s y s t e m s t o t h e r e s p e c t i v e na t i ona l a u t h o r i t i e s . SACEUR w a s
t h u s p l a c e d in a c u r i o u s p o s i t i o n . He had no p o w e r s of d i r e c t i o n ove r t h e n a t i o n a l
l o g i s t i c s y s t e m s , but , a t t he s a m e t i m e , he w a s r e s p o n s i b l e f o r the o v e r a l l
e f f e c t i v e n e s s of t h e l o g i s t i c s u p p o r t f o r h i s f o r c e s . He could r e c o m m e n d t o
t h e n a t i o n s tha t t hey adopt h i s l o g i s t i c p l a n s and he w a s g iven c e r t a i n p o w e r s
t o i n s u r e tha t h i s r e c o m m e n d a t i o n s w e r e u n d e r s t o o d by t h e n a t i o n s . ^
The NATO n a t i o n s a s s i g n e d p a r t of t h e i r f o r c e s t o Al l ied C o m m a n d E u r o p e
and e a r m a r k e d o the r f o r c e s f o r w a r t i m e u s e . In the s a m e way , t h e n a t i o n s
a s s i g n e d c e r t a i n l o g i s t i c r e s o u r c e s to SACEUR and e a r m a r k e d o the r r e s o u r c e s
f o r w a r t i m e l o g i s t i c s u p p o r t . T h e s e r e s o u r c e s , which i n c l u d e d s u p p l i e s , s t o r a g e
and d i s t r i b u t i o n f a c i l i t i e s and o the r i n s t a l l a t i o n s , w e r e s a i d t o be " m a d e a v a i -
l a b l e " t o SACEUR, and he w a s g iven t h e r e s p o n s i b i l i t y f o r t h e o v e r a l l p o l i c y
d i r e c t i o n of t h e s e r e s o u r c e s . He had no p e a c e t i m e c o n t r o l o v e r r e s o u r c e s which
w e r e not m a d e a v a i l a b l e by t h e n a t i o n s .
In p e a c e t i m e , fo r e x a m p l e , SACEUR had t h e a u t h o r i t y t o e s t a b l i s h p r i o -
r i t i e s f o r the bu i l d -up of s u p p l i e s and, a f t e r consu l t a t ion wi th t h e n a t i o n s , could
d i r e c t t h e g e o g r a p h i c l o c a t i o n of s t o c k s . He could s u p e r v i s e t h e c o n s t r u c t i o n
(1) DC 2 4 / 3 da t ed 18 D e c e m b e r 1950 g i v e s t h e b a s i c l o g i s t i c p r i n c i p l e s -s e e a l s o SHAPE H i s t o r y Vol . I, Sect ion HI, Chapt . 9. S A C E U R ' s r e s p o n s i b i l i t i e s a r e con ta ined in two d o c u m e n t s - MC 53(Final ) da t ed 7 J u l y 1955, and M C 36 /1 , l a s t r e v i s e d in O c t o b e r 1956. F o r a u s e f u l s u m m a r y of SACEUR' s l o g i s t i c r e s p o n s i b i l i t i e s - s e e L o g i s t i c P o l i c y and Guidance AG 6000.01 da t ed 2 Oc tobe r 1957. All t h e s e d o c u m e n t s -a r e a v a i l a b l e in AG C e n t r a l R e g i s t r y .
two b a s i c p r i n c i p l e s . Na t i ons w e r e t o be r e s p o n s i b l e f o r t h e l o g i s t i c s u p p o r t
173
N A T o r O E t a u a r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of f a c i l i t i e s p r o v i d e d by c o m m o n funding and had t h e au thor i ty to m a k e i n s -
p e c t i ons to a s c e r t a i n c o n s t r u c t i o n p r o g r e s s . Among h i s p o w e r * a l so , w a s t he
a u t h o r i t y to d i r e c t l y con t ro l the t r a i n i n g of l og i s t i c un i t s .
In o r d e r tha t he could c a r r y out h i s r e s p o n s i b i l i t i e s , SACEUR w a s given
t he r i g h t of d i r e c t a c c e s s t o na t iona l a u t h o r i t i e s in c h a r g e of l og i s t i c s y s t e m s .
He could c o m m u n i c a t e d i r e c t l y with na t iona l c h i e f s of s t a f f , d e f e n s e m i n i s t e r s
and h e a d s of g o v e r n m e n t s , and he could d e l e g a t e a u t h o r i t y to h i s s u b o r d i n a t e
c o m m a n d e r s who, in t u r n , had t he r i g h t to c o m m u n i c a t e d i r e c t l y wi th the
a p p r o p r i a t e na t iona l a u t h o r i t i e s at l ower l e v e l s .
S A C E U R ' s w a r t i m e p o w e r s and r e s p o n s i b i l i t i e s r e p r e s e n t e d an ex tens ion
of h i s p e a c e t i m e r o l e , with c e r t a i n excep t ions . In t he c a s e of abso lu t e n e c e s -
s i ty , f o r e x a m p l e , he could r e q u e s t na t iona l a u t h o r i t i e s to p l a c e at h i s d i s p o s a l
any p a r t of t h e i r l o g i s t i c r e s o u r c e s , including r e s o u r c e s not p r e v i o u s l y m a d e (2) ava i l ab l e .
L o g i s t i c Sys t em All ied Command E u r o p e .
In o r d e r tha t SACEUR could fu l f i l l h i s l o g i s t i c r e s p o n s i b i l i t i e s , an e f f i -
c ien t l og i s t i c s y s t e m had to be e s t a b l i s h e d and m a i n t a i n e d in p e a c e t i m e , a
s y s t e m tha t would be capab le of r a p i d expans ion in w a r t i m e . T h e e s t a b l i s h m e n t
of an e f f i c i en t l o g i s t i c s y s t e m in even one na t ion had a lways p r o v e d a d i f f icul t
and c o m p l i c a t e d task ;^ the e s t a b l i s h m e n t of such a s y s t e m f o r All ied C o m m a n d t i m e s
E u r o p e w a s m a n y m o r e d i f f icul t and c o m p l i c a t e d . The r u l e s and p r i n c i p l e s
(2) SACEUR's w a r t i m e p o w e r s and r e s p o n s i b i l i t i e s were conta ined in MC 3 6 / l . His l o g i s t i c r e s p o n s i b i l i t i e s w e r e se t out fo r both the f o r w a r d (Combat ) zone and t h e r e a r (Communica t ion ) zone . It i s d i f f icu l t t o v i s u a l i z e j u s t w h e r e t h e s e z o n e s would have t h e i r dividing l ine in any n u c l e a r w a r and the def in i t ion s e e m s a l i t t l e a c a d e m i c . SACEUR and h i s subo rd ina t e c o m m a n d e r s w e r e given addi t ional p o w e r s in t he c a s e of an e m e r g e n c y , t he de f in i t ion of an e m e r g e n c y being "an u n f o r e s e e n combina t ion of c i r -c u m s t a n c e s which c a l l s for i m m e d i a t e a c t i o n . " Within ACE, t he All ied C o m m a n d e r s had the r e s p o n s i b i l i t y f o r deciding what cons t i tu ted an e -m e r g e n c y . See SGM-225-54 da ted 5 M a r c h 1954 quoted in L o g i s t i c P o l i c y and Guidance ACE.
174 - ^ - — ; J
NATO SEe i t f iT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a c c o r d i n g t o which SACEUR could deve lop a l o g i s t i c s y s t e m c r e a t e d d i f f i -
c u l t i e s f r o m t h e s t a r t , and t h e r e w e r e m a n y o the r p r o b l e m s involving na t i ona l
s o v e r e i g n t y , f i n a n c i n g and f l ex ib i l i t y . In f a c t , a l though p l ann ing had been
s t a r t e d in 1952, i t r e q u i r e d fou r y e a r s of d i s c u s s i o n and nego t i a t i on b e f o r e (3)
t h e Counci l a p p r o v e d a l o g i s t i c s y s t e m f o r Al l ied C o m m a n d E u r o p e / '
The " L o g i s t i c S y s t e m f o r A C E " which SHAPE had d e v i s e d w a s f o r w a r d e d
to t h e S tand ing G r o u p on 3 S e p t e m b e r 1955, and, a f t e r m a n y m o n t h s of d i s -
c u s s i o n i t w a s a p p r o v e d by t h e Counci l on 2 J u l y 1956. T h e m a j o r s u b o r d i n a t e
c o m m a n d e r s w e r e d i r e c t e d by SACEUR to s t a r t u s ing the s y s t e m , and t h u s ,
when G e n e r a l N o r s t a d a s s u m e d c o m m a n d in N o v e m b e r 1956, t h e s y s t e m had (4)
b e e n in o p e r a t i o n s o m e f o u r m o n t h s .
The l o g i s t i c s y s t e m w a s d iv ided in to two p a r t s . P a r t I dea l t wi th the
r e l a t i o n s h i p b e t w e e n t h e n a t i o n a l l o g i s t i c s y s t e m s a d m i n i s t r a t i o n and SACEUR,
wh i l e P a r t II w a s c o n c e r n e d with S A C E U R ' s d i r e c t i o n of t h e l o g i s t i c r e s o u r c e s (5) m a d e a v a i l a b l e t o h i m by t h e n a t i o n s . '
(3) F o r an account of t h e e a r l y p lann ing - s e e SHAPE H i s t o r y V o l u m e II, Chap t e r IX - a v a i l a b l e in H i s t o r i c a l B r a n c h , SHAPE.
(4) AG 1 2 2 8 . 0 8 / P - 5 2 1 / 5 5 LOG da ted 3 S e p t e m b e r 1955 i s t h e " L o g i s t i c Sys -t e m f o r A C E " a s r e c o m m e n d e d by G e n e r a l G r u e n t h e r . Ctiuncil a p p r o v a l w a s g iven in CR(56)35 da ted 2 J u l y 1956.
(5) G e n e r a l G r u e n t h e r had s t a t ed , when r e c o m m e n d i n g t h e adopt ion of t h e s y s t e m to the Standing Group , tha t no a t t e m p t had been m a d e to de f ine t h e w o r d s " m a d e avai lable ' . ' He po in ted out t ha t f u r t h e r s tudy w a s n e c e s s a r y on t h i s sub j ec t and t h e SGN would r e c e i v e SHAPE 'S r e c o m -m e n d a t i o n s at a l a t e r da t e . T h i s s tudy took two y e a r s and in J u n e 1957, S H A P E s u g g e s t e d tha t t h e l o g i s t i c r e s o u r c e s p o s s e s s e d by n a t i o n a l f o r c e s a s s i g n e d to } SACEUR should be c o n s i d e r e d a s r e s o u r c e s 'made a v a i l a b l e . T h e s e r e s o u r c e s would be s u b j e c t t o r e - a l l o c a t i o n in an e m e r g e n c y in w a r t i m e . Any o the r na t i ona l r e s o u r c e s wi th in A C E would be c o n s i d e r e d a s not m a d e a v a i l a b l e , and would not n o r m a l l y b e sub j ec t to r e - a l l o c a t i o n , excep t a s a g r e e d t o by t h e n a t i o n s in a c c o r d a n c e wi th the M i l i t a r y C o m -m i t t e e ' s a p p r o v e d po l i cy and gu idance . S e e A G 1 1 2 0 . 0 8 / P & M - 3 3 8 / 5 7 LOG da ted 27 June 1957.
175 r.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
P a r t I . E a c h of t he two m a j o r s e c t i o n s of t he " L o g i s t i c S y s t e m " w a s
s u b - d i v i d e d i n t o t h r e e " P o i n t s , " dea l i ng wi th t he p r o c e d u r e s to b e adop ted
by SACEUR and t h e n a t i o n s . The f i r s t P o i n t of P a r t I w a s an e l a b o r a t i o n of
S A C E U R ' s r i g h t t o c o m m u n i c a t e d i r e c t l y wi th p e r s o n s r e s p o n s i b l e f o r t he
d i r e c t i o n of n a t i o n a l l o g i s t i c s y s t e m s . A s e n i o r l o g i s t i c o f f i c e r at m i n i s t r y
of d e f e n s e l e y e l would be d e s i g n a t e d by e a c h na t i on f o r c o n s u l t a t i o n wi th
SACEUR and h i s m a j o r s u b o r d i n a t e c o m m a n d e r B . O t h e r l o g i s t i c o f f i c e r s
wou ld be a p p o i n t e d at l o w e r l e v e l s and i t w a s t h e spec ia l f u n c t i o n of t h e s e
o f f i c e r s t o i n i t i a t e p r o m p t a c t i o n in r e s p o n s e t o r e q u e s t s f r o m SACEUR or h i s
r e p r e s e n t a t i v e s .
The s i t u a t i o n m i g h t a r i s e in w a r t i m e in wh ich a l a r g e na t iona l f o r c e
wou ld b e d e p l o y e d a w a y f r o m i t s own t e r r i t o r y , and t h u s away f r o m i t s own
l o g i s t i c s y s t e m . Obv ious ly , should t h i s o c c u r , t h e dep loyed f o r c e would be
d e p e n d e n t upon t h e l o g i s t i c s y s t e m of ano the r c o u n t r y . P o i n t two e s t a b l i s h e d
p r o c e d u r e s a i m e d a t avo id ing c o n f u s i o n and d e l a y should t h i s s i t ua t ion a r i s e .
S p e c i a l l y t r a i n e d p e r s o n n e l f r o m e a c h of t h e n a t i o n s would f o r m "Advance
P a r t i e s . " T h e s e "Advance P a r t i e s " would m o v e b e f o r e any p l a n n e d dep loy -
ment of the l a r g e r f o r c e and w o r k wi th t h e " h o s t " l o g i s t i c Bys tem. R e q u e s t s
f o r s u p p l i e s f r o m t h e " h o s t " l o g i s t i c syBtem would b e m a d e , and the s u p p l i e s
wou ld b e s e n t d i r e c t f r o m t h e " h o s t " d e p o t s t o t he dep loyed f o r c e d e p o t s .
A f t e r r e s u p p l y h a d b e e n e s t a b l i s h e d t o t h e dep loyed f o r c e f r o m i t s own l o g i s t i c
System, a m e t h o d of r e i m b u r s e m e n t or r e p l a c e m e n t - i n - k i n d would o p e r a t e .
In o r d e r t o a r r i v e a t sound c o m m a n d d e c i s i o n s , c o m m a n d e r s would
h a v e t o know, in p e a c e t i m e , t he c a p a b i l i t i e s of the v a r i o u s na t iona l l o g i s t i c
s y s t e m s . T h e t h i r d P o i n t in P a r t I c o n c e r n e d t he e x c h a n g e of i n f o r m a t i o n
b e t w e e n t he n a t i o n s and t h e A C E c o m m a n d e r s on such i t e m s a s s tockp i l i ng ,
r e p a i r f a c i l i t i e s and depot capabi l i t i es .
N a t i o n s w e r e d i r e c t e d t o d e s i g n a t e d e p o t s and i n d i c a t e t he l e v e l of s t o c k s
held upon wh ich S A C E U R ' s f o r c e s could r e l y in t i m e of w a r .
P a r t II. The N a t u r e of t h e m i s s i o n of A l l i ed C o m m a n d E u r o p e w a s s u c h
176 . y v A / - . . . ' .
TIA-TO C S C i l L T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
- — ~ - - . ...„• NATO S E C R E T
tha t in any w a r , c e r t a i n of the n a t i o n s would h a v e to s u p p o r t e x p e d i t i o n a r y
f o r c e s which could not be supp l i ed f r o m t h e i r own l o g i s t i c s y s t e m s . The
s e c o n d p a r t of t h e A C E S y s t e m s u g g e s t e d the p r o c e d u r e s which n a t i o n s should
adopt with r e s p e c t to s t o c k s . It w a s n e c e s s a r y to r e s o l v e t h e p r o b l e m s r a i s e d
by t h e pos i t i on ing of s t o c k s of one na t ion in ano the r n a t i o n ' s t e r r i t o r y . While
t h e r e s p o n s i b i l i t y f o r m a k i n g b i - l a t e r a l or m u l t i - l a t e r a l a g r e e m e n t s on p o s i -
t ion ing r e s t e d wi th the n a t i o n s involved , i t w a s S A C E U R ' s r e s p o n s i b i l i t y to
d e t e r m i n e t h e g e o g r a p h i c d i s t r i b u t i o n of t h e s e s t o c k s . P o i n t one of P a r t II
d i r e c t e d the n a t i o n s to e f f e c t t h e n e c e s s a r y c o o r d i n a t i o n wi th SACEUR, and
f u r n i s h r e p o r t s to p r o v i d e h i m wi th e s s e n t i a l i n f o r m a t i o n a s to s t o c k s he ld .
Two p e a c e t i m e i r epor t s w e r e e s t a b l i s h e d to be s u b m i t t e d t h r o u g h the m a j o r
s u b o r d i n a t e c o m m a n d e r s , and the r e q u i r e m e n t f o r a t h i r d r e p o r t t o be i s s u e d
in w a r t i m e w a s f o r m u l a t e d . SACEUR w a s g iven the o v e r a l l r e s p o n s i b i l i t y
f o r dec id ing what i n f o r m a t i o n w a s n e e d e d in t h e s e r e p o r t s .
SACEUR' s p o w e r o v e r t h o s e l o g i s t i c r e s o u r c e s m a d e a v a i l a b l e to h i m
by t h e n a t i o n s i nc luded t h e r i g h t to r e - a l l o c a t e s u p p l i e s f r o m one na t ion t o
a n o t h e r . The a p p r o p r i a t e a l l i ed c o m m a n d e r s w e r e e m p o w e r e d to e x e r c i s e
t h i s r i gh t du r ing any w a r t i m e e m e r g e n c y , and the a p p r o p r i a t e p r o c e d u r e s
w e r e e s t a b l i s h e d in P o i n t t h r e e of P a r t II. H o w e v e r , a s i t ua t i on migh t a r i s e
when f u r t h e r supp l i e s o v e r and above t h o s e m a d e a v a i l a b l e would be n e e d e d .
P r o c e d u r e s w e r e e s t a b l i s h e d in o r d e r tha t c o m m a n d e r s could r e q u e s t n a t i o n s
to f u r n i s h t h e s e e x t r a s u p p l i e s .
L o g i s t i c P o l i c y and Gu idance .
The e s t a b l i s h m e n t of t h e L o g i s t i c Sys tem for Al l i ed C o m m a n d E u r o p e
enab led SACEUR to g ive new gu idance to h i s m a j o r s u b o r d i n a t e c o m m a n d e r s .
Dur ing G e n e r a l N o r s t a d ' s f i r s t y e a r of c o m m a n d , SHAPE i s s u e d a s ing le
documen t t o r e p l a c e f o r m e r i n s t r u c t i o n s , t i t l e d : " L o g i s t i c P o l i c y and Gui -
d a n c e , Al l ied C o m m a n d E u r o p e .
(6) L o g i s t i c P o l i c y and Gu idance w a s AG 6100.01 / P & M - 5 2 1 /57 LOG da t ed ,
177
"TTrtTn viu-K f̂f ^'jv
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
T h e new p o l i c y gu idance w a s i s s u e d j u s t a f t e r p u b l i c a t i o n of t h e M i n i -
m u m F o r c e Study, but did not r e f l e c t t he s t r a t e g i c c o n c e p t s in t h i s s tudy,
w h i c h i m p l i e d c h a n g e s in a s s u m p t i o n s f o r f u t u r e l o g i s t i c p l ann ing . Na t iona l
l o g i s t i c s s y s t e m s w e r e i n a d e q u a t e f o r t h e type of w a r which could be p o s s i b l e
d u r i n g t h e 1958-1963 p e r i o d .
The f r a m e w o r k f o r the o v e r a l l l o g i s t i c s u p p o r t of A C E w a s a r e s u l t of
t h e c o n s o l i d a t i o n of p l ann ing c a r r i e d out du r ing 1957. A l o g i s t i c s y s t e m w a s
i n o p e r a t i o n , f l e x i b l e enough to i n c o r p o r a t e d e v e l o p m e n t s wi th in t h e ex i s t ing
a g r e e m e n t s .
The L o g i s t i c I m p l i c a t i o n s of the M i n i m u m F o r c e Study.
P l a n n i n g F a c t o r s . The p r i n c i p l e t h a t n a t i o n s w e r e r e s p o n s i b l e f o r the
l o g i s t i c s u p p o r t of t h e i r f o r c e s w a s r e - s t a t e d , wi th the fo l lowing a s s u m p t i o n s :
- Na t iona l l o g i s t i c s r e s o u r c e s would be devo ted p r i m a r i l y to suppor t
of f o r c e s n e e d e d f o r P h a s e I of g e n e r a l w a r .
- Due to the w i d e s p r e a d n a t u r e of expec t ed a t t a c k s a l l l o g i s t i c s u p p o r t
s y s t e m s would have to be m a i n t a i n e d at a h igh d e g r e e of r e a d i n e s s .
p e r i o d b e f o r e r e - s u p p l y could be e f f e c t e d .
- C o n f l i c t s s h o r t of g e n e r a l w a r would be s u p p o r t e d f r o m s t o c k s he ld
f o r g e n e r a l w a r , but any s t o c k s t h u s u s e d would have to be r e p l a c e d qu ick ly a s
a g e n e r a l w a r m i g h t fo l low.
War R e s e r v e s . M o v e m e n t in o p e r a t i o n a l t h e a t e r s du r ing and i m m e d i a -
t e l y fo l lowing P h a s e I would be r e s t r i c t e d . T h i s r e s t r i c t i o n m e a n t tha t a d e -
q u a t e s u p p l i e s , d i s p e r s e d and p r o t e c t e d , m u s t be s t o r e d wi th in i m m e d i a t e
a c c e s s of the c o m b a t f o r m a t i o n s and a i r f o r c e s . T h e s e s u p p l i e s m u s t be
J... Z Oct 57. It r e p l a c e d " L o g i s t i c Ins t ruc t i cms ACE, " dtd 25 Aug 53 and the " L o g i s t i c War P l a n , " dtd 1 M a r 54. P ending t h e i s s u e of a new d i r e c -t i v e on s tock l e v e l s , Annex 'A ' t o the L o g i s t i c War P l a n (AG 6801/S&M-2 3 0 / 5 5 LOG) w a s to r e m a i n e f f e c t i v e . The new documen t w a s p r e p a r e d in a f l e x i b l e m a n n e r to a l low any a m e n d m e n t s and a l t e r a t i o n s to l o g i s t i c p o l i c y which m i g h t be m a d e by SHAPE in t h e f u t u r e , n e c e s s i t e d by new s t r a t e g i c c o n c e p t s con t a ined in t h e Minimvun F o r c e Study.
L o g i s t i c s u p p o r t would have to be r e a d y to p r o v i d e f o r the i n t e r i m
ne CNftTB OBCH ET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
WAT© CONFIDENTIAL ,NATO—-Sirr fW TTT
p o s i t i o n e d in p e a c e t i m e , and i t would t h e r e f o r e be n e c e s s a r y to e s t a b l i s h a
s t o c k p i l e .
Size of the S tockp i le . Al though c u r r e n t NATO p o l i c y s p e c i f i e d tha t
w a r r e s e r v e s had to be p o s i t i o n e d to l a s t the f i r s t 90 d a y s of w a r , r e c e n t
s t u d i e s had shown tha t i t m i g h t be p o s s i b l e to r e d u c e t h e quan t i ty of s t o c k s he ld .
A l lowance would h a v e to be m a d e f o r d a m a g e , h o w e v e r , and i t w a s e s t i m a t e d
tha t a d a m a g e f a c t o r of 30% would be u s e d f o r a l l l a n d - b a s e d s t o c k s . T h e
f a c t t ha t na t i ona l s t o c k s of P O L in u n p r o t e c t e d s t o r a g e n e a r m a j o r p o r t s
would p r o b a b l y s u f f e r l o s s of m o r e t h a n 30% e m p h a s i z e d t h e n e e d f o r e a r l y
c o m p l e t i o n of the NATO p i p e l i n e s y s t e m .
R e supply . B e c a u s e of the w i d e s p r e a d d a m a g e a f t e r a t t a c k , no r e s u p p l y
cou ld be f o r e s e e n f r o m E u r o p e a n i n d u s t r y a f t e r D - D a y . R e s u p p l y m o s t p r o -
b a b l y would c o m e f r o m N o r t h A m e r i c a , but t i m e would have to be a l lowed to
r e c o v e r f r o m a t t a c k s t h e r e , and f o r p l ac ing i n d u s t r y on a w a r t i m e foo t ing .
Con t inen ta l p o r t s would be s e v e r e l y r e s t r i c t e d in m o v e m e n t . The i m p l i c a t i o n s
w e r e tha t a l though s o m e r e s u p p l y migh t s t a r t soon a f t e r D-Day , none of
s i g n i f i c a n c e would be e x p e c t e d f o r 90 d a y s , excep t p o s s i b l y bulk P O L w h e r e
p i p e l i n e s ex i s t and t a n k e r s cou ld be r o u t e d to p i p e l i n e p o r t t e r m i n a l s . R e -
supp ly would r e q u i r e NATO c o o r d i n a t i o n in o r d e r to a s s e s s r e q u i r e m e n t s and
p r i o r i t i e s in r e l a t i o n to t h e r e s o u r c e s a v a i l a b l e .
L o g i s t i c Suppor t O r g a n i z a t i o n . A f l e x i b l e l o g i s t i c suppor t o r g a n i z a t i o n
would have to ex i s t in p e a c e t i m e to o p e r a t e e f f e c t i v e l y du r ing P h a s e I at l e a s t ,
a s e m e r g e n c y expans ion would be i m p r o b a b l e . Addi t iona l u n i t s would b e n e e d e d
fo l lowing i n t e n s e n u c l e a r a t t a c k s f o r r e p a i r and r e h a b i l i t a t i o n of d a m a g e d
i n s t a l l a t i o n s . Suppor t would have to be p r o v i d e d on the a s s u m p t i o n of no w a r n -
ing , but t h e r e should be, in any c a s e , p l a n s f o r a w a r n i n g p e r i o d . T h e s e p l a n s
would i nc lude t h e r e d u c t i o n of c r i t i c a l d e f i c i e n c i e s i n w a r r e s e r v e s , the p o l i c y
to be adopted r e g a r d i n g i n f r a s t r u c t u r e p r o j e c t s in hand a t t he t i m e , and t h e
d e l i v e r y of n u c l e a r w a r h e a d s to u n i t s .
179
N A T U Û J J Ë I U B ^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
R e p l a c e m e n t , M o d e r n i z a t i o n and S t a n d a r d i z a t i o n of E q u i p m e n t .
Some NATO F o r c e s ' e q u i p m e n t would be w o r n out o r o b s o l e t e d u r i n g t h e
p e r i o d 1958-1963 , and it would be n e c e s s a r y to r e p l a c e i t wi th new and m o -
d e r n e q u i p m e n t . T h i s should be done on a t i m e - p h a s e d b a s i s f o r e c o n o m i c a l
r e a s o n s , and t o a l low s t a n d a r d i z a t i o n .
S t r a t e g i c R e s e r v e s and R e i n f o r c e m e n t U n i t s .
T a s k ' F o r c e R a i s e d by SACEUR. In c o n f l i c t s s h o r t of g e n e r a l w a r , i t
w a s p r o p o s e d t h a t SACEUR should u s e a s p e c i a l t a s k f o r c e , and t h i s c r e a t e d
p r o b l e m s c o n c e r n e d wi th t h e p a r t i c u l a r a s p e c t of a i r b o r n e s u p p o r t . The t a s k
f o r c e wou ld be h igh ly m o b i l e and SACEUR would h a v e to m a k e s p e c i a l p l a n s
in c o n j u n c t i o n wi th n a t i o n a l s u p p o r t s y s t e m s . S t a n d a r d i z a t i o n w a s p a r t i c u l a r l y
i m p o r t a n t .
I m m e d i a t e R e i n f o r c e m e n t s . The r a p i d m o b i l i z a t i o n of p a r t l y - m a n n e d
f o r m a t i o n s wi th in a f e w d a y s would m a k e i t n e c e s s a r y f o r equ ipmen t and
v e h i c l e s t o be p r e - s t o c k e d at p l a n n e d w a r c o n c e n t r a t i o n a r e a s . L o g i s t i c
s u p p o r t f o r the f i r s t 90 d a y s should be on hand .
S t r a t e g i c R e s e r v e s . The l o g i s t i c s u p p o r t f o r t h e s t r a t e g i c r e s e r v e s s t a -
t i o n e d ou t s i de A C E would have to be b a s e d on w a r r e s e r v e s t o c k s a l r e a d y in
p o s i t i o n in ACE, on t h e a s s u m p t i o n t ha t , in g e n e r a l , t h e s e r e s e r v e f o r c e s
would a r r i v e on D + 30.
M o v e m e n t and T r a n s p o r t a t i o n . P e a c e t i m e p lann ing should be m a d e
f o r sh ipp ing , d i s c h a r g e of c a r g o and i t s o n w a r d r o u t i n g o v e r l a n d . T h i s p l a n -
ning shou ld be m a d e f o r the o p e r a t i o n and m a i n t e n a n c e of the t r a n s p o r t f a c i l i -
t i e s , s t ockp i l i ng of r e h a b i l i t a t i o n m a t e r i e l , and a l a b o u r f o r c e t o m a i n t a i n
t r a f f i c and r e s t o r e i t a f t e r n u c l e a r a t t a c k .
P O L . Dur ing P h a s e I, t h e r e would h a v e to be i m m e d i a t e a v a i l a b i l i t y
of j e t f u e l and m o g a s , t h e l a t t e r being m a i n t a i n e d in s t o c k p i l e s in c o m b a t a r e a s .
To e n s u r e r e p l e n i s h m e n t , a l l m o g a s s t o r a g e would have t o be c o n n e c t e d to
NATO p i p e l i n e s .
180
- r t A ^ O GECffET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
-NATO—
M e d i c a l . The m a n a g e m e n t of m a s s c a s u a l t i e s m a d e i t n e c e s s a r y
t o h a v e p l a n s fo r t h e c o l l e c t i o n and e v a c u a t i o n of t h e s e c a s u a l t i e s t o p r e -
d e t e r m i n e d m e d i c a l i n s t a l l a t i o n s . All r a n k s would r e q u i r e t r a i n i n g in p r o -
t e c t i o n aga in s t r a d i a t i o n h a z a r d s .
N u c l e a r Weapon L o g i s t i c s .
The b a s i c p r o b l e m in t h e p r o v i s i o n of l o g i s t i c s u p p o r t f o r a l l NATO
n u c l e a r o p e r a t i o n a l n e e d s w a s in t h e a s s u m p t i o n tha t a r e a d y , i n t e g r a t e d
n u c l e a r d e l i v e r y s y s t e m e x i s t e d f o r a l l NATO f o r c e s . The s p e e d of n u c l e a r
o p e r a t i o n s e n v i s a g e d d u r i n g P h a s e I would c r e a t e a g r e a t p r o b l e m in t h e
s u p p o r t of d i s p e r s e d c o m b a t u n i t s . T e c h n i c i a n s would be r e q u i r e d f o r t h e
sk i l l ed m a i n t e n a n c e of the n u c l e a r w a r h e a d s . E n e m y a t t a c k s upon s t o r a g e s i t e s
would be p r o b a b l e , and t h e s t o r a g e and sa f ekeep ing of t h e s e w e a p o n s r a i s e d
s e c u r i t y p r o b l e m s . Suppor t p l ann ing should s t a r t a t once a s f a r a s i t w a s p o s -
s i b l e wi th in the f r a m e w o r k of ex i s t ing l a w s .
Spec i f ic Nava l M a i n t e n a n c e and Suppor t .
Two new t y p e s of l o g i s t i c s u p p o r t w e r e needed f o r t h e n a v a l f o r c e s of
ACE, U n d e r w a y r e p l e n i s h m e n t g r o u p s w e r e r e q u i r e d t o s u p p o r t t he s t r i k e
f l e e t , t h e a n t i - s u b m a r i n e t a s k g r o u p s and the s t r a t e g i c t a s k f o r c e . F l o a t i n g
B a s e Suppor t Ships would be r e q u i r e d t o g ive the m i n i m u m s u p p o r t n e c e s s a r y
f o r t h e Shield F o r c e s when o p e r a t i n g away f r o m t h e i r n o r m a l b a s e s or when
t h e s e b a s e s had been d e s t r o y e d . T h e s e s h i p s would have to be equipped and
s t ocked in p e a c e t i m e , and SHAPE p r e p a r e d to f u r n i s h g u i d a n c e on t h e n u m b e r
of s h i p s r e q u i r e d .
Spec i f ic Ai r F o r c e M a i n t e n a n c e and Suppor t .
The f i r s t s e v e n d a y s s t o c k s of w a r r e s e r v e s should be put on o r n e a r
e a c h a i r f i e l d , and t h e y should a l low f o r the m a x i m u m o p e r a t i o n s . As f a r a s
p o s s i b l e , s q u a d r o n s e r v i c i n g and s u p p o r t should be l o c a t e d a t l e a s t s e v e n
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
k i l o m e t e r s , f r o m a i r f i e l d s , so t h a t t h e m a x i m u m e q u i p m e n t and p e r s o n n e l
w o u l d s u r v i v e an a t t a c k . Suppor t f a c i l i t i e s shou ld b e m o b i l e , t o a l l o w t h e
t r a n s f e r of s u r v i v i n g e q u i p m e n t and p e r s o n n e l t o u n d e v a s t a t e d a r e a s . T h i s
w a s p a r t i c u l a r l y i m p o r t a n t i n t h e c a s e of g r o u n d s e r v i c i n g f a c i l i t i e s t o p e r m i t
t h e r a p i d d e p l o y m e n t a n d r e i n f o r c e m e n t of s q u a d r o n s .
P r i n c i p a l L o g i s t i c P r o b l e m s .
The l o g i s t i c i m p l i c a t i o n s of t h e M i n i m u m F o r c e Study m e a n t t h a t c o n s i -d e r a b l e f u r t h e r s t u d y and p l a n n i n g would be n e c e s s a r y b e f o r e a c o m p l e t e Io -
s u p p o r t
g i s t i c / p r o g r a m cou ld b e p r o v i d e d f o r A C E f o r c e s w h i c h m i g h t be e n g a g e d in
t h e t y p e of w a r p o s s i b l e d u r i n g t h e p e r i o d 1958 -1963 .
T h e a d o p t i o n of t h e n e w l o g i s t i c c o n c e p t s w o u l d a l s o c r e a t e an a d d i t i o n a l
f i n a n c i a l b u r d e n on t h e NATO n a t i o n s . The N o r t h A t l a n t i c Counc i l h a d not
r e a c h e d a d e c i s i o n on t h e c o m m o n f u n d i n g of m i s s i l e s i t e s , but i t w a s obv ious
t h a t t h e r e wou ld h a v e t o be a d d i t i o n a l f u n d s m a d e a v a i l a b l e t o c o v e r t he c o s t (7) of t h e n e w f a c i l i t i e s / '
P O L - T h e Suez C r i s i s .
The Suez C a n a l w a s c l o s e d t o sh ipp ing on 2 N o v e m b e r 1956. B e c a u s e of
t h e p o s s i b l e e f f e c t s on m i l i t a r y s t o c k s of P O L , S H A P E r e q u e s t e d an i m m e d i a t e
r e p o r t f r o m a l l n a t i o n s of s t o c k s h e l d a t t h e t i m e . The r e p o r t w a s to be e x p r e s s e d -
i n w a r t i m e d a y s of supp ly of j e t f u e l , m o t o r f u e l , a v g a s and n a v a l b o i l e r f u e l .
T h e n a t i o n s w e r e a l s o a s k e d t o g ive an e s t i m a t e f o r any v a r i a t i o n s in s t ock
l e v e l s of t h e s e f u e l s e x p e c t e d d u r i n g t h e nex t 60 d a y s .
The r e p l i e s r e c e i v e d a t S H A P E showed t h a t t he stocks i n A F N O R T H a n d
A F C E N T w e r e a d e q u a t e f o r 30 d a y s supp ly , a l t h o u g h t h e r e w e r e c e r t a i n w e a k -
n e s s e s w h i c h c o u l d h a v e h a d a n a d v e r s e e f f e c t on m i s s i o n c a p a b i l i t y . In A F -
SOUTH, m i l i t a r y P O L s t o c k s w e r e i n a d e q u a t e .
(7) T h e M i n i m u m F o r c e Study i s S H A P E / 1 5 4 - 1 / 5 7 d td 1 Oct 57. T h e l o g i s t i c s a n n e x i s A N N E X F .
;V , ' . ; . :-N ^ D v v . - L : ^ \ . " i . \ R . i .
182
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
- v - ,
S H A P E 57167 NATO S E C R E T
C h a r t f r o m B r i e f f o r SACEUR on E f f e c i a of Suez on P O L s tock s t a t u s , da t ed 26 A p r i l 1957:
C o u n t r y P r o d u c t Oct 56 Nov 56 Dec 56 J a n 57 F e b 57 M a r 57
G R E E C E J e t F u e l 8 5 4 3 10 6 M o g a s 7 8 9 9 4 13 Avgas 27 22 20 22 15 27
T U R K E Y J e t F u e l 12 Not r e - 17 32 26 35 p o r t e d
M o g a s Not r e - 10 12 10 11 12 M o g a s p o r t e d 10 12
BELGIUM J e t F u e l 11 11 6.5 6 13.5 11.5 Avgas 49 18.5 18.5 7 .5 6.5 Not r e -
p o r t e d
I T A L Y M o g a s 9 9 6.5 6.7 7 .6 7 .5 D i e s e l 18 18 13 13 14.7 15.5
(for A r m y )
( N u m b e r of d a y s of w a r supply held)
The b r i e f f o r SACEUR conc luded tha t " T h e Midd le E a s t c r i s i s hasl not
a f f e c t e d t h e m i l i t a r y s t o c k s of P O L in A C E excep t in a f e w c a s e s , but h a s
e m p h a s i z e d t h e i m p o r t a n c e of m a i n t a i n i n g a d e q u a t e m i l i t a r y P O L r e s e r v e s ,
and h a s p o i n t e d out the c r i t i c a l s i t ua t i on which d e v e l o p s in a r e a s w i th s m a l l
P O L r e s e r v e s when n o r m a l r e s u p p l y i s i n t e r r u p t e d . S e r i o u s c o n c e r n i s f e l t ove r (8) l ow r e s e r v e s m a i n t a i n e d by s o m e n a t i o n s . " '
(8) See m e s s a g e s : SH 31682 d a t e d 8 N o v e m b e r 1956; SH 40326 " 24 N o v e m b e r 1956; SH 32082 23 N o v e m b e r 1956; SH 32514 " 12 D e c e m b e r 1956; SH 33133 " I l J a n u a r y 1957; SH 34457 " 8 M a r c h 1957.
A l s o : L o g i s t i c s Q u a r t e r l y R e p o r t o f P r o g r e s s , 1 O c t o b e r - 3 1 December 1956; C - M ( 5 7 ) l dtd 8 J a n 1957 g i v e s t h e Counci l ac t ion , and s e e a l s o C-M(57)7 , dtd 1 F e b 1957. S A C E U R ' s B r i e f i s LOG 2 0 5 0 . 1 7 / P & M - 2 5 6 / 5 7 - " M e m o -r a n d u m f o r t h e Chief of Staff f r o m ACOS Logis t ics ' . ' B r i e f i n g f o r G e n e r a l N o r s t a d E n c l o s u r e 3 - E f f e c t of Suez on A C E P O L . S ta tus , d td 26 Apr 57.
w o ^ T W M i m y
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E i n f o r m e d the Standing G r o u p of the p o s i t i o n , and r e c o m m e n d e d
t h a t e v e r y p o s s i b l e a c t i on be t a k e n t o a s s u r e r e - s u p p l y f o r the f o r c e s of
A l l i e d C o m m a n d E u r o p e . M e a n w h i l e , t he nat ions w e r e r e q u e s t e d to g ive
S H A P E m o n t h l y r e p o r t s on s t o c k s , and to t a k e a c t i o n to i m p r o v e t h e i r s t o c k -
l e v e l s .
On 4 J a n u a r y 1957, t h e N o r t h At lan t ic Counc i l i n s t r u c t e d the P e t r o l e u m
P l a n n i n g C o m m i t t e e ( P P C ) to r e v i e w t h e s i t ua t ion , i n consu l t a t i on wi th the
m i l i t a r y a u t h o r i t i e s , and r e p o r t back t o t h e Counc i l by 9 J a n u a r y 1957. The
P P C w a s not a b l e to p r o v i d e c o m p l e t e i n f o r m a t i o n b e c a u s e i t w a s found tha t
t h e s y s t e m of P O L s tock r e p o r t i n g by the n a t i o n s w a s i n a d e q u a t e .
As a r e s u l t of t h i s r e p o r t by the P P C , the Counci l a s k e d the Standing
G r o u p f o r a c o m p l e t e eva lua t i on of t h e P O L s i t u a t i o n a s it a f f e c t e d t h e d e f e n s i v e
c a p a b i l i t i e s of NATO. S H A P E in t u r n w a s r e q u e s t e d to p r e p a r e a s p e c i a l
q u e s t i o n n a i r e w e r e c o n s o l i d a t e d by SHAPE and t h e n sent to the P P C f o r e v a -
l u a t i o n . On t h e b a s i s of t h e r e p l i e s r e c e i v e d , t h e Counci l d e c i d e d tha t t h e
n a t i o n s should m a i n t a i n a m i n i m u m of 30 d a y s w a r t i m e supply of a l l f u e l s .
A b r i e f p r e p a r e d f o r SACEUR at t h e end of A p r i l 1957 s u m m a r i z e d t h e
o v e r a l l e f f e c t of the Suez C r i s i s on P O L s t o c k s in Al l i ed C o m m a n d E u r o p e ( s e e
C h a r t fo l lowing p a g e ) .
Suez had not c a u s e d a g e n e r a l r e d u c t i o n in s tock l e v e l s . The u n s a t i s f a c -
t o r y l e v e l s e x i s t e d b e f o r e N o v e m b e r 1956. I n t e n s i f i e d r e p o r t i n g , h o w e v e r ,
f o c u s s e d a t t e n t i o n ons s tock l e v e l s , and in F e b r u a r y 1957, the N o r t h At l an t i c
Counc i l i nv i t ed n a t i o n s t o t a k e ac t ion t o b r i n g up to 30 d a y s t hose s t o c k s which
w e r e be low tha t l e v e l .
In G r e e c e , T u r k e y , F r a n c e and B e l g i u m , f l igh t t r a i n i n g had to be r e d u c e d
in o r d e r to c o n s e r v e s t o c k s of j e t f u e l .
G r e e c e had g r e a t d i f f i cu l t y for s e v e r a l m o n t h s in obta in ing je t f u e l , due
p r i m a r i l y to i n a d e q u a t e a l l o c a t i o n of f u n d s , but in M a r c h h e r s tock l e v e l w a s
h i g h e r t h a n i n N o v e m b e r .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
The NATO P i p e l i n e S y s t e m .
While the e f f e c t of Suez on POL. s t o c k s w a s be ing d e t e r m i n e d at SHAPE,
t h e N o r t h At lan t ic Counc i l had b e f o r e i t a so lu t ion to one of t h e m o s t i m p o r t a n t
l o g i s t i c p r o b l e m s . On 21 D e c e m b e r 1956, t h e Counc i l a p p r o v e d a c o n t r o l
s t r u c t u r e f o r t h e o p e r a t i o n of t h e NATO P i p e l i n e s y s t e m . At t h i s t i m e a l m o s t
L> 81.8 m i l l i o n had b e e n spen t on P O L i n s t a l l a t i o n s , and t h e t o t a l p r o g r a m (9)
of P O L i n f r a s t r u c t u r e w a s a l m o s t 77% c o m p l e t e / '
App rova l by t h e Counci l c l e a r e d t h e way f o r t h e a c t i v a t i o n of the C e n t r a l
E u r o p e a n c o n t r o l o r g a n i z a t i o n , and t h e c o n t r o l of t h e p i p e l i n e s y s t e m s i n t h e
N o r t h e r n and Sou the rn r e g i o n s .
O r g a n i z a t i o n - C e n t r a l R e g i o n . The a i m of the c o n t r o l o r g a n i z a t i o n w a s
t o e s t a b l i s h a p e a c e t i m e s y s t e m which would be c a p a b l e of m e e t i n g S A C E U R ' s
w a r t i m e r e q u i r e m e n t s wi thout d e l a y . It w a s c o n t r o l l e d and o p e r a t e d a s one
un i t and SACEUR w a s g iven su f f i c i en t p o w e r s of s u p e r v i s i o n and c o o r d i n a t i o n
t o s u p p o r t h i s f o r c e s / * ^
In o r d e r tha t t h e p e a c e t i m e a i m could be m e t , the Coimci l se t up f o u r
a g e n c i e s f o r the c o n t r o l and o p e r a t i o n of the P O L s y s t e m :
- NATO P i p e l i n e C o m m i t t e e . The P i p e l i n e C o m m i t t e e w a s c o m p o s e d of
a r e p r e s e n t a t i v e of e a c h of the m e m b e r NATO n a t i o n s wi th a c h a i r m a n n o r m a l l y
d e s i g n a t e d by the S e c r e t a r y G e n e r a l . The C o m m i t t e e a c t e d on behalf of t h e
Counc i l on a l l m a t t e r s of N A T O - w i d e c o n c e r n in connec t ion wi th the s y s t e m , in
f u l l c o n s u l t a t i o n wi th t h e m i l i t a r y a u t h o r i t i e s . It m e t only a s r e q u i r e d .
- C e n t r a l E u r o p e P i p e l i n e P o l i c y C o m m i t t e e . E a c h m e m b e r na t ion u s i n g
t h e s y s t e m had a r e p r e s e n t a t i v e on t h i s c o m m i t t e e , wi th a c h a i r m a n d e s i g n a t e d
by t h e c o m m i t t e e . It a c t e d i n m a t t e r s c o n c e r n i n g t h e o p e r a t i o n of the s y s t e m ,
in consu l t a t i on wi th the C e n t r a l E u r o p e P i p e l i n e O f f i c e . In p a r t i c u l a r , t h i s
c o m m i t t e e de f ined the f i n a n c i a l and e c o n o m i c a l r e s p o n s i b i l i t i e s , and m a d e
(9) C h a r t IP 37 /57 N A T O C o m m o n I n f r a s t r u c t u r e Data Book da t ed 29 M a y 57.
(10) See A n n e x t o C-M(56)129 da t ed 11 D e c e m b e r 1956.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r e c o m m e n d a t i o n s f o r the so lu t ion of any f i n a n c i a l p r o b l e m s which a r o s e . It
m e t only a s r e q u i r e d .
- C e n t r a l E u r o p e P i p e l i n e O f f i c e . The P i p e l i n e Of f i ce w a s s t a f f e d by
r e p r e s e n t a t i v e s of t h e u s e r n a t i o n s , wi th a SACEUR r e p r e s e n t a t i v e s e r v i n g
a s c h a i r m a n , and CINCENT supplying t h e s e c r e t a r i a t . Th i s o f f i ce a s s u m e d
c o n t r o l , both o p e r a t i o n a l and t e c h n i c a l , of the s y s t e m , sub j ec t to the a p p r o v a l
of t h e P i p e l i n e P o l i c y C o m m i t t e e . Con t ro l w a s e x e r c i s e d by :
(1) D e t e r m i n i n g s t a n d a r d s of o p e r a t i o n and m a i n t e n a n c e which m e t
t h e m i n i m u m r e q u i r e m e n t s of NATO and t h e m i n i m u m s t a n d a r d s
of h o s t c o u n t r i e s .
(2) E n s u r i n g qua l i ty c o n t r o l and i n s p e c t i o n of f u e l .
(3) D e t e r m i n i n g the t y p e s , q u a n t i t i e s and d e s t i n a t i o n of f u e l to be I
t r a n s p o r t e d and s t o r e d .
(4) Consu l t a t i on wi th a p p r o p r i a t e na t iona l and NATO b o d i e s o r au tho -
r i t i e s to e n s u r e fu l l u s e of a l l a v a i l a b l e m e a n s of m o v e m e n t .
(5) D i s c h a r g i n g f i n a n c i a l and account ing f u n c t i o n s which m i g h t be
r e q u i r e d .
The na t i ona l r e p r e s e n t a t i v e s c o n t r o l l e d the input and output of na t i ona l
s t o c k s of f u e l , m a i n t a i n i n g the n e c e s s a r y r e c o r d s .
- C e n t r a l E u r o p e O p e r a t i n g Agency. T h i s a g e n c y w a s r e s p o n s i b l e f o r t h e
o p e r a t i o n a l and t e c h n i c a l c o n t r o l a s ou t l ined above . It w a s u n d e r t h e c o n t r o l
of a gene ra l m a n a g e r and had s e v e r a l s e c t i o n s , e .g . B u d g e t a r y , P e r s o n n e l and
O p e r a t i o n s . ^ 1
N o r t h e r n and Southern R e g i o n s . The NATO P i p e l i n e C o m m i t t e e a c t e d
a s a c o n t r o l l i n g agency f o r t h e N o r t h e r n and Sou the rn R e g i o n s and w a s c o m p o s e d
of t h e s a m e p e r s o n n e l a s f o r t h e C e n t e r . The na t iona l p i p e l i n e o rgan iza t ions
w e r e c o n t r o l l e d by t h e hos t n a t i o n s , in f u l l c o n s u l t a t i o n with the m i l i t a r y a u -
t h o r i t i e s . SACEUR e x e r c i s e d the s u p e r v i s i o n and c o o r d i n a t i o n of the v a r i o u s
(11) F o r a f u l l d e s c r i p t i o n of the POL. S y s t e m , s e e C-M(56) 129, dtd 11 Dec 56.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p i p e l i n e s y s t e m s in a c c o r d a n c e wi th h i s t e r m s of r e f e r e n c e , and had a r e -
p r e s e n t a t i v e a t , but no t i n t e g r a t e d in to , t he h e a d q u a r t e r s of t h e na t iona l o r g a -
n i z a t i o n . C r o s s - s e r v i c e a g r e e m e n t s w e r e execu ted by hos t n a t i o n s wi th u s e r
n a t i o n s , if any, t o c o v e r s e r v i c e s r e n d e r e d by t h e h o s t n a t i o n . SACEUR c o -(12)
o r d i n a t e d t h e execu t ion of s u c h c r o s s - s e r v i c e a g r e e m e n t s .
T h e l e g a l s t a t u s of t h e C e n t r a l Europe p i p e l i n e o r g a n i z a t i o n w a s a p p r o v e d
by t h e N o r t h A t l an t i c Counc i l on 10 J u l y 1957. The P o l i c y C o m m i t t e e w a s t h u s
a b l e t o appoint a G e n e r a l M a n a g e r e a r l y in August 1957. I n t e r i m f i n a n c i a l
a r r a n g e m e n t s f o r t h e o p e r a t i n g a g e n c y w e r e m a d e , a l though d i s c u s s i o n s w e r e
n o t c o m p l e t e d by t h e end of t h e y e a r . T h e P o l i c y C o m m i t t e e a l s o d i i é ù s s e d
t h e p r o c e d u r e s t o b e adop ted w h e n t ak ing ove r n e w p i p e l i n e s , and t e c h n i c a l (13) p r o b l e m s c o n n e c t e d wi th t h e i r u s a g e /
The S H A P E r e c o m m e n d e d Ninth S l ice I n f r a s t r u c t u r e P r o g r a m i n c l u d e d
a P O L p r o j e c t f o r t h e e x t e n s i o n of a p i p e l i n e in E a s t e r n T u r k e y at a t o t a l c o s t I
of a p p r o x i m a t e l y L 2 .14 m i l l i o n . F o r t h r e e y e a r s , T u r k e y h a d p l a c e d g r e a t
e m p h a s i s on t h i s p r o j e c t , bu t S H A P E had not a c c e p t e d Tv tkey ' s r e q u e s t f o r
e i t h e r t h e Seventh o r E igh th S l i c e s . A f t e r r e - s t u d y h o w e v e r , SHAPE a g r e e d (14) t h a t t h e p r o j e c t w a s j u s t i f i e d and e l i g ib l e f o r c o m m o n f u n d i n g /
J u s t b e f o r e t h e m e e t i n g he ld at S H A P E b e t w e e n n a t i o n a l m i l i t a r y d e l e -
g a t e s and S H A P E p l a n n e r s on 3 - 4 S e p t e m b e r 1957, T u r k e y s u g g e s t e d t h a t
c e r t a i n add i t i ons to t h e P O L s y s t e m w e r e r e q u i r e d in add i t ion t o t h e one p r o -O S )
j e c t a l r e a d y r e c o m m e n d e d f o r t h e Ninth S l i c e /
The p u r p o s e of t h e T u r k i s h p r o p o s a l w a s t o i n s u r e a g a i n s t t h e c o n s e q u e n c e s
of a n t i c i p a t e d w a r d a m a g e t o P O L f a c i l i t i e s in E a s t e r n and W e s t e r n T u r k e y
by t h e p r o v i s i o n of a l t e r n a t i v e m e a n s of r e - s u p p l y and d i s t r i b u t i o n . The p r o p o s a l
(12) Ibid - P a r t II of Annex. (13) CR(57)48 da t ed 10 J u l 57: The L e g a l S ta tus of the P O L O r g a n i s a t i o n . See :
L o g i s t i c s Q u a r t e r l y R e p o r t of P r o g r e s s . (14) See P R O G 6 1 0 0 / I P - 4 4 / 5 7 da t ed 28 F e b 57: I n f r a s t r u c t u r e P r o b l e m s i n
T u r k e y . (15) See C h a r t p r e p a r e d by P r o g r a m s Div is ion f o r SACEUR.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
incorporated alternative discharge facil it ies, 1100 kilometers of line, and
associated storage at a further total cost of L 12 million. SHAPE planner«
s t re s sed the fact that infrastructure projects had to be restricted to minimum
essential projects, and that the expenditure envisaged could not be viewed
favourably under infrastructure arrangements at that t i m e / * ^
There was no discussion on this subject during the September lair»*
structure Conference, but Turkey placed a reservation on the Ninth Slice on .
the bas is of Military Committee comments excluding the projects. However*
this reservation was lifted at the Military Committee meeting of 11 December
1 B T . I"!
(16) See brief dtd 30 Aug 1957 prepared for Chief of Staff's visit to Tarkey. (17) See brief prepared for SACEUR: "Turkish Request for Sqpplemenkary
POL Programming", December 1957. See also: SCO IN 6426 dtd 19 Ang 1957: Msg from MOD Turkey to SACEUR.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
1FTATO SEGRET.
CHAPTER VH
Part II - Infrastructure
Introduction.
The uncertainty of the nations regarding the cost of the logistic support
necessary for ACE forces during the period 1958-1963 compelled SHAPE to
take measures to slow down construction of support facil it ies. In 1956, the
nations had expressed their concern at the r i se in construction costs and had
called for an examination of the whole program of planned construction. SHAPE
carried out a stringent screening in conjunction with the International Staff,
and recommended the suspension of certain projects. Publication of the Mini-
mum Forces Study had increased the problem because it was obvious that
additional construction would be necessary during the next five years.
As in the case of logistic planning, 1957 was a year of consolidation.
Exisliag plans for future construction were delayed pending Council decisions
which would enable SHAPE to plan new construction programs. Thus all
construction, whether finished or not, could be examined as to the continued
military usefulness of each installation.
Infrastructure and 'Allied Command Europe. Infrastructure, simply defined
consisted of those fixed installations such as airfields, telecommunications
networks and fuel pipelines, which were necessary to support military forces
in peace and war. The infrastructure for SACEUR's forces was financed in two
w ay s. The nations paid for purely national support installations themselves.
The major use of these installations was by the nation which financed them.
NATO common infrastructure, on the other hand, was paid for by all the
nations on a cost-sharing basis , and the installations were for use by two or
more member nations. This system of finance had been agreed by the lKZorth
189
N X T S = B B G K E f
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5.7/67 j ^ x 0 S ^ C & E l L "'" " T " " ^
A t l an t i c Counci l in D e c e m b e r 1 9 5 1 . 8 ^
S A C E U R ' s Respons ib i l i t i e s .
SACEUR w a s g iven the r e s p o n s i b i l i t y of c o o r d i n a t i n g i n f r a s t r u c t u r e
c o n s t r u c t i o n , in o r d e r t ha t t he s t r a t e g i c d e p l o y m e n t of h i s f o r c e s could be
f u l l y s u p p o r t e d . The n a t i o n s s u b m i t t e d p r o j e c t s fo r c o m m o n f inanc ing t o
SACEUR and he d e c i d e d on t h e m i l i t a r y u s e f u l n e s s and the g e o g r a p h i c a l
l o c a t i o n of t h e s e p r o j e c t s . S H A P E w a s r e s p o n s i b l e f o r p r e p a r i n g c o s t e s t i -
m a t e s and t i m e t a b l e s showing c o m p l e t i o n d a t e s . E n g i n e e r i n g p l a n s w e r e
r e v i e w e d at S H A P E t o m a k e s u r e tha t t hey c o m p l i e d wi th S A C E U R ' s o p e r a -
t i o n a l s t a n d a r d s . SACEUR w a s g iven the r i g h t to m a k e i n s p e c t i o n s both d u r i n g
and a f t e r c o n s t r u c t i o n . In t h e c a s e of p u r e l y na t iona l c o n s t r u c t i o n p a i d f o r
by ind iv idua l n a t i o n s , SACEUR w a s d i r e c t e d to do e v e r y t h i n g p o s s i b l e to s e e
tha t n a t i o n s d i s c h a r g e d t h e i r r e s p o n s i b i l i t y f o r p r o v i d i n g the p o r t i o n of t h e i r
i n f r a s t r u c t u r e n e c e s s a r y f o r s u p p o r t of t h e i r f o r c e s a s s i g n e d to ACE.
The p r o c e d u r e s f o r the p lanning and c o n s t r u c t i o n of p r o j e c t s f i n a n c e d
u n d e r c o m m o n funding had been e s t a b l i s h e d by the N o r t h At l an t i c Counci l in
I 9 5 3 . Dur ing the f i r s t p a r t of e a c h y e a r , SACEUR r e c e i v e d s u b m i s s i o n s on
p r o j e c t s to be inc luded in a y e a r l y p r o g r a m of c o n s t r u c t i o n . T h e s e s u b m i s -
s i o n s w e r e s c r e e n e d by SHAPE and i n c o r p o r a t e d in a r e c o m m e n d e d Sl ice .
SACEUR sen t t h i s r e c o m m e n d e d Sl ice t o the Standing Group by 1 Ju ly f o r
i n c l u s i o n in an o v e r a l l NATO I n f r a s t r u c t u r e P r o g r a m . The Standing Group
s c r e e n e d the r e c o m m e n d a t i o n s m a d e by the S u p r e m e C o m m a n d e r s and m a d e
i t s r e c o m m e n d a t i o n s to t h e M i l i t a r y C o m m i t t e e by 1 O c t o b e r . F i n a n c i a l (19) a p p r o v a l w a s t hen g iven by the Counci l a f t e r f u r t h e r s c r e e n i n g /
(18) F o r a u s e f u l s u m m a r y of the p r i n c i p l e of NATO c o s t - s h a r i n g , t o g e t h e r wi th a s h o r t h i s t o r y of NATO C o m m o n I n f r a s t r u c t u r e , s e e : " F a c t s about N A T O " p u b l i s h e d by t h e NATO I n f o r m a t i o n S e r v i c e at t h e P a l a i s de Cha i l lo t . Annex B 4 Sect ion II p a g e s 1 - 2 , and Sect ion III p a g e s 1 - 2 . D-D(51)290(Rev i sed) da t ed 7 D e c e m b e r 1951 g i v e s t h e a g r e e m e n t by the N o r t h At lan t ic Counc i l ; s e e a l a o SHAPE H i s t o r y Vo lume I Sec t ion III, C h a p t e r 9 f o r the e a r l y h i s t o r y .
190 M / o - N A S Q ^ g E C R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SACEUR g a v e s p e c i f i c gu idance t o h i s s u b o r d i n a t e c o m m a n d e r s on
t h e p l a n n i n g of N A T O C o m m o n I n f r a s t r u c t u r e , s t r e s s i n g t h e i m p o r t a n c e of
c l o s e l i a i s o n wi th na t i ona l a u t h o r i t i e s and t h e NATO T e c h n i c a l Staff d u r i n g
t h e i n i t i a l p l ann ing of new p r o j e c t s . He po in t ed out tha t a l lnew c o n s t r u c t i o n
h a d t o b e p l a n n e d on t h e m o s t a u s t e r e b a s i s t o s a t i s f y only the e s s e n t i a l m i n i -
m u m o p e r a t i o n a l r e q u i r e m e n t s . ^ ^
NATO C o m m o n I n f r a s t r u c t u r e P r o g r a m s b e f o r e 1956.
In A p r i l 1953, t h e Counc i l h a d a p p r o v e d an o v e r a l l ce i l ing of L. 250 m i l -
l i on f o r t h e n e x t t h r e e y e a r s c o v e r i n g S l i ce s F i v e , Six and Seven, t o p r o v i d e
i n f r a s t r u c t u r e s u p p o r t fo r t h e A C E and ACL ANT f o r c e s e x p e c t e d t o b e a v a i -
l a b l e by t h e end of 19.57.^21^
With t h e a p p r o v a l of t h e Seventh S l ice P r o g r a m i n A p r i l 1956, t h e
L 250 m i l l i o n a u t h o r i z e d w a s e n t i r e l y c o m m i t t e d , w i t h t h e excep t ion of a
c o n t i n g e n c y f u n d t o i n s u r e c o m p l e t i o n of S l i c e s Two to Seven. On 27 A p r i l
1956, t h e M i l i t a r y C o m m i t t e e s u b m i t t e d a r e q u e s t t o t h e N o r t h At lan t ic Cotincil
t o m a k e add i t i ona l f u n d s a v a i l a b l e f o r t h e f i nanc ing of f u t u r e i n f r a s t r u c t u r e
p r o j e c t s d u r i n g t h e p e r i o d 1957-59 . The M i l i t a r y C o m m i t t e e r e c o m m e n d e d (22)
t h e s u m of L 325 m i l l i o n / '
" P r e s e n t e d a t a t i m e of i n t e r n a t i o n a l d e t e n t e du r ing which m a n y n a t i o n s
w e r e m a k i n g v i g o r o u s e f f o r t s to r e d u c e t h e i r d e f e n s e a p p r o p r i a t i o n s and w e r e
q u e s t i o n i n g t h e n e c e s s i t y of m a i n t a i n i n g l a r g e conven t iona l f o r c e s , t h e M i l i t a r y
C o m m i t t e e r e q u e s t w a s the sub j ec t of long and d i f f i cu l t d i s c u s s i o n s by the
Counc i l . (19) C-M(53)18 , 6 M a r 53, g i v e s the b u d g e t a r y c o n t r o l p r o c e d u r e s a s s e t up
by t h e Counc i l . (20) L o g i s t i c P o l i c y and Guidance ACE, p a g e 24 p a r a 203 (f) . (21) F o r a h i s t o r i c a l s u m m a r y in g r a p h i c f o r m , s e e the I n f r a s t r u c t u r e D a t a
Book d td 29 M a y 57. The p u b l i c a t i o n " F a c t s about NATO" a l s o g i v e s t h e h i s t o r i c a l b a c k g r o u n d to S l i c e s I t h r o u g h VU.
(22) M C 3 2 / 6 ( F i n a l ) , 27 Apr 56. (23) M C 32/9 , : 18 Dec 56, p a r a 10.
191 •••:/.•.... V V A H V I
• NA T O - J J B S R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
On 14 Augus t 1956, t h e Counci l d e c i d e d to a u t h o r i z e f u r t h e r i n f r a s t r u c -
t u r e p r o v i s i o n c o v e r i n g a f o u r y e a r p e r i o d and with a f i n a n c i a l ceiling of
Li 225 m i l l i o n . T h i s f i n a n c i a l ce i l ing inc luded a 10% con t ingency fund and
a l s o L 19 m i l l i o n to f i n a n c e a p o r t i o n of t h e 1956 p r o g r a m in G e r m a n y . T h i s
l e f t a s u m of L 183.5 m i l l i o n f o r t h e two S u p r e m e C o m m a n d e r s s i nce Channe l
C o m m a n d saw no r e q u i r e m e n t f o r the p e r i o d c o v e r e d . The Standing Group
a p p o r t i o n e d t h e f u n d s a v a i l a b l e f o r p lann ing p u r p o s e s a s f o l l o w s :
SACEUR L 147 m i l l i o n ;
SACLANT L 36.5 m i l l i o n . ^
T h r e e d a y s a f t e r t h e Counci l d e c i s i o n , SACEUR s u b m i t t e d h i s E igh th (25)
S l ice 1957 NATO C o m m o n I n f r a s t r u c t u r e P r o g r a m / '
The E i g h t h S l i c e P r o g r a m w a s d i s c u s s e d at a m e e t i n g b e t w e e n na t iona l
m i l i t a r y d e l e g a t i o n s and SHAPE l o g i s t i c p l a n n e r s he ld at SHAPE du r ing
S e p t e m b e r 1956. The d e l e g a t e s w e r e to ld tha t b e f o r e the Counci l d e c i s i o n
t o p r o v i d e f u n d s f o r a f o u r - y e a r p e r i o d , SHAPE had deve loped a L 211 m i l l i o n
p r o g r a m f o r a t h r e e - y e a r p e r i o d , The Eighth Sl ice p r o g r a m then . r e c o m m e n d e d
had to be p l a n n e d on a m u c h r e d u c e d f i g u r e of L 147 m i l l i o n , and so SHAPE h a d deve loped a p r o g r a m of L 80 m i l l i o n , l ead ing L 67 m i l l i o n f o r the r e m a i n i n g
( 2 6 ) t h r e e y e a r s .
As a r e s u l t of t h i s m e e t i n g with t h e na t iona l d e l e g a t e d , a r e v i s e d Eighth
Sl ice P r o g r a m w a s s u b m i t t e d t o t h e Standing Group on 10 O c t o b e r 1956. The 1
Standing Group , in t u r n , m a d e a p r e l i m i n a r y r e p o r t t o the M i l i t a r y C o m m i t t e e (27)
on 15 N o v e m b e r 1 9 5 6 / '
The 1957 I n f r a s t r u c t u r e P r o g r a m - SHAPE R e c o m m e n d e d E igh th Sl ice P r o g r a m .
The t o t a l c o s t e s t i m a t e of SACEUR' s Eighth Slice P r o g r a m , a s s u b m i t t e d
(24) STAND 1603 dtd 3 Aug56. (25) AG 6 1 0 0 / 8 / E - 3 5 5 / L O G , 17 Aug 56. (26) AG 6 1 0 0 / 8 / I P - 2 / 5 6 P R O G , 28 Sep 56. T h i s con ta in s a s u m m a r y of the
m e e t i n g , wi th an exp lana t ion of SHAPE 'S thinking by M a j o r G e n e r a l B e s s o n , ACOS P r o g r a m s .
(27) SG 137 /52 , s u m m a r i z e d in AG 6 I O O / 8 / I P - I 2 / P R O G , 17 Nov 56.
J 9 i » m m m m m ,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t o t h e M i l i t a r y C o m m i t t e e , w a s L 78 .635 m i l l i o n . S t r ingen t s c r e e n i n g had
r e s u l t e d in the de l e t i on of L 200 m i l l i o n . N e v e r t h e l e s s , t he E igh th Sl ice
( t o g e t h e r wi th S A C L A N T ' s p r o g r a m ) a c c o u n t e d f o r a p p r o x i m a t e l y 51% of the
f u n d s a u t h o r i z e d by t h e Counci l f o r t h e new f o u r - y e a r p r o g r a m . J n a c c o r d a n c e
w i t h Standing G r o u p i n s t r u c t i o n s , SHAPE had inc luded in i t s p r o p o s a l s only
t h o s e p r o j e c t s w h o s e m i l i t a r y n e c e s s i t y w a s f u l l y j u s t i f i e d and which w e r e c a -
p a b l e of r a p i d i m p l e m e n t a t i o n in the l igh t of t h e c u r r e n t p o l i t i c a l s i t ua t ion ,
c o n s t r u c t i o n and e c o n o m i c c a p a c i t y of hos t n a t i o n s , and t h e a v a i l a b i l i t y of (28)
l a n d , so tha t t he back log of a p p r o v e d p r o j e c t s would not be i n c r e a s e d .
The p r o j e c t s w e r e c o n s i d e r e d t o be c o n s i s t e n t wi th c u r r e n t s t u d i e s on
t h e p o s t u r e and s t r a t e g y of NATO f o r c e s , and c o m p r i s e d p r i m a r i l y :
a . The F o r w a r d Sca t t e r S y s t e m , a l r e a d y a p p r o v e d by t h e Counc i l ;
b . An I n t e g r a t e d E a r l y Warn ing S y s t e m ;
c . The c o n v e r s i o n of a n u m b e r of t a c t i c a l a i r f i e l d s a l r e a d y a p p r o v e d
u n d e r p r e v i o u s s l i c e s , and t h e c o n s t r u c t i o n of new a i r f i e l d s ;
d. The p r o v i s i o n of a n u m b e r of a i r f i e l d s t o g e t h e r with a d e q u a t e s u p p o r t
f a c i l i t i e s f o r t ha t p a r t of t h e G e r m a n Air F o r c e which would be a s s i g n e d to
SACEUR d u r i n g t h e p e r i o d c o v e r e d .
F i n a n c i n g t h e F o r w a r d Sca t t e r S y s t e m - E igh th S l ice .
The Counci l h a d a p p r o v e d the m u l t i l a t e r a l f inanc ing of the F o r w a r d
S c a t t e r S y s t e m u n d e r " the m o s t exped i t ious m e thod of p r o v i s i o n of NATO (29)
f u n d s a s wi l l p e r m i t t h e a c c o m p l i s h m e n t of the s y s t e m ! ' v
The Counc i l d e c i d e d tha t the s y s t e m should be i n c l u d e d in the E igh th
S l i ce . At a Counc i l m e e t i n g he ld on 18 J u l y 1956, a p p r o v a l had b e e n g iven
t o t h e p r o v i s i o n of a p p r o x i m a t e l y L 12.14 m i l l i o n . ( T h e r e w e r e c e r t a i n r e s e r -
v a t i o n s m a d e ; s e e C-R(56)40 da t ed 21 J u l y 1956.) The I n f r a s t r u c t u r e C o m m i t t e e
(28) Standing G r o u p i n s t r u c t i o n s w e r e con ta ined in STAND 1603 dtd 3 Aug 56. (29) M C 59(Rev i sed F i n a l ) p a r a 16d, d td 16 M a r 56. D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
I M « I - . - ; . V — « -TAfT S H A P E 5 7 / 6 7 NATO « E C R E X .
w a s I n s t r u c t e d t o c o n s i d e r a r e q u e s t f r o m SACEUR f o r L 600, 000 to b e m a d d
a v a i l a b l e to enab le s t u d i e s f o r d e t a i l e d p lann ing to s t a r t on t h e s y s t e m at once
E a r l y W a r n i n g R a d a r S y s t e m - Advance Approva l .
The I n f r a s t r u c t u r e C o m m i t t e e r e c o m m e n d e d a d v a n c e a p p r o v a l f o r t h e
p r o v i s i o n of t h e t e c h n i c a l equ ipmen t n e e d e d f o r t h e 18 r a d a r s t a t i o n s progra ix l
m e d t inder the E igh th S l i ce . The C o m m i t t e e had s c r e e n e d t h e r e l e v a n t p a r t
of t h e p r o g r a m , and t h e t o t a l c o s t w a s e s t i m a t e d to be L 11.85 m i l l i o n . ^ ^
The I n f r a s t r u c t u r e C o m m i t t e e s t a t e d tha t a d v a n c e a p p r o v a l t o t h i s p o r -
t i o n of the p r o g r a m would e n a b l e S H A P E to go ahead wi th d e t a i l e d p lann ing and
a r r a n g e m e n t s fo r t h e i n s t a l l a t i o n of the s y s t e m .
The C o m m i t t e e a s k e d t h e Co\incil t o give i t s f o r m a l a p p r o v a l to NATO
c o m m o n f i nanc ing f o r t h e c o n s t r u c t i o n of t h e i n t e g r a t e d e a r l y w a r n i n g s y s t e m
a s l a i d down in M C 61 ( F i n a l ) . The Counci l a l so w a s a s k e d t o a g r e e tha t the
c o s t s of m a i n t e n a n c e and o p e r a t i o n s of t h e Eighth S l ice p r o j e c t s would be
c o m m o n l y f i n a n c e d , and t h a t a s o the r s t a t i o n s w e r e i n c o r p o r a t e d in to t h e
s c h e m e , c o m m o n f i nanc ing would be a p p r o v e d in p r o p o r t i o n to the d e g r e e
of NATO u s e / 3 1 ^
At a Counci l m e e t i n g h e l d on 9 J a n u a r y 1957, i t w a s d e c i d e d t o a p p r o v e
t h e e s t a b l i s h m e n t of t h e E a r l y Warn ing S y s t e m a s r e c o m m e n d e d in MC 61
( F i n a l ) . A f t e r d i s c u s s i o n , t h e Counci l a g r e e d to a p p r o v e the r e m a i n d e r of t h e
I n f r a s t r u c t u r e C o m m i t t e e ' s p r o p o s a l s s u b j e c t s to i t s two cond i t ions s t a t e d
i n C-M(56)140 :
1. That t h e e x p e n d i t u r e of NATO f u n d s f o r t h e e a r l y w a r n i n g s y s t e m ' s
l o c a l u t i l i t i e s would not e x c e e d t h e amoun t n e c e s s a r y to c o n s t r u c t t h e s e u t i l i -
t i e s up to such s t a n d a r d s , t o be a g r e e d upon, a s w e r e n e c e s s a r y to s a t i s f y
m i n i m u m m i l i t a r y r e q u i r e m e n t s .
(30) C-M(56)140 , and append ix I showing de t a i l ed c o s t s . (31) C-M(56)140 .
m w m m w 194
ICS I U ÛJLLRLÎ
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
2. That in c a s e s , in p a r t i c u l a r wi th r e s p e c t to a c c e s s r o a d s , w h e r e
h o s t c o u n t r i e s m i g h t d e r i v e an a p p r e c i a b l e bene f i t f r o m the u t i l i t i e s t o be
t h u s c o n s t r u c t e d , t h e hos t c o u n t r y would a s s u m e a r e a s o n a b l e s h a r e in t h e
c o s t , wh ich s h a r e would be d e t e r m i n e d b e f o r e the c o n s t r u c t i o n w a s au tho -
r i z e d by t h e I n f r a s t r u c t u r e P a y m e n t s and P r o g r e s s C o m m i t t e e .
T h e Counc i l a l s o no ted tha t t h e I n f r a s t r u c t u r e C o m m i t t e e would con t inue (32) t o s c r e e n p r o j e c t s on a " c a s e - b y - c a s e " b a s i s .
T h e T a c t i c a l A i r f i e l d s P r o b l e m - E igh th S l ice .
The p r o j e c t s r e c o m m e n d e d by SACEUR f o r the E igh th Sl ice P r o g r a m
i n c l u d e d t h e f o l l o w i n g :
a . Const ruct ion of f o u r new t a c t i c a l a i r f i e l d s in G e r m a n y ;
b . C o n v e r s i o n of s ix na t iona l a i r f i e l d s in B e l g i u m , F r a n c e and the
N e t h e r l a n d s t o m e e t t h e new s q u a d r o n a i r f i e l d c r i t e r i a ;
c . C o n v e r s i o n of f i f t y - f o u r t a c t i c a l a i r f i e l d s a p p r o v e d u n d e r p r e v i o u s
p r o g r a m s to m e e t t h e new NATO s t a n d a r d s ;
d . E x t e n s i o n of r u n w a y s at t h i r t y - t w o a i r f i e l d ^ > r o g r a m m e d i n p r e v i o u s
s l i c e s ;
e . P r o v i s i o n of wing f ac i l i t i e s at t h r e e a i r f i e l d s in G e r m a n y ;
f . Addi t ion of an a u x i l i a r y s t r i p a t f i v e a i r f i e l d s in D e n m a r k and N o r w a y ;
g. S t r eng then ing of p a v e m e n t at s ix a i r f i e l d s in D e n m a r k and T u r k e y .
T h e t o t a l c o s t of t h e s e f a c i l i t i e s w a s e s t i m a t e d to be L. 30.615 m i l l i o n .
The above a i r f i e l d p r o g r a m w a s b a s e d on t h e fo l lowing m a i n r e q u i r e m e n t s :
a . Suppor t of a i r f o r c e u n i t s e x p e c t e d to be a v a i l a b l e to SACEUR at end
1958, o r , in the c a s e of G e r m a n un i t s , du r ing the f i r s t half of 1959;
b . I m p l e m e n t a t i o n of the p r e v i o u s l y a p p r o v e d d i s p e r s a l p o l i c y by c o n -
v e r s i o n of p r e v i o u s l y p r o g r a m m e d a i r f i e l d s to the new s t a n d a r d s , and by a J
l i m i t e d expandion of t h e a i r f i e l d c o m p l e x in the C e n t r a l Reg ion ;
(32) C - R ( 5 7 ) 2 da t ed 11 J a n u a r y 1 9 5 7 , p a r a 13. Th i s documert a p p r o v e s C-M(56)140 .
195
r - N A T O ftU.t .OAH.'y-
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
c . E x t e n s i o n of r u n w a y s to explo i t t h e f u l l o p e r a t i o n a l c a p a b i l i t i e s (33)
of n e w t y p e s of a i r c r a f t / '
In d i s c u s s i n g t h e p r o b l e m of a i r f i e l d c o n s t r u c t i o n , t h e M i l i t a r y C o m -
m i t t e e r e p o r t e d tha t "SACEUR s t a t e s t h a t wi th t h e a i r f i e l d s a p p r o v e d in the
Seventh S l ice , t he N o r t h e r n and Sou the rn R e g i o n s vfll h a v e m o r e than a t t a i ned
t h e m i n i m u m a i r f i e l d c o m p l e x wh i l s t t h e C e n t r a l Reg ion , even wi th t h e a d d i -
t i o n a l a i r f i e l d s r e c o m m e n d e d i n t h e p r e s e n t p r o g r a m , wi l l s t i l l be s h o r t of
t h e m i n i m u m goa l . SACEUR f u r t h e r s t a t e s tha t in e s t i m a t i n g h i s a i r f i e l d
r e q u i r e m e n t s , he h a s a l s o t a k e n in to accoun t t h e b r o a d c o n c l u s i o n s of the
s t u d y . " ( T h i s r e f e r r e d t o t h e 1960-62 s tudy. ) The r e p o r t of t h e M i l i t a r y C o m -
m i t t e e con t i nued : "whi le t h e o v e r a l l f o r c e r e q u i r e m e n t s e n v i s a g e d in tha t
s tudy h a v e not been b r o k e n down t o c o u n t r i e s , t h e p r e s e n t p r o g r a m d o e s not
e x c e e d t h e o v e r a l l a i r f i e l d r e q u i r e m e n t s a s m i g h t r e s u l t f r o m t h e c o n c l u s i o n s
of t h i s b r o a d s tudy , s p e c i f i c a l l y a s r e g a r d s t h e C e n t r a l Reg ion , w h e r e t h e
g r e a t e r r e d u c t i o n of p i l o t e d a i r c r a f t m i g h t t a k e p l a c e . "
" In v i ew of the d i f f i c u l t i e s a n t i c i p a t e d by t h e G e r m a n a u t h o r i t i e s in
a c q u i r i n g t h e n e c e s s a r y l a n d f o r a i r f i e l d s and of the d e l a y s i n h e r e n t in i m -
p l e m e n t i n g a c o n s t r u c t i o n p r o g r a m of t h e s i z e of t h e G e r m a n p r o g r a m ,
SACEUR c o n s i d e r s , and t h e M i l i t a r y C o m m i t t e e a g r e e s , tha t a l l a i r f i e l d s
r e q u i r e d f o r u s e by t h e G e r m a n Ai r F o r c e t h r o u g h 30 J u n e 1959 should be
r e t a i n e d in t h e E igh th Sl ice in o r d e r to e n s u r e t h a t t he a i r f i e l d s a r e c o m p l e t e d
i n t i m e . T h i s i s c o n s i s t e n t wi th l a s t y e a r ' s p o l i c y wh ich p r o v i d e d f o r G e r m a n
a i r f i e l d r e q u i r e m e n t s t h r o u g h 30 J u n e 1958. On the a s s u m p t i o n tha t t h i s p o -
l i c y would be a c c e p t e d a g a i n f o r the p r e s e n t p r o g r a m and on the b a s i s of
f o r c e a v a i l a b i l i t y d a t a deve loped f r o m t h e 1955 Annual R e v i e w , SACEUR had
o r i g i n a l l y r e c o m m e n d e d s e v e n add i t iona l a i r f i e l d s f o r p r i m a r y u s e of the
G e r m a n Ai r F o r c e . H o w e v e r , t h e G e r m a n r e p l y to the 1956 Annual R e v i e w
Q u e s t i o n n a i r e r e v e a l e d a s l i gh t s l i ppage in t h e b u i l d - u p of the G e r m a n Ai r
(33) M C 60 (F ina l ) , 9 J u l 56, and SHAPE 'S Study 2 3 0 / 5 6 AG 1 2 2 3 / 2 P P , 28 Sep56.
M m ^ m w r n - , 196
"NATO a f l f a H A g —
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
F o r c e on t h e b a s i s of t h i s i n f o r m a t i o n and the n u m b e r of a l r e a d y a p p r o v e d
a i r f i e l d s , SACEUR h a s r e d u c e d t h e G e r m a n Ai r F o r c e r e q u i r e m e n t s f r o m
s e v e n t o f o u r . S A C E U R ' s r e a s o n f o r excluding t h e F o u r t h Sl ice F r a n k f u r t
a r e a a i r f i e l d i s t h a t t h e h o s t na t i on h a s not been ab le to m a k e a v a i l a b l e a s i t e
and c o n s e q u e n t l y i t h a s been a s s u m e d tha t wi th in t h e p e r i o d u n d e r r e v i e w , the
a i r f i e l d wi l l not be a v a i l a b l e t o m e e t t h e r e q u i r e m e n t s of the p r e s e n t l y p l a n n e d
G e r m a n Ai r F o r c e b u i l d - u p . The M i l i t a r y C o m m i t t e e c o n s i d e r s t ha t a s f u n d s
f o r t h e F r a n k f u r t , a i r f i e l d h a v e b e e n a v a i l a b l e f o r s o m e t i m e , t h e r e i s no j u s -
t i f i c a t i o n f o r p r o g r a m m i n g a n o t h e r at t h i s t i m e . The F o u r t h Sl ice f u n d s should
b e u t i l i z e d e i t h e r at F r a n k f u r t o r a t s o m e o ther l o c a t i o n in o r d e r t o m e e t t h e (34) r e q u i r e m e n t f o r a f o u r t h a i r f i e l d in 1959 . "
T h e Eigh th S l ice I n f r a s t r u c t u r e P r o g r a m i s Approved .
The M i l i t a r y C o m m i t t e e c o n s i d e r e d tha t S A C E U R ' s p r o g r a m w a s sound
and t h a t t h e r e w a s a su f f i c i en t d e g r e e of c o m m o n u s a g e or NATO i n t e r e s t f o r
t h e p r o j e c t s pu t f o r w a r d . The C o m m i t t e e r e c o m m e n d e d a p p r o v a l by the Coun-
c i l s u b j e c t t o t h e fo l lowing c o n s i d e r a t i o n s :
a . Tha t con t inuous s c r e e n i n g would be c a r r i e d out by t h e I n t e r n a t i o n a l
Staff and S u p r e m e C o m m a n d e r s wi th t h e a i m of e s t a b l i s h i n g t h e m o s t e f f e c t i v e
m e t h o d s of i m p l e m e n t i n g the p r o p o s a l s .
b . T h a t , d u r i n g t h i s p r o c e s s , t h e a g r e e d c o n c e p t s d e t e r m i n i n g the s t r a -
t e g y and p o s t u r e of NATO f o r c e s should be b o r n e in m i n d .
c . That should t h e r e be any s ign i f ican t c h a n g e s to " p r e s e n t l y e s t i m a t e d
f o r c e b u i l d - u p , s u c h c h a n g e s wi l l be r e f l e c t e d by r e l e v a n t a m e n d m e n t s to . 1 ( 3 5 )
t h e s e p r o g r a m s . " x
The p r o g r a m w a s nex t t a k e n u n d e r r e v i e w by t h e I n f r a s t r u c t u r e C o m -
m i t t e e f r o m J a n u a r y un t i l 29 M a r c h 1957. Dur ing t h i s p e r i o d , t h e r e w a s
(34) M C 3 2 / 9 ( F i n a l ) , 20 Dec 56. (35) I d e m . D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
m u c h d i s c u s s i o n on the f u t u r e i n f r a s t r u c t u r e r e q u i r e m e n t s of A C E And pos«
8 ib le r e d u c t i o n s in t h e n u m b e r of a i r f i e l d s unde r t h e new 1960-62 P o s t u r e ,
G e n e r a l N o r s t a d had d e c i d e d tha t t h e r e w a s an ex i s t ing m i l i t a r y r e q u i r e m e n t
f o r a l l a i r f i e l d s p r o g r a m m e d u n d e r Sl ice Seven and p r o p o s e d for Sl ice Eight i (36)
a l though t h e r e m i g h t b e a d o w n w a r d s r e v i s i o n a f t e r w a r d s .
The I n f r a s t r u c t u r e C o m m i t t e e r e c o m m e n d e d to t h e Counci l tha t a p p r o v a l
be g iven to an A C E Eigh th Sl ice P r o g r a m to t a l l i ng 1 /85 .8 mil l ion« In v i ew
of the u n c e r t a i n t y r e g a r d i n g f u t u r e a i r f i e l d r e q u i r e m e n t s , h o w e v e r , the
c o m m i t t e e r e c o m m e n d e d tha t t he Counci l should d e f e r the f inanc ing of n ine
a i r f i e l d s to t a l l i ng L 14.2 m i l l i o n .
The Counci l a c c e p t e d t h e r e c o m m e n d a t i o n s of t h e I n f r a s t r u c t u r e Com«
m i t t e e and gave a p p r o v a l to t h e E igh th Sl ice P r o g r a m of L 71 .6 m i l l i o n on
12 Apr i l H S ? / 3 7 *
The Ninth Sl ice I n f r a s t r u c t u r e P r o g r a m .
Dur ing t h e f i r s t half of 1957, SHAPE l o g i s t i c p l a n n e r s deve loped a
Ninth Sl ice of I n f r a s t r u c t u r e p r o j e c t s f o r t h e suppor t of S A C E U R ' s f o r c e s in
1958. F u t u r e r e q u i r e m e n t s fo r a i r f i e l d s w e r e e x t r e m e l y d i f f i cu l t t o d e t e r m i n e ,
The p l anned expans ion of t h e G e r m a n Air F o r c e m e a n t tha t a i r f i e l d s would
h a v e to be r e a d y to r e c e i v e t h e newly t r a i n e d u n i t s , ye t , a t t h e s a m e t i m e ,
t h e adopt ion of S A C E U R ' s new f o r c e p o s t u r e would m e a n tha t f e w e r a i r f i e l d s
would be n e e d e d in the f u t u r e .
The SHAPE R e c o m m e n d e d Ninth Sl ice P r o g r a m w a s sent to t h e Standing
Group f o r s c r e e n i n g on 2 Ju ly 1957. The e s t i m a t e d c o s t w a s L 33.6 mi l l i on ,
but SHAPE r e q u e s t e d a r e s e r v e s u m of L 8 m i l l i o n which m i g h t p o s s i b l y be
n e e d e d f o r a i r f i e l d cons t ruc t ion w o r k . Th i s add i t iona l m o n e y would be n e e d e d
only if s a v i n g s f r o m p r e v i o u s s l i c e s p r o v e d i n s u f f i c i e n t or in c a s e t h e cont ins
g e n c y fund f r o m S l i ces T w o - S e v e n w a s not a v a i l a b l e . The to t a l of L 41,6 m i l l i o n
(36) See M i n u t e s C O F S M t g w / Div Chfs , dtd 13 M a r 57. (37) M C 3 2 / 9 ( F i n a l Dec) . See a l s o C h a r t of t h e R e c o m m e n d e d P r o g r a m »
Appendix A to C-M(57)48 .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
mm ck: • . S H A P E 5 7 / 6 7 WATO S E G f t E T " " '
f o r t h e Ninth S l ice m e a n t t ha t wi th t h e E igh th Sl ice t o t a l added , only about
L 34 m i l l i o n r e m a i n e d f o r t h e A C E S l i c e s Ten and E l e v e n out of the o r i g i n a l
L 147 m i l l i o n p r o v i d e d by t h e N o r t h At l an t i c C o u n c i l / 3 8 ^
A new d a t a t r a n s m i s s i o n s y s t e m , wh ich would be c o m p l e m e n t a r y t o t h e
e a r l y w a r n i n g r a d a r s y s t e m , and a n o t h e r n e w p r o j e c t , a NIKE t r a i n i n g
i n s t a l l a t i o n , w e r e i n c l u d e d i n t h e SHAPE p r o g r a m . O v e r a t h i r d of t h e t o t a l e s -
t i m a t e d c o s t w a s f o r a i r f i e l d p r o j e c t s and t h e s e w e r e p r i m a r i l y r u n w a y e x t e n t
s i on s and p a v e m e n t r e p a i r s f o r t h e new t y p e s of a i r c r a f t .
The SHAPE p r o g r a m w a s p r e s e n t e d t o n a t i o n a l m i l i t a r y d e l e g a t e s at a
m e e t i n g he ld at S H A P E on 3 - 4 Sep tember 1957. T h e th inking behind c u r r e n t
p o l i c y w a s e x p l a i n e d and i t w a s po in t ed out t h a t t h e Ninth Sl ice w a s n e c e s s a r i l y
d e v e l o p e d wi th in t h e l i m i t s se t by c u r r e n t s t r a t e g i c p l ann ing . The M i n i m u m
F o r c e s Study w a s about to be p u b l i s h e d and t h e i m p l i c a t i o n s w e r e tha t t h e
c u r r e n t i n f r a s t r u c t u r e p o l i c y would have to be c h a n g e d in o r d e r tha t s u p p o r t
cou ld b e g iven t o t h e f o r c e s of A C E equipped wi th m i s s i l e s . A d e c i s i o n w a s
a w a i t e d f r o m t h e Counc i l on t h e c o m m o n fund ing of m i s s i l e s i t e s and t h i s would
t a k e s o m e t i m e . The N i n t h Sl ice p r o g r a m w a s , t h e r e f o r e , a p r o g r a m of c o n -
so l i da t i o n / 3 9 )
As a r e s u l t of t h e d i s c u s s i o n s he ld wi th t h e na t i ona l m i l i t a r y d e l e g a t e s ,
t h e Nin th S l i c e p r o g r a m w a s s l igh t ly a l t e r e d , and t h e t o t a l funding w a s i n c r e a s e d
t o L 42 m i l l i o n . 1
The P r o g r a m w a s sen t t o the I n f r a s t r u c t u r e C o m m i t t e e f o r s c r e e n i n g
on 25 O c t o b e r 1957 and r e m a i n e d u n d e r r e v i e w by t h e c o m m i t t e e un t i l t h e end
of t h e y e a r . A p r e l i m i n a r y r e v i e w he ld du r ing t h e l a s t week in Oc tobe r 1957
showed t h e d i f f e r ences of opinion b e t w e e n the v a r i o u s n a t i o n s ove r t h e q u e s t i o n
(38) See " R e d B o o k " - Ninth Sl ice R e c o m m e n d e d P r o g r a m , 2 J u l 57, AG 6 1 0 0 / I P - 1 0 9 / 5 7 P R O G .
(39) See AG 6 1 0 0 / D P - 1 4 9 / 5 7 P R O G f o r a good s u m m a r y of the posi t ion by M a j . G e n . B e s s o n , ACOS P R O G , SHAPE.
199
- N A L O ' O D C F T S T ./ .. I- iJ fL AL3
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
of f u t u r e i n f r a s t r u c t u r e s u p p o r t . Some c o m m i t t e e d e l e g a t e s e x p r e s s e d the
s e n t l y a p p r o v e d f u n d s , w h i l e o t h e r d e l e g a t e s e x p r e s s e d t h e v iewpoin t t h a t
s p e c i a l p r o v i s i o n s should b e m a d e . The Un i t ed Kingdom and F r a n c e p l a c e d
r e s e r v a t i o n s on t h e Ninth S l ice p r o g r a m a s a whole . S e v e r a l d e l e g a t e s thought
t ha t SHAPE 'S r e c o m m e n d a t i o n s would c o m m i t too l a r g e a p r o p o r t i o n of t h e
l i m i t e d f u n d s a v a i l a b l e and no r o o m would be l e f t f o r f u t u r e r e q u i r e m e n t s of
a h i g h e r p r i o r i t y . The e n t i r e p r o g r a m w a s s u b j e c t e d t o a v e r y c a r e f u l e x a -
m i n a t i o n . ^ ^
The I n f r a s t r u c t u r e C o m m i t t e e w a s u n a b l e t o r e a c h a d e c i s i o n on t h e
p r o g r a m a s a whole , but i t m a d e a p r o p o s a l t ha t L 7 m i l l i o n should b e e a r -
m a r k e d f o r c e r t a i n u r g e n t a i r f i e l d r e p a i r w o r k s . The f u n d s f o r t h i s a c c e l e r a t e d , '
p r o g r a m would be t a k e n f r o m t h e Ten th Sl ice . It wi l l b e r e m e m b e r e d tha t
S H A P E had r e q u e s t e d L 8 m i l l i o n a s a r e s e r v e fund f o r t h e s a m e p u r p o s e , and
i t w a s s t a t e d t h a t c e r t a i n p r o j e c t s wh ich m i g h t have been c o n s t r u c t e d f r o m t h i s
r e s e r v e could be i nc luded in t h e new a c c e l e r a t e d p r o g r a m p roposed by t h e
I n f r a s t r u c t u r e C o m m i t t e e . A f u r t h e r s tudy of the whole p r o b l e m of a i r f i e l d (41) r e q u i r e m e n t s would be m a d e at SHAPE and f u r t h e r r e c o m m e n d a t i o n s m a d e /
S u p p l e m e n t a r y Ninth Sl ice R e c o m m e n d a t i o n s .
SHAPE s u b m i t t e d a s u p p l e m e n t a r y p r o g r a m f o r a i r f i e l d p r o j e c t s to t a l l i ng
L 4.849 m i l l i o n . T h i s add i t iona l c o n s t r u c t i o n , t o be p a i d f o r out of t h e L 8
m i l l i o n r é s e r v é , w a s f o r r u n w a y e x t e n s i o n s and r e p a i r s in N o r w a y and T u r k e y .
The I n f r a s t r u c t u r e C o m m i t t e e i nv i t ed SHAPE to nomina te any Ninth Sl ice
i t e m s which r e q u i r e d a d v a n c e a p p r o v a l and fund ing . S H A P E r e p l i e d tha t the
s u p p l e m e n t a r y p r o g r a m i t e m s c a m e u n d e r t h i s head ing . An i n t e r n a t i o n a l
(40) SEO 2030 - M i n u t e s of C O F S Mtg he ld on 25 Oct 57, and PROG 6 1 0 0 / l P -1 7 7 / 5 7 PROG dtd 30 Oct 57 - B r i e f i n g F o l d e r f o r C O F S ' s C o n f e r e n c e .
(41) LOSTAN 2241, M e s s a g e f r o m SGREP to SG, 24 Oct 57.
v i e w t h a t any f u n d s f o r n e w w e a p o n s i n s t a l l a t i o n s should c o m e f r o m p r e -
200
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
S H A P E 5 7 / 6 7 -NATO S E C R E T
Staff / S H A P E t e a m h a d r e c e n t l y r e v i e w e d the p r o g r a m f o r t h e c o n v e r s i o n
of T u r k i s h a i r f i e l d s and the t e a m c o n s i d e r e d tha t a d v a n c e fund ing w a s
n e c e s s a r y to c o m p l e t e m i n i m u m f a c i l i t i e s to p e r m i t c o m b a t e f f e c t i v e n e s s .
S f i A P E t h e r e f o r e r e q u e s t e d Counci l a p p r o v a l f o r a d v a n c e funding of t h e s e
T u r k i s h p r o j e c t s / * ^
The I n f r a s t r u c t u r e C o m m i t t e e did not r e a c h a d e c i s i o n on t h e Nin th
£ l i c e P r o g r a m by 31 D e c e m b e r 1957. At t ha t t i m e , t h e f i n a n c i a l p o s i t i o n
w a s t h a t only about L 22 m i l l i o n r e m a i n e d fo r t h e two y e a r peziiod 1959-1960
if t h e Coiinci l gave a p p r o v a l to t h e Nin th Sl ice and s u p p l e m e n t a r y p r o g r a m s .
T h e fund ing of m i s s i l e s i t e s and t h e o the r n e w p r o j e c t s r e q u i r e d f o r t h e i n -
f r a s t r u c t u r e s u p p o r t e n v i s a g e d in t h e M i n i m u m F o r c e s Study w a s a p r o b l e m
t o be so lved in f u t u r e d i s c u s s i o n s du r ing 1958.
P r o g r e s s in C o n s t r u c t i o n of A i r f i e l d s .
The u n c e r t a i n t y of n a t i o n s r e g a r d i n g t h e f u t u r e r e q u i r e m e n t s f o r i n f r a -
s t r u c t u r e w a s r e f l e c t e d in t h e p r o g r e s s of a i r f i e l d c o n s t r u c t i o n . The q u a r t e r l y
r e p o r t s i s s u e d by L o g i s t i c s D i v i s i o n f o r t h e s econd half of 1957 u n d e r l i n e d
(he d i f f i c u l t y t h a t : " O v e r a l l c o n s t r u c t i o n and p lanning p r o g r e s s du r ing t h i s
p e r i o d h a s b e e n u n s a t i s f a c t o r y and i s t h e l o w e s t on r e c o r d . The r e a s o n f o r
t h i s i s p r e s u m e d t o b e , f i r s t , t h e u n c e r t a i n t y wi th r e s p e c t to amount and
q p u r c e of f u n d s , p a r t i c u l a r l y a i r f i e l d s a v i n g s . Second, t h e e f f e c t of e x t e n s i v e
d e p l o y m e n t c h a n g e s and t h e bel ief t h a t o t h e r s m i g h t be i m m i n e n t . T h i r d ,
u n c e r t a i n t y wi th r e s p e c t t o d e t a i l s of s e v e r a l a i r f i e l d s f a c i l i t i e s , f l igh t l i n e
tawker, a r r e s t or g e a r , r u n w a y e x t e n s i o n s and p r o t e c t i o n of f a c i l i t i e s . "
(é£) AG 6 1 0 0 / I P - 1 8 9 / 5 7 P R O G , 29 Nov 57 - S H A P E ' s S u p p l e m e n t a r y P r o g r a m . NAC A C / 4 - A / 2 2 9 , d td 29 Oct 1957 con ta ined t h e I n f r a s t r u c t u r e D e c i s i o n on A d v a n c e F u n d i n g . NAC A C / 4 - D / 8 0 6 dtd 9 Oct 1957 c o n t a i n s t h e c o m b i n e d t e a m ' s r e p o r t . SHAPTO 1579 d td 13 Dec 1957: S H A P E r e q u e s t f o r Advance Approva l t o t h e T u r k i s h A i r f i e l d s .
201
T f f t T Q — ^ M f i B
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SVlATC GÜXFi^EMTSÄL S H A P E 5 7 / 6 7 - NATO S E C R E T
I m p r o v e m e n t w a s e x p e c t e d by t h e d iv i s ion , but t h e r e w a s f u r t h e r u n c e r t a i n t y (43) on t h e i m p l i c a t i o n s of t h e M i n i m u m F o r c e Study.
F u t u r e I n f r a s t r u c t u r e P r o v i s i o n .
The N o r t h At lan t ic Counci l h a d d e f e r r e d a p p r o v a l f o r n ine a i r f i e l d s
un t i l t h e f u t u r e i n f r a s t r u c t u r e r e q u i r e m e n t s f o r Al l ied C o m m a n d E u r o p e were
c l e a r l y e s t a b l i s h e d . SAÇEUR a l r e a d y had i n d i c a t e d t h a t i t would be p o s s i b l e
tçi r e d u c e t h e n u m b e r of a i r f i e l d s , and t h i s w a s c o n f i r m e d when t h e Min imUm
F o r c e s Study w a s p u b l i s h e d .
The i n t r o d u c t i o n of m i s s i l e s in to Al l ied C o m m a n d Ehirope would r e s u l t
i n a r e d u c t i o n of about 30 in t h e n u m b e r of a i r f i e l d s . About 20 of t h e s e could
b e c a n c e l l e d o u t r i g h t . Al though t h e r e s t would r e m a i n in t h e i n v e n t o r y , b e c a u s e
of e i t h e r d e p l o y m e n t p r o b l e m s or a d v a n c e d c o n s t r u c t i o n , t h e sav ing by c a n -
c e l l a t i o n would be c ö n s i d e r a b l e .
Although t h e r e would t h u s be a r e d u c e d r e q i i i r e m e n t f o r conven t iona l
a i r f i e l d s and t h e r e f o r e a r e d u c e d f i n a n c i a l r e q u i r e m e n t , t h e r e would be a c o n -
s i d e r a b l e a m o u n t of m o n e y n e e d e d f o r m i s s i l e i n f r a s t r u c t u r e . The M i n i m u m
F o r c e Study showed tha t t h e es t imated c o s t of t h e m i s s i l e s i t e s , l e s s hous ing , (44)
would be about L l l O m i l l i o n /
The ques t i on of the fund ing of m i s s i l e s i t e s w a s t h e s u b j e c t of a l e t t e r
f r o m G e n e r a l Schuyle r to t h e Standing Group on 16 J u l y 1957. The Chief of
Staff r e f e r r e d to a s ta f f s tudy which had been u n d e r t a k e n a t S H A P E to e s t a b l i s h
3, b a s i s on which t h e n a t i o n s could a g r e e t o t h e c o m m o n fund ing of t h e m i s s i l e S i t e s .
The SHAPE s tudy f i r s t d r e w a t t en t ion to the i m p o r t a n c e of t h e NIKE
weapon a s an i n t e g r a t e d p a r t of an equa l ly i n t e g r a t e d Ai r D e f e n s e S y s t e m .
(43) LOG 2 3 0 0 . 0 1 / P & M - 5 4 1 / 5 7 , 11 Oct 57. LOG 2 3 0 0 . O 1 / P & M - 2 2 / 5 8 , 9 J a n 58.
¢44) See M i n i m u m F o r c e Study - Sect ion II p a r a 8 & 9, S H A P E / 1 5 4 - 1 / 5 7 .
MATÔ c0nrden11ail, 202
U A T n ^iPtniH ̂ fcr
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
" T h e NIKE, a s p r e s e n t l y p l a n n e d by S H A P E t o b e e m p l o y e d In a i r d e f e n s e
i n AlUed C o m m a n d E u r o p e , a l though not r e q u i r i n g a c o m m o n u s a g e f a c i l i t y ,
w i l l be l a r g e l y a c o m m o n b e n e f i t weapon c o n t r i b u t i n g to t h e o v e r - a l l d e f e n s e
r a t h e r t h e n t o t h e d e f e n s e of s p e c i f i c t a r g e t s of n a t i o n a l i n t e r e s t . As such ,
i n l i n e w i th t h e p r e c e d e n t e s t a b l i s h e d in t h e e a r l y w a r n i n g r a d a r p r o j e c t , i t
a p p e a r s r e a s o n a b l e tha t the i n f r a s t r u c t u r e f o r t h e s e NIKE s i t e s , wh ich wi l l
f o r m a p a r t of t h e i n t e g r a t e d a i r d e f e n s e s y s t e m , should be i n t e r n a t i o n a l l y
f i n a n c e d . "
In t h e event t h a t c o m m o n funding w a s a g r e e d , S H A P E a u g g e s t e d tha t
i n t e r n a t i o n a l f u n d s f r o m c u r r e n t c e i l i n g s cou ld be u s e d in i t i a l ly , wi th the
u n d e r s t a n d i n g t h a t t h e b o r r o w e d f u n d s would b e r e p l a c e d when t h e n a t i o n s had
a g r e e d upon a fund ing f o r m u l a c o v e r i n g t h e NIKE f ac i l i t i e s . Under t h e F Y
I 9 5 7 M i l i t a r y A s s i s t a n c e P r o g r a m , t h e Uni ted S t a t e s had a l r e a d y a g r e e d
t o d e l i v e r NIKE equ ipmen t t o s o m e nat ions , d u r i n g t h e l a t t e r p a r t of 1958.
S H A P E r e c o m m e n d e d tha t t h e N o r t h At lan t i c Counci l should a p p r o v e , at l e a s t
in p r i n c i p l e , t h e c o m m o n fund ing of t h e NIKE s i t e s .
On 17 S e p t e m b e r 1957, SHAPE aga in r a i s e d the p r o b l e m in a m e s s a g e
t o t h e Standing G r o u p . " T h e n e e d f o r d e c i s i o n on t h e e l ig ib i l i ty of NIKE s i t e
i n f r a s t r u c t u r e f o r c o m m o n fund ing h a s now b e c o m e i n c r e a s i n g l y p r e s s i n g .
C o n s t r u c t i o n f o r NIKE s i t e s a p p e a r s t o be t h e m o s t l i ke ly i t e m which could
c a u s e d e l a y in t h e o p e r a t i o n a l r e a d i n e s s d a t e s of NIKE Ba t t a l i ons in t h e A C E
A i r D e f e n s e S y s t e m . " S e v e r a l NATO NIKE Ba t t a l i on u n i t s a l r e a d y had s t a r t e d
t h e i r 1 6 - m o n t h t r a i n i n g p e r i o d in t h e Uni ted S t a t e s , and NIKE equ ipmen t w a s
s c h e d u l e d to a r r i v e on c o m p l e t i o n of t h i s t r a i n i n g . It w a s e s t i m a t e d tha t n e g o -
t i a t i o n s f o r t h e n e c e s s a r y land a c q u i s i t i o n and t h e c o m p l e t i o n of c o n s t r u c t i o n
would t a k e a t l e a s t 24 m o n t h s .
The n a t i o n s c o n c e r n e d had c o o r d i n a t e d wi th SHAPE, and s u b o r d i n a t e
h e a d q u a r t e r s had f i n a l i z e d t h e l o c a t i o n s of s o m e of t h e NIKE Ba t t a l i ons .
T h e c o u n t r i e s wi th f i r m l o c a t i o n s should , t h e r e f o r e , h a v e been in a p o s i t i o n
t o m a k e a r r a n g e m e n t s f o r t h e n e c e s s a r y s i t e c o n s t r u c t i o n , but of c o u r s e t hey
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
w e r e r e l u c t a n t t o do t h i s wi thout a Counci l d e c i s i o n on t h e c o m m o n funding / ( 4 5 ) of s i t e s /
The Standing G r o u p c o n s i d e r e d tha t j u s t i f i c a t i o n f o r t h e c o m m o n funding
of m i s s i l e s i t e s could be m a d e o n l y if an a p p r o v e d o v e r a l l Air D e f e n s e S y s t e m
w a s in o p e r a t i o n . It w a s i m p e r a t i v e tha t a p r e m a t u r e a p p r o a c h should not be
m a d e t o the Counc i l .
S H A P E p o i n t e d out t h a t p l a n s f o r an o v e r a l l Ai r D e f e n s e Sys t em w e r e
a l r e a d y in e x i s t e n c e t o g e t h e r wi th an a l t e r n a t i v e p r o p o s a l f o r t h e i n t e g r a t i o n
of ex i s t i ng n a t i o n a l a i r d e f e n s e s y s t e m s in to an Al l i ed Ai r D e f e n s e S y s t e m .
A p p r o v a l of e i t h e r of t h e s e s y s t e m s would t a k e s o m e t i m e , and once aga in ,
S H A P E d r e w a t t en t i on to t h e r e s u l t s of d e l a y in a p p r o v a l f o r the c o m m o n f u n d -
ing of NIKE s i t e s . An add i t i ona l f a c t o r w a s now a p p a r e n t : If b a t t a l i o n s w e r e
dep loyed on a p u r e l y na t i ona l b a s i s , i t w a s un l ike ly tha t t h e y would be r e -
dep loyed ou t s i de na t iona l t e r r i t o r i e s , and t h e r e f o r e the whole concep t of t h e (46)
f o r w a r d m i s s i l e be l t would b e j e o p a r d i z e d .
No d e c i s i o n w a s made by the N o r t h At lan t ic Counci l on the c o m m o n funding
of m i s s i l e s i t e s b e f o r e t h e end of 1957, but an e a r l y d e c i s i o n w a s e x p e c t e d
in 1958 a s a r e s u l t of the H e a d s of G o v e r n m e n t Mee t i ng he ld du r ing D e c e m b e r
1957. The f i n a l c o m m u n i q u e s t a t e d tha t " T h e NATO m i l i t a r y a u t h o r i t i e s have
b e e n r e q u e s t e d to s u b m i t / t h e Counci l at an e a r l y d a t e t h e i r r e c o m m e n d a t i o n s
on t h e i n t r o d u c t i o n of t h e s e w e a p o n s i n the c o m m o n d e f e n s e . The Counci l
in p e r m a n e n t s e s s i o n wi l l c o n s i d e r the v a r i o u s q u e s t i o n s i n v o l v e d . "
The Ten th Sl ice I n f r a s t r u c t u r e P r o g r a m .
The Major Subord ina te C o m m a n d e r s w e r e g iven g u i d a n c e by SHAPE on t h e
p o l i c y t o be adopted f o r the Ten th Sl ice I n f r a s t r u c t u r e P r o g r a m . The l i m i t e d
f u n d s tha t w e r e a v a i l a b l e should be devo ted to c o n s o l i d a t e p a s t p r o g r a m m i n g ,
and SHAPE be l i eved tha t t h e n o r m a l p r o c e d u r e f o r p r o c e s s i n g p a s t p r o g r a m s
(45) S H A P E / 1 4 3 / 5 7 , L t r f r o m C O F S t o SG, 16 J u l 57. SH 38558, M s g f r o m SHAPE to SG, 17 Sep 57.
(46) SCO IN 8681, SGN to SHAPE, 4 Oct 57; SH 39125, SHAPE to SGN, 16 Oct 57.
2 0 4 . . m m ^ m m m m m •flflTO -• ODCHli^.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
w a s u n n e c e s s a r y in v iew of t h e s m a l l c o s t i nvo lved . It w a s s u g g e s t e d t h a t
a m a x i m u m of a p p r o x i m a t e l y L l O m i l l i o n be a l l o c a t e d fo r t h e p e r i o d t o De-
c e m b e r 1958, and tha t t h i s m o n e y should be devo t ed to the comple t i on of p r o -
j e c t s . Should Counci l a p p r o v a l be g iven to the c o m m o n funding of m i s s i l e
s i t e s , S H A P E would r e c o m m e n d a s e p a r a t e p r o g r a m , p r o b a b l y ca l l ed Sl ice
T h e P r o b l e m of I n f r a s t r u c t u r e C o s t s .
A m a j o r p r o b l e m tha t f a c e d NATO l o g i s t i c p l a n n e r s w a s the e v e r -
i n c r e a s i n g c o s t of i n f r a s t r u c t u r e p r o j e c t s . The b u d g e t a r y c o n t r o l p r o c e d u r e s
e s t a b l i s h e d by t h e N o r t h At l an t i c Counci l p l a c e d t h e r e s p o n s i b i l i t y f o r i n s u r i n g
t h a t a p p r o v e d c o s t c e i l i n g s w e r e not e x c e e d e d on the m i l i t a r y a u t h o r i t i e s .
D u r i n g 1957, s t e p s w e r e t a k e n by SHAPE and t h e Standing Group to k e e p t h e
c o s t of p r o g r a m m e d p r o j e c t s wi th in t h e o v e r a l l S l ice c e i l i n g s .
A r e v i e w of a l l p r o j e c t s in S l i c e s Two t h r o u g h Eight w a s u n d e r t a k e n a t
S H A P E wi th t h e a i m of v e r i f y i n g t h e con t inued m i l i t a r y u s e f u l n e s s of e a c h
p r o j e c t in the l igh t of r e a l i s t i c c o m p l e t i o n d a t e s and t h e i m p l i c a t i o n s of t h e
n e w f o r c e p o s t u r e . The r e v i e w e s t a b l i s h e d tha t t he c u r r e n t c o s t e s t i m a t e s
h a d r i s e n c o n s i d e r a b l y above t h e a p p r o v e d ce i l ings . Al though c o m p l e t e f i g u r e s
w e r e not a v a i l a b l e , by Augus t 1957 t h e t o t a l of e x c e s s e x p e n d i t u r e in S l i c e s
F o u r t h r o u g h Seven w a s L 45, 066, 000. ^ 8 ^
P r o j e c t s C o n s i d e r e d f o r Suspens ion .
Al though SHAPE had s t a t e d t h a t t h e r e w a s s t i l l a m i l i t a r y r e q u i r e m e n t
f o r a l l p r o g r a m m e d p r o j e c t s , the Standing Group r e q u e s t e d SACEUR to p r e -
p a r e l i s t s of i t e m s which m i g h t be s u s p e n d e d in o r d e r to r e d u c e the l e v e l of
e x c e s s e x p e n d i t u r e . The f i r s t l i s t w a s to to ta l L 12 m i l l i o n and w a s to be b a s e d
(47) SH 39272, 23 Oct 57. (48) The f i g u r e of L.45, 066, 000 did not t a k e in to acoount t h e Cont ingency Fund
of L 26, 828, 000 or t h e u n c o m m i t t e d b a l a n c e of S l i ces Two and T h r e e . The t o t a l c e i l i ng f o r S l i c e s T w o - S e v e n w a s L 703, 199 ,000 . See STAND 2044, 6 Aug 57, f r o m SGN to a l l M O D s .
Xos-. j "Tm t o iH n n il 1
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
on t h e a s s u m p t i o n tha t t h e Con t ingency Fund would be a v a i l a b l e fo r u s e in
c o v e r i n g p a r t of t h e e x c e s s f i g u r e . A s e c o n d l i s t w a s r e q u e s t e d to t a l l i ng
L. 25 m i l l i o n b a s e d on the a s s u m p t i o n tha t t h e Contingency F u n d w a s not a v a i -I
l a b l e . F i n a l l y , a t h i r d l i s t showing a l l p r o j e c t s on a s l i c e - b y - s l i c e b a s i s
w a s r e q u e s t e d , wi th a l l u n s t a r t e d p r o j e c t s i n d i c a t e d so tha t t h e e x c e s s t o t a l
of L.45 m i l l i o n would be c o v e r e d . The Standing Group a s k e d SACEUR to p r e -
p a r e the l i s t s in i n v e r s e o r d e r of p r i o r i t y so tha t p r o j e c t s of a h igh m i l i t a r y
p r i o r i t y would not be c o n s i d e r e d for s u s p e n s i o n un t i l low p r i o r i t y p r o j e c t s (49)
had b e e n s u s p e n d e d .
SHAPE w a s r e q u e s t e d t o s u b m i t t h e f i r s t l i s t a s qu ick ly a s p o s s i b l e
wi thout consu l t ing e i t he r t h e n a t i o n s o r the M a j o r Subord ina t e C o m m a n d e r s .
A " s t r o n g l y w o r d e d e x p r e s s i o n of s u r p r i s e and n o n - c o n c u r r e n c e f r o m MOD
F r a n c e " w a s r e c e i v e d , h o w e v e r , and SHAPE s u g g e s t e d tha t in v i e w of t h i s
r e a c t i o n and p o s s i b l e r e a c t i o n s f r o m o the r n a t i o n s , t h e Standing G r o u p should
i s s u e a s t a t e m e n t expla in ing t h e p u r p o s e of the l i s t s to a l l c o n c e r n e d / ^ )
The s t a t e m e n t w a s i s s u e d by t h e Standing Group t o a l l MODs on 6 August
1957. A f t e r po in t ing out t h e r e a s o n s f o r t h e d e c i s i o n to p l a c e i n s u s p e n s e
c e r t a i n i t e m s of low m i l i t a r y p r i o r i t y , i t w a s e m p h a s i z e d tha t no p r o j e c t would
b e c a n c e l l e d a t t h i s s t a g e . F u r t h e r , if t h e o u t c o m e of d i s c u s s i o n s tha t w e r e
s t i l l be ing c a r r i e d on b e t w e e n the v a r i o u s a g e n c i e s c o n c e r n e d p r o d u c e d d e c i -
s i o n s tha t w e r e f a v o r a b l e t o the m i l i t a r y po in t of v iew, i t would p e r h a p s be
p o s s i b l e l a t e r to l i f t t h e s u s p e n s i o n f r o m a l l p r o j e c t s wh ich w e r e s t i l l c o n s i -
d e r e d by the S u p r e m e C o m m a n d e r s to be m i l i t a r i l y e s s e n t i a l . The s t a t e m e n t
ended : " T h e Standing G r o u p i s conf iden t tha t n a t i o n s wil l a c c e p t , in a s p i r i t of
m u t u a l c o o p e r a t i o n , t he s u s p e n s i o n of any p r o j e c t s in t h e i r c o u n t r i e s which
m a y t h u s , bn t h e r e c o m m e n d a t i o n s of the S u p r e m e C o m m a n d e r s , b e p l a c e d (51) on t h e s u s p e n s i o n l i s t s . "
(49) STAND 2026 and 2027, 9 J u l 57. (50) SH 37633, SHAPE to SGN, 2 Aug 57. (51) STAND 2044, 6 Aug 57.
m m m ^ m m m i 206
gNSCTcr— OECRJST
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
On 16 Augus t 1957, t h e Standing Group f o r w a r d e d a l i s t of p r o j e c t s
r e c o m m e n d e d f o r s u s p e n s i o n to i t s r e p r e s e n t a t i v e i n P a r i s f o r onward t r a n s -
m i s s i o n to the C o n t r o l l e r of I n f r a s t r u c t u r e . T h i s l i s t t o t a l l e d L 11.498 m i l -
l i on , and w a s r e c o m m e n d e d " s o l e l y on t h e b a s i s of m i l i t a r y c o n s i d e r a t i o n
and wi thout c o n s i d e r i n g t h e v i e w s of t h e n a t i o n s in w h o s e c o u n t r i e s the p r o -(52) j e c t s a r e p l a n n e d . "
I n t e r i m C o n c l u s i o n s f r o m 1958-1963 P o s t u r e Study.
At t h i s po in t , SHAPE i n f o r m e d t h e Standing G r o u p t h a t t he s tudy on t h e
1958-1963 p o s t u r e w a s w e l l advanced , and i t w a s e x p e c t e d tha t i n t e r i m c o n -
c l u s i o n s cou ld be d r a w n by the end of Augus t . It w a s a l r e a d y a p p a r e n t t h a t
t h e r e s u l t s of t h i s s tudy would a l m o s t c o m p l e t e l y a l t e r the s e c o n d l i s t of p r o -
j e c t s f o r s u s p e n s i o n , wh ich w a s r e a d y f o r s u b m i s s i o n . SHAPE fe l t tha t i t
wou ld be p r e m a t u r e t o s u b m i t t h i s s e c o n d l i s t unt i l t h e r e s u l t s of the new
s t u d y could be t a k e n in to a c c o u n t . The Standing G r o u p w a s t h e r e f o r e a s k e d
f o r a g r e e m e n t to p o s t p o n e s u b m i s s i o n of the s econd l i s t un t i l 31 August 1957.
T h e r e would a l s o have t o be s o m e a l t e r a t i o n to t h e f i r s t l i s t a l r e a d y s u b m i t t e d .
T h e Standing G r o u p a g r e e d t o t h i s r e q u e s t and sa id tha t i t would not be n e c e s -
s a r y to s u b m i t t h e s econd l i s t unt i l a f t e r t he m e e t i n g to be he ld at SHAPE (53) on 3 S e p t e m b e r 1 9 5 7 / '
P o s i t i o n s of O v e r r u n s .
The m e e t i n g r e f e r r e d t o w a s t h e annual m e e t i n g b e t w e e n t h e na t i ona l
m i l i t a r y d e l e g a t i o n s and SHAPE to d i s c u s s i n f r a s t r u c t u r e p r o g r a m s , in t h i s
c a s e the Nin th S l ice . At t h e m e e t i n g , M a j o r G e n e r a l B e s s o n r e f e r r e d t o the
r e c e n t c o s t c e i l i ng d e c i s i o n in h i s opening a d d r e s s and s t a t e d t h a t SHAPE
w a s s u b m i t t i n g i t s second l i s t . T h e p o s i t i o n of t h ^ o v e r r u n s w a s :
(52) STAND 2060, S G N t o SGREP, 16 Aug 57. (53) STAND 2066, SGN to SHAPE, 22 Aug 57; SH 37904, SHAPE to SGN,
19 Aug 57.
207
^ Ä T O S E C R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m m C M F F D E I M M I NATO 3 E C R E T
1. OVERALL, (S l i c e s 2 - 7) Li m
Cont ingency Fund a v a i l a b l e Cont ingency F u n d NOT a v a i l a b l e
12 37
2. SLICE BY, S L I C E
Sl ices , 2 3 4a 4b 5 6 7 To ta l
O v e r r u n s - - 15 4 7 4 1 5 45 ( L m )
On S e p t e m b e r 24, 1957, the I n f r a s t r u c t u r e C o m m i t t e e c o n s i d e r e d t h e
f i r s t I i s t . The UK r e p r e s e n t a t i v e s t a t e d tha t h i s a u t h o r i t i e s w e r e d i s a p p o i n t e d
wi th t h e l i s t , and f e l t tha t t h e m i l i t a r y a u t h o r i t i e s should p r o v i d e a s econd
l i s t of s u s p e n s i o n s , or ex tend t h e p r e s e n t l i s t ot m a k e up a t o t a l of at l e a s t
Li 12 m i l l i o n . O the r m e m b e r s of the C o m m i t t e e a l s o e x p r e s s e d t h e i r d i s a p -
p o i n t m e n t , The N e t h e r l a n d s r e p r e s e n t a t i v e thought tha t t h e l i s t had c o m e a i
an a n t i - c l i m a x and t h a t m o r e a c t i v e s t e p s would be n e e d e d to r e c o n c i l e m i l i -
t a r y r e q u i r e m e n t s wi th a v a i l a b l e f u n d s . He s t a t e d tha t h i s a u t h o r i t i e s would
n o t a g r e e to f u r t h e r e x p e n d i t u r e on p r o j e c t s if i t m e a n t t ha t p r o g r a m c e i l i n g s
would cont inue to be e x c e e d e d .
The Standing Group R e p r e s e n t a t i v e r e m i n d e d the I n f r a s t r u c t u r e C o m m i t t e e i t
t h a t / h a d p r o p o s e d , and t h e c o m m i t t e e h a d a c c e p t e d , c e r t a i n p r e l i m i n a r y s t e p s
t o b e t a k e n p r i o r to any m o d i f i c a t i o n s or c a n c e l l a t i o n of ind iv idua l p r o j e c t s .
S H A P E w a s p r e p a r i n g a r e v i s e d f i r s t l i s t to ta l l ing L 12 m i l l i o n which would
be a p p r o v e d by SACEUR du r ing t h e f i r s t f ew days of O c t o b e r . A second l i s t (54)
would b e ava i l ab l e f a i r l y s h o r t l y a f t e r w a r d s .
The SHAPE s e c o n d l i s t t o t a l l e d L 20.4 m i l l i o n and i t w a s exp la ined
t h a t a l though t h e Standing G r o u p had a s k e d f o r a t o t a l of L 25 m i l l i o n , SHAPE
had gone a s f a r a s i t could without ca l l ing f o r m o r e de t a i l ed i n fo rma t ion f r o m
t h e s u b o r d i n a t e c o m m a n d e r s . T h r e e P O L and a m m u n i t i o n s t o r a g e p r o j e c t s
(54) LOSTAN 2197, SGREP t o SGN 26 Sep 57.
208 j t r aT t p r t i f E C g T T "
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
A'/;, . .. . . . - .
and c o m m a n d s and n a t i o n s had b e e n a s k e d to supply SHAPE wi th i n f o r m a t i o n (55)
on t h e ex i s t i ng s t a t u s of m a r i t i m e a i r f i e l d s .
A r e q u e s t w a s m a d e by SHAPE tha t t he Standing Group should r e l e a s e
d e t a i l s of a l l p r o p o s e d s u s p e n s i o n s to the n a t i o n s c o n c e r n e d . It w a s f e l t
t h a t i t w a s m o s t u n d e s i r a b l e to l e t n a t i o n s con t inue t o w o r k on p r o j e c t s wh ich
S H A P E would no t be ab le to s u p p o r t t h r o u g h l a c k of f u n d s . ^ ^
T h e Standing G r o u p r e p l i e d t h a t i t s t i l l c o n s i d e r e d tha t d e t a i l s of t h e
l i s t s shou ld no t be d i s c l o s e d to n a t i o n s un t i l i t h a d p r o c e s s e d t h e m . S H A P E
w a s r e q u e s t e d t o a d h e r e t o the o r ig ina l i n s t r u c t i o n s f r o m the Standing G r o u p
and s u b m i t f u r t h e r p r o j e c t s f o r s u s p e n s i o n to b r i n g t h e second l i s t to ta l t o
Li 25 m i l l i o n . S H A P E s e l e c t e d add i t iona l i t e m s f r o m p r o j e c t s on t a c t i c a l a i r -(57)
f i e l d s and f o r w a r d e d t h o s e to t h e Standing G r o u p . '
The Standing G r o u p then a u t h o r i z e d s u s p e n s i o n of p r o j e c t s f r o m SHAPE 'S
s e c o n d l i s t t o t a l l i ng L 17.7 m i l l i o n . F u r t h e r s tudy w a s r e q u i r e d on the r e m a i n -
ing i t e m s , and d i s c u s s i o n s w e r e to t a k e p l a c e w i th SACEUR du r ing D e c e m b e r .
T h e p o s i t i o n by 30 N o v e m b e r w a s tha t SHAPE had s u b m i t t e d two l i s t s
of p r o j e c t s r e c o m m e n d e d f o r s u s p e n s i o n to t a l l i ng L 37 m i l l i o n . The Standing
G r o u p , a f t e r p r o c e s s i n g t h e s e SHAPE l i s t s , had sen t a r e c o m m e n d e d l i s t of
p r o j e c t s f o r s u s p e n s i o n to t a l l i ng a p p r o x i m a t e l y L> 28 m i l l i o n to t h e I n f r a -
s t r u c t u r e C o m m i t t e e .
I m p l i c a t i o n s of M i n i m u m F o r c e Study.
By t h i s t i m e , h o w e v e r , i t w a s a p p a r e n t t ha t t h e ques t i on of s u s p e n s i o n
of p r o j e c t s w a s b e c o m i n g c l o s e l y t i e d to the l a r g e r p r o b l e m of t h e i m p l i c a t i o n s
of t h e M i n i m u m F o r c e Study. In a m e s s a g e to t h e Standing G r o u p , SHAPE
r e f e r r e d t o a r e q u e s t f r o m t h e M i l i t a r y Budget C o m m i t t e e tha t a s tudy be m a d e
on budget p r o v i s i o n s f o r the y e a r s 1957-1960 . The M i l i t a r y Budget C o m m i t t e e
had not ye t r e a c h e d a d e c i s i o n on t h e m a g n i t u d e of the ce i l ing f o r 1958, and
(55) SH 38826, 1 Oct- 57 - t h i s m e s s a g e to t h e SG c o n t a i n s a f u l l l i s t of p r o j e c t s r e c o m m e n d e d f o r s u s p e n s i o n .
(56) SH 38838, 2 Oct 57, S H A P E t o SGN. (57) STAND 2122, 8 Oct 57; STAND 2124, 10 Oct 57. (58) STAND 2210, 29 Nov 57, g i v e s a c o m p l e t e s u m m a r y of r e c o m m e n d a t i o n s .
- ~MATO , J E C l l J i r .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m v û CORE CCKF'UEFJVJÄL NA It)—=-,
a m o n g the p r o p o s a l s u n d e r d i s c u s s i o n w a s one f o r a m u l t i - a n n u a l ce i l ing
c o v e r i n g t h e y e a r s 1958, 1959, and i 9 6 0 . SHAPE did not c o n s i d e r i t a d v i s a b l e
t o i m p o s e t h i s s o r t of ce i l i ng . If r e q u e s t e d , SHAPE could p r o d u c e m u l t i -
annua l p lanning e s t i m a t e s wh ich m i g h t be of s o m e v a l u e t o m e m b e r n a t i o n s
in f o r e s e e i n g t h e a p p r o x i m a t e amount of their f u t u r e c o n t r i b u t i o n s , and t o
a s s i s t t h e m in t h e i r d i s c u s s i o n s c o n c e r n i n g c o s t - s h a r i n g f o r m u l a s . T h e r e
would have to be , h o w e v e r , u n i v e r s a l u n d e r s t a n d i n g of t h e l i m i t a t i o n s and
u n c e r t a i n t i e s u n d e r wh ich SHAPE e s t i m a t e s w e r e deve loped .
.In a m p l i f i c a t i o n of t h e s e v i e w s , S H A P E d r e w a t t en t ion to the p r o b l e m s
w h i c h had a f i n a n c i a l i m p l i c a t i o n a s ye t u n d e t e r m i n e d . T h e e f f e c t upon g e n e r a l
c o m m u n i c a t i o n s r e q u i r e m e n t s by the i n c o r p o r a t i o n of guided m i s s i l e s s y s t e m s
could not , f o r e x a m p l e , be e s t i m a t e d at tha t t i m e . The m i l i t a r y r e - o r g a n i z a t i o n
of t h e C e n t r a l Reg ion m i g h t have a f i n a n c i a l i m p l i c a t i o n . The f u t u r e p a t t e r n
of t h e Ai r D e f e n s e S y s t e m w a s u n c e r t a i n a s t o c o s t s , and, in f a c t , f u t u r e (59)
d e v e l o p m e n t s a s a whole migh t have u n d e t e r m i n e d f i n a n c i a l i m p l i c a t i o n s /
The Standing Group a g r e e d wi th SHAPE 'S viewson t h e q u e s t i o n of a m u l t i -
annua l ce i l ing , and a m p l i f i e d the r e a s o n s put f o r w a r d by SHAPE f o r n o n - c o n -
c u r r e n c e with t h e p r o p o s a l p r e s e n t e d by the M i l i t a r y Budget C o m m i t t e e . ^ ^
P r o b l e m s of Budget F o r e c a s t i n g .
O b j e c t i o n s to amy ce i l ing w e r e b a s e d on o p e r a t i o n a l r e s t r i c t i o n s wh ich
would be i m p o s e d , and on t h e e x t r e m e d i f f i c u l t i e s in a r r i v i n g at a c c u r a t e
budget r e q u i r e m e n t s f o u r y e a r s in a d v a n c e . F r o m the m i l i t a r y point of v i ew,
t h e Standing Group c o n s i d e r e d i t e s s e n t i a l tha t s a f e g u a r d s should be m a d e to
p r e v e n t any f i n a n c i a l ce i l i ng i n t e r f e r i n g wi th a c c e p t a n c e of new c o n c e p t s . In
add i t ion , r i s i n g c o s t s could aga in p r o v e to be a f a c t o r wh ich m i g h t n e c e s s i t a t e
s u p p l e m e n t a r y r e q u e s t s .
(59) SH 39183, 19 Oct 57. (60) STAND 2166, 29 Oct 57.
210 W O 60NRDENTÏAL N A T O — 9 D C R C I ,
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
rT '•'>' ' * N. UUSlil ^Jr V w , " Y ' ' . . / 7 rj
NATO SF iCRET j --
At a m e e t i n g of t h e M i l i t a r y Budget C o m m i t t e e he ld on 30 and 31
O c t o b e r 1957, d i s c u s s i o n s took p l a c e on a d r a f t r e p o r t f o r t h e N o r t h At lan t i c
Counc i l on t h e " E s t a b l i s h m e n t of a Ce i l ing f o r I n t e r n a t i o n a l Budge t s of
NATO M i l i t a r y H e a d q u a r t e r s . " The Standing G r o u p R e p r e s e n t a t i v e s u g g e s t e d
tha t a s t a t e m e n t giving the v i e w s of t h e m i l i t a r y a u t h o r i t i e s should be added
t o t h e d r a f t r e p o r t . T h i s s t a t e m e n t r e a d : " T h e M i l i t a r y A u t h o r i t i e s , w h i l s t
in f a v o r of an annua l ce i l ing , a r e opposed t o a m u l t i - a n n u a l ce i l ing b e c a u s e
of t h e o p e r a t i o n a l r e s t r i c t i o n s wh ich s u c h a ce i l ing would i m p o s e and t h e e x -
t r e m e d i f f i c u l t y of a r r i v i n g at an a c c u r a t e budget e s t i m a t e f o r s o m e y e a r s
a h e a d . "
A f t e r s o m e d i s c u s s i o n , i t w a s d e c i d e d to l i m i t t h e d r a f t r e p o r t t o t h e
N o r t h At lan t i c Counc i l to a 1958 ce i l ing only, and f r o m it t h e ques t i on of a
m u l t i - a n n u a l ce i l i ng .
The S H A P E and G e r m a n r e p r e s e n t a t i v e s d r e w a t t en t ion to the f a c t t h a t
t h e 1958 budge t w a s f a r a d v a n c e d , fo r the Ninth Sl ice P r o g r a m , and tha t any
q u e s t i o n of apply ing a ce i l ing or t a r g e t t o t h e 1958 budget w a s t oo l a t e . In a
n o t e sen t t o t h e Standing G r o u p r e p o r t i n g the M i l i t a r y Budget C o m m i t t e e m e e t -
ing , t h e Standing G r o u p R e p r e s e n t a t i v e sa id tha t t h e C o m m i t t e e s e e m e d l i k e l y
"to a g r e e on a p p r o x i m a t e l y L l O m i l l i o n a s t h e 1958 c e i l i n g . ^ 1 )
At a Chief of S t a f f ' s m e e t i n g wi th Div is ion Ch ie f s on 7 N o v e m b e r 1957,
A d m i r a l R a m s e y , DACOS P A N D P , s u m m a r i z e d the pos i t i on with r e g a r d to
p o s s i b l e s a v i n g s f r o m c a n c e l l a t i o n of a i r f i e l d p r o j e c t s . He r e c a l l e d tha t
SACEUR s t a t e d at a N o r t h At lan t ic Counci l m e e t i n g on 22 Oc tobe r 1957 tha t
a l though L l l O m i l l i o n would be r e q u i r e d f o r c o m m o n fund ing of the s u r f a c e -
t o - a i r m i s s i l e s , at l e a s t L 50 m i l l i o n would be s a v e d by c a n c e l l a t i o n of 20 a i r -
f i e l d p r o j e c t s wh ich w e r e in e x c e s s of the r e q u i r e m e n t s ou t l ined in the M i n i -
m u m F o r c e Study. One h u n d r e d and s i x t y - n i n e a i r f i e l d s w e r e r e q u i r e d u n d e r
t h e s t u d y ' s c o n c e p t s , aga in s t a c u r r e n t p r o g r a m m e d f i g u r e of 199. Of t h e
211
-T1MTU ^ S K ^ R S T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
ry T1v• - -
" ' ""-UVwL.,. „m, ,1 .. . JI
S H A P E 5 7 / 6 7 N A T © — S E C R E T -
e x c e s s 30 a i r f i e l d s , a p p r o x i m a t e l y L 27 m i l l i o n could b e s a v e d by t h e c a n -
c e l l a t i o n of 19 a i r f i e l d s , 13 of which a l r e a d y had b e e n r e c o m m e n d e d f o r
c a n c e l l a t i o n . L i t t l e o r n o s a v i n g s could be ga ined f r o m t h e c a n c e l l a t i o n
of t h e r e m a i n i n g 11 and t h e y would be r e t a i n e d . In add i t ion , SHAPE no l o n g e r
had a r e q u i r e m e n t f o r s ix a i r f i e l d s s u b m i t t e d fo r i n c l u s i o n in t h e E igh th
Sl ice but wh ich w e r e wi thhe ld f r o m i n c l u s i o n by t h e I n f r a s t r u c t u r e C o m m i t t e e .
T h e r e w a s a l s o no f u r t h e r r e q u i r e m e n t f o r an add i t iona l 20 a i r f i e l d s p r o g r a m -
m e d f o r t h e G e r m a n Ai r F o r c e in SHAPE'S 1958 F o r c e G o a l s . A to t a l sav ing
f r o m c a n c e l l a t i o n of t h e s e 26 u n p r o g r a m m e d a i r f i e l d s c a m e to L 42 .5 m i l l i o n .
T h e r e would a l s o be a sav ing of L 1.5 m i l l i o n on P O L p r o j e c t s , giving an o v e r -
a l l sav ing of L 71 m i l l i o n .
M a j o r G e n e r a l B e s s o n exp la ined tha t t he f i g u r e of L 50 m i l l i o n he had
o r i g i n a l l y f u r n i s h e d the S u p r e m e C o m m a n d e r w a s p e r h a p s m i s l e a d i n g . The
t o t a l sav ing w a s a c t u a l l y L 71 m i l l i o n a s shown in the M i n i m u m F o r c e Study,
but of tha t t o t a l only about L 20 m i l l i o n had been p r o g r a m m e d to da t e . It
m i g h t be p o s s i b l e to s a v e even m o r e m o n e y by t r a n s f e r r i n g s o m e a i r u n i t s f r o m
G e r m a n y to a i r f i e l d s in B e l g i u m and the N e t h e r l a n d s . T h e s e l a t t e r a i r f i e l d s (62)
would have to be f i n i s h e d b e c a u s e of t h e advanced s t a t e of t h e i r c o n s t r u c t i o n . '
In a f u r t h e r m e s s a g e t o t h e Standing Group on 7 N o v e m b e r 1957, t h e
Standing Group R e p r e s e n t a t i v e a s k e d f o r f u r t h e r g u i d a n c e a s a r e s u l t of the
d e c i s i o n by the M i l i t a r y Budget C o m m i t t e e to s u b m i t t h e d r a f t r e p o r t t o t h e
Counc i l . The a i m of the r e p o r t w a s to f ix the 1958 ce i l ing f o r a l l m i l i t a r y
b u d g e t s . The C o m m i t t e e c o n s i d e r e d tha t i t w a s a Standing Group r e s p o n s i b i -
l i t y to m a k e any n e c e s s a r y a p p o r t i o n m e n t of t h i s ce i l ing be tween t h e NATO
C o m m a n d s , and tha t i t w a s a s s u m e d tha t t h e m i l i t a r y a u t h o r i t i e s would not
submi t budge t s t o t a l l i ng m o r e than t h e ce i l i ng . The M i l i t a r y Budget C o m m i t t e e ,
t h r o u g h i t s Working P a r t y , r e c o m m e n d e d tha t t h e Counci l a p p r o v e the ce i l ing
of L 10 m i l l i o n . The F r e n c h r e p r e s e n t a t i v e had m a d e a r e s e r v a t i o n r e g a r d i n g
(62) SEC 2030: M i n u t e s of Chief of S t a f f ' s Mee t i ng dtd 7 Nov 57.
'•Mm m & m m m L 212
"rNA1HJL^ .SJLUMiill
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
f 63)
t h e f i n a n c i n g of new p r o j e c t s .
The l a n d i n g G r o u p a c c e p t e d t h e ce i l ing of L 10 m i l l i o n on the u n d e r -
s t and ing t h a t n e i t h e r i n c r e a s e s in p r i c e s i n c e 1 J u l y 1957 no r i n c r e a s e s in
c o s t s due t o t h e deva lua t i on of t h e F r e n c h f r a n c would be t a k e n in to a c c o u n t .
It w a s a l s o u n d e r s t o o d tha t t h e con t inuous p r o v i s i o n of l o n g - t e r m p r o j e c t s ,
s u c h a s f o r w a r d s c a t t e r , and the e x p e n d i t u r e f o r new c n n c e p t s , would not
be i n c l u d e d in t h e 1958 B u d g e t . ^
The P o s i t i o n at t h e End of 1957.
The H e a d s of G o v e r n m e n t M e e t i n g he ld in P a r i s d u r i n g the p e r i o d
16 -19 D e c e m b e r 1957 w a s p r i m a r i l y c o n c e r n e d wi th the b r o a d e r a s p e c t s of
NATO p o l i c y . The f i na l c o m m u n i q u e did r e f e r s p e c i f i c a l l y to l o g i s t i c s , how-
e v e r , and c a l l e d f o r b e t t e r u s e of t h e r e s o u r c e s of NATO by a g r e a t e r d e g r e e
of s t a n d a r d i z a t i o n and i n t e g r a t i o n , p a r t i c u l a r l y in t h e f i e l d s of l o g i s t i c s u p p o r t
and t h e c o m p o s i t i o n and equ ipmen t of f o r c e s .
M a n y d e c i s i o n s w e r e a w a i t e d by l o g i s t i c p l a n n e r s at SHAPE on s u c h
m a t t e r s a s t h e Ninth Sl ice P r o g r a m , c o s t c e i l i n g s and t h e c o m m o n fund ing
of m i s s i l e s i t e s . It w a s hoped tha t t h e s e d e c i s i o n s would be t a k e n a s soon a s
p o s s i b l e in 1958.
(63) LOSTAN 2256 and 2261, 7 Nov 57, SGREP t o SGN. (64) STAND 2191, 13 Nov 57.
213
t M T n CEOnCT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
IMAT® m m ü E m i M . S H A P E 5 7 / 6 7 N A T e S E C R E T -
C H A P T E R VIII
COMMUNICATIONS
In t roduc t ion .
"Dur ing t h e l a s t f e w y e a r s the NATO m i l i t a r y o r g a n i z a t i o n h a s e m e r g e d
f r o m i t s i n i t i a l p lann ing p e r i o d and devo ted i t se l f i n c r e a s i n g l y to i t s o p e r a t i o n a l
r e s p o n s i b i l i t i e s . The new o p e r a t i o n a l c o n c e p t s , r e l a t e d to an a l l - o u t u s e of
n u c l e a r w e a p o n s on both s i d e s , have r e s u l t e d in an i n c r e a s e d c e n t r a l i z a t i o n
of o p e r a t i o n a l i n t e l l i g e n c e d a t a at the h ighes t l e v e l . The r e s u l t a n t c o n t r o l
of o p e r a t i o n s d e m a n d s an i n c r e a s e d n u m b e r of c h a n n e l s to d i s s e m i n a t e t h i s
d a t a to a p p r o p r i a t e l e v e l s and t h e u t m o s t r a p i d i t y of c o m m u n i c a t i o n s , w h e r e
t i m e i s a p r i m e f a c t o r .
The s u c c e s s of p l a n n e d o p e r a t i o n s wi l l be a f f e c t e d g r e a t l y by t h e s m o o t h
and e f f i c i en t r unn ing of c o m m u n i c a t i o n s in the e a r l y s t a g e s of a l e r t o r at t h e
o u t b r e a k of w a r . Since t h e adopt ion of the o p e r a t i o n a l concep t of M C 48,
t h e r e i s an i n h e r e n t i n c r e a s e d d e m a n d upon c o m m u n i c a t i o n s . " ^
Although t h i s d o c u m e n t w a s c o n c e r n e d wi th one i m p o r t a n t a s p e c t of
t h e c o m m u n i c a t i o n s r e q u i r e m e n t fo r ACE, the c i t ed e x t r a c t p inpo in t s the
o v e r a l l p r o b l e m f a c i n g t h o s e r e s p o n s i b l e f o r i n s u r i n g tha t t h e f o r c e s of NATO
w e r e s u p p o r t e d by the b e s t a v a i l a b l e c o m m u n i c a t i o n s s y s t e m . The i n t r o d u c t i o n
of n u c l e a r w e a p o n s with t h e i r h ighly c o m p l e x e l e c t r o n i c s s y s t e m s , high p e r -
f o r m a n c e a i r c r a f t and guided m i s s i l e s r e d u c e d the t i m e a v a i l a b l e f o r w a r n i n g
of a t t a ck , and made i t n e c e s s a r y f o r SACEUR to be p r o v i d e d wi th u n i n t e r r u p t e d
high speed c o m m u n i c a t i o n wi th a l l e l e m e n t s of h i s c o m m a n d .
During G e n e r a l N o r s t a d * s f i r s t y e a r a s S u p r e m e C o m m a n d e r s ign i f i can t
s t e p s w e r e t aken to i m p r o v e the A C E c o m m u n i c a t i o n s s y s t e m . I m p l e m e n t a t i o n
(1) SGM-645-57 , 4 Oct 57: " P r e s e n t and F o r e s e e a b l e R e q i i i r e m e n t s f o r C o m m u n i c a t i o n s - E l e c t r o n i c s P e r s o n n e l . "
MÄTO C O W R D I M M L 214
NAtfO OEGirET
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
WATO CG^-DEFTTAM S H A P E 5 7 / 6 7 NATO s t n r p f-T
of t h e F o r w a r d S c a t t e r S y s t e m would p r o v i d e r a p i d and r e l i a b l e c o m m u n i -
c a t i o n s b e t w e e n t h e e a r l y w a r n i n g r a d a r s t a t i o n s and SHAPE. The p h a s e d
p l a n to p r o v i d e t h e e a r l y w a r n i n g s c r e e n i t se l f w a s i m p l e m e n t e d a s f a r a s
w a s p o s s i b l e . C e r t a i n p r o b l e m s e m e r g e d a s a r e s u l t of t h e i n t r o d u c t i o n of
n e w c o m m u n ! c a t i o n s e q u i p m e n t ; p e r h a p s the m o s t u r g e n t w a s a l ack of
p e r s o n n e l .
T h e L o n g - R a n g e E a r l y Warn ing S y s t e m .
The r e q u i r e m e n t f o r an i n t e g r a t e d long r a n g e e a r l y w a r n i n g s y s t e m h a d
b e e n s u b m i t t e d to t h e Standing Group in N o v e m b e r 1955, fo l lowed by a d e t a i l e d
p l a n f o r t h e i m p l e m e n t a t i o n of the s y s t e m f o r w a r d e d s ix m o n t h s l a t e r . The
M i l i t a r y R e p r e s e n t a t i v e s C o m m i t t e e of t h e NAC i s s u e d M C 61 ( "The R e q u i -
r e m e n t fo r an I n t e g r a t e d E a r l y Warn ing Sys t em C o v e r i n g t h e A p p r o a c h e s t o
A C E " ) in J u n e 1956, and r e c o m m e n d e d tha t t he Counci l a p p r o v e SACEUR' s
r e q u i r e m e n t . The M i l i t a r y R e p r e s e n t a t i v e s C o m m i t t e e a l s o r e c o m m e n d e d
m u l t i - l a t e r a l f i nanc ing by a l l NATO n a t i o n s / 2 ^
S H A P E P l a n n i n g f o r the E a r l y Warn ing S y s t e m .
An Ad Hoc C o m m i t t e e w a s f o r m e d at SHAPE to c o o r d i n a t e t h e v a r i o u s
p l a n s f o r i m p l e m e n t a t i o n of t h e s y s t e m . At the f i r s t m e e t i n g of t h i s c o m m i t t e e
pn 20 S e p t e m b e r 1956, the hope w a s e x p r e s s e d by t h e Chief Signal O f f i c e r ,
CSeneral G a r l a n d , t ha t t he Counci l would soon a p p r o v e MC 61, and thus a l low
S H A P E to go a h e a d with the c o m p l e t e p l a n . It w a s hoped to c o m m e n c e s i t e
c o n s t r u c t i o n and equ ipmen t p r o c u r e m e n t du r ing F e b r u a r y 1957, i n s t a l l t he
L t r , S H A P E to SGN, AG 3176 AD, 30 Nov 55; " T h e R e q u i r e m e n t f o r an I n t e g r a t e d E a r l y Warnirlg S y s t e m . "
AG 3170 /1 S I G / E L , 9 M a y 56, "A P l a n f o r t h e P r o v i s i o n of an E a r l y Warn ing S y s t e m , "
^ C 61, J u n e 1956. F o r a u s e f u l d e s c r i p t i o n of the e a r l y p lanning s e e : AG 1880.5 S I C / F T ,
10 Sep 57, p a g e s 138-143 . See a l s o Annex I t o t h i s d o c u m e n t .
215
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
equ ipmen t du r ing 1958 and s t a r t o p e r a t i o n of the s y s t e m at t h e end of 1958. '
SHAPE had sen t out s p e c i f i c a t i o n s f o r the r a d a r s t a t i o n s in M a y 1956,
and in c o n s o n a n c e wi th e s t a b l i s h e d p r o c e d u r e , i n c l u d e d a p r o j e c t f o r t h e
p rov i s ion of 18 i nd iv idua l r a d a r s t a t i o n s in t h e 1957 Eigh th Sl ice I n f r a s t r u c -
t u r e P r o g r a m . Al though t h e Counci l had not yet a p p r o v e d M C 61, t h e I n f r a -
s t r u c t u r e C o m m i t t e e r e c o m m e n d e d a p p r o v a l fo r t h e c o m m o n f inanc ing of t h e
whole E - W in D e c e m b e r 1956. In addi t ion , the c o m m i t t e e r e c o m m e n d e d tha t
a d v a n c e a p p r o v a l be g iven to t h e E - W p a r t of the E igh th Sl ice wh ich t h e (4)
c o m m i t t e e had s c r e e n e d in a d v a n c e of t h e r e s t of t h e E igh th Sl ice P r o g r a m /
The Counci l w a s e x p e c t e d t o a p p r o v e t h e I n f r a s t r u c t u r e C o m m i t t e e ' s
r e c o m m e n d a t i o n s e a r l y in 1957, and on t h i s b a s i s , SHAPE sent out a p r o p o s e d
s c h e d u l e f o r the d e l i v e r y of t e c h n i c a l equ ipmen t and a p r o p o s e d m a n n i n g guide to a l lMODs and M S C s . The t e c h n i c a l s p e c i f i c a t i o n s sen t out in M a y
1956 w e r e s t i l l va l id , and SHAPE r e q u e s t e d tha t n a t i o n s c o o r d i n a t e t h e i r
e f f o r t s in the s e l e c t i o n of e q u i p m e n t , c o s t e s t i m a t e s , t r a i n i n g p r o g r a m s and
t h e e s t a b l i s h m e n t of o p e r a t i o n a l and m a i n t e n a n c e s t a n d a r d s fo r the s y s t e m (5)
in con junc t ion with ac t ion t a k e n by MSCs. x
(3) See M i n u t e s of the' Ad Hoc C o m m i t t e e p r e p a r e d by L t . C o l . M a t h i s o n , 4 Oct 56. (4) C-M(56)140, 11 Dec 56, I n f r a s t r u c t u r e C o m m i t t e e R e c o m m e n d a t i o n s .
SHAPE L t r AG 3 1 7 0 / l S I G / E L , 25 May 56, g i v e s the p r o p o s e d t e c h n i c a l s p e c i f i c a t i o n s f o r t h e r a d a r p o s t s .
(5) AG 3170/1 S I C / E L , 12 Dec 56. T h i s d o c u m e n t w a s l a t e r to be t h e c a u s e of c o n s i d e r a b l e d i s a g r e e m e n t b e c a u s e of d i f f e r i n g i n t e r p r e t a t i o n s of p a r a g r a p h 8, " T h e e x p r e s s p u r p o s e of the Long R a n g e E a r l y Warn ing Sys t em i s to p r o v i d e e a r l y wa rn ing of an a i r a t t a c k aga in s t or t h r o u g h Al l ied C o m m a n d E u r o p e . The s y s t e m and i t s o p e r a t i o n , t h e r e f o r e , h a s been d e s i g n e d t o p e r f o r m t h i s func t ion , a l though t h e i n h e r e n t c h a r a c -t e r i s t i c s of r a d a r equ ipmen t do p e r m i t the p e r f o r m a n c e s of o the r a i r d e f e n s e d u t i e s . The p e r f o r m a n c e of o the r a i r d e f e n s e du t i e s would en ta i l an add i t iona l r e q u i r e m e n t f o r p e r s o n n e l . "
216
^NAT t O 3 E C R B T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m
Counci l Approva l of E a r l y W a r n i n g I n f r a s t r u c t u r e .
The NAC a p p r o v e d t h e e s t a b l i s h m e n t of t h e E - W S y s t e m to be c o m m o n l y
f i n a n c e d on 9 J a n u a r y 1957, and a l s o the a d v a n c e funding of c e r t a i n t e c h n i c a l
e q u i p m e n t c o s t i n g L 11.85 m i l l i o n . G e n e r a l N o r s t a d , in a m e s s a g e to a l l
M O D s on 24 J a n u a r y 1957, w r o t e "It i s of the u t m o s t i m p o r t a n c e to t h e
s e c u r i t y of NATO E u r o p e tha t t he Long R a n g e E a r l y Warn ing S c r e e n should
be c o m p l e t e d at t h e e a r l i e s t p o s s i b l e da t e . To t h i s end, i t i s i m p o r t a n t t o
r e d u c e a s f a r a s p o s s i b l e t h e i n e v i t a b l e l e a d t i m e r e q u i r e d f o r p r o d u c t i o n
and i n s t a l l a t i o n of t h e ind iv idua l r a d a r s . I hope you wi l l now f e e l ab le t o
e x p e d i t e t h e i m p l e m e n t a t i o n of the Long Range E a r l y Warn ing S c r e e n in your
r e s p e c t i v e t e r r i t o r i e s . In t h i s r e s p e c t i t would be of g r e a t advan t age and
would g r e a t l y a s s i s t c o o r d i n a t i o n of a c t i o n s if SHAPE and M a j o r Subord ina t e
C o m m a n d S igna l s O f f i c e r s w e r e t o e s t a b l i s h c o n t a c t s at e a r l y d a t e s wi th the
d e p a r t m e n t s or a g e n c i e s in your M i n i s t r i e s of D e f e n s e which wil l be r e s p o n -
s i b l e f o r implerrent ing the r a d a r p r o g r a m , and to t h i s end I should be g r a t e f u l
if you would f u r n i s h t h e n a m e s and d e s i g n a t i o n s of t h e i nd iv idua l s c o n c e r n e d
in o r d e r tha t d i r e c t l i a i s o n m a y be f a c i l i t a t e d a s soon a s p o s s i b l e .
P r o b l e m s of Na t iona l Viewpoin t s Conce rn ing S p e c i f i c a t i o n s .
S H A P E h a s b e e n f o r c e d to a d j u s t t he da t e fo r t h e c o m m e n c e m e n t of con -
t r a c t u a l ac t ion by t h e n a t i o n s f r o m F e b r u a r y to 1 5 A p r i l 1957 a s a r e s u l t of
t h e d e l a y c a u s e d by the t i m e t a k e n to p r o c e s s i m p l e m e n t a t i o n p r o c e d u r e s . A
m o r e s e r i o u s d e l a y s e e m e d l ike ly , h o w e v e r , when c o n s i d e r a b l e d i s a g r e e m e n t
wi th t h e t e c h n i c a l s p e c i f i c a t i o n s a s p ropos ed by S H A P E w a s e x p r e s s e d by
F r a n c e , t h e N e t h e r l a n d s and I ta ly . As a r e s u l t of c o r r e s p o n d e n c e be tween
S H A P E and t h e MODs of t h e s e t h r e e n a t i o n s , a m e e t i n g w a s a r r a n g e d at t h e
P a l a i s de Chai l lo t in an a t t e m p t to r e a c h a so lu t ion to the d i f f e r e n c e s of
op in ion . It w a s not p o s s i b l e to a r r i v e at a so lu t ion , h o w e v e r , and i t w a s
(6 ) SCO O U T 3 3 4 2 3 , 24 J a n 57 : S A C E U R t o M O D B ; S C O O U T 3 3 3 6 0 , 22 J a n 57, SACEUR to M O D s ca l l ing f o r e s t i m a t e s on c o s t s of r a d a r s i t e s and a s s o c i a t e d f a c i l i t i e s -Jf--t " V 1 O r I I.' ; X M: I
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a g r e e d t o r e f e r t h e m a t t e r t o t h e h i g h e s t p o s s i b l e m i l i t a r y l e v e l /
R e p r e s e n t a t i v e s f r o m t h e M O D s of F r a n c e , t h e N e t h e r l a n d s , I t a l y
a n d T u r k e y w e r e i n v i t e d t o a t t e n d a f u r t h e r m e e t i n g u n d e r t h e C h a i r m a n s h i p
of G e n e r a l S c h u y l e r h e l d at S H A P E on 19 M a r c h 1957. D u r i n g a r e - s t a t e m e n t
of t h e SHAPE o p e r a t i o n a l r e q u i r e m e n t f o r t h e E - W S y s t e m , A i r V i c e M a r s h a l
M c G r e g o r , ACOS Ai r D e f e n s e , S H A P E , s a i d " . . . s i n c e t h e r e q u i r e m e n t w a s
w r i t t e n , t e c h n i c a l p r o g r e s s o f f e r e d t h e p o s s i b i l i t y of coun t ing t o e v e n f i n e r
l i m i t s t h a n t h o s e s t a t e d and if t h e r e w a s any q u e s t i o n of v a r y i n g t h e r e q u i -
r e m e n t t h e r e w a s good r e a s o n t o t i g h t e n r a t h e r t h a n r e l a x i t in t h i s r e s p e c t . "
T h e m e e t i n g c o n t i n u e d w i t h s t a t e m e n t s by e a c h M O D r e p r e s e n t a t i v e , and a t
t h e c o n c l u s i o n , G e n e r a l S c h u y l e r s a i d t h a t SACEUR w o u l d b e a d v i s e d of t h e (8)
p r o c e e d i n g s and h e w o u l d d e c i d e wha t f u r t h e r a c t i o n wou ld b e r e q u i r e d .
SACEUR d e c i d e d t h a t t h e o p e r a t i o n a l r e q u i r e m e n t s e t out in t h e o r i g i n a l
S H A P E d o c u m e n t of 30 N o v e m b e r 1955 w a s "bo th w e l l f o u n d e d and f e a s i b l e
i n t h e t i m e s c a l e . " He d id no t c o n s i d e r t h a t a n y b r o a d e n i n g of t h e S H A P E
r e q u i r e m e n t w a s d e s i r a b l e and d i r e c t e d t h a t t h e " o p e r a t i o n a l r e q u i r e m e n t
a s now s t a t e d t h e r e f o r e s t a n d s . " It w a s h o p e d t h a t t h e n a t i o n a l a u t h o r i t i e s
(7) S I C / E L 3170.1 d a t e d 23 F e b 57: M e m o r a n d u m f r o m Signal D i v i s i o n S H A P E t o ACOS Ai r D e f e n s e : T h e m a i n p o i n t s of d i s a g r e e m e n t w e r e : a . F r a n c e and t h e N e t h e r l a n d s cou ld not a g r e e t o t h e S H A P E r e q u i -
r e m e n t f o r 360 r a d a r c o v e r a g e a t a l l s t a t i o n s ; b . F r a n c e , t h e N e t h e r l a n d s and I t a l y a g r e e d i n p r i n c i p l e w i t h t h e r e -
q u i r e m e n t s in S H A P E ' s o r i g i n a l r e c o m m e n d a t i o n s of N o v e m b e r 1955, but d i s a g r e e d w i t h S H A P E ' S i n t e r p r e t a t i o n on t h e n e c e s s i t y t o coun t a s s e p a r a t e a i r c r a f t , two a i r c r a f t t w o n a u t i c a l m i l e s a p a r t a t m a x i -m u m r a n g e i n a n y d i r e c t i o n in t h e h o r i z o n t a l p l a n e .
c . F r f u i c e and t h e N e t h e r l a n d s cou ld no t a g r e e t o a n y r e q u i r e m e n t b e i n g s t a t e d o r i m p l i e d f o r a f i g h t e r c o n t r o l c a p a b i l i t y a t amy o n e of t h e E - W s t a t i o n s ( n o t e : P a r a g r a p h 8 of t h e 12 D e c e m b e r S H A P E l e t t e r ) t h i s h a v i n g b e e n no t s p e c i f i c a l l y m e n t i n n e d i n e i t h e r t h e o r ig ina l s p e -c i f i c a t i o n s o r M C 61.
(8) AG 3 1 7 0 / 3 1 7 6 AD, 11 Apr 57: M i n u t e s of a m e e t i n g on t h e O p e r a t i o n a l R e q u i r e m e n t f o r L o n g R a n g e E a r l y W a r n i n g R a d a r s .
See a l s o : 158 E M F A / T R A N S / F / S , 31 J a n 57, g iv ing t h e F r e n c h v i e w s .
' " r i i fcirrrnT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
would be a b l e t o p r o c e e d wi th t h e t a s k of i n i t i a t i ng c o n t r a c t u a l ac t ion to (9)
p r o c u r e t h e n e c e s s a r y e q u i p m e n t / '
In a m e s s a g e t o M O D s c o n c e r n e d on 20 A p r i l 1957, SHAPE r e f e r r e d to
t h e f a c t t ha t d e l a y w a s i n e v i t a b l e s i n c e a g r e e m e n t h a d not yet been r e a c h e d
on t h e o p e r a t i o n a l r e q u i r e m e n t s . As a r e s u l t i t w a s not p o s s i b l e t o f i n a l i z e
t h e t e c h n i c a l s p e c i f i c a t i o n s , M O D s w e r e a s k e d t o p r e p a r e a s f a r a s w a s
p o s s i b l e e s t i m a t e s s u i t a b l e f o r the a u t h o r i z a t i o n of f u n d s by t h e P a y m e n t s and
P r o g r e s s C o m m i t t e e / * ^
N a t i o n a l D i f f e r e n c e s of Opinion R e c o n c i l e d .
D i s c u s s i o n s took p l a c e a t t h e h i g h e s t l e v e l du r ing t h e s u m m e r of 1957.
S H A P E w a s a b l e to f i n a l i z e p l a n s a f t e r a m e e t i n g of t h e I n f r a s t r u c t i i r e C o m -
m i t t e e h e l d on 10 S e p t e m b e r 1957 .^ 1 1 )
(9) AG 3 1 5 0 / 3 1 7 6 AD, 5 Apr 57: F r o m C O F S t o a l l MODs , MSCs , e t c . (10) SCO OUT 35457, 20 Apr 57. (11) See A C / 4 - A / 2 2 2 , dtd 10 Sep 57. D e c i s i o n s s h e e t of a m e e t i n g he ld by
I n f r a s t r u c t u r e C o m m i t t e e . It w a s a p p a r e n t tha t t he t e c h n i c a l d i f f e r e n c e s of opinion had b e e n r e s o l v e d and a c o m p r o m i s e so lu t ion to the p r o b l e m had b e e n w o r k e d out . The C o m m i t t e e a g r e e d " tha t i n t e r e s t e d d e l e g a t i o n s shou ld a t once t a k e s t e p s to ob ta in f r o m a p p r o p r i a t e f i r m s in t h e i r h o m e c o u n t r i e s c a p a b l e of supply ing t h e n e c e s s a r y r a d a r equ ipmen t , c o m p l e t e t e c h n i c a l d e s c r i p t i o n s se t t ing out in de t a i l t h e p e r f o r m a n c e and c o n s -t r u c t i o n of the e q u i p m e n t which , in t h e opirion of t h e f i r m s , would s a t i s f y t h e NATO n e e d f o r e a r l y w a r n i n g p u r p o s e s , t o g e t h e r wi th an e s t i m a t e d d e l i v e r y s c h e d u l e . Subject t o the q u a l i f i c a t i o n s be low, t h e SHAPE operat ional r e q u i r e m e n t AG 3176 AD da t ed 30 N o v e m b e r 1955 and t h e S H A P E t e c h n i c a l s p e c i f i c a t i o n AG 3170 /1 S I G / E L da ted 25 M a y 1956, shou ld s e r v e a s an i nd i ca t ion of d e s i r a b l e q u a l i t i e s of the equ ipmen t . T h e q u a l i f i c a t i o n s a r e a s f o l l o w s : a . t h e SHAPE o p e r a t i o n a l r e q u i r e m e n t s and t e c h n i c a l s p e c i f i c a t i o n s
shou ld not b e r e g a r d e d a s m a n d a t o r y ; b . if h i g h e r p e r f o r m a n c e c a n be o f f e r e d t h i s would be a d v a n t a g e o u s ; c . in m a k i n g h i s s e l e c t i o n , SACEUR wi l l l e a v e to one s ide t h e ques t ion
of f i g h t e r c o n t r o l ; d . t h e t e c h n i c a l d e s c r i p t i o n s should be s e n t d i r e c t l y to t h e I n t e r n a t i o n a l
Staff and SADTC ; e . t h e ob ta in ing of t h e s e t e c h n i c a l d e s c r i p t i o n s s h o u l d n o t , in any way ,
• ""H • i v. y ' ^ - - .1,..
219
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SACEUR, in c o n s u l t a t i o n wi th SADTC, w a s e m p o w e r e d to s e l e c t t h e
e q u i p m e n t which f r o m a m i l i t a r y po in t of v i e w would s a t i s f y NATO p u r p o s e s . .
T h e d e l a y tha t had r e s u l t e d f r o m the u n w i l l i n g n e s s of c e r t a i n n a t i o n s to a c c e p t
SHAPE 'S s t a n d a r d s f o r t h e o p e r a t i o n a l r e q u i r e m e n t s had f o r c e d S H A P E to
c o n s i d e r a b l y r e - a d j u s t t h e s c h e d u l e f o r c o m p l e t i o n of the n e w e a r l y w a r n i n g
s y s t e m r a d a r s c r e e n . It w a s a n t i c i p a t e d tha t r a d a r s and a s s o c i a t e d e q u i p m e n t (12)
would be s e l e c t e d and c o n t r a c t e d f o r in e a r l y 1958, a l m o s t one y e a r l a t e / '
S i tuat ion at End -1957 .
By the end of 1957, P h a s e I of t h e o r i g i n a l p l a n f o r E a r l y W a r n i n g
cove rage of Al l ied C o m m a n d E u r o p e (us ing ex i s t i ng equ ipmen t ) , had p r o g r e s s e d
to t h e po in t w h e r e , except f o r c e r t a i n p l a c e s in the e x t r e m e N o r t h and o t h e r
p l a c e s in the Southern R e g i o n , t h e E - W Sys t em w a s o p e r a t i n g on a 2 4 - h o u r
b a s i s wi th r a d a r s p r o v i d i n g a c a r e r of a p p r o x i m a t e l y 120 n a u t i c a l m i l e s up
to 30 /40 , 000 f e e t . In the UK and c e r t a i n c e n t r a l a r e a s , i n s t a l l a t i o n of m o d e r n
r a d a r s had ex tended t h e r a n g e t o 240 n . m . and o v e r 60, 000 f e e t . The r a d a r 1
i n f o r m a t i o n w a s p r o c e s s e d t h r o u g h Reg iona l A i r O p e r a t i o n s C e n t e r s to the
SHAPE O p e r a t i o n s C e n t e r , both of which w e r e a l s o o p e r a t i n g on a r o u n d - t h e -
c lock b a s i s . The g a p s in the s y s t e m w e r e not expec t ed to be f i l l e d un t i l t h e
i m p l e m e n t a t i o n of P h a s e II. It w a s a p p a r e n t tha t m e a g r e c o m m u n i c a t i o n s
f a c i l i t i e s h a m p e r e d the e f f e c t i v e n e s s of the E a r l y Warn ing S y s t e m , a s i t ua t i on
which would be r e s o l v e d when t h e F o r w a r d S c a t t e r S y s t e m w a s in o p e r a t i o n / * ^
(11) . / . . . be r e g a r d e d a s a f o r m a l bid, and p r i c e wi l l not be r e q u e s t e d . f . the t e c h n i c a l d e s c r i p t i o n s should be s u b m i t t e d a s soon a s p o s s i b l e
but not l a t e r than 31 O c t o b e r 1957, a f t e r which da te no f u r t h e r d e s c r i p -t ions wil l be c o n s i d e r e d .
(12) S H A P E / 1 7 1 / 5 7 , 15 Oct 57. (13) See S H A P E / 1 7 1 / 5 7 , 15 Oct 57: R e p o r t on P r o g r e s s m a d e t o w a r d s
i m p l e m e n t i n g t h e r e q u i r e m e n t s of M C 4 8 / 2 .
220
NATO SfiCll UT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
R a d a r Da ta P r o c e s s i n g and T r a n s m i s s i o n .
T h e e s t a b l i s h m e n t of an e f f i c i en t E a r l y Warn ing S y s t e m i n c o r p o r a t i n g
m o d e r n r a d a r s and t h e F o r w a r d Sca t t e r t e c h n i q u e f o r c o m m u n i c a t i o n p u r p o s e s
m a d e n e c e s s a r y an equa l ly e f f i c i en t s y s t e m t o e n a b l e d a t a d e r i v e d f r o m t h e
r a d a r s and o the r d e t e c t i n g s o u r c e s t o be a s s e m b l e d in s u c h a way a s t o p e r m i t
r a p i d a s s e s s m e n t of t h e o v e r a l l a i r s i t ua t i on . In a l e t t e r a d d r e s s e d to a l l
M O D s and M S C s , SHAPE s t a t e d t h a t a p r o j e c t of t h i s n a t u r e w a s r e c o m m e n d e d
f o r i n c l u s i o n in t h e Nin th Sl ice (1958) I n f r a s t r u c t u r e P r o g r a m . Out l ining
t h e d r a f t o p e r a t i o n a l r e q u i r e m e n t , t h e n e e d f o r such a s y s t e m w a s e s t a b l i s h e d .
" T o d a t e , v e r y l i t t l e t e c h n i c a l i n f o r m s t i o n on r a d a r d a t a p r o c e s s i n g and t r a n s -
m i s s i o n s y s t e m s h a s b e e n m a d e a v a i l a b l e t o SHAPE. Under t h e s e cond i t i ons ,
i t i t d i f f i cu l t t o p r e p a r e the n e c e s s a r y s p e c i f i c a t i o n s f o r a s y s t e m m e e t i n g the
p r e s c r i b e d o p e r a t i o n a l r e q u i r e m e n t s . As a u t o m a t i c or s e m i - a u t o m a t i c handl ing
t e c h n i q u e s i n a i r d e f e n s e a r e a c o m p a r a t i v e l y new f i e ld , i t i s a l s o n e c e s s a r y
t o a c q u a i n t a l l NATO n a t i o n s wi th t h e s e s y s t e m s and the o p e r a t i o n a l a d v a n t a g e s
w h i c h m a y be e x p e c t e d . F u r t h e r , i t i s n e c e s s a r y to i n s u r e tha t t he SHAPE
D a t a T r a n s m i s s i o n S y s t e m f o r e a r l y w a r n i n g p u r p o s e s be* c o m p a t i b l e wi th
any n a t i o n a l s y s t e m s which a r e now be ing c o n c e i v e d or p l a n n e d f o r a i r d e f e n s e
p u r p o s e s . "
S H A P E s u g g e s t e d tha t a s y m p o s i u m should be he ld in o r d e r tha t an
o v e r a l l c o o r d i n a t e d p l a n migh t be e s t a b l i s h e d . The s y m p o s i u m w a s he ld at
S H A P E on 8 - 1 2 O c t o b e r 1957. Owing t o t h e r e l u c t a n c e of n a t i o n s to p r o c e e d
wi th the Ninth Sl ice I n f r a s t r u c t u r e P r o g r a m l i t t l e f u r t h e r p r o g r e s s w a s m a d e (14) d u r i n g 1957 on t h e Da ta P r o c e s s i n g and T r a n s m i s s i o n S y s t e m / '
(14) See AG 3170.17 SIC/EL, dtd 27 M a y 57, f o r the SHAPE l e t t e r to MODs and M S C s . The e n c l o s u r e g i v e s t h e t e c h n i c a l d e s c r i p t i o n of the p r o p o s e d s y s t e m .
SCO OUT 37275 dtd 16 Ju l 57: R e f e r s to a SHAPE l e t t e r AG 3170 /3171 .1 AD dtd 3 J u l t o a l l MODs and M S C s . T h i s l e t t e r g i v e s the o p e r a t i o n a l r e q u i -r e m e n t f o r t h e n e w s y s t e m . The m e s s a g e c a l l s fo r t h e s y m p o s i u m .
221 ..,. . -
-MATH -"MH-IfH {..T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
E l e c t r o n i c C o u n t e r m e a s u r e s .
The i n c r e a s i n g u s e of e l e c t r o n i c equ ipmen t t h roughou t Al l ied C o m m a n d
E u r o p e m a d e n e c e s s a r y by t h e adopt ion of the Long R a n g e E a r l y Warn ing
S y s t e m i n c r e a s e d the v u l n e r a b i l i t y of tha t equ ipmen t t o e l e c t r o n i c c o u n t e r -
m e a s u r e s . R e c o g n i z i n g t h e n e e d f o r a NATO p o l i c y on t h i s i m p o r t a n t a s p e c t
of w a r f a r e , t h e N o r t h At lan t ic Counci l a p p r o v e d M C 64, "NATO E l e c t r o n i c
W a r f a r e P o l i c y , " on 18 O c t o b e r 1958. T h i s w a s a c o m p r e h e n s i v e d o c u m e n t
dea l ing with a l l a s p e c t s of e l e c t r o n i c w a r f a r e . It a s s i g n e d the t a s k of c o o r d i -
n a t i o n and c o n t r o l t o t h e Standing Group , which w a s m a d e r e s p o n s i b l e f o r
t h e " f o r m u l a t i o n of the po l i cy and d o c t r i n e f o r , and the o v e r a l l c o o r d i n a t i o n
of, t h e e m p l o y m e n t of e l e c t r o n i c w a r f a r e by NATO f o r c e s . " R e q u i r e m e n t s
by the M a j o r C o m m a n d e r s f o r new equ ipmen t and t h e d i s s e m i n a t i o n of i n f o r -
m a t i o n on the l a t e s t d e v e l o p m e n t s would be among the s p e c i f i c t a s k s of the
Standing Group . S A C E U R ' s r e s p o n s i b i l i t y w a s t h e p lann ing and conduct of
e l e c t r o n i c w a r f a r e wi th in h i s a r e a of c o m m a n d , e s t a b l i s h i n g t h e n e c e s s a r y
o r g a n i z a t i o n wi th in SHAPE and t h e d e v e l o p m e n t of p o l i c i e s and p l a n s in a c c o r d
wi th Standing Group d i r e c t i v e s .
The u r g e n t n e e d f o r a p o l i c y on E l e c t r o n i c C o u n t e r m e a s u r e s r e s u l t e d
f r o m t h e l ack of a NATO po l i cy and a l s o b e c a u s e of r e s t r i c t i o n s on t h e r e l e a s e
of i n f o r m a t i o n by v a r i o u s n a t i o n s . Whils t t h e Soviet Union had undoubted ly
i n c r e a s e d i t s po t en t i a l t o w a g e an e l e c t r o n i c w a r , t h e NATO c a p a b i l i t y w a s
" v e r y m e a g e r . " As a r e s u l t of t h e NAC d e c i s i o n , SHAPE p l a n n e r s deve loped
a p o l i c y f o r ECM and i s s u e d gu idance t o a l l Subord ina t e C o m m a n d s and MODs .
( 1 4 ) . / . . . AG 3170.8 S I C / E L da ted 29 J a n u a r y 1958 g i v e s a s u m m a r y of the Data P r o c e s s i n g and T r a n s m i s s i o n S y m p o s i u m , and the e n c l o s u r e g i v e s a l l the p r e s e n t a t i o n s m a d e in f u l l .
AG 6 1 0 0 / 9 / l P - 109 /57 PROG da ted 2 Ju ly 1957 - The SHAPE R e c o m m e n -ded 1958 Ninth Sl ice I n f r a s t r u c t u r e P r o g r a m "Red Book" g i v e s t h e d e -t a i l s of the i n f r a s t r u c t u r e r e q u i r e m e n t s fo r t h e Sys t em. Al so a s u m m a r y of the m i l i t a r y j u s t i f i c a t i o n , t he p u r p o s e of t h e s y s t e m and a d e s c r i p t i o n of the p r o j e c t .
See L o g i s t i c s C h a p t e r fo r a d e s c r i p t i o n of t h e p r o g r e s s of the Ninth S l ice .
^ V v v } ^ V r V ' . " . V V , n r I - w i- w u . - ; L j/ r
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
In o r d e r t ha t no t i m e be l o s t in i m p l e m e n t i n g t h e po l i cy , SHAPE f o r m e d (15)
a t r a v e l l i n g t e a m t o d i s c u s s p r o b l e m s c o n n e c t e d wi th ECM p lann ing .
C o m m u n i c a t i o n s - E l e c t r o n i c s P e r s o n n e l ,
Changing O p e r a t i o n a l C o n c e p t s . The w a r t i m e m i s s i o n of Al l ied C o m -
m a n d E u r o p e a s l a i d down by M C 48 m a d e n e c e s s a r y a s t a t e of r e a d i n e s s b a s e d
on a p e a c e t i m e c a p a b i l i t y . The P o l i t i c a l D i r e c t i v e , i s s u e d in D e c e m b e r 1956,
e m p h a s i z e d t h e n e e d to m a i n t a i n and i m p r o v e t h o s e m e a s u r e s which w e r e v i t a l
t o e n s u r e a c e r t a i n r e t a l i a t o r y e f f o r t . The e f f e c t i v e n e s s of t h i s e f f o r t depended
e n t i r e l y upon r e l i a b l e c o m m u n i c a t i o n s in s u p p o r t of a l e r t m e a s u r e s and t o
p r o v i d e e s s e n t i a l e a r l y warning . The i n t r o d u c t i o n in to NATO of n e w c o m m u -
n i c a t i o n s s y s t e m s , and t h e p r o p o s e d i n t r o d u c t i o n of o the r e l e c t r o n i c s y s t e m s -
e . g . c o u n t e r m e a s u r e s , w e a p o n s s y s t e m - i n c r e a s e d the r e q u i r e m e n t f o r p e r -
sonne l t o m a n t h e s e s y s t e m s . In add i t ion , e l e c t r o n i c equ ipmen t b e c a m e i n -
c r e a s i n g l y c o m p l e x and ca l l ed f o r more |h igh ly sk i l l ed p e r s o n n e l . As t h e u s e
of c o m p l e x e q u i p m e n t i n c r e a s e d so would the n e e d f o r even g r e a t e r n u m b e r s
of h igh ly t r a i n e d p e r s o n n e l t o i n s t a l l , o p e r a t e and m a i n t a i n the e q u i p m e n t .
T h e p r o b l e m of c o m m u n i c a t i o n s p e r s o n n e l had b e c o m e m o r e a c c u r a t e
s i n c e t h e n u m b e r of i n t e r n a t i o n a l h e a d q u a r t e r s wi th in A C E had i n c r e a s e d
f r o m 12 in 1952 to 22 in 1957. The v a r i o u s f a c i l i t i e s p l a n n e d and p r o g r a m m e d
u n d e r p r e v i o u s i n f r a s t r u c t u r e s l i c e s w e r e c o m p l e t e d and w e r e o p e r a t i n g .
Al though i t w a s p o s s i b l e to u s e a l i m i t e d n u m b e r of c iv i l i an p e r s o n n e l , t he
U n c e r t a i n s t a t u s of c i v i l i a n s in an e m e r g e n c y m a d e ac t ion n e c e s s a r y to i n -
c r e a s e t h e n u m b e r of m i l i t a r y p e r s o n n e l .
P r o g r e s s du r ing 1957. A S H A P E s tudy u n d e r t a k e n e a r l y in 1957 i n d i c a t e d
tfc£t a s u b s t a n t i a l i n c r e a s e in t h e number of c o m m u n i c a t i o n s - e l e c t r o n i c s p e r -
sonne l w a s r e q u i r e d "in the n e a r f u t u r e . " T h i s s tudy d i d n o t , h o w e v e r , con -
s i d e r t h e i m p l i c a t i o n s of the M i n i m u m F o r c e Study, at tha t t i m e in p r e p a r a t i o n . # V
( I S ) M C 64 (F ina l ) , 18 Oct 56, NAC A p p r o v a l . The SG w a s d i r e c t e d t o r e v i e w t h e p o l i t y in a p p r o x i m a t e l y one y e a r ' s t i m e in t h e l ight of e x p e r i e n c e . ^STSC 6 3 6 / 5 6 , 2 Nov 56).
2*3 ''
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
An i n c r e a s e in p e r s o n n e l du r ing t h e t h r e e y e a r p e r i o d 1957-1960 amoun t ing (16)
t o 2, 952 w a s e s t i m a t e d /
In a m e s s a g e to SACEUR, CINCNORTH s t a t e d : "It h a s been a p p a r e n t
f o r s o m e t i m e tha t t h e f a i l u r e to a c q u i r e t h e n e c e s s a r y s i g n a l s p e r s o n n e l f o r
m y h e a d q u a r t e r s s u p p o r t m i g h t r e s u l t in d e n i a l t o m e of t h e equ ipment wi th
w h i c h m y e s s e n t i a l r e q u i r e m e n t s could be m e t . . . " CINCNORTH went on to
e x p r e s s t h e v iew tha t only S A C E U R ' s p e r s o n a l i n t e r v e n t i o n could cut t h e i n e -
v i t a b l e d e l a y in obta in ing p e a c e t i m e p e r s o n n e l su f f i c i en t t o m a n e s s e n t i a l
c i r c u i t s . " P r e s e n t s igna l r e s o u r c e s a l low m e not m o r e than one t e l e g r a p h
c i r c u i t t o any a u t h o r i t y in e m e r g e n c y not excluding SACEUR and no c e r t a i n t y (17)
of m a i n t a i n i n g even t h i s c a p a b i l i t y beyond H - H o u r . "
SACEUR exp la ined tha t a s tudy w a s being f o r w a r d e d to t h e Standing
Group s h o r t l y , and would con ta in only one s p e c i f i c r e q u e s t f o r add i t iona l
p e r s o n n e l , a r e q u e s t which would s a t i s f y CINCNORTH's add i t iona l C - E p e a c e -(18)
t i m e p e r s o n n e l r e q u i r e m e n t s /
The Standing Group was- a l s o a s k e d to c o n s i d e r an add i t iona l SHAPE
r e q u e s t f o r p e r s o n n e l n e e d e d f o r the F o r w a r d Sca t t e r S y s t e m . T h e r e w a s
an i m m e d i a t e r e q u i r e m e n t f o r 12 add i t iona l o f f i c e r s , but o ther p e r s o n n e l (19)
would be needed f o r a p e r i o d of at l e a s t t h r e e y e a r s /
At the end of Ju ly , t h e Standing Group r e q u e s t e d SHAPE to p r e p a r e and
m a i n t a i n an A C E P e r s o n n e l R e q u i r e m e n t s P r o g r a m ( P R P ) cove r ing a f i v e -
y e a r p e r i o d . T h i s would i n d i c a t e the r e q u i r e m e n t f o r any i n c r e a s e r e q u i r e d
in s i g n a l s p e r s o n n e l . An add i t iona l d i f f i cu l ty t o an e a r l y so lu t ion to t h i s (16) AG 3100 S I G / P T , 21 M a r 57. (17) SCO IN 2815, 24 M a y 57. (18) SCO OUT 36479, 6 J u n 57. (19) SCO OUT 36491, 6 J u n 57. T h i s m e s s a g e ou t l i ne s t h e r e s p o n s i b i l i t i e s
of SHAPE a s the " h o s t " f o r t h e c o n s t r u c t i o n of the F S Sys t em. It g o e s on t o expand the s p e c i a l n e e d f o r add i t iona l p e r s o n n e l , point ing out t h a t i t w a s not p r a c t i c a b l e to h a v e o f f i c e r s on loan or u t i l i z e o f f i c e r s a l r e a d y at SHAPE. The g r o w t h of Signal Div is ion i s a l s o c o m m e n t e d , on.
M T O i ä l i 224
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p r o b l e m of p e r s o n n e l w a s tha t SHAPE, and i n d e e d the whole of ACE, w a s
f a c e d wi th an o v e r a l l p e r s o n n e l r e d u c t i o n / 2 ^
T h e Standing G r o u p r e c e i v e d the P R P on 17 Oc t obe r 1957, and s u b -
m i t t e d t o the Counc i l a s p e c i a l r e p o r t on t h e s i g n a l s p e r s o n n e l r e q u i r e m e n t (21)
f o r A C E b a s e d on t h e P R P . v '
The Counci l d i s c u s s e d t h e Stamding G r o u p r e p o r t on 30 Oc tobe r 1957.
T h e c h a i r m a n s t a t e d tha t he did not f e e l t ha t t h e r e w a s any d i r e c t ac t ion
w h i c h the Coxincil could t a k e , but he s u g g e s t e d tha t e a c h P e r m a n e n t R e p r e -
s e n t a t i v e should r e f e r the p r o b l e m to h i s a p p r o p r i a t e na t i ona l a u t h o r i t i e s in
o r d e r t ha t ac t ion could be t a k e n n a t i o n a l l y to e n s u r e tha t " the p r e s e n t s h o r t a g e
of t h i s h igh ly s p e c i a l i z e d type of p e r s o n n e l did not o c c u r in f u t u r e . " The
N e t h e r l a n d s r e p r e s e n t a t i v e s u g g e s t e d tha t i t would be n e c e s s a r y to have a
c o m p l e t e s t a t e m e n t showing the p r e s e n t a u t h o r i z e d s t r e n g t h of C - E p e r s o n n e l
in NATO h e a d q u a r t e r s in p e a c e t i m e , t h e c u r r e n t d e f i c i e n c i e s showing na t i ona l
c o m m i t m e n t s , and s i m i l a r f i g u r e s f o r f u t u r e NATO and n a t i o n a l r e q u i r e m e n t s .
The S H A P E r e p r e s e n t a t i v e at t h i s m e e t i n g po in t ed out tha t t h e r e w a s a f u t u r e
NATO r e q u i r e m e n t of a p p r o x i m a t e l y 1600, and anything up t o 15, 000 p e r s o n n e l (22) would be r e q u i r e d by n a t i o n s f o r i n s t a l l a t i o n s on t h e i r own t e r r i t o r i e s .
T h e F o r w a r d S c a t t e r S y s t e m .
P r i o r t o 1955, SHAPE o p e r a t i o n a l p l a n s had been b a s e d on the concep t
of a b u i l d - u p of i n t e r n a t i o n a l t e n s i o n a c c o m p a n i e d by a bu i l d -up of oppos ing
f o r c e s . The p l a n s deve loped du r ing 1955 m a d e i t c l e a r t h a t wi th in Al l ied
C o m m a n d E u r o p e s u c c e s s in t h e i n i t i a l p h a s e of o p e r a t i o n s w a s v i t a l . T h e
(20) SGM-504-57 , 31 J u l 57, i s t h e r e q u e s t f o r t h e P R P . S G M - 2 6 0 - 5 7 , 17 Apr 57, i s the r e q u e s t f o r an o v e r a l l r e d u c t i o n .
(21) The P R P i s : AG 4 0 3 0 / 4 P A da ted 17 Oct 57. S G M - 6 4 5 - 5 7 i s the SGN r e p o r t on " P r e s e n t and F o r e s e e a b l e R e q u i r e m e n t s f o r C o m m u n i c a t i o n s - E l e c t r o n i c s P e r s o n n e l . "
(22) SCO IN 9726, 30 Oc t : The Counci l d o c u m e n t (a r e - e d i t e d v e r s i o n of the SGN r e p o r t ) w a s C-M(57)128 .
225 , vyoMÖ) r ' 1V 1P • . • fru-.s/'' V̂ ^ --^1 • - I w. *
NATO S E g R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
concep t of a s u r p r i s e a t t a c k with the m i n i m u m of w a r n i n g w a s r e c o g n i z e d , (23)
and m a n y of the ex i s t i ng p l a n s w e r e found to be i n a d e q u a t e /
One of t h e m o s t i m p o r t a n t e l e m e n t s in t h e n e w concep t w a s t h e p o s s i -
b i l i ty of obta in ing a s m u c h w a r n i n g a s p o s s i b l e of an a t t a c k . A study w a s
m a d e at SHAPE to d e t e r m i n e t h e adequacy of t h e A C E c o m m u n i c a t i o n s s y s t e m
a s i t e x i s t e d in 1955. G e n e r a l G r u e n t h e r , SACEUR, s u b m i t t e d the r e s u l t s
of t h i s s tudy t o t h e Standing G r o u p in D e c e m b e r 1955. He w r o t e : "At the
p r e s e n t t i m e , our c o m m u n i c a t i o n s a r e a d a n g e r o u s l y weak l ink . Much e f f o r t
and m o n e y h a s been put in to i m p r o v i n g t h e m and m u c h p r o g r e s s h a s been
m a d e in tha t d i r e c t i o n , but t h e l i m i t a t i o n s i m p o s e d by the t e c h n i q u e s and the
r e s o u r c e s tha t have b e e n a v a i l a b l e have den ied u s t h e s e c u r i t y and t h e e f f e c t -
i v e n e s s tha t i s so i m p o r t a n t . Our r a d i o l i n k s a r e l i a b l e to j a m m i n g and our
l and l i n e s a r e v u l n e r a b l e to a t t a ck and s a b o t a g e to a high d e g r e e . M o r e o v e r ,
w e depend on the connec t ing up and ac t iva t ing of a v e r y l a r g e n u m b e r of c i r -
c u i t s in w a r which a r e not a v a i l a b l e to u s in p e a c e . T h i s i s a t i m e - c o n s u m i n g
p r o c e s s , dependent on the con t inued ava i l ab i l i t y of n a t i o n a l c iv i l i an m a n p o w e r ,
and m a n y of the i m p o r t a n t l i n k s in our l and l i n e cha in a r e po t en t i a l a t o m i c
t a r g e t s . " ( 2 4 )
G e n e r a l G r u e n t h e r r e c o m m e n d e d the adopt ion of the F o r w a r d Sca t t e r
t e c h n i q u e f o r t h e A C E s igna l c o m m u n i c a t i o n s y s t e m . A l r e a d y p r o v e d r e l i a b l e
in t h e a i r d e f e n s e s y s t e m s of Canada and the Uni ted S ta tes , the f o r w a r d s c a t t e r
t e c h n i q u e involved t h e u s e of t h e t r o p o s p h e r e and i o n o s p h e r e r e s p e c t i v e l y
t o r e f l e c t r a d i o w a v e s f o r long and s h o r t r a n g e s i g n a l s . The a d v a n t a g e s of
t h e s y s t e m w e r e t h e h igh r a t e of r e l i a b i l i t y , f r e e d o m f r o m j a m m i n g and e c o -
n o m y in m a n p o w e r and f i n a n c e . The s y s t e m would h a v e to be m i l i t a r i l y owned
(23) The s e r i e s of MC 48 p a p e r s and the v a r i o u s S H A P E C a p a b i l i t i e s P l a n n i n g D o c u m e n t s show the change in o p e r a t i o n a l p l ann ing . MC 4 8 / l , Sep 55, CTS, w a s a b a s i c d o c u m e n t .
(24) AG 3100 SIG, 7 Dec 55: " T h e R e q u i r e m e n t f o r a R e l i a b l e and S e c u r e Al l ied C o m m a n d E u r o p e Signal C o m m u n i c a t i o n s S y s t e m . " T h i s documen t g i v e s the s igna l s i tua t ion a s it e x i s t e d in 1955.
226
"' ^ O D O R D T W M J
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
and o p e r a t e d , t h u s be ing p e r m a n e n t l y a v a i l a b l e . The e n g i n e e r i n g and i n s -
t a l l a t i o n of t h e s y s t e m by a s ing le c o n t r a c t o r w a s r e c o m m e n d e d to i n s u r e
u n i f o r m i t y . The f inanc ing of t h e s y s t e m w a s r e c o m m e n d e d to be u n d e r "a (25)
s p e c i a l p r o v i s i o n of NATO f u n d s . "v '
The r e c o m m e n d e d s igna l c o m m u n i c a t i o n s y s t e m w a s an i n t e g r a l p a r t
of an o v e r a l l r e c o m m e n d e d E a r l y Warn ing S y s t e m . SACEUR had a l r e a d y
r e c o m m e n d e d t o the Standing Group the c o n s t r u c t i o n of a cha in of r a d a r
s t a t i o n s c o v e r i n g t h e a p p r o a c h e s to A C E in N o v e m b e r 1955. It w a s t h e s p e c i a l
p u r p o s e of the F o r w a r d S c a t t e r S y s t e m to enab le t h e E a r l y Warning p r o c e d u r e
t o o p e r a t e qu ick ly and e f f i c i e n t l y by p r o v i d i n g c r i t i c a l c i r c u i t s c a r r y i n g the
e a r l y w a r n i n g , t h e a t o m i c s t r i k e p l a n and cha in of c o m m a n d and a l e r t .
At a m e e t i n g of M i n i s t e r s of the N o r t h At lan t ic Counci l in P a r i s on
15 D e c e m b e r 1955, G e n e r a l G r u e n t h e r m a d e a p r e s e n t a t i o n in which he e m -
p h a s i z e d t h e u r g e n t n e e d f o r the p r o v i s i o n of a f o r w a r d s c a t t e r s y s t e m . He
e s t i m a t e d tha t t h e i n t r o d u c t i o n of t h e s y s t e m in to Al l ied C o m m a n d E u r o p e
wou ld c o s t s o m e 15 m i l l i o n p o u n d s , and s u g g e s t e d t h a t i t m i g h t we l l be f i -
n a n c e d by s o m e s o r t of i n t e r n a t i o n a l p r o j e c t . The Uni ted S ta t e s S e c r e t a r y of
D e f e n s e s t a t e d tha t h i s G o v e r n m e n t w a s anx ious to s e e the p r o j e c t s t a r t e d a s
soon a s p o s s i b l e , and to t h i s end h i s G o v e r n m e n t would f i n a n c e the e s t a b l i s h -
m e n t of c e r t a i n i n i t i a l l i nks r e c o m m e n d e d by SACEUR. T h i s o f f e r w a s con -
d i t i ona l upon a r r a n g e m e n t s be tween SHAPE and t h e n a t i o n s t h e m s e l v e s wh ich
would p r o v i d e tha t t h e s y s t e m which would be i n s t a l l e d would r e m a i n p e r m a -
n e n t l y t h e p r o p e r t y of SHAPE, and tha t t h e p e r s o n n e l r e q u i r e d to o p e r a t e and
m a i n t a i n t h e ind iv idua l s t a t i o n s would be the continuing r e s p o n s i b i l i t y of SHAPE,
u t i l i z i ng Al l i ed m i l i t a r y p e r s o n n e l . The Uni ted S t a t e s G o v e r n m e n t f u l l y
(Y D e c b b ) (25) See AG 3100 SIG,/ f o r a t e c h n i c a l s p e c i f i c a t i o n of t h e p r o p o s e d s y s t e m . (26) See AG 3176 AD, 30 Nov 55: " T h e r e q u i r e m e n t f o r an I n t e g r a t e d E a r l y
Warn ing S y s t e m c o v e r i n g the a p p r o a c h e s to Al l i ed C o m m a n d E u r o p e . "
227
SlflGftgT
vD. f î ^ v ' T : ^r--YWAPl i. uU Ù- \JJ O Vilify t, Ju
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
' " e x p e c t e d tha t t h e r e m a i n d e r of t h e s y s t e m would be f i n a n c e d by NATO on
a m u l t i - l a t e r a l b a s i s a f t e r t h e r e had been an oppo r tun i t y to s tudy in fu l l the
S H A P E p r o p o s a l s .
The M i l i t a r y C o m m i t t e e a p p r o v e d G e n e r a l G r u e n t h e r 1S o r i g i n a l r e c o m -
m e n d a t i o n s on 1 6 M a r c h 1956 and s u b m i t t e d i t s own r e c o m m e n d a t i o n s to t h e
N o r t h At lan t ic Counc i l . The Counci l a p p r o v e d t h e p r o p o s a l f o r the e s t a b l i s h -
ment of the f o r w a r d s c a t t e r s y s t e m on 11 M a y 1956, r e c o m m e n d i n g m u l t i -
l a t e r a l f i nanc ing . In o r d e r tha t an e a r l y s t a r t could be m a d e on t h e p r o j e c t ,
t h e Counci l no ted tha t s p e c i a l funding a r r a n g e m e n t s would be m a d e , SACEUR (28) having inc luded 15 m i l l i o n pounds in h i s i n f r a s t r u c t u r e p r o g r a m . '
The Deve lopmen t of t h e F o r w a r d Sca t t e r S y s t e m .
On 9 M a y 1957, a P r e s s R e l e a s e i s s u e d f r o m SHAPE gave d e t a i l s of
t h e new c o m m u n i c a t i o n s s y s t e m f o r Al l ied C o m m a n d E u r o p e . " G e n e r a l
L a u r i s N o r s t a d , S u p r e m e Al l i ed C o m m a n d e r E u r o p e , t oday announced tha t
S H A P E had s igned on 1 M a y a L e t t e r of Intent f o r t h e e n g i n e e r i n g and i n s t a l -
l a t i on of a r e v o l u t i o n a r y c o m m u n i c a t i o n s s y s t e m f o r Al l ied C o m m a n d E u r o p e .
T h i s new, a l m o s t j a m p r o o f n e t w o r k wi l l c o m b i n e ove r t h e h o r i z o n t r o p o -
s p h e r i c f o r w a r d " s c a t t e r " and l ine of s ight r a d i o r e l a y l i n k s to f u r t h e r i n t e -
g r a t e the c o m m u n i c a t i o n s f a c i l i t i e s of the N o r t h At lan t i c T r e a t y O r g a n i z a t i o n .
The L e t t e r of Intent w a s i s s u e d to two f i r m s - I n t e r n a t i o n a l S t a n d a r d
E l e c t r i c C o r p o r a t i o n of New York City and Hycon E a s t e r n I n c o r p o r a t e d of
C a m b r i d g e , M a s s a c h u s s e t t s . The c o m b i n e d e s t i m a t e d c o n t r a c t cos t f o r t h e
s e r v i c e s of t h e s e two c o m p a n i e s i s a p p r o x i m a t e l y L 3, 000, 000.
The i s s u i n g of t h e L e t t e r of Intent s igned by SACEUR on 1 M a y 1957
to get t he Sca t t e r S y s t e m in to o p e r a t i o n r e c e i v e d t h e a p p r o v a l of t h e NATO
(27) See C-R(55)59 , 15 Dec 55. (28) MC 59 ( R e v i s e d F ina l ) , 16 M a r 56. T h i s d o c u m e n t , t o g e t h e r wi th
MC 54 (which d e s i g n a t e d SACEUR a s Ai r D e f e n s e c o o r d i n a t o r ) w a s i n c o r p o r a t e d in MC 61 da ted 12 Sep 56 - - a n o v e r a l l document a p p r o v i n g the e s t a b l i s h m e n t of an I n t e g r a t e d E a r l y Warn ing S y s t e m .
m m -
228
N A T O - = ^ i E G i u a y
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
(29)
I n f r a s t r u c t u r e C o m m i t t e e / '
G e n e r a l Schuy le r , in a l e t t e r to t h e Standing G r o u p , po in t ed out tha t
" t he t i m e l y c o o p e r a t i o n and a s s i s t a n c e of the v a r i o u s NATO n a t i o n s (in w h o s e
t e r r i t o r y t h e f o r w a r d s c a t t e r s t a t i o n s a r e p r o j e c t e d ) w a s of p a r a m o u n t i m -
p o r t a n c e . Undue de l ay in t h e a l l oca t i on of s u i t a b l e r a d i o f r e q u e n c i e s , p r o -
v i s i o n of l a n d , c o n s t r u c t i o n of bu i ld ings , e t c . , cou ld r e a d i l y r e s u l t in i n c r e a s e d
c o s t s . In e s s e n c e , t h e s u c c e s s of the A C E T r o p o s p h e r i c F o r w a r d S c a t t e r
C o m m u n i c a t i o n s S y s t e m p r o j e c t wi l l depend h e n c e f o r t h , in t h e g r e a t e s t p a r t , upon h a r m o n i o u V - c o o p e r a t i o n amon t the NATO n a t i o n s d i r e c t l y c o n c e r n e d .
S H A P E wi l l do i t s u t m o s t t o a c h i e v e t h i s c o o p e r a t i o n .
O r g a n i z a t i o n . The f o r w a r d s c a t t e r s y s t e m w a s p l anned t o c o v e r t h e
e n t i r e NATO a r e a . The Uni ted S t a t e s had a g r e e d t o f i n a n c e c e r t a i n l i n k s of
t h e s y s t e m . T h e s e l i n k s w e r e :
a . P r o j e c t HOT LINE, t r o p o s p h e r i c s y s t e m of t h r e e l i nks connec t ing
OSLO-BODÔ.
b . P r o j e c t DOUBLE J U M P c o m p r i s i n g two i o n o s p h e r i c l i nks connec t ing
P A R I S - N A P L E S - I Z M I R .
The SHAPE Air D e f e n s e T e c h n i c a l C e n t e r w a s r e s p o n s i b l e f o r i m p l e -
m e n t a t i o n of t h e s e two p r o j e c t s , wh ich w e r e e x p e c t e d to be c o m p l e t e d by
1 M a r c h 1958.
The NATO funded p o r t i o n of t h e s y s t e m i n c l u d e d :
a . P r o j e c t A C E HIGH which w a s the g r e a t e r p o r t i o n of the whole s y s t e m .
( 2 8 ) . / . . . On 9 M a y 56, SHAPE sent a P l a n f o r t h e P r o v i s i o n of an E a r l y Warn ing S y s t e m f o r Al l ied Commamd E u r o p e , P h a s e II, t o the Standing G r o u p . T h i s w a s the P h a s e f o r s e t t i ng up new r a d a r s t a t i o n s , and i n c o r p o r a t e d t h e f o r w a r d s c a t t e r s y s t e m f o r c o m m u n i c a t i o n s . See AG 3170 /1 S I C / E L da t ed 9 M a y 56. Appendix III g i v e s a p l a n of t h e p r o p o s e d t r o p o s p h e r i c and i o n o s p h e r i c l i n k s .
(29) P r e s s R e l e a s e No 57-26 , d td 6 M a y 57, r e l e a s e d on 9 M a y 57. (30) AG 3120.2 S I C / T dtd 6 M a y 57. L t r of In tent i s : AG 3 1 2 0 / 2 SIG/ to ,
1 M a y 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
T h i s w a s a p p r o v e d f o r f i nanc ing in the Eighth Sl ice P r o g r a m ,
and w a s s c h e d u l e d f o r c o m p l e t i o n by A p r i l i 9 6 0 .
b . P r o j e c t WINDUP which w a s t h e i o n o s p h e r i c l ink connec t ing t h e US-
funded l ink f r o m OSLO to PARIS . T h i s sy s t em w a s e x p e c t e d to
be c o m p l e t e d 22 m o n t h s a f t e r f i n a n c i a l a p p r o v a l had been ob ta ined
by SHAPE.
The s t r u c t u r e of t h e c o m m u n i c a t i o n s s y s t e m c a n be b r i e f l y d e s c r i b e d
a s f o l l o w s :
The i o n o s p h e r i c l i n k s connec ted up t h e m a i n r e g i o n a l c o m m a n d s at
P a r i s , N a p l e s , Os lo and I z m i r . Each i o n o s p h e r i c s t a t ion n e e d e d t e n m i l i t a r y
p e r s o n n e l . The t r o p o s p h e r i c l i nks connec t ed t h e e a r l y w a r n i n g s t a t i o n s wi th
t h e jo in t o p e r a t i o n s c e n t e r s a n d / o r w a r h e a d q u a r t e r s . Each t r o p o s p h e r i c s t a -
t ion n e e d e d s ix m i l i t a r y t e c h n i c i a n s . The t o t a l n u m b e r of p e r s o n n e l needed
w a s e s t i m a t e d at 246 a c t u a l o p e r a t i n g p e r s o n n e l and 50 s e p a r a t e h e a d q u a r t e r s
t e c h n i c i a n s . The m i l i t a r y t e c h n i c i a n s would in g e n e r a l be f r o m the hos t
c o u n t r y . At SHAPE, a s p e c i a l f o r w a r d s c a t t e r s ec t i on w a s se t up wi th in
Signal Div i s ion . The i o n o s p h e r i c l i n k s w e r e se t up to c a r r y one vo i ce and
16 t e l e t y p e c h a n n e l s , wh i l s t the t r o p o s p h e r i c l i nks w e r e d e s i g n e d to c a r r y
36 v o i c e c h a n n e l s with two of t h e s e c o n v e r t i b l e to 24 t e l e t y p e c h a n n e l s .
The R e s p o n s i b i l i t y of t h e C o n t r a c t o r . The L e t t e r of Intent r e q u i r e d t h e
c o n t r a c t o r s to e n g i n e e r t h e p r e l i m i n a r y sys tem d e s i g n s ; s u r v e y and r e c o m m e n d
s t a t ion s i t e s ; p r e p a r e r a d i o f r e q u e n c y p l a n s ; p e r f o r m p r o p a g a t i o n p a t h t e s t s ;
p r e p a r e equ ipmen t s p e c i f i c a t i o n s ; submi t c o n s t r u c t i o n and i n s t a l l a t i o n c r i t e r i a
and g e n e r a l a r c h i t e c t u r a l p l a n s ; i n s t a l l equ ipmen t ; t e s t g round s ta t ion o p e r a t i o n ;
and p r e p a r e e q u i p m e n t and m a i n t e n a n c e m a n u a l s .
P r o c e d u r e . The hos t n a t i o n s w e r e r e q u i r e d to c a r r y out t h e i r r e s p o n s i -
b i l i t i e s in the c o n s t r u c t i o n of Êici l i t ies a c c o r d i n g to speci f ica t ions i s s u e d by
SHAPE and a c c o r d i n g to a t i m e p h a s e w o r k e d out by the c o n t r a c t o r s in c o n s u l -
t a t i o n with SHAPE.
B a s e d upon equ ipment s p e c i f i c a t i o n s p r o v i d e d by the c o n t r a c t o r , SHAPE
would p r o c u r e e q u i p m e n t in c o n f o r m i t y with t h e r p l e s fo r i n t e r n a t i o n a l
230 m m G m m B s r m i
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
c o m p e t i t i v e b idding a s s p e c i f i c a l l y m o d i f i e d f o r t h i s p r o j e c t . In e s s e n c e ,
t h i s m o d i f i c a t i o n of t h e r u l e s p r o v i d e d tha t c e r t a i n c r i t i c a l i t e m s of equ ip-
m e n t , s u c h a s 10 -k i l owa t t a m p l i f i e r s , r e c e i v e r c o m b i n e r s and e x c i t e r m o d u -
l a t o r s u s e d in t h e t r o p o s p h e r i c s y s t e m , would be p r o c u r e d f r o m l i m i t e d
c o m p e t i t i v e b idding among f i r m s who had p r o v i d e d such equ ipmen t in o p e r -
a t ing s y s t e m s .
F u r t h e r D e v e l o p m e n t d u r i n g 1957. I m m e d i a t e l y upon i s s u a n c e of the
L e t t e r of In ten t , S H A P E u n d e r t o o k a l l o the r p r e l i m i n a r y w o r k tha t it w a s
p o s s i b l e to a c c o m p l i s h p r i o r to engaging an e n g i n e e r i n g and i n s t a l l a t i o n con -
t r a c t o r , and t h u s s igning a c o n t r a c t . By 1 J u n e 1957, SHAPE h a d :
a . . U n d e r t a k e n , in con junc t ion wi th t h e h o s t n a t i o n s involved , a c o m -
p r e h e n s i v e p r e l i m i n a r y s i t e s u r v e y p r o g r a m , and r e c o m m e n d e d t e n t a t i v e
s i t e s t ha t w e r e a l r e a d y u n d e r the c o n t r o l of t h e r e s p e c t i v e n a t i o n s .
b. P r e s e n t e d t e n t a t i v e f r e q u e n c y r e q u i r e m e n t s to the na t ions c o n c e r n e d
t h r o u g h E R F A . B a s e d upon r e p l i e s f r o m t h e n a t i o n s , E R F A p r e p a r e d a d r a f t
f r e q u e n c y p l an f o r r e v i e w by t h e e n g i n e e r i n g c o n t r a c t o r s .
c . P r e p a r e d and d i s t r i b u t e d t o t h e n a t i o n s t e n t a t i v e p l a n s f o r p e r s o n n e l (31)
hous ing wh ich would be r e q u i r e d f o r t h e p r o j e c t .
By 30 O c t o b e r 1957, the f o r w a r d s c a t t e r p r o j e c t w a s s t i l l on s c h e d u l e .
T h e c o n t r a c t o r s had s u b m i t t e d t h e i r p r e l i m i n a r y r e p o r t on a d e s i g n s y s t e m ,
i nc lud ing a l t e r n a t e p o s s i b i l i t i e s . A g roup of e m i n e n t s c i e n t i s t s in t h e f o r w a r d
s c a t t e r f i e l d had b e e n inv i t ed to r e v i e w the d e s i g n s y s t e m . The p r o p a g a t i o n
p a t h t e s t s c h e d u l e w a s in p r o g r e s s , and t e s t equ ipmen t had a r r i v e d f o r t e s t i n g
u n d e r a c t u a l o p e r a t i n g cond i t i ons . The c o n t r a c t o r s w e r e a l s o work ing on t h e
r a d i o f r e q u e n c y p l a n , and p r e l i m i n a r y a r r a n g e m e n t s had been m a d e wi th h o s t
c o u n t r i e s .
(31) See AG 1880.5 S I G / P T da ted 10 Sep 57.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
It w a s a n t i c i p a t e d t h a t , b a r r i n g any u n f o r e s e e n d e l a y s in equ ipment
p r o c u r e m e n t , s i t e a c q u i s i t i o n and c o n s t r u c t i o n , t h e s y s t e m would be c o m p l e t e d
by e a r l y 1 9 6 o / 3 2 *
Note on t h e Uni ted S t a t e s F u n d e d P o r t i o n .
By M i d - O c t o b e r 1957, t h e p o s i t i o n on t h e t r o p o s p h e r i c l ink connec t ing
O s l o - T r o n d h e i m - M o s j b e n - B o d ^ w a s : equ ipmen t had been i n s t a l l e d at O s l o
and T r o n d h e i m and f i na l a d j u s t m e n t w a s u n d e r way . C o n s t r u c t i o n at M o s j o e n
and Bod^ w a s n e a r i n g c o m p l e t i o n , and i t w a s e x p e c t e d tha t equ ipmen t would
b e i n s t a l l e d in D e c e m b e r 1957.
The m a j o r i t y of t h e p r e l i m i n a r y w o r k w a s a c c o m p l i s h e d on t h e P a r i s -
N a p l e s - I z m i r s c a t t e r c i r c u i t s t o a po in t w h e r e i t a p p e a r e d tha t a l l i n s t a l l a t i o n s
would be c o m p l e t e d by A p r i l 1958.. The m a j o r i t y of the equ ipmen t had b e e n
p l a c e d on p r o c u r e m e n t , s i t e s had b e e n a c q u i r e d , and c o n s t r u c t i o n had s t a r t e d
on t h e P a r i s s i t e ; c o n s t r u c t i o n w a s e x p e c t e d to s t a r t on t h e I z m i r and N a p l e s (33)
s i t e s wi th in a s h o r t t i m e . v '
(32) See SGEB 3 1 0 0 . 2 4 / 2 - 5 7 , dtd 16-17 Oct 57: M i n u t e s of t h e 25th m e e t i n g of the SHAPE C - E B o a r d . P r e s e n t a t i o n by L t . C o l . A. A. K u r z .
(33) See SGEB 3 1 0 0 . 2 4 / 2 - 5 7 .
MATO CONFIDENTIAL 232
-NA1I1U U D U U a ^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
C H A P T E R IX
I N T E L L I G E N C E
I n t r o d u c t i o n .
I n h e r e n t in S A C E U R ' s m i s s i o n w a s t h e r e q u i r e m e n t t ha t he be c o m -
p l e t e l y i n f o r m e d of e n e m y c a p a b i l i t i e s and of any d e v e l o p m e n t s wh ich m i g h t
l e a d t o an a t t a c k on h i s c o m m a n d . T h i s i n t e l l i g e n c e r e q u i r e m e n t w a s l e s s
t h a n a d e q u a t e l y f u l f i l l e d d u r i n g 1957 f o r s e v e r a l w e l l - f o u n d e d r e a s o n s . The
p r i m a r y h a n d i c a p u n d e r which S A C E U R ' s i n t e l l i g e n c e p r o g r a m w a s c a r r i e d
out w a s t h e f a c t t h a t he had no i n t e l l i g e n c e - g a t h e r i n g a g e n c i e s of h i s own.
He w a s e n t i r e l y dependen t on n a t i o n a l s t a f f s , c e r t a i n na t iona l a g e n c i e s and .
on t h e Standing G r o u p f o r h i s i n t e l l i g e n c e i n f o r m a t i o n . ^
S A C E U R ' s P e a c e t i m e I n t e l l i g e n c e R e q u i r e m e n t s .
S ince SACEUR w a s dependen t on t h e n a t i o n s and on t h e Standing Group
f o r h i s i n t e l l i g e n c e i n f o r m a t i o n , i t w a s n e c e s s a r y tha t he i n f o r m t h e m wha t
i n t e l l i g e n c e he n e e d e d . Whe the r o r not t h e y would c o m p l y wi th h i s r e q u e s t s
w a s a n o t h e r m a t t e r and, a s w a s d e m o n s t r a t e d , t h e r e s p o n s e v a r i e d f r o m
n a t i o n t o na t ion .
On 8 Augus t 1956, SACEUR had s e t f o r t h h i s i n t e l l i g e n c e r e q u i r e m e n t s
d u r i n g p e a c e t i m e , sending t h e s e r e q u i r e m e n t s t o a u t h o r i t i e s of a l l NATO
n a t i o n s excep t I c e l a n d .
It w a s p o i n t e d out to t h e s e a u t h o r i t i e s t ha t a l l p l ann ing in S H A P E at
(1) See C h a p t e r I f o r o the r d e f i c i e n c i e s in the s y s t e m . No a t t e m p t wi l l be m a d e t o se t f o r t h h e r e t h e d e t a i l s of t h e Soviet t h r e a t a s v i ewed by SHAPE and o t h e r i n t e l l i g e n c e a g e n c i e s in 1957. F o r t h i s i n f o r m a t i o n t h e fo l low-ing i n t e l l i g e n c e d o c u m e n t s shou ld be c o n s u l t e d ; SG 161 / IO(F ina l ) S o v i e t B l o c S t r e n g t h and C a p a b i l i t i e s ; SHAPE Q u a r t e r l y In t e l l i gence R e p o r t s ; SHAPE F o r t n i g h t l y I n t e l l i g e n c e R e p o r t s ; S H A P E B a s i c I n t e l l i g e n c e l G r o u n d F o r c e s ;
• i • • «
233 >
NATO S E g & a y
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
t ha t t i m e w a s g e a r e d to the concep t of w a r f a r e e n v i i a g e d in MC 48, which
a s s u m e d that the Soviets would, in any w a r , be the a g g r e s s o r and would
d i r e c t a s igni f icant p a r t of t h e i r e f f o r t aga ins t All ied C o m m a n d E u r o p e ;
tha t they would a t t e m p t to a t t a in c o m p l e t e s u r p r i s e ; and tha t n u c l e a r weapons
would be employed .
While SACEUR m a d e i t c l e a r tha t he w a s m o s t i n t e r e s t e d in i n t e l l i gence
i n f o r m a t i o n on f o r c e s which would be b rough t to b e a r aga ins t h i s Command l
he did not f e e l tha t the na t i ons should withhold f r o m h im I n f o r m a t i o n on o ther
a r e a s . Again, whi le he w a s p r i m a r i l y i n t e r e s t e d in m i l i t a r y ques t ions , it
w a s a l s o e s s e n t i a l tha t he have p e r t i n e n t po l i t i ca l and economic in t e l l i gence
i n f o r m a t i o n .
SHAPE l i s t e d for the na t iona l a u t h o r i t i e s the e s s e n t i a l i n t e l l i gence r e -
q u i r e m e n t s f o r d r a f t i ng and i m p l e m e n t i n g i t s d e f e n s e p l a n s . F u r t h e r a m p l i -
f i c a t i on of t h e s e r e q u i r e m e n t s w a s conta ined in a l i s t of i n d i c a t o r s . u I t i s e m p h a s i z e d , " the a d d r e s s e e s w e r e to ld , "that i n t e l l i gence Divi-
s ion, SHAPE, not only l a c k s r e a d y a c c e s s t o s o u r c e s , but h a s l im i t ed r e s e a r c h
capab i l i t y and i s t h e r e f o r e c o m p l e t e l y dependent on f in i shed and eva lua ted
i n t e l l i gence suppl ied by the na t iona l s t a f f s , the Standing Group and c e r t a i n
na t iona l c o m m a n d s in E u r o p e . "
SHAPE asked na t ions to sent by h ighes t a p p r o p r i a t e p r i o r i t y any r e p o r t s
having to do with ind ica t ions of i m m i n e n c e of h o s t i l i t i e s ; cab led r e p o r t s , if
p o s s i b l e , on any s ign i f ican t i n t e l l i gence which would l o se va lue if de layed ; a
week ly cabled r e p o r t conta ining a joint co l l a ted es t imate of the i m m i n e n c e
of h o s t i l i t i e s ; a weekly w r i t t e n r e p o r t containing joint co l l a t ed s u m m a r i e s of
in te l l igence r e p o r t s r e c e i v e d dur ing the p r e c e d i n g week which conta ined i t e m s
of s ign i f i cance to SACEUR; p e r i o d i c in te l l igence r e p o r t s containing m i l i t a r y ,
economic , po l i t i ca l or soc ia l i n t e l l i gence of s ign i f i cance to SACEUR; a s wel l
. 1 , , . SACLANT's Soviet Naval O r d e r of Ba t t l e ; SHAPE Supplement to SACLANT1 o Soviet Naval O r d e r of Ba t t l e ; SHAPE Bas i c In te l l igence , A i r ; SHAPE Bas i c In te l l igence , L o g i s t i c s .
NATO a r a r m a y
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a s l e s s f r e q u e n t and m o r e c o n s i d e r e d r e p o r t s of i n t e l l i g e n c e v a l u e /
On 21 M a r c h 1957, SHAPE sen t to t h e n a t i o n s and to t h e MSCs a
l e t t e r r e q u e s t i n g t h e m t o c o n s i d e r the m a t t e r of SHAPE 'S p e a c e t i m e i n t e l l i -
g e n c e r e q u i r e m e n t s in s o m e de t a i l . It a p p e a r e d tha t c e r t a i n m o d i f i c a t i o n s of
t h e s e r e q u i r e m e n t s should be m a d e . SHAPE w a s p r i m a r i l y i n t e r e s t e d in
a s s u r i n g tha t t h e p e a c e t i m e i n t e l l i g e n c e r e q u i r e m e n t s be p r e s e n t e d t o t h e
N A T O n a t i o n s , i n s u c h a way tha t t h e y could b e a c c o m p l i s h e d in t h e m o s t
e f f i c i e n t , c o m p l e t e , and ye t s i m p l i f i e d m a n n e r . SHAPE s u g g e s t e d v a r i o u s
a p p r o a c h e s a s t o f o r m a t and a s k e d M O D s and the M S C s to send t h e i r comments .^
T h r o u g h o u t 1957, S H A P E i n t e l l i g e n c e o f f i c e r s cont inued to c o n c e r n
t h e m s e l v e s wi th how b e s t t o s t a t e t h e i r p e a c e t i m e i n t e l l i g e n c e r e q u i r e m e n t s .
T h e m i s s i o n of t h e SHAPE i n t e l l i g e n c e o r g a n i z a t i o n w a s twofo ld : f i r s t l y , t o
d e t e r m i n e if any p o t e n t i a l e n e m y w a s p r e p a r i n g to a t t a ck NATO n a t i o n s and
f o r c e ? , and if so , when , w h e r e and how; second ly , t o d e s c r i b e t o o p e r a t i o n a l
p l a n n e r s e n e m y c a p a b i l i t i e s and c o u r s e s of ac t ion should t h e e n e m y d e c i d e
t o a t t a c k a t a c e r t a i n p l a c e and t i m e .
T h e r e w a s a g r e a t d i f f e r e n c e in t h e s e m i s s i o n s when app l ied to i n t e l l i -
g e n c e o r g a n i z a t i o n at d i f f e r e n t l e v e l s of c o m m a n d . F o r e x a m p l e , I n t e l l i g e n c e
D iv i s ion a t S H A P E p o s s e s s e d g r e a t e r c a p a b i l i t y t o a c c o m p l i s h t h e f i r s t m i s -
s ion t h a n did i n t e l l i g e n c e a g e n c i e s a t t h e A r m y G r o u p / A T A F l e v e l . C o n v e r s e l y ,
w h e n dea l ing w i t h t h e s econd m i s s i o n , t h e lower t h e l e v e l of c o m m a n d , t h e
m o r e n u m e r o u s w e r e t h e d e t a i l s n e e d e d t o d e t e r m i n e the e n e m y c a p a b i U t i e s
a n d c o u r s e s of a c t i on .
S ince t h e A r m y G r o u p / A T A F l e v e l of c o m m a n d depended on SHAPE f o r
i n t e l l i gence , S H A P E ' S r e q u i r e m e n t s f r o m the n a t i o n s Jiad to inc lude t h a t i n -
f o r m a t i o n n e e d e d t o a c c o m p l i s h t h e f i r s t m i s s i o n , and to s u p p o r t the s u b o r -
d i n a t e u n i t s .
(2) S H A P E I n t e l l i g e n c e P e a c e t i m e R e q u i r e m e n t s , AG 3505 /1 ID, 8 Aug 56. (3) AG 3500 /17 . ID , 21 M a r 57, S H A P E P e a c e t i m e In t e l l i gence R e q u i r e m e n t s .
NATO
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
In ask ing t h e n a t i o n s t o send i n t e l l i g e n c e da t a in p e a c e t i m e , i t w a s
obv ious tha t SHAPE m u s t i n d i c a t e , a s e f f e c t i v e l y and s i m p l y a s p o s s i b l e , t h e
k i n d of i n f o r m a t i o n r e q u i r e d and how tha t i n f o r m a t i o n should be sen t . In t h i s
l a t t e r connec t ion t h e r e w e r e s e v e r a l w a y s of r e c e i v i n g i n f o r m a t i o n , such a s :
T o r e c e i v e a l l r a w i n f o r m a t i o n , even if not s i g n i f i c a n t ; t o r e c e i v e r a w
i n f o r m a t i o n , only if i t w e r e s i g n i f i c a n t ; to r e c e i v e p e r i o d i c s u m m a r i e s
of i n t e l l i g e n c e ; t o r e c e i v e p e r i o d i c e s t i m a t e s and s t u d i e s ; to r e c e i v e
e x t r a e&t imates and s t u d i e s when r e q u i r e d .
It w a s p o s s i b l e t ha t a c o m b i n a t i o n of t h e s e a l t e r n a t i v e s would g ive
a n s w e r to S H A P E ' s p r o b l e m .
T h e r e w a s a l s o the p r o b l e m of f o r m a t of the d o c u m e n t which SHAPE had
e a r l i e r a s k e d n a t i o n s to c o m m e n t upon. It w a s a p p a r e n t f r o m a n s w e r s r e c e i v e d
d u r i n g e a r l y J u l y tha t the n a t i o n s w e r e in f a v o r of hav ing one d o c u m e n t wi th
s e p a r a t e s e c t i o n s f o r A r m y , Navy, Ai r and War P o t e n t i a l i n t e l l i g e n c e con t a in -
ing , if p o s s i b l e , t he r e q u i r e m e n t s of a l l NATO c o m m a n d s .
On 26 Ju ly 1957, SHAPE sent to t h e Standing Group a Study which c o n -
c luded tha t t h e r e w a s a n e c e s s i t y f o r one document se t t ing f o r t h the p e a c e t i m e
i n t e l l i g e n c e r e q u i r e m e n t s f o r Al l ied C o m m a n d E u r o p e . At t h e p r e s e n t t i m e
t h e s e i n t e l l i g e n c e r e q u i r e m e n t s w e r e s t a t e d not only by SHAPE but by t h e
Standing Group and the o the r m a j o r NATO C o m m a n d s . SHAPE in tended t o
i n c o r p o r a t e in i t s d o c u m e n t t h e r e q u i r e m e n t s of i t s own M a j o r Subord ina te
C o m m a n d s . In i t s l e t t e r t o t h e S tand ing Group , SHAPE f o r w a r d e d a l s o c e r t a i n
r e c o m m e n d a t i o n s wi th r e g a r d t o so l i c i t ing i n t e l l i g e n c e information f r o m t h e
n a t i o n s . ^
T h e W a r t i m e R e q u i r e m e n t s .
A p l an f o r c a r r y i n g out i n t e l l i g e n c e a c t i v i t i e s in Al l ied C o m m a n d E u r o p e
d u r i n g w a r t i m e had b e e n deve loped and p r e s e n t e d t o the n a t i o n s in Oc t obe r
1955. Vo lume I of t h e p l an , dea l ing m a i n l y wi th o p e r a t i o n a l m a t t e r s , had b e e n
(4) L t r AG 3500 /17 ID, S A C E U R ' s P e a c e t i m e In t e l l i gence R e q u i r e m e n t s , 26 J u l 57. A new d o c u m e n t , SACEUR's P e a c e t i m e In t e l l i gence /
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a g r e e d to b y a l l t h e n a t i o n s . V o l u m e II of t h e p l an , wh ich e s t a b l i s h e d p e r -(5)
s o n n e l r e q u i r e m e n t s , had not , h o w e v e r , r e c e i v e d fu l l n a t i o n a l a g r e e m e n t / '
At the S H A P E In t e l l i gence P l a n n i n g C o n f e r e n c e which w a s h e l d f r o m
2 0 - 2 3 M a y 1957, t h e W a r t i m e I n t e l l i g e n c e P l a n w a s d i s c u s s e d in g r e a t d e t a i l
by S H A P E o f f i c e r s , r e p r e s e n t a t i v e s of the M S C s and of t h e na t i ona l s t a f f s .
A s a r e s u l t of t h e s e t a l k s and r e c o m m e n d a t i o n s , ac t ion w a s t a k e n to a m e n d
t h e W a r t i m e I n t e l l i g e n c e P l a n , and on 14 J u n e , t h e Second R e v i s i o n to the P l a n
w a s i s s u e d to the n a t i o n s and M S C s . ^
On 24 N o v e m b e r 1956, S H A P E i s s u e d c e r t a i n r e q u i r e m e n t s f o r i n t e l -
l i g e n c e wh ich would be a p p l i c a b l e in w a r t i m e . T h e s e w e r e a c c o m p a n i e d by
a d i r e c t i v e wh ich would be i m p l e m e n t e d at t he o u t b r e a k of h o s t i l i t i e s o r p r i o r
t h e r e t o if d i r e c t e d by SACEUR.
It w a s a s s u m e d that g e n e r a l w a r in E u r o p e would t a k e p l a c e in two
p h a s e s . In P h a s e I t h e r e would be v io len t f igh t ing f o r about 30 days , and
d u r i n g the f i r s t f e w d a y s t h e i n t e n s i t y of n u c l e a r exchange would be g r e a t e s t .
P h a s e II would b e a p e r i o d of r e o r g a n i z a t i o n , r e s u p p l y and l i m i t e d m i l i t a r y
o p e r a t i o n s l e a d i n g to a c o n c l u s i o n of t h e w a r . T h e s e s u b s e q u e n t o p e r a t i o n s
woxxld i nvo lve m a i t a i n i n g p o s i t i v e c o n t r o l of e s s e n t i a l s e a a r e a s , s e c u r i n g a l l
N A T O t e r r i t o r y and a s s i s t i n g in t h e n u c l e a r d o m i n a t i o n of e n e m y t e r r i t o r y .
T h e d i r e c t i v e which SHAPE now i s s u e d w a s a p p l i c a b l e only to P h a s e I,
w h e n t h e p r i m a r y a i m of the i n t e l l i g e n c e e f f o r t m u s t be d i r e c t e d to e n s u r e tha t
t h e A t o m i c S t r i k e P l a n did not f a i l . S A C E U R ' s i n t e l l i g e n c e r e q u i r e m e n t s
d u r i n g t h i s p h a s e would b e l i m i t e d to t h o s e q u e s t i o n s d i r e c t l y r e l a t e d to
S A C E U R ' s A t o m i c S t r i k e P l a n and t o o v e r a l l conduc t of l and , s e a and a i r
. / . . . R e q u i r e m e n t s , w a s deve loped and d i s t r i b u t e d to SGN, SACLANT, M S C s and M O D s , on 19 Dec 57, S H A P E 2 4 2 / 5 7 / 19 Dec 57.
(5) W a r t i m e I n t e l l i g e n c e P l a n , ACE, 13 Oct 55, AG 3 5 0 5 / 2 ID. (6) F o r d e t a i l s of t h e d i s c u s s i o n s , s e e Enc l . t o L t r , S H A P E In t e l l i gence
P l a n n i n g C o n f e r e n c e , 2 0 - 2 3 M a y 57, AG 2 0 3 0 / l 0 ID. T h e a m e n d m e n t w a s AG 3 5 0 0 / 2 3 ID, 14 J u n 57. D
EC
LASS
IFIE
D -
PUB
LIC
LY D
ISC
LOSE
D -
PD
N(2
012)
0008
- D
ÉC
LASS
IFIÉ
- M
IS E
N L
EC
TU
RE
PU
BLI
QU
E
NATO SECRgZi
o p e r a t i o n s .
A l so c o v e r e d at t h e P l a n n i n g C o n f e r e n c e in M a y w e r e S H A P E r e q u i -
r e m e n t s f o r C o u n t e r - i n t e l l i g e n c e . T h e d o c u m e n t " S H A P E Coun te r I n t e l l i g e n c e
R e q u i r e m e n t s of NATO Nat iona l A u t h o r i t i e s " w a s f u l l y d i s c u s s e d by a s p e c i a l
C o m m i t t e e at t h e S H A P E C o n f e r e n c e and s u b s e q u e n t l y r e v i s e d . On 24 J u l y
1957, S H A P E sent to t h e n a t i o n s t h i s r e v i s e d s t a t e m e n t of r e q u i r e m e n t s ,
not ing tha t t hey should b e c o n s i d e r e d in con junc t ion wi th t h e SHAP Ë C o u n t e r -
i n t e l l i g e n c e P l a n a s g iven in t h e W a r t i m e In t e l l i gence P l a n , ACE, Second
R e v i s i o n . '
The Soviet T h r e a t .
T h e b a s i c documen t f r o m which SHAPE d e r i v e d t h e g r e a t e s t p o r t i o n of
i t s i n t e l l i g e n c e i n f o r m a t i o n on t h e Soviet t h r e a t w a s p r e p a r e d e a c h y e a r by
t h e Standing Group , a s s i s t e d by the S H A P E In t e l l i gence Div i s ion , and f o r w a r d e d
to S H A P E u n d e r the t i t l e SG 161 p l u s s e r i a l n u m b e r . R e g a r d l e s s of i t s o v e r a l l
v a l u e f o r p lann ing p u r p o s e s , t h e d o c u m e n t c o n c e r n e d only t h e c a p a b i l i t i e s of
Soviet b loc n a t i o n s and t h e r e w a s no b a s i c gu idance a v a i l a b l e to SACEUR on
t h e c a p a b i l i t i e s of t h e s o - c a l l e d n e u t r a l n a t i o n s and o the r a r e a s in which h e
w a s v i t a l l y i n t e r e s t e d . A s e c o n d l i m i t a t i o n of t h i s d o c u m e n t had been t h e
r e l u c t a n c e of t h e Standing G r o u p to f o r e c a s t Soviet b loc c a p a b i l i t i e s f o r m o r e
t han a f i v e - y e a r p e r i o d . SG 161 /10 , which w a s p r e p a r e d in M a r c h 1957 c o v e r e d
only t h e p e r i o d 1956-1961.^ 9^
(7) F o r d e t a i l s of t h e s e r e q u i r e m e n t s s e e L t r , " S H A P E W a r t i m e In t e l l i gence R e q u i r e m e n t s , AG 3 5 0 5 / 7 / 1 ID, 24 Nov 56, wi th E n c l o s u r e and Appendix A and B.
(8) L t r , SHAPE C o u n t e r - i n t e l l i g e n c e P l a n n i n g , 24 J u l 57, AG 3570 /1 ID. (9) See t h e I m p r o v e m e n t of I n t e l l i gence S y s t e m s wi th in NATO, 13 Dec 56,
T a b B. See a l s o SG 1 6 1 / 9 and SG 161/10 f o r d e t a i l s of Soviet c a p a -b i l i t i e s du r ing 1957.
238
NATO CONFIDENTIAL -NATO OEGIigT*. _ _
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
P r r ' /-^.-MATn -SttrWKT
E x a m i n a t i o n of A C E In t e l l i gence S y s t e m .
SACEUR w a s v i t a l l y i n t e r e s t e d in t h e e v e n t s wh ich took p l a c e i n t h e
USSR, t h e S a t e l l i t e s and t h e Midd le E a s t du r ing the p e r i o d 19 Oc tobe r 1956
t o 20 N o v e m b e r 1956. His i n t e r e s t w a s not m a t c h e d by a c o n c o m i t a n t f low
of i n t e l l i g e n c e i n f o r m a t i o n f r o m t h e n a t i o n s on t h e t h r e a t e n i n g d e v e l o p m e n t s
t h e n t ak ing p l a c e . In f a c t , t h e In t e l l i gence a g e n c i e s at SHAPE w e r e a l m o s t
e n t i r e l y dependen t on t h e p r e s s and r a d i o r e p o r t s in o r d e r to k e e p SACE\JR,
k e y S H A P E o f f i c e r s and M S C s i n f o r m e d . SACEUR had no w a y t o judge t h e
v a l i d i t y of t h e s e r e p o r t s . F o r e x a m p l e , du r ing t h e d e v e l o p m e n t s in P o l a n d
and H u n g a r y in O c t o b e r , n e w s p a p e r and r a d i o r e p o r t s to ld of the m a s s i n g of
Sovie t t r o o p s on t h e P o l i s h b o r d e r . T h i s f a c t , if t r u e , would have had a
d e c i d e d e f f ec t on SACEUR' s p l a n s and a c t i o n s . H o w e v e r , SACEUR had no
m e a n s of v e r i f y i n g t h i s r e p o r t and i t w a s s e v e r a l d a y s b e f o r e i n t e l l i g e n c e
r e p o r t s f r o m s o m e of the n a t i o n s r e a c h e d SHAPE on t h i s s i t u a t i o n . ^ ^
Dur ing t h i s p e r i o d of i n t e n s e p o l i t i c a l and m i l i t a r y ac t iv i ty , SHAPE
r e c e i v e d a t o t a l of 118 i n t e l l i g e n c e s i g n a l s f r o m the NATO n a t i o n s . T h i s
s u p p o r t v a r i e d g r e a t l y f r o m na t ion to na t ion ; s o m e n a t i o n s sen t only one
r e p o r t wh i l s t o t h e r s sent in t w e n t y - f i v e of t h i r t y . SHAPE be l i eved that p a r t of
t h i s p o o r showing Btemmed f r o m a fee l ing among s o m e NATO n a t i o n s tha t
t h e M i d d l e E a s t w a s ou t s i de S A C E U R ' s a r e a of r e s p o n s i b i l i t y . N e v e r t h e l e s s ,
e v e n t s in t h e Midd le E a s t , and e s p e c i a l l y Soviet r e a c t i o n to t h o s e even t s cou ld
h a v e s e r i o u s i m p l i c a t i o n s and g r e a t l y i n f l u e n c e SACEUR' s p l a n s and d e c i s i o n s . ^ *
SACEUR sent m e s s a g e s to each na t ion ca l l ing a t t en t ion to the i n a d e q u a t e
i n t e l l i g e n c e s u p p o r t he w a s r e c e i v i n g in t h i s p e r i o d , and d i r e c t e d the p r e p a -
r a t i o n of a d e t a i l e d s tudy on i n t e l l i g e n c e p r o b l e m s wi th the s p e c i f i c p u r p o s e of
i m p r o v i n g wi th in NATO m e t h o d s of d e t e r m i n i n g e n e m y c a p a b i l i t i e s and, if
p o s s i b l e , i n t e n t i o n s , and t h e c a p a b i l i t y of obtaining advanced w a r n i n g of h o s -
t i l i t i e s .
(10) Staff Study, T h e I m p r o v e m e n t of In t e l l i gence S y s t e m s wi th in NATO, T a b B. (11) M e m o , In t e l l i gence Suppor t f r o m NATO na t ioap , 1 Dec 56.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
The SHAPE i n t e l l i g e n c e s ta f f a r r i v e d at a n u m b e r of f i r m c o n c l u s i o n s .
It b e l i e v e d t h a t , if SACEUR w e r e t o h a v e an e s t i m a t e of e n e m y c a p a b i l i t i e s
and p o s s i b l e i n t e n t i o n s f o r t h e p e r i o d 1960-62, t h e Standing Group would
have t o i nc lude t h i s p e r i o d in i t s next d o c u m e n t on the Soviet t h r e a t , (SG 16l / l0) ,
wh ich would be p r e p a r e d in e a r l y 1957.
The In t e l l i gence Staff a l s o b e l i e v e d tha t if SACEUR w e r e to have a d v a n c e
w a r n i n g of i m p e n d i n g e n e m y a t t a c k s , t he Standing G r o u p m u s t have a s tudy
a i m e d a t i n c r e a s i n g t h e i n t e l l i g e n c e which n a t i o n s wou ld c o n s i d e r p a s s i n g on
t o SHAPE. T h i s s tudy would inc lude the i m p r o v e m e n t of s e c u r i t y s y s t e m s
and o the r m e a s u r e s t o w h i c h SHAPE would have t o c o n f o r m in o r d e r t o g ive the
n a t i o n s c o n f i d e n c e in SHAPE, t h u s i n c r e a s i n g the f low of i n t e l l i g e n c e . On
13 D e c e m b e r , SHAPE p r e p a r e d the s tudy which r e c o m m e n d e d tha t e a c h NATO
na t ion devote the m a x i m u m p o s s i b l e e f f o r t t o t h e i m p r o v e m e n t of c l a n d e s t i n e
i n t e l l i g e n c e co l l ec t i on and o the r s e n s i t i v e i n t e l l i g e n c e c o l l e c t i o n p r o g r a m s a i m e d
at ob ta in ing a d v a n c e w a r n i n g of a t t a c k . T h e y should s e e tha t t h e i r na t iona l
p r o g r a m s took in to accoun t S A C E U R ' s p e a c t i m e i n t e l l i g e n c e r e q u i r e m e n t s and
a s s i g n i n t e l l i g e n c e o f f i c e r s t o s p e c i a l i z e in SHAPE r e q u i r e m e n t s . The t i m e
n e c e s s a r y t o get t h i s i n t e l l i g e n c e to SACEUR would have t o be r e d u c e d t o a
m i n i m u m , p a r t i c u l a r l y when t h i s i n t e l l i g e n c e m i g h t r e l a y t h e a d v a n c e w a r n i n g
of a t t a c k . Even f r a g m e n t a r y and u n e v a l u a t e d r e p o r t s should be s en t . T o speed
t h i s i n f o r m a t i o n , n a t i o n s shou ld p r o v i d e the n e c e s s a r y t e l e c o m m u n i c a t i o n s
s e r v i c e . ^ ^
On 14 F e b r u a r y 1957, SACEUR sent a l e t t e r to a l l NATO M i n i s t e r s of
Defence (except I c e l a n d ' s ) in which he s t a t e d : " D u r i n g t h e r e c e n t p e r i o d of
t e n s i o n involving P o l a n d , H u n g a r y and the Middle E a s t , you will r e c a l l tha t
I po in t ed out m y d e p e n d e n c e on your Nat iona l S ta f f s f o r f u l l and t i m e l y i n -
t e l l i g e n c e . Our e x p e r i e n c e s du r ing the t e n s i o n i n d i c a t e t h e u rgency of c e r t a i n
i m p r o v e m e n t s in t h e i n t e l l i g e n c e s y s t e m s wi th in Al l i ed C o m m a n d E u r o p e .
(12) Staff Study, The I m p r o v e m e n t of In t e l l i gence S y s t e m s wi th in NATO, T a b C, 13 Dec 56.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
A s tudy of t h e p r o b l e m r e s u l t e d in s e v e r a l p e r t i n e n t c o n c l u s i o n s which
a r e f o r w a r d e d h e r e w i t h , and I u r g e tha t your m o s t e a r n e s t and f a v o r a b l e (13)
c o n s i d e r a t i o n be a c c o r d e d t h e m . ' "
Exp lo i t a t i on of E a r l y Warn ing S y s t e m s f o r I n t e l l i g e n c e P u r p o s e s .
T h e p r i m a r y r o l e of t h e A C E E a r l y Warn ing S y s t e m w a s t o d e t e c t , a t
t h e e a r l i e s t p o s s i b l e m o m e n t , t h e d e v e l o p m e n t of an e n e m y a i r a t t a ck , a p p r o a - -
ch ing t h e NATO f r o n t i e r . Subject to t h e l i m i t a t i o n s of t h e h o r i z o n e f f e c t , t h i s
a t t a c k cou ld be d e t e c t e d up to a d i s t a n c e of 220 n a u t i c a l m i l e s at an a l t i t u d e
of 75, 000 f e e t .
The i n t e g r a t e d E a r l y Warn ing S y s t e m , u s i n g long r a n g e r a d a r s , w a s
e x p e c t e d t o b e c o m e o p e r a t i o n a l in 1959. T h e r a d a r equ ipment to be u s e d in
t h i s s y s t e m would be c a p a b l e a l s o of co l l ec t ing i n t e l l i g e n c e i n f o r m a t i o n .
S p e c i f i c a l l y t h i s equ ipmen t could g ive i n t e l l i g e n c e on t h e p e r f o r m a n c e c h a -
r a c t e r i s t i c s of e n e m y a i r c r a f t , o p e r a t i o n a l f ly ing p r o c e d u r e s , s c a l e of f l y ing
a c t i v i t y , e l e c t r o n i c j a m m i n g t e c h n i q u e s , and o the r i n f o r m a t i o n which would
a s s i s t in d e t e r m i n i n g t h e e n e m y ' s f o r w a r d a i r c a p a b i l i t i e s on a cont inuing
b a s i s , and migh t g ive indicat ion of in ten t to a t t a c k .
On 18 J u l y 1957, SACEUR sent to the n a t i o n s and t o the Major Subor -
d i n a t e C o m m a n d e r s a l i s t of i n t e l l i g e n c e i t e m s f o r which e a r l y w a r n i n g
r a d a r s m i g h t c o n t r i b u t e i n f o r m a t i o n , and u r g e d the u s e of na t iona l equ ipmen t
and f a c i l i t i e s in a d v a n c e of 1959. SACEUR b e l i e v e d i t w a s an Ai r D e f e n s e
r e s p o n s i b i l i t y to co l l ec t and c o l l a t e r a w r a d a r i n f o r m a t i o n and t a k e a p p r o -
p r i a t e ac t ion , but t ha t i t w a s an I n t e l l i g e n c e r e s p o n s i b i l i t y to i n t e r p r e t , a s s e s s
and p r o c e s s such r a d a r d a t a in con junc t ion wi th o the r da t a . He r e c o m m e n d e d
t h a t i n f o r m a t i o n d e r i v e d f r o m t h e E a r l y Warn ing S y s t e m should be m a d e a v a i -
l a b l e to I n t e l l i g e n c e p e r s o n n e l at l e v e l s down t o Sec tor O p e r a t i o n s C e n t e r s I
(SOC) f o r eva lua t ion and t r a n s m i s s i o n t h r o u g h i n t e l l i g e n c e c h a n n e l s t o h i g h e r
a u t h o r i t y .
(13) AG 3 5 0 0 / 3 6 ID, 14 F e b 57, The I m p r o v e m e n t of In t e l l i gence S y s t e m s .
„ y V-V y.'.... ' • — - :
241
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
m r o COMROEMTF^L NATO S E C R E T
Although at t h e p r e s e n t t i m e t h e C e n t e r SOCs w e r e na t i ona l , Al l ied
e a r l y w a r n i n g e l e m e n t s and a i r d e f e n s e s t a f f s h a d b e e n s e t up on a t e m p o r a r y
b a s i s . I n t e l l i g e n c e and Ai r D e f e n s e m e m b e r s of t h i s h e a d q u a r t e r s had m e t
and h a d conc luded t h a t , t h r o u g h s u i t a b l e c o o r d i n a t i o n , a v a i l a b l e i n t e l l i g e n c e
m i g h t b e e x t r a c t e d f r o m E a r l y Warn ing R a d a r s even b e f o r e t h e E a r l y Warn ing
S y s t e m b e c a m e an Al l i ed r e s p o n s i b i l i t y ,
S H A P E a s k e d t h e n a t i o n s to c o n s i d e r how t h e i r n a t i o n a l a g e n c i e s should
be l i n k e d up wi th t h e E a r l y Warn ing S y s t e m t o s u p p o r t t he In t e l l i gence g a t h e r i n g
c a p a b i l i t y , and t o c o n s i d e r o the r t e c h n i c a l a s p e c t s of t h i s p r o b l e m . The (14)
M a j o r Subord ina te C o m m a n d e r s w e r e a l s o a s k e d to send t h e i r v i e w s /
(14) AG 3170 ID, 18 J u l 57, "Exp lo i t a t i on of Ea r ly^Warn ing S y s t e m s f o r I n t e l l i g e n c e P u r p o s e s . "
Mfà CDNFIDENTMW 242
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO RESTRICTED
C H A P T E R X
AIR D E F E N S E
I n t r o d u c t i o n .
The l a c k of a c o o r d i n a t e d a i r d e f e n s e f o r E a s t e r n E u r o p e had b e e n a
p r o b l e m s i n c e t h e i n c e p t i o n of SHAPE. G e n e r a l R idgway c o n c e r n e d h i m -
sel f wi th t h e p r o b l e m in 1952. G e n e r a l G r u e n t h e r con t inued to t r y to f ind
a w o r k a b l e so lu t ion . In 1954, a s tudy on a i r d e f e n s e w a s c o m p l e t e d at SHAPE
and f o r w a r d e d to t h e SGN. B a s e d on t h e w o r k of e a r l y p l a n n e r s and u s i n g
p l a n s deve loped by such o f f i c e r s a s Air M a r s h a l Sir B a s i l E m b r y , the SHAPE
p l a n c o n t a i n e d r e c o m m e n d a t i o n s wh ich could g ive Al l i ed C o m m a n d E u r o p e
a c o o r d i n a t e d a i r d e f e n s e s y s t e m / ^
T h e b a s i c p r o b l e m w a s t h a t e a c h na t ion w a s r e s p o n s i b l e f o r i t s own
a i r d e f e n s e . Each na t ion p r o v i d e d the a i r c r a f t and t h e w e a p o n s which would
b e dep loyed in a c c o r d a n c e wi th a p l a n p r e p a r e d by tha t na t ion . Whils t NATO
n a t i o n s w o r k e d t o g e t h e r unde r c o o r d i n a t e d p l a n s in o the r s p h e r e s of d e f e n s e ,
in t h e f i e l d of a i r e a c h na t ion r e t a i n e d fu l l s o v e r e i g n t y .
A m a j o r s t ep t o w a r d s a c o o r d i n a t e d a i r d e f e n s e w a s t a k e n in D e c e m b e r
1955 w i th t h e a p p r o v a l by t h e NAC of t h e M i l i t a r y C o m m i t t e e ' s r e c o m m e n d a t i o n s
c o n t a i n e d in MC 54, "Ai r D e f e n s e C o m m a n d and Con t ro l in NATO E u r o p e . "
E s s e n t i a l l y , M C 54 which con ta ined r e c o m m e n d a t i o n s m a d e by SHAPE, n a m e d
S A C E U R a s c o o r d i n a t o r of the a i r d e f e n s e of NATO E u r o p e and c h a r g e d h i m
wi th t h e r e s p o n s i b i l i t y f o r d e v e l o p m e n t of an a p p r o p r i a t e s y s t e m f o r t h e c o o r -
d ina t ion of a i r d e f e n s e c a p a b i l i t i e s and e f f o r t s , in consu l t a t i on and a g r e e m e n t (Z)
with the a p p r o p r i a t e na t i ona l a u t h o r i t i e s /
(1) T h e 1954 s tudy w a s SHAPE 6 2 6 / 5 4 , 23 Oct 54. Ai r M a r s h a l E m b r y ' s c o n t r i b u t i o n i s con ta ined in A A F C E 7 1 7 / 5 3 , An E x a m i n a t i o n in to C e r t a i n A s p e c t s of T a c t i c a l Ai r F o r c e D o c t r i n e a s app l i ed to C e n t r a l E u r o p e a n D e f e n s e .
(2) M C 54(F ina l ) , 12 Dec 55. The Counci l a p p r o v e d p a r a 7 on 15 Dec 55, t h i s be ing t h e r e c a m m e n d a t i o n s of the M i l i t a r y C o m m i t t e e (C-R(55)59) .
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
WA"
An i n t e g r a l p a r t of any a i r d e f e n s e s y s t e m w a s an a d e q u a t e e a r l y
w a r n i n g s y s t e m . To enab le SACEUR to deve lop h i s a i r d e f e n s e s y s t e m , in
J u n e 1956, the M i l i t a r y C o m m i t t e e a p p r o v e d MC 61, " T h e R e q u i r e m e n t f o r
an I n t e g r a t e d E a r l y Warn ing S y s t e m C o v e r i n g the A p p r o a c h e s t o ACE, " and
r e c o m m e n d e d tha t t he NAC a p p r o v e the e s t a b l i s h m e n t of an e a r l y w a r n i n g
s y s t e m to be c o m m o n l y f i n a n c e d . An i n t e g r a t e d c o m m o n l y f i n a n c e d c o m m u -
n i c a t i o n s s y s t e m , l ink ing the e a r l y w a r n i n g s t a t i o n s and u s i n g t h e F o r w a r d
S c a t t e r t e c h n i q u e , w a s a l s o a p p r o v e d by the M i l i t a r y C o m m i t t e e du r ing 1956.
By N o v e m b e r 1956 r when G e n e r a l N o r s t a d a s s u m e d c o m m a n d of t h e
f o r c e s of ACE, p l a n s f o r c o o r d i n a t e d a i r d e f e n s e could b e deve loped i n t h e
knowledge tha t an a d e q u a t e and e f f i c i e n t e a r l y w a r n i n g s y s t e m wi th an e q u a l l y
e f f i c i e n t c o m m u n i c a t i o n s n e t w o r k would be s e t up on an i n t e g r a t e d NATO
S H A P E Studies the P r o b l e m .
E a r l y in 1957 t h e SHAPE Air D e f e n s e Divis ion w a s invo lved in t h e
p r e p a r a t i o n of t h r e e s t u d i e s c o n c e r n e d wi th t h e o v e r a l l p r o b l e m of i m p l e m e n t -
ing SACEUR' s r e s p o n s i b i l i t i e s a s s t a t e d in MC 54. T h e s e s t u d i e s w e r e r e -
g iona l p l a n s c o v e r i n g Al l ied C o m m a n d E u r o p e and w e r e f o r e c a s t s of t h e t ype
of a i r D e f e n s e e n v i s a g e d at v a r y i n g f u t u r e p e r i o d s . T h e f i r s t of t h e s e SHAPE
s tudies w a s a l o n g - t e r m concept ion of a i r d e f e n s e r e q u i r e m e n t s in 1965.
While t h e l o n g - t e r m s tudy w a s in p r o g r e s s , an I n t e r i m r e p o r t w a s
p r e p a r e d which could be u s e d f o r t h e c l o s e r c o o r d i n a t i o n of a i r d e f e n s e s in
t h e i m m e d i a t e f u t u r e . T h i s p l a n w a s d e s i g n e d to p r o v i d e a l o g i c a l t r a n s i t i o n
f r o m c u r r e n t p o s t u r e to a m o r e f u l l y c o o r d i n a t e d s y s t e m , u s i n g t h o s e f o r c e s
and f a c i l i t i e s e x p e c t e d to be a v a i l a b l e in t h e t i m e p e r i o d u n d e r c o n s i d e r a t i o n .
(3) M C 61, 21 J u n 56: M i l i t a r y C o m m i t t e e a p p r o v a l f o r t h e E - W S y s t e m . M C 59, 16 M a r 56: NAC Approva l f o r t h e F o r w a r d Sca t t e r S y s t e m . See
C o m m u n i c a t i o n s and Log i s t i c s c h a p t e r s f o r m o r e d e t a i l e d i n f o r m a t i o n on t h e s e s y s t e m s .
u - ( 3 ) b a s i s . '
244
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO RESTRICTED
On 7 J u n e 1957, c o p i e s of t h i s p l a n , e n t i t l e d " D r a f t P l a n f o r C o o r d i -
n a t i o n of A i r D e f e n s e of NATO E u r o p e in t h e i 9 6 0 P e r i o d , " w e r e sen t t o
t h e M a j o r S u b o r d i n a t e C o m m a n d e r s and to t h e n a t i o n s c o n c e r n e d . T h e y
w e r e a s k e d t o s e n d t h e i r c o m m e n t s t o S H A P E wi th in a m o n t h . It w a s e m -
p h a s i z e d t h a t t h i s p l a n r e p r e s e n t e d on ly S H A P E ' S p r e l i m i n a r y op in ions and (4)
m i g h t b e m o d i f i e d a s a r e s u l t of t h e c o m m e n t s . '
T h e t h i r d s t u d y p r e p a r e d by A i r D e f e n s e D i v i s i o n w a s t h e 1 9 6 0 / 6 2
Study w h i c h l a t e r w a s i n c o r p o r a t e d i n to t h e M i n i m u m F o r c e Study a s Annex D
i n V o l u m e 2. T h i s w a s , i n e f f e c t , a f i n a l s t a t e m e n t of t h e S H A P E c o n c e p t of
t h i n k i n g on a i r d e f e n s e in 1957. It e s t a b l i s h e d t h e l e v e l of f o r c e s w h i c h would
b e n e e d e d t o a c c o m p l i s h t h e N A T O a i r d e f e n s e s t r a t e g y b e t w e e n 1958 and
1963. It w a s f r e e l y a d m i t t e d t ha t an e n e m y a i r a t t a c k l a u n c h e d i n s t r e n g t h
c o u l d not b e who l ly s topped , T h e r e f o r e , S H A P E p r o p o s e d a l i m i t e d a i r
d e f e n s e s u f f i c i e n t t o a s s i s t i n d e t e r r i n g g e n e r a l w a r , but not so e x p e n s i v e
t h a t i t coxild no t be m a i n t a i n e d b y t h e n a t i o n s .
It w a s b e l i e v e d t ha t t h e m a i n Soviet a i r t h r e a t in t h i s p e r i o d would b e
c o m p o s e d of g r e a t q u a n t i t i e s of m o d e r n , f a s t a i r c r a f t . It w a s c o n c e d e d ,
h o w e v e r , t h a t t h e e n e m y would h a v e s t o c k s of b a l l i s t i c m i s s i l e s .
T h e t h r e e m a j o r c o m p o n e n t s w h i c h would m a k e up t h e a i r d e f e n s e s y s t e m (5)
w e r e e a r l y w a r n i n g , a c t i v e a i r d e f e n s e , and p a s s i v e a i r d e f e n s e . '
It w a s r e a l i z e d t ha t t h e s u r f a c e - t o - a i r m i s s i l e s , w i th t h e i r r a p i d
r e a c t i o n c a p a b i l i t y and r a t e s of f i r e , r e p r e s e n t e d t h e b e s t p o t e n t i a l w e a p o n
a g a i n s t a i r a t t a c k . S H A P E r e c o m m e n d e d t ha t fliese m i s s i l e s be i n t r o d u c e d
i n t o N A T O ' s a i r d e f e n s e s y s t e m a s r a p i d l y a s p o s s i b l e . N e v e r t h e l e s s , t h e r e
(4) F o r f u l l d e t a i l s of t h i s p l a n , s e e S H A P E / A D / h / 5 7 and a l s o S H A P E / l 3 0 / 5 7 d a t e d 7 J u n 57. A c o m p l e t e b r e a k d o w n of t h e e a r l y w a r n i n g s y s t e m e x p e c t e d t o e x i s t b y i 9 6 0 , e a r l y w a r n i n g s t a t i o n s , t h e f o r c e g o a l s by n a t i o n , and p a r t i c u l a r l y t h e r e q u i r e m e n t s f o r s u r f a c e - t o - a i r m i s s i l e s , w a s s e t f o r t h i n t h i s p l a n .
(5) See C o m m u n i c a t i o n s C h a p t e r f o r d e s c r i p t i o n of e a r l y w a r n i n g s y s t e m a p p r o v e d b y M C 61.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
r , w e r e c o m p e l l i n g r e a s o n s , f o r r e t a i n i n g m a n n e d i n t e r c e p t o r a i r c r a f t .
T h e S H A P E c o n c e p t of a f o r w a r d m i s s i l e i n t e r c e p t o r z o n e w a s s e t f o r t h
w i t h e m p h a s i s f o r t h e C e n t r a l R e g i o n . S H A P E s t i l l h e l d t ha t SAM u n i t s
s h o u l d b e d e p l o y e d i n i t i a l l y t o f o r m a f o r w a r d m i s s i l e i n t e r c e p t o r zone c l o s e
t o t h e I r o n Curta in- and on t h e f l a n k s . It w a s f e l t t ha t if t h i s f o r w a r d zone
c o n t i n u e d t o o p e r a t e e v e n a t a d i m i n i s h i n g r a t e du r ing t h e f i r s t 48 h o u r s of
a g e n e r a l w a r , i t wou ld p a y f o r i t s e l f m a n y t i m e s o v e r . By u s e of t h i s zone ,
a i r d e f e n s e c o n t r o l p r o b l e m s cou ld b e r e d u c e d t o a m i n i m u m , and t h e f o r w a r d
m i s s i l e zone w a s c a p a b l e of be ing l e n g t h e n e d and s t r e n g t h e n e d wi thou t a d v e r s e
e f f e c t s on o t h e r s y s t e m s . T h e zone cou ld not be e s t a b l i s h e d by any one n a t i o n
and a l l n a t i o n s would h a v e to c o n t r i b u t e to i t s e s t a b l i s h m e n t and o p e r a t i o n .
One of t h e p r i n c i p l e s of c o m m a n d and c o n t r o l w a s t ha t t h e a i r d e f e n s e b a t t l e
shou ld b e c o n d u c t e d a t t h e l o w e s t l e v e l of c o m m a n d p o s s i b l e . T h i s s y s t e m
s h o u l d be f u l l y o r g a n i z e d and o p e r a t i o n a l i n p e a c e t i m e , and t h e r e s p o n s i b i l i t y
a n d p r o c e d u r e s shou ld not be c h a n g e d in t h e t r a n s i t i o n t o w a r . T h e r e w a s a
v i t a l n e e d f o r s e m i - a u t o m a t i c d a t a p r o c e s s i n g , hand l ing and t r a n s m i s s i o n
e q u i p m e n t to t a k e c a r e of e x t r e m e l y d e n s e a i r r a i d s in the C e n t r a l R e g i o n ,
a n d t o a l e s s e r ex t en t on t h e f l a n k s .
T h e p r o b l e m of i d e n t i f i c a t i o n of a i r c r a f t d e m a n d e d a s e c u r e e l e c t r o n i c
i d e n t i f i c a t i o n s y s t e m which would p r o v i d e s i g n a l s f r o m a l l f r i e n d l y a i r c r a f t
i n s t a n t l y and d i r e c t l y , on c o n t r o l s c o p e s of t h e a i r d e f e n s e r a d a r s and on
w e a p o n c o n t r o l c o n s o l e s . An e f f e c t i v e e l e c t r o n i c g r o u n d - c o n t r o l e n v i r o n m e n t
f o r a i r d e f e n s e would c o s t about o n e - f o u r t h of t h e a s s o c i a t e d w e a p o n s s y s t e m s .
T h e S H A P E s tudy c o n c l u d e d t ha t t h e r e shou ld be m o d e r n i z a t i o n of t he s y s t e m , (6) c o n s i d e r i n g a l l f a c t o r s - m o n e y , m a n p o w e r and r e s o u r c e s .
The c o n c e p t of a i r d e f e n s e c o n t a i n e d in Annex D of the M i n i m u m F o r c e
(6) See A C E M i n i m u m F o r c e Study 1958-63 , V o l u m e II, Annex D. T h e Sc i en t i f i c A d v i s o r t o SACEUR i s s u e d a s t a t e m e n t on A i r D e f e n s e in J u l y 1957. See S H A P E / S E C / 1 4 / 5 7 , AG 1250 OSCAD.
246
I ^ f ^ H ' ' I 5 L-:
t f A T O - S E C R E T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
NATO RESTRICTED HATO ODCRET
p r i m a r i l y to p r o t e c t the r e t a l i a t o r y f o r c e s , but at t he s a m e t i m e t o p r o -
t e c t NATO c o m m u n i t i e s and c o v e r t h e Shield F o r c e s .
While s o m e p r o g r e s s had b e e n m a d e in t h e a i r d e f e n s e p o s t u r e of ACE,
i t w a s ev iden t t ha t f u r t h e r i m p r o v e m e n t would have to be b a s e d on a g r a d u a t e d
evo lu t ion of a i r d e f e n s e u n i t s in to an i n t e g r a t e d s y s t e m f o r p e a c e and w a r .
T h e a i r d e f e n s e f o r c e s shown in t h e M i n i m u m F o r c e Study w e r e not b a s e d on
p l a n s f o r a f u l l y i n t e g r a t e d NATO European Air De fense S y s t e m , a l though such
a s y s t e m w a s u n d e r d e v e l o p m e n t . The a i r d e f e n s e f o r c e B shown in the M i n i m u m
F o r c e Study w e r e b a s e d on t h e a s s u m p t i o n tha t t h e t h r e a t a g a i n s t E u r o p e up (7)
to 1963 would be p r i m a r i l y f r o m m a n n e d a i r c r a f t .
P l a n f o r t h e Integrat ion of Air D e f e n s e .
Fo l lowing the v a r i o u s SHAPE/S ta f f s t u d i e s , SACEUR w a s p r e p a r e d to
s u b m i t a p l a n f o r t h e i n i t i a t i on of a c t i o n s l ead ing to an i n t e g r a t e d a i r d e f e n s e
of NATO E u r o p e . In addi t ion , t h e r e q u i r e m e n t s of the M i n i m u m F o r c e Study
e n a b l e d SACEUR to b a s e h i s p l an on t h o s e f o r c e s expec ted t o be m a d e a v a i l a b l e
t o h i m . In a l e t t e r to the Standing Group on 6 D e c e m b e r 1957, s u b j e c t : " In te -
g r a t i o n of the Ai r D e f e n s e of NATO E u r o p e , " SACEUR po in t ed to t h e f a c t
t h a t in M C 54 he had b e e n d e s i g n a t e d a s the " C o o r d i n a t o r of Air D e f e n s e f o r
NATO E u r o p e " and in o r d e r to enab le h i m to d i s c h a r g e t h i s func t ion , SHAPE
had b e e n work ing in c l o s e con t ac t wi th na t iona l a u t h o r i t i e s to i n c r e a s e the
e f f i c i e n c y of e x i s t i n g a i r d e f e n s e f a c i l i t i e s . "Whi ls t s o m e p r o g r e s s h a s been
m a d e , e s p e c i a l l y in p lann ing , i t h a s b e c o m e m o r e evident t ha t r e a l i m p r o -
v e m e n t in a i r d e f e n s e depends not on p a t c h w o r k m e a s u r e s t o ' h a r n e s s s e p a r a t e
e n d e a v o r s , but r a t h e r on shaping a g r a d u a l evolut ion f r o m the p u r e l y na t iona l
a i r d e f e n s e o r g a n i z a t i o n s which now ex i s t in to an i n t e g r a t e d Al l ied Air D e f e n s e
(7) SGN-779-57 ( R e v i s e d ) , 9 Dec 57, M e m o f o r SACEUR, " P r o g r e s s R e p o r t on M i n i m u m E s s e n t i a l F o r c e R e q u i r e m e n t s MC 7 0 . "
247
NATO RESTRICTED
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
I j A1IU JiLUKiLl
s y s t e m . It i s c l e a r tha t the t i m e h a s now a r r i v e d when ac t ion to t h i s end
m u s t be t aken if the p r e s e n t l i m i t e d e f f e c t i v e n e s s of a i r d e f e n s e i s to be
i m p r o v e d . "
SACEUR then d r e w a t ten t ion to ex i s t ing d e f i c i e n c i e s . "Under p r e s e n t
a r r a n g e m e n t s , a i r d e f e n s e in p e a c e t i m e i s a na t iona l r e s p o n s i b i l i t y , and
b e c o m e s an Al l ied r e s p o n s i b i l i t y , l i m i t e d to t he combat zones , only on the
ou tb r eak of h o s t i l i t i e s . Our s tud i e s have shown tha t in a f u t u r e w a r , the
need fo r a i r d e f e n s e would be at i t s abso lu t e m a x i m u m dur ing the f i r s t f ew
h o u r s . A change of o p e r a t i o n a l con t ro l f r o m na t iona l to All ied in t i m e of
e m e r g e n c y would, t o s ay the l e a s t , a l m o s t c e r t a i n l y r e s u l t in c h a o s at the
t i m e of m a x i m u m need . The ex is t ing p a t t e r n of s e p a r a t e p e a c e t i m e na t iona l
c o m m a n d and con t ro l n e t w o r k s i s i ne f f i c i en t and m i l i t a r i l y unsound, and if
p e r p e t u a t e d , would not only cont inue to r e d u c e our o v e r - a l l e f f e c t i v e n e s s ,
but would a g g r a v a t e the d i f f i c u l t i e s of o p e r a t i n g under war cond i t ions . It
would be d e l u s i v e to think tha t t h e s e s e p a r a t e s y s t e m s could be i n s t a n t a n e -
ous ly f u s e d into one homogeneous s y s t e m on t he outbreak of w a r . E x p e r i e n c e
shows tha t such a s y s t e m to be e f f ec t ive in w a r m u s t be in ope ra t i on in
p e a c e . We m u s t a s s u m e t h a t the condi t ions of n u c l e a r and m i s s i l e w a r f a r e
wil l m a k e t h i s even m o r e t r u e in the f u t u r e .
" T h e r e a r e two s p e c i a l condi t ions which at t h i s t i m e u r g e e a r l y ac t ion .
F i r s t , we a r e c o n f r o n t e d wi th the p r o b l e m of in t roduc ing s u r f a c e - t o - a i r
m i s s i l e s . Our s tud i e s s t r o n g l y sugges t tha t t h e s e m i s s i l e s m u s t be o rgan i zed
on an i n t e r n a t i o n a l r a t h e r than a na t iona l b a s i s and be deployed fo r c o m m o n
d e f e n s e r a t h e r than the d e f e n s e of na t iona l t a r g e t s . Second, the bu i ld-up of
G e r m a n a i r d e f e n s e f o r c e s adds e m p h a s i s to the need fo r ac t ion now to e s -
t a b l i s h the f r a m e w o r k within which t h e s e f o r c e s can develop wi th m a x i m u m
e f f i c i ency and economy.
" T h e r e a r e , v e r y u n d e r s t a n d a b l y , m a t t e r s of na t iona l c o n c e r n which
m u s t be fu l ly c o n s i d e r e d and r e s p e c t e d when d e t e r m i n i n g how b e s t to dea l with
t he p r o b l e m . T h e s e i n t e r e s t s m a y in g e n e r a l be m e t by the e s t a b l i s h m e n t of
248
TTATO ODOREf
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
WALU RESTRICTED FRFTTO UILUHILL -
c e r t a i n p r i n c i p l e s on which we should b a s e ou r f u t u r e o r g a n i z a t i o n . T h e s e
I s u g g e s t a r e a s f o l l o w s :
a . A i r D e f e n s e u n i t s wi l l not b e u s e d f o r o the r t a s k s wi thout n a t i o n a l
a p p r o v a l .
b . N a t i o n a l f o r c e s wi l l , in g e n e r a l , bé dep loyed in na t iona l t e r r i t o r i e s
u n l e s s e x c e p t i o n s to m e e t o v e r - a l l r e q u i r e m e n t s r e c e i v e n a t i o n a l a p p r o v a l .
c . The c o m p o s i t i o n of Al l ied s t a f f s should be b r o a d l y i n p r o p o r t i o n t o
t h e f o r c e s c o n t r i b u t e d to e a c h Al l i ed C o m m a n d .
d. C o n t r o l and R e p o r t i n g c e n t e r s and s t a t i o n s will be m a n n e d p r i m a r i l y
by t h e na t ion in w h o s e t e r r i t o r y t hey a r e l o c a t e d , u n l e s s u n u s u a l c i r c u m s -
t a n c e s demand o t h e r w i s e . As an e x a m p l e , t h e Con t ro l and R e p o r t i n g S y s t e m
in G e r m a n y wi l l p r o b a b l y r e q u i r e s o m e m a n n i n g by n a t i o n s o the r t h a n G e r m a n y
f o r s o m e y e a r s t o c o m e .
e . Ai r D e f e n s e p l a n s p r e p a r e d by S H A P E f o r the Al l ied Air D e f e n s e
A r e a w i l l b e c o o r d i n a t e d by d i r e c t l i a i s o n wi th ind iv idua l n a t i o n s , and when
f i n a l i z e d wi l l b e s u b m i t t e d t h r o u g h t h e Standing G r o u p t o the M i l i t a r y C o m m i t t e e .
" A i r D e f e n s e , to be e f f e c t i v e , m u s t be c a p a b l e of r e a c t i n g p r o m p t l y
and m u s t h a v e a m i n i m u m n u m b e r of l e v e l s of c o n t r o l . It i s c l e a r tha t any
Al l i ed Ai r D e f e n s e S y s t e m m u s t b e b a s e d on t h e m a x i m u m r e a s o n a b l e d e c e n -
t r a l i z a t i o n of o p e r a t i o n a l c o n t r o l t o a p p r o p r i a t e r e g i o n a l a u t h o r i t i e s and
c o m m a n d s . On the o the r hand , c e n t r a l i z e d c o o r d i n a t i o n i s e s s e n t i a l t o we ld -
t h e m i n t o a u n i f i e d whole . It i s t h e S H A P E v iew tha t , in t h e i n t e r e s t s of both
e f f e c t i v e n e s s and e c o n o m y , an i n t e g r a t e d Al l ied d e f e n s e o r g a n i z a t i o n should
u t i l i z e t h e ex i s t i ng Al l ied Reg iona l H e a d q u a r t e r s and a p p r o p r i a t e na t i ona l
h e a d q u a r t e r s o r g a n i z a t i o n s w h e r e v e r p o s s i b l e . "
An i n t e g r a t e d Al l ied Air D e f e n s e S y s t e m f o r the C e n t e r p r e s e n t e d t h e .
m o s t u r g e n t p r o b l e m . SACEUR s u g g e s t e d tha t wh i l e t h e C e n t e r R e g i o n w a s
t h e m o s t i m p o r t a n t , t h e r e would be good r e a s o n f o r extending w h a t e v e r s o l u -
t ion w a s adop ted to a l l o the r a r e a s of NATO E u r o p e , and f u r t h e r s u g g e s t e d a
m e t h o d of p h a s i n g t o a c c o m p l i s h t h i s .
249
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
IMYO RSSTRSCTED N ^TFF FTIRRNRT
SACEUR r e c o m m e n d e d tha t NATO a u t h o r i t i e s a g r e e in p r i n c i p l e to
t h e concep t of an i n t e g r a t e d a i r d e f e n s e s y s t e m t o o p e r a t e u n d e r Al l ied c o n t r o l
i n p e a c e a s w e l l a s in w a r . He a l s o a s k e d f o r a u t h o r i z a t i o n to deve lop , f o r
a p p r o v a l , an o r g a n i z a t i o n a l concep t and a c o r r e s p o n d i n g C o m m a n d and Con-/g\
t r o l S y s t e m in c o n c e r t wi th a p p r o p r i a t e na t i ona l a u t h o r i t i e s . *
The F o r w a r d M i s s i l e I n t e r c e p t o r Zone.
A s a resvi l t of the v a r i o u s s t u d i e s m a d e at SHAPE, a r e q u i r e m e n t f o r
s u r f a c e - t o - a i r m i s s i l e s a s a m e a n s f o r the i n t e r cep t ion of e n e m y a i r c r a f t
w a s e s t a b l i s h e d . T h e s e SAMS would be u s e d i n i t i a l l y to se t up a f o r w a r d
m i s s i l e zone and would be i n t r o d u c e d on a c a r e f u l l y p l a n n e d b a s i s a s soon
a s p o s s i b l e . As i t w a s a n t i c i p a t e d tha t t h e r e would be an e x t r e m e l y s h o r t
p e r i o d of t a c t i c a l w a r n i n g , i t w a s c o n s i d e r e d tha t t h e SAM u n i t s should be
p l a c e d f o r w a r d t o f o r m the f o r w a r d m i s s i l e zone c l o s e to the I r o n C u r t a i n , (9)
wi th m a n n e d a i r c r a f t s u p p o r t beh ind and on the f l a n k s / '
In J u l y I957 G e n e r a l N o r s t a d r e c o m m e n d e d tha t t h e Standing Group
p r e s s t h e NAC t o a p p r o v e in p r i n c i p l e the c o m m o n funding f o r i n f r a s t r u c t u r e
f o r the NIKE s i t e s which would f o r m a p a r t of the i n t e g r a t e d a i r d e f e n s e s y s t e m
f o r Al l ied C o m m a n d E u r o p e . He f u r t h e r a s k e d tha t , in the i n t e r i m , i m m e d i a t e
r e q u i r e m e n t s f o r SAMS be p a i d f o r by advanc ing f u n d s r e m a i n i n g wi th in the
NATO c o m m o n i n f r a s t r u c t u r e f o u r - y e a r ce i l i ng .
In i t s r e p l y , t h e Standing Group to ld G e n e r a l N o r s t a d tha t the a p p r o v a l
of c o m m o n funding f o r t h e s e SAM m i s s i l e s s i t e s should be b a c k e d up wi th
a n a p p r o v e d p l a n f o r the a i r d e f e n s e of NATO E u r o p e . A f t e r t a lk ing f u r t h e r
(8) AG 1250 AO da ted 6 Dec 57: "Ac t ions l ead ing t o w a r d s t h e I n t e g r a t i o n of t h e Ai r D e f e n s e of NATO E u r o p e , " SACEUR t o SGN.
(9) See : S H A P E / 1 6 8 / 5 7 dtd 10 Sep 57. T h i s i s a d e t a i l e d s tudy of the concep t of a i r d e f e n s e a s i t deve loped .
See a l s o fo l lowing l e t t e r s : AG 6440 AD, dtd 2 Aug 57, ACOS Air D e f e n s e SHAPE t o CINC EUCOM, " P r e s e n t a t i o n of NIKE P r o b l e m A r e a s to S H A P E . " AG 6440 AD dtd 5 Aug 57, ACOS A l ; D e f e n s e SHAPE to Subord ina te C o m m a n d e r s , "NIKE P r o g r a m A r e a s . "
250
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
i M A T f ) « î P f T ^ i ' f ï r ù « S H A P E 5 7 / 6 7 J J u u l L 1 '•
with General Norstad, however, the Standing Group changed i t s point of
v i ew «lightly .and agreed that the operational flexibil ity which the infra-
structure funding of surface-to-air units would give to SACSUR in employing
these units on an extra-national bas is bas highly desirable. Alko it was ex-
pected that during 1958 or 1959 about 17 SAM units would arrive in Europe.
Fac i l i t i e s to support these units would have to be provided as a matter of
urgency. It was estimated that it would take at least nine months from the
beginning of construction to have these faci l i t ies ready for the unite.
On the last day of December 1957, the Standing Groiqt reported to
SACEUR that it supported him; it had recommended to the North Atlantic
Council that funds from common infrastructure funds be provided as an in-
ter im measure for the f i r s t 17 surface- to-a ir NIKE units, and that units
should be sited in accordance with SACEUR's Air Defense Plan. General
Norstad had estimated that the cost of faci l i t ies , for these 17 units, would
amount to approximately L 1 7 , 0 0 0 , 0 0 0 . ^ ° ^
(Note: The Air Defense of Germany. Following the issuance of SHAPE policy
regarding the build-up and integration of the German Air Force in June 1956,
COMAIRCENT was given the responsibil ity for implementation of that policy.
A detailed summary of the various discuss ions that took place during 1957, and
the p r o g r e s s achieved, can be found in the AIRCENT History for 1956-57 --AIR- .
CENT 65/58, pages 21-28 and 59-64. Other useful documents are: . AD
SHAPE Ltr, AG 1250/8 AD, 30 Jun 56; SHAPE Ltr, AG 1250/8, 2 Oct 56; * SHAPE Ltr, AG 1250/8 AD, 17 Nov 56; SHAPE Ltr f AG 0905.24 OT, 21 Jan 57; AIRCENT Ltr, AIRCENT-PLD-1100/276, 28 Jan 57} SHAPE Ltr, AG 1250/8 AD, 26 Mar 57.)
(10) SGN-821-57, Memo for SACEUR: "Funding o£ Surface-to- Air Miss i l e , Sites in ACE, 31 Dec 57.
SHAPE/143/57, 16 Jul 57; STAND 2117, 4 Oct 57. See a l so Logis t ics chapter for Infrastructure problems.
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
A P P E N D I X A C h a p t e r I S H A P E H i s t o r y 1957
KEY O F F I C E R S at S H A P E - 1957
COMMAND E C H E L O N
SACEUR
Deputy SACEUR
Nava l Deputy
Ai r Deputy
Chief of Staff
Deputy Chief of Staff , L o g i s t i c s & A d m i n i s t r a t i o n
Deputy Chief of Staff , P l a n s & P o l i c y
Deputy Chief of Staff , O p e r a t i o n s
G e n e r a l L a u r i s NORSTAD «
F i e l d M a r s h a l M o n t g o m e r y of A l a m e i n
A d m i r a l A. L . M. Sa la
P o s t u n o c c u p i e d d u r i n g p e r i o d
G e n e r a l C. V. R . S. Schuy le r
L t . G e n e r a l P i e r r e S. B r i s a c (unt i l 4 Apr 57) L t . G e n e r a l A n d r e D e m e t z ( f r o m 4 Apr 57)
Ai r M a r s h a l Hugh A. C o n s t a n t i n e
Ai r M a r s h a l Hugh C a m p b e l l (unt i l 27 Aug 57) ( P o s t not f i l l e d f r o m 27 Aug 57 to end of p e r i o d ) .
DIVISION C H I E F S
Adju tan t G e n e r a l
Air D e f e n s e Div i s ion
Ai r & Spec ia l O p e r a t i o n s Div i s ion
Budge t and F i n a n c e Div is ion
I n t e l l i g e n c e Div is ion
L o g i s t i c s Div is ion
O r g a n i z a t i o n &c T r a i n i n g Div i s ion
B r i g a d i e r G e n e r a l W i l l i a m H. H a r r i s
Air V ice M a r s h a l C. G. Lot t (unt i l 8 M a r 57) Air V ice M a r s h a l H. D. M c G r e g o r ( f r o m 8 M a r 57)
M a j o r G e n e r a l C h a r l e s H. A n d e r s o n
M r . G. C. L e Bigot
B r i g a d i e r G e n e r a l J o h n Schwe i t ze r
M a j o r G e n e r a l Heinz T r e t t n e r
M a j o r G e n e r a l J a m e s N. C a r t e r (unt i l 4 Nov 57)
M a j o r G e n e r a l E r i c K. G. S i x s m i t h ( f r o m 4 Nov 57) •
r\ ri 3¾¾^ ifcairaW ft^frll m
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p s j j p ö • imüL&mw —SEGf tßT
P e r s o n n e l & A d m i n i s t r a t i o n Divi s ion
P l a n s & P o l i c y Div i s ion
P r o g r a m s Div i s ion
Signal D iv i s ion
H e a d q u a r t e r s C o m m a n d a n t
S e c r e t a r y of t h e Staff
Chief of P u b l i c I n f o r m a t i o n
E x e c u t i v e f o r N a t i o n a l M i l i t a r y R e p r e s e n t a t i v e s
Spec i a l A s s i s t a n t s t o SACEUR
S c i e n t i f i c A d v i s o r t o SACEUR
R e a r A d m i r a l Aldo R o s s i (unt i l 28 Dec 56) R e a r A d m i r a l Ugo F e r r u t a ( f r o m 28 Dec 56)
M a j o r G e n e r a l J a c q u e s M. A l l a r d (unt i l 25 J a n 57)
M a j o r G e n e r a l M a u r i c e J . Gaz in ( f r o m 25 J a n 57)
M a j o r G e n e r a l F r a n k B e s s o n
M a j o r G e n e r a l B l a i r G a r l a n d (unti l 3 Ju l 57) M a j o r G e n e r a l V ic to r A. C o n r a d ( f r o m 3 J u l y 57)
Colonel M . C . Higg ins
Colonel E d w a r d L . Rowny
B r i g a d i e r L i o n e l L . C r o s s
Colone l Edwins ton R o b b i n s (unti l 5 Apr 57) B r i g . G e n . E z i o I. P i s t o t t i ( f r o m 11 Aug 57)
M r . R . B. Knight Colonel J . B. de B a r y L t . C o l o n e l H. G. Wood
D r . K . S . M. Dav idson (unti l 1 Aug 57) D r . K . C. B lack ( f r o m 7 Oct 57)
253
NATO ' S E b H ^ l ' ^
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
MÂTO RESTRICTED S H A P E 5 7 / 6 7 jNATO l S E L K E i ->
A P P E N D I X A C h a p t e r III SHAPE H i s t o r y 1957
B a c k g r o u n d on F o r c e S t a t i s t i c s
Subsequent to L i s b o n , t h e F o r c e G o a l s had been f o r m u l a t e d and e s t a b l i s h e d each y e a r in the Annual R e v i e w p r o c e s s . The p e r t i n e n t do-c u m e n t s on the v a r i o u s Annual R e v i e w s which l i s t t h e s e a g r e e d G o a l s a r e se t out in t h e c h r o n o l o g i c a l out l ine at Appendix " B " . In o r d e r to m a k e t h i s s tudy of v a l u e one m u s t go beyond F o r c e G o a l s and c o n s i d e r t h e e n t i r e m a t t e r oï s t a t i s t i c a l e s t i m a t e s of f o r c e s and p lann ing to i n -c l u d e such i t e m s a s F o r c e R e q u i r e m e n t s and C a p a b i l i t i e s .
The m o s t l uc id exp lana t ion of the t r a d e j a r g o n employed by NATO p l a n n e r s i s tha t con t a ined in SG 2 0 / 4 9 of Oc tobe r 1952. In t h i s d o c u m e n t i s found t h e s t a t e m e n t : " F o r c e R e q u i r e m e n t s r e p r e s e n t a p u r e l y m i l i -t a r y e s t i m a t e of the f o r c e s r e q u i r e d to i m p l e m e n t the w a r s t r a t e g y de -t e r m i n e d to be the m o s t e f f i c i en t to m e e t and d e f e a t t h e e n e m y t h r e a t . On t h e o the r hand , annual F o r c e G o a l s a r e p h a s e d s t e p s t o w a r d the a t t a i n m e n t of t h e s e r e q u i r e m e n t s . G o a l s a r e b a s e d on c o n s i d e r a t i o n of e c o n o m i c and p o l i t i c a l f a c t o r s a s we l l a s m i l i t a r y r e q u i r e m e n t s ; F o r c e R e q u i r e m e n t s a r e t a r g e t s which NATO n a t i o n s should s t r i v e to r e a c h . " U n f o r t u n a t e l y , t he p a s s a g e of t i m e h a s o b s c u r e d t h e s e e a r l y and f a i r l y c l e a r de f in i t i ons unt i l now the t e r m s a r e so c o n f u s e d and i n t e r c h a n g e a b l e a s s o m e t i m e s to be a l m o s t m e a n i n g l e s s .
P l a n s had been m a d e f o r the d e f e n s e of E u r o p e p r i o r to t h e e s t a -b l i s h m e n t of SHAPE, and t h e s e w e r e va l id dur ing the f i r s t y e a r of SHAPE'S e x i s t e n c e . P l a n n e r s in t h o s e days b a s e d t h e i r c o n t e m p l a t e d n e e d s l a r g e l y on Wor ld War II e x p e r i e n c e s and e s t a b l i s h e d p l a n s of ac t ion and r e q u i r e d f o r c e s m a i n l y on the b a s i s of what they c o n s i d e r e d to be t h e need . In t h i s f a s h i o n s e v e r a l e a r l y d o c u m e n t s w e r e p u b l i s h e d se t t ing f o r t h F o r c e R e -q u i r e m e n t s with l i t t l e r e g a r d to w h e t h e r o r not t h e s e R e q u i r e m e n t s could be m e t by t h e n a t i o n s .
The r e q u i r e m e n t s e s t a b l i s h e d b e f o r e L i s b o n w e r e u n r e a l i s t i c to t h e extent tha t t hey w e r e not c o m m e n s u r a t e wi th t h e ab i l i ty of the n a t i o n s to f u l f i l l t h e m . E v e r y o n e w a s a w a r e of t h i s , of c o u r s e , but i t w a s only a f t e r SACEUR po in ted t h i s out s t r o n g l y to t h e Counci l at O t t awa that t h e r e w a s e s t a b l i s h e d in Oc tobe r 1951 a T e m p o r a r y Counci l C o m m i t t e e (TCC) - t h e f i r s t se t of "Wise M e n . " T h i s C o m m i t t e e w a s to ld by t h e Counci l to conduct
254
NATO
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
a d e t a i l e d r e v i e w of na t iona l m i l i t a r y r e s o u r c e s , v i s - a - v i s m i l i t a r y r e q u i r e m e n t s . F o r e r u n n e r to t h e Annual Rev i ew , the i n v e s t i g a t i o n of t h e T C C w a s c a r r i e d out by ca l l ing on a l l t h e n a t i o n s f o r d e t a i l e d i n -f o r m a t i o n on t h e i r d e f e n s e p r o g r a m s f o r t h e next t h r e e y e a r s and t h e e c o n o m i c r e s o u r c e s a v a i l a b l e to back up t h e s e f o r t h e s a m e p e r i o d . T h e n a t i o n s w e r e a s k e d to r e p o r t on t h e n u m b e r of r e g u l a r and r e s e r v e t r o o p s wh ich t h e y w e r e p lann ing to r a i s e , t h e s t a t e of t h e i r t r a i n i n g , and t h e t y p e s of e q u i p m e n t wh ich t h e y h a d a s we l l a s on e c o n o m i c c a p a -b i l i t i e s . T h i s i n v e s t i g a t i o n b e g a n in O c t o b e r 1951. The T C C s u b m i t t e d t h i s d e t a i l e d f i n a l r e p o r t to t h e Counc i l in D e c e m b e r 1951, and m a d e s p e c i f i c p r o p o s a l s " f o r f o r c e t a r g e t s and m i l i t a r y s t a n d a r d s , which a r e to be c o n s i d e r e d a s F i r m G o a l s f o r t h e com i ng y e a r and a s P r o v i s i o n a l G o a l s f o r t h e y e a r s t h e r e a f t e r . . . " On 20 F e b r u a r y 1952 at L i s b o n , t h e NAC convened . Na t iona l G o v e r n m e n t s had had an oppo r tun i t y to s tudy t h e s p e c i f i c p r o p o s a l s of t h e T C C in t h e m e a n t i m e . T h e Counci l t hen a d o p t e d t h e s o - c a l l e d L i s b o n G o a l s c o n t a i n e d in t h e T C C R e p o r t . (See C h r o n o l o g y fo l lowing . ) It should b e no ted t h a t t h i s i s t he f i r s t o c c a s i o n on w h i c h t h e NATO n a t i o n s a g r e e d to m e e t c e r t a i n c o m m i t m e n t s . S H A P E did not e s t a b l i s h t h e s e g o a l s .
At L i s b o n in 1952, t h e NAC d e c i d e d tha t t h e r e should be conduc ted e a c h y e a r " c o m p r e h e n s i v e Annual R e v i e w s of the r e q u i r e m e n t s f o r bu i ld -ing and m a i n t a i n i n g a d e q u a t e d e f e n s i v e s t r e n g t h on a r e a l i s t i c founda t ion of p o l i t i c o - e c o n o m i c c a p a b i l i t i e s . " T h i s p r o c e s s w a s in a c t u a l f a c t a con t inua t i on of t h e p r o c e s s f i r s t u n d e r t a k e n by t h e T C C i n t h e f a l l of 1951 w h i c h h a d r e s u l t e d in t h e s o - c a l l e d L i s b o n G o a l s . E a c h y e a r s i n c e then , of c o u r s e , t h e Annuad Rev i ew h a s b e e n conduc t ed wi th c e r t a i n SHAPE p a r t i c i p a t i o n and h a s p r o d u c e d F o r c e G o a l s e a c h y e a r a s shown in t h e C h r o n o l o g y . Again , t h e s e F o r c e G o a l s a r e e s t a b l i s h e d not by SHAPE but by t h e Counci l a s a r e s u l t of the Annual R e v i e w .
At t h i s s t a g e t h e t e r m s " G o a l s " and " R e q u i r e m e n t s " b e c a m e m o r e c o n f u s e d with t h e i s s u a n c e of M R C / 1 2 en t i t l ed " E s t i m a t e d F o r c e G o a l s f o r u s e in c o n n e c t i o n wi th the Annual Rev i ew 1952." T h i s p a p e r should h a v e b e e n t i t l e d " E s t i m a t e d R e q u i r e m e n t s . "
In S e p t e m b e r 1952 t h e Standing Group to ld SACEUR to s end to t h e m h i s r e v i s e d m a j o r F o r c e R e q u i r e m e n t s f o r the d e f e n s e of A C E a s of 1954. T h e s e new r e q u i r e m e n t s w e r e c a l l e d f o r b e c a u s e of a new i n t e l l i g e n c e e s t i m a t e and of r e v i s e d s t r a t e g i c g u i d a n c e r e s u l t i n g f r o m t h e r ecen t a c c e s s i o n of G r e e c e and T u r k e y in to NATO. G e n e r a l R idgway s u b m i t t e d t h e s e new F o r c e R e q u i r e m e n t s in e a r l y N o v e m b e r 1952 (SHAPE 1215/52) and s t a t e d tha t a l though the Standing G r o u p had a s k e d f o r r e q u i r e m e n t s f o r 1954, he w a s s u b m i t t i n g r e q u i r e m e n t s wh ich b o r e no r e l a t i o n to a
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
p a r t i c u l a r da t e , but which w e r e r e q u i r e m e n t s to a c c o m p l i s h s u c c e s s -f u l l y SACEUR' s m i s s i o n " today or at any t i m e in the f u t u r e unt i l t he concep t of o p e r a t i o n s , t h e e n e m y t h r e a t , a n d / o r the i m p a c t of new d e v e l o p m e n t s r e q u i r e r e v i s i o n . " T h e s e r e q u i r e m e n t s w e r e p u b l i s h e d a s " R e v i s e d NATO F o r c e R e q u i r e m e n t s " in MC 2 6 / 2 F i n a l on 24 Apr i l 1953.
T h e s e r e q u i r e m e n t s w e r e r e v i s e d s l igh t ly in J u n e 1953 a s a r e s u l t of c e r t a i n c h a n g e s in T u r k i s h f o r c e s . When G e n e r a l R idgway d e p a r t e d a s SACEUR he sen t to t h e Standing Group a l e t t e r en t i t l ed " E s t i m a t e of the Si tuat ion and F o r c e R e q u i r e m e n t s " (SHAPE 704 /53 , 10 J u l 53). G e n e r a l R idgway had d e c i d e d tha t the ava i l ab i l i t y of new w e a p o n s would a f f ec t h i s F o r c e R e q u i r e m e n t s and d i r e c t e d h i s s taff to m a k e a s tudy on tha t a s s u m p t i o n . U n f o r t u n a t e l y even though he t r i e d to get i n f o r m a t i o n f r o m the n a t i o n s and f r o m t h e Standing Group , he w a s unab l e to get su f -f i c i en t va l i d da t a t o g e t h e r so tha t h i s s tudy of F o r c e R e q m r e m e n t s f o r m i d - I 9 5 6 i s not de f in i t i ve . As G e n e r a l R idgway h i m s e l f a d m i t t e d to h i s s u p e r i o r s , h i s s tudy w a s " b a s e d on a r b i t r a r y v a l u e s a s s i g n e d to m a n y a d m i t t e d v a r i a b l e s and on equa l ly a r b i t r a r y eva lua t ion of i m p o n d e r a b l e s to which no convent iona l p l ann ing f a c t o r s a r e app l i c ab l e and f o r wh ich no e m p i r i c a l da ta a r e a v a i l a b l e a s g u i d a n c e . " T h i s R idgway s tudy m a y we l l be c a l l e d the f o r e r u n n e r of- the 1957 C a p a b i l i t i e s P l a n which i s t he next m a j o r c h a p t e r in t h e s t o r y of f o r c e s f o r Al l ied C o m m a n d E u r o p e .
When G e n e r a l G r u e n t h e r a s s u m e d c o m m a n d he w a s t e d no t i m e in s t a r t i n g h i s staff on t h e New A p p r o a c h . His r e a s o n s f o r so doing w e r e , a s he exp la ined , two in numbei*. F i r s t , f r o m t h e r e s u l t s being ob ta ined in the 1953 Annual Rev iew it w a s v e r y p la in tha t t he n a t i o n s w e r e not going to f u r n i s h f o r c e s on t h e o r d e r which would be n e e d e d to de fend Eu-r o p e unde r ex i s t ing p l a n s wi th convent iona l w e a p o n s . His s econd and m o s t i m p o r t a n t r e a s o n w a s tha t a t o m i c weapons w e r e b e c o m i n g a v a i l a b l e in quan t i t i e s su f f i c i en t to i n d i c a t e t h e i r u s e by both s i d e s in any f u t u r e w a r . As G e n e r a l G r u e n t h e r noted , " th i s wi l l undoubted ly i n f l u e n c e our s t r a t e g y and our o v e r a l l o r g a n i z a t i o n . "
E a r l y in h i s p lann ing , G e n e r a l G r u e n t h e r w a s to ld by t h e Standing Group to submi t to t h e m f o r c e r e q u i r e m e n t s f o r 1956. He w a s r e l u c t a n t to do t h i s m a i n l y b e c a u s e i t w a s a p p a r e n t f r o m h i s p lann ing up to t h i s t i m e (Sep tember 1953), t ha t any f i g u r e s s u b m i t t e d on t h e b a s i s of old p lanning a s s u m p t i o n s would be m e a n i n g l e s s . N e v e r t h e l e s s the Standing Group i n s i s t e d , and G e n e r a l G r u e n t h e r sent to t h e m 1956 F o r c e R e q u i -r e m e n t s . With SGN a g r e e m e n t , he m e r e l y m o d i f i e d the f i g u r e s which w e r e con ta ined in MC 2 6 / 2 by adding c e r t a i n T u r k i s h A r m y f i g u r e s . T h e s e r e q u i r e m e n t s w e r e a p p r o v e d by the Counci l on 9 D e c e m b e r 1953 a s NATO F o r c e R e q u i r e m e n t s in MC 2 6 / 3 .
256
MATn r r i i c n r T
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
As a r e s u l t of m o r e t han n ine m o n t h s p l ann ing , G e n e r a l G r u e n t h e r f o r w a r d e d t o t h e Standing Group on 1 J u l y 1954 t h e C a p a b i l i t i e s P l a n f o r A C E 1957, a long with a S u p p l e m e n t a r y R e p o r t on M i n i m u m E s s e n t i a l M e a s u r e s *
T h e 1957 Capabi l i t iesr P l a n w a s b a s e d , i n s o f a r a s n u m b e r s of f o r c e s w e r e c o n c e r n e d , upon t h o s e f o r c e s wh ich t h e n a t i o n s had i n d i c a t e d in t h e 1953 Annual R e v i e w would be a v a i l a b l e t o SACEUR in D e c e m b e r 1956. G e n e r a l G r u e n t h e r had d i r e c t e d t h i s p l ann ing a s s u m p t i o n . In t h e w o r d s of t h e r e p o r t : "It w a s c o n s i d e r e d t h a t t h e m a j o r f o r c e s t o be u s e d a s a b a s i s f o r t h e C a p a b i l i t i e s P l a n should a d h e r e i n s o f a r a s p o s s i b l e to t h e c o u n t r y p l a n s f o r 1956, t h e l a t e s t y e a r c o v e r e d by t h e 1953 Annual R e v i e w s u b -m i s s i o n s . R e a d j u s t m e n t s h a v e only to be m a d e in t h o s e f e w i n s t a n c e s w h e r e t h e r e w e r e s p e c i a l r e a s o n s t o s u p p o r t t h e c h a n g e . " The p l a n s e t s f o r t h t h e s e a s s u m e d f o r c e s both in t h e d e t a i l e d c a m p a i g n s and in Appendix L e n t i t l e d " D e t e r m i n a t i o n of 1957 F o r c e L e v e l s , "
The 1957 C a p a b i l i t i e s P l a n w a s c o n s i d e r e d by t h e Counci l and w a s a p p r o v e d a s "a concep t of o p e r a t i o n s and gene ra l s t r a t e g y a s a b a s i s f o r c u r r e n t d e t a i l e d r e c o m m e n d a t i o n s and f u r t h e r p l a n n i n g " in MC 49 in De-c e m b e r 1954. At t h e s a m e t i m e , m o v e d by S A C E U R ' s p l ann ing and r e c o m -m e n d a t i o n s , t h e Counci l a p p r o v e d on 17 D e c e m b e r 1954 M C / 4 8 , " T h e m o s t E f f e c t i v e P a t t e r n of NATO M i l i t a r y S t r eng th F o r t h e Next F e w Y e a r s . " T h i s i m p o r t a n t p a p e r s u g g e s t e d a p a t t e r n of m i l i t a r y f o r c e ; c a l l e d f o r f o r c e s wi th i n t e g r a t e d a t o m i c c a p a b i l i t y ; c a l l e d f o r p r i o r i t y on f o r c e s - i n -be ing a s opposed to r e s e r v e f o r c e s ; and c a l l e d f o r an e f f e c t i v e G e r m a n c o n t r i b u t i o n by 1957.
All NATO a u t h o r i t i e s r e a l i z e d tha t M C / 4 8 w a s i n c o m p l e t e s i n c e i t had been p r e p a r e d in a g r e a t h u r r y , and tha t a f u r t h e r r e p o r t b a s e d on a d d i t i o n a l g u i d a n c e would be n e e d e d .
A c c o r d i n g l y , M C / 4 8 / 1 ( F i n a l ) w a s a p p r o v e d by t h e NAC on 15 D e c e m -b e r 1955. T h e fo l lowing p a r a g r a p h f r o m M C / 4 8 / l wh ich i s quoted in f u l l s e t s t h e s t a g e f o r t h e p r o c e d u r e s which a r e now fo l lowed by SHAPE in a t t e m p t i n g t o d e t e r m i n e t h e p rope r f o r c e p o s t u r e s :
"It i s i m p o s s i b l e a s yet t o d e f i n e f u l l y t h e f u t u r e p a t t e r n f o r t h e f o r c e s wh ich w e wil l r e q u i r e . T h e d e v e l o p m e n t of t h i s p a t t e r n m u s t be an e v o l u t i o n a r y p r o c e s s b a s e d on continuing s t u d i e s , e x p e r i m e n t s , and o p e r a t i o n a l t e s t s . H o w e v e r , a d v i c e and s p e c i f i c r e c o m m e n d a -t i o n s a r e m a d e in S A C E U R ' s annua l a s s e s s m e n t of the c o m b a t e f f e c -t i v e n e s s of f o r c e s a s s i g n e d o r e a r m a r k e d f o r Al l ied C o m m a n d E u r o p e . S i m i l a r g u i d a n c e i s g iven t h e n a t i o n s by t h e NATO M i l i t a r y A u t h o r i t i e s d u r i n g t h e c o u r s e of t h e Annual R e v i e w . T h i s a d v i c e i s f o r t h e
257
^IiT A TO J f « I WH»
M A T T ' " ^ r f T ^ ' ^ T "
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
i MATO RESTRICTED
s p e c i f i c p u r p o s e of a s s i s t i n g and guiding n a t i o n s in f o r m u l a t i n g long t e r m i m p r o v e m e n t s of t h e i r f o r c e s to e n s u r e NATO of t h e b e s t p o s s i b l e d e f e n s e wi th in t h e f o r c e s and r e s o u r c e s m a d e a v a i -l a b l e . F u r t h e r c o n s i d e r a t i o n i s being g iven to the p o s s i b i l i t y of expanding t h e s e m e t h o d s of p r e s e n t i n g adv ice on t h e v a r i o u s m i l i t a r y p r o b l e m s . "
The fo l lowing r e c o m m e n d a t i o n in P a r a g r a p h 13 i s a l s o s ign i f i can t in t h i s r e g a r d :
" T h e r e f o r e i t i s s t i l l v i t a l t ha t t h e F o r c e G o a l s f o r f o r c e s s-ss igned or e a r m a r k e d f o r NATO not be r e d u c e d below the g e n e r a l o r d e r of m a g n i t u d e of jthe 1956 p l a n n e d g o a l s e s t a b l i s h e d in t h e 1953 Annual R e v i e w . "
T h i s " g e n e r a l o r d e r of the m a g n i t u d e of f o r c e s " w a s f u r t h e r de f ined a s imp ly ing l a t i t u d e in t h e a d j u s t m e n t of F o r c e G o a l s should t h e c o m p o s i t i o n of f o r c e s r e q u i r e changing in l ight of e v o l u t i o n a r y d e v e l o p m e n t s .
In a m e m o r a n d u m to G e n e r a l G r u e n t h e r on 14 J a n u r y 1956, G e n e r a l Schuyler had po in ted out tha t G e n e r a l N o r s t a d be l i eved tha t t he 1957 Ca-p a b i l i t i e s P l a n w a s out of d a t e and tha t SHAPE should s t a r t deve loping a new P l a n f o r 1960-63, to s e r v e a s a guide in t a l k s wi th na t ions on t h e i r f u t u r e p r o g r a m s . G e n e r a l Schuyler c o m m e n t e d : "It i s f a s t b e c o m i n g appa-r e n t to a l l NATO and na t i ona l a u t h o r i t i e s tha t t he SHAPE 1957 Capab i l i t i e s P l a n i s out of da t e . The p r o j e c t e d d a t e s fo r G e r m a n f o r c e s have b e e n o v e r t a k e n by e v e n t s ; in a n u m b e r of c a s e s t h e 1955 Annual Rev i ew h a s e s t a b l i s h e d new f o r c e g o a l s r e p r e s e n t i n g l e s s e r f o r c e s than t h o s e p r e v i o u s l y e n v i s a g e d . "
G e n e r a l G r u e n t h e r d i r e c t e d the p r e p a r a t i o n of the s tudy " F o r c e P o s t u r e A C E 1 9 6 0 - 6 2 " which w a s p r e p a r e d in SHAPE and s u b m i t t e d to the Standing Group on 28 S e p t e m b e r 1956 (SHAPE 231/56) . The 1960-62 Study w a s l a r g e l y o v e r t a k e n by e v e n t s b e f o r e i t w a s g iven m u c h c o n s i d e r -a t ion at t h e top l e v e l s .
As a r e s u l t of the C o u n c i l ' s d e c i s i o n in D e c e m b e r 1956 t o r e q u i r e a c o m p l e t e r e v i e w of NATO d e f e n s e p l a n s , t he SGN unde r took r e v i s i o n of the MC 14 and MC 48 s e r i e s . The Counci l a l r e a d y had a p p r o v e d the P o l i -t i c a l D i r e c t i v e C-M(56)138 (F ina l ) in D e c e m b e r . T h e s e f a c t o r s l ed i nev i -t ab ly to ano the r i n v e s t i g a t i o n of F o r c e P o s t u r e by SACEUR. On 8 F e b r u a r y 1957 the SGN i n s t r u c t e d SACEUR to send t h e m new f o r c e p o s t u r e r e c o m -m e n d a t i o n s c o v e r i n g t h e p e r i o d 1958-1962, o r beyond if he d e s i r e d (SGM-105-57, 8 Feb 57). Addi t ional i n s t r u c t i o n s on p r e p a r a t i o n w e r e sent h i m
258
, N A i a Hifi »">•' ; •i - - <-.'
SBGnDT
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
on 26 A p r i l and he w a s to ld s i g n i f i c a n t l y to " d e f i n e the a s s u m p t i o n s f r o m which t h e F o r c e R e q u i r e m e n t s a r e g e n e r a t e d . " (SGM-279-57) .
The r e s u l t a n t M i n i m u m F o r c e s Study 1958-63 , I O c t o b e r 1957, e s t a b l i s h e d , in i t s own w o r d s , " the m i n i m u m f o r c e wi th which ACE could c a r r y out i t s m i s s i o n t h r o u g h 1963 ."
259
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
I S H A P E 57 /67
MATD Ö^ÜLA^IFF NATO CECH E T
ED
• A P P E N D I X B C h a p t e r IH S H A P E H i s t o r y 1957
C h r o n o l o g i c a l Ou t l ine of F o r c e S t a t i s t i c s
Documen t <t Date
T y p e of S t a t i s t i c R e m a r k s
I 4 D C / 1 3 , 28 M a r 50 F o r c e R e q u i r e m e n t s B a s e d on WUDO P l a n
2. D C / 2 8 , 28 Oct 50 ( F i n a l )
F o r c e R e q u i r e m e n t s T o m e e t M e d i u m T e r m D e f e n s e P l a n - b a s e d on WUDO and R e -gional P l a n n i n g Group e s t i m a t e
3. S H / 3 3 3 / 5 1 , 14 Aug 51 S H / 3 5 2 / 5 1 , 17 Aug 51
F o r c e R e q u i r e m e n t s
\
F i r s t e s t i m a t e m a d e by SHAPE Staff
4 . M C / 2 6 / I ( F i n a l ) 21 Nov 51
F o r c e R e q u i r e m e n t s Approva l by M i l i t a r y C o m m i t t e e of SHAPE R e q u i r e m e n t s S H / 3 3 3 / 5 1
5, C 9 - D / 2 3 , 26 F e b 52 and C o r r i g e n d u m 24 M a r 52
F o r c e G o a l s The s o - c a l l e d " L i s b o n G o a l s " F i r m G o a l s f o r 1952 f o r m u l a t e d by t h e T C C and P r o v i s i o n a l G o a l s f o r 1953 a g r e e d t o by t h e Counci l P l a n n e d G o a l s f o r 1954
6. M . R . C. 12(Fina l ) 25 Jun 52
F o r c e G o a l s By def in i t ion t h e s e a r e not F o r c e G o a l s
E s t i m a t e d F o r c e G o a l s f o r u s e in 1952 Annual R e v i e w
7 . S H A P E 1215 /52 8 Nov 52 - a s a m e n -ded by SH 29182, 21 M a y 53 h SH 29353, 2 Jun 53
F o r c e R e q u i r e m e n t s Submi t t ed by G e n e r a l R idgway and inc lud ing G r e e k and T u r k i s h F o r c e s
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
SHAPE 57 /67 NATO S E C R E T
Document te. Date
Type of S ta t i s t i c . R e m a r k s
8. MC 2 6 / 2 (F ina l ) 24 Apr 53
F o r c e R e q u i r e m e n t s " R e v i s e d NATO F o r c e R e q u i r e m e n t s a s of 31 Dec 54
M. C. Approval of SHAPE R e -q u i r e m e n t s of 8 Nov 52 a s amended .
«
9. C-M(52) l 30, 12Dec52 and C-M(53)40 Rev
Apr 53
F o r c e Goa ls *
1952 Annual Rev iew F i r m Goa l s 1953 P r o v i s i o n a l Goa l s 1954 P l a n n e d Goa ls 1955
10. SHAPE 7 0 4 / 5 3 10 J u l 53
F o r c e R e q u i r e m e n t s " E s t i m a t e of Situat ion and F o r c e R e q u i r e m e n t s " s u b m i t t e d by Gen Ridgway upon h i s d e p a r t u r e
11. M s g SACEUR to SGN 10 Sep 53 (See : S H A P E / S E C / 9 3 / 5 4 , 17 Sep 53). SH30806
F o r c e R e q u i r e m e n t s f o r Submit ted to SGN by G e n e r a l I956 G r u e n t h e r - m e r e l y a m o d i f i -
ca t ion of MC 2 6 / 2
12. C-M(53) l 50 20 Nov 53
F o r c e Goa ls I953 Annual Rev iew F i r m F o r c e Goa ls - 1954 P r o v i s i o n a l F o r c e Goa l s - 1955 P l a n n e d F o r c e Goa ls - 1956
13. M C 2 6 / 3 ( F i n a l ) 9 Dec 53
F o r c e Reqxi i rements M. C. Approva l of G e n e r a l G r u e n t h e r ' s l a t e s t e s t i m a t e of R e q u i r e m e n t s
14. S H A P E / 3 3 0 / 5 4 and S H A P E / 3 8 4 / 5 4 1 Ju l 54
Ava i l ab i l i t i e s and Capab i l i t i e s
Capab i l i t i e s P l a n ACE, 1957, b a s e d on F o r c e s which would p r o b a b l y be ava i l ab l e a s of 31 Dec 56
261
W O U M C L A S S i F I E D
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE
;> r
Documen t & Date
T y p e of S t a t i s t i c R e m a r k s
15. M C 48 (F ina l ) 22 Nov 54
A p p r o v a l of new p lann ing c o n c e p t s
A p p r o v e d by NAC on 17 Dec 54, by i t s e l f e s t a b l i s h e d no r e q u i r e -m e n t s or g o a l s
16. ' M C 49 ( F i n a l ) 23 Nov 54
A p p r o v a l of S A C E U R ' s C a p a b i l i t i e s P l a n 1957
C-M(54)100 26 Nov 54
F o r c e G o a l s 1954 Annual R e v i e w New t e r m i n o l o g y E s t i m a t e d Ac tua l end 1954 P l a n n e d 1955 P l a n n e d 1956 P l a n n e d 1957
i J J
\ \ \ \ , i
M C 4 8 / I ( F i n a l ) 9 Dec 55
" T h e M o s t E f f e c t i v e P a t t e r n of NATO M i l i -t a r y S t r e n g t h F o r t h e Next F e w Y e a r s " \
C-M(55)126 12 Dec 55
F o r c e G o a l s 1955 Annual R e v i e w E s t i m a t e d Actua l , end 1955 P l a n n e d 1956 P l a n n e d 1957 P l a n n e d 1958
S H A P E / 2 3 0 / 5 6 28 Sep 56
F o r c e P o s t u r e A C E 1960-62
C-M(56)132 P a r t I 5 Dec 56 (Rev . )
F o r c e G o a l s 1956 Annual R e v i e w Ac tua l - end 1955 E s t i m a t e d - end 1956 P l a n n e d - 1957 P l a n n e d - 1958 & 1959
S H A P E / 1 5 4 / 5 7 1 Oct 57
A C E M i n i m u m F o r c e s Study, 1958-1963
MATO UNCLASSIFIED 262
DE
CLA
SSIF
IED
- PU
BLI
CLY
DIS
CLO
SED
- P
DN
(201
2)00
08 -
DÉ
CLA
SSIF
IÉ -
MIS
EN
LE
CT
UR
E P
UB
LIQ
UE