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* IA W SHAPE, 3 0 5 0 / S H G S / 9 1 / 7 N Ô V 9 Ï % By D a c e ^ Ê & .

1958 Historical Office, OCOFSy SHAPE

Duwncaried to N A T O . . . C O N F I E W Î * A t .

p., Dale J 9 M ? m I«i5 H - V

»37 O A Historical Section, OSECCOS, ShAFE

' THIS DOCUMENT CONSISTS OF , 225 PAGES

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S H A P E HISTORY

1958

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( Ï H li W L t e i l i l à tea a

NATO CONROENTtAL T h i s document c o n s i s t s of 225 p a g e s .

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F O R E W O R D

T h e H i s t o r y of SHAPE 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 , 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 , h a v e been i s s u e d . V o l u m e III, w h i c h c o v e r s the G r u e n t h e r C o m m a n d , i s i n d r a f t f o r m .

Beginning w i th G ê n e r a i Nor s t a d ' s C o m m a n d (end-1956), t he H i s t o r y of SHAPE h a s been 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 1958, and i s being p u b l i s h e d s i m u l t a n e o u s l y with t h e S H A P E H i s t o r y f o r 1957. Both v o l u m e s , w h i c h p r e v i o u s l y e x i s t e d in d r a f t f o r m , a r e be ing i s s u e d t o 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 background i n f o r m a t i o n t h a t i s o f t è n 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 or 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 the 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 SHAPE 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 and R e c o r d s Sect ion, PANDA Divis ion , S H A P E .

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 b e b r o u g h t t o t h e a t t en t ion of t h e H i s t o r i c a l Sect ion, O f f i c e of t h e S e c r e t a r y of t h e Staff , SHAPE.

A

I . . 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

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SHAPE 58 /67

DISTRIBUTIONt NO. OF COPIES O SACEUR 2 O DSACEUR 1 OCOFS 1 O AIRDEP I ODNA I ODCLA 1 ODCPO I SP ASST INTAT I OSECT 1 ACOS PANDA I ACOS INTEL 1 ACOS PANDP 1 ACOS OPS 1 ACOS LOG 1 ACOSCANDE 1 CH BUDFIN I CHPID 1 PANDA (Ct f i i t rReg i s t ry ) 2 Historical Ssctioa 2

Total 22

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SHAPE HISTORY 1958

INDEX

P a g e

C H A P T E R I : INTRODUCTION 1

SACEUR'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 ( M C 53, M C 70) 1

The Func t ion of SHAPE 2 E v e n t s Conce rn ing SHAPE 4 SACEUR S ta t emen t on NATO 6 How an Al l i ance Goes to War 9 Al l i ed C o m m a n d E u r o p e 11 The SHAPE Staff 11

C H A P T E R II: F O R C E S 13

G e n e r a l 13 M C 70 15 Annual R e v i e w Guidance and M C 70 18 F o r c e Goa l s P r o b l e m s 22 R e v i s i o n of M C 70 27 B a l a n c e d Col l ec t ive F o r c e s Concept 28 N e t h e r l a n d s T a c t i c a l Group 31 G e r m a n F o r c e s in Sch le swig -Ho l s t e in 32 Con t ro l of G e r m a n D e m a r c a t i o n Line 33 Reduc t ion of Danish Defense E f f o r t 34 R e m o v a l of C e r t a i n F o r c e s 35 SACEUR's R e p o r t to SGN on F o r c e R e d u c t i o n s 36 T a c t i c a l A i r f i e l d s f o r the G e r m a n Ai r F o r c e 37 Annual Rev iew 1959 42 O p e r a t i o n a l Compa t ib i l i t y of Ground Div i s ions in C e n t r a l

E u r o p e 44

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C H A P T E R III: STRATEGIC PLANNING 45

G e n e r a l 45 I n t e r m e d i a t e R a n g e B a l l i s t i c M i s s i l e s 45 A t o m i c Stockpi le P r o g r a m 61 S A C E U R ' s P r o g r e s s R e p o r t s on IRBM and SAS 70 P l a n n i n g f o r Ac t ion Short of G e n e r a l War 72 NATO Mobi l e T a s k F o r c e 73 Su rv ivab i l i t y 74 The Light Weight S t r i ke F i g h t e r 76 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 78 A t o m i c P l a n n i n g 79 C r i t e r i a f o r NATO War H e a d q u a r t e r s 79 SHAPE War H e a d q u a r t e r s (DEVASTATE) 81 S A C E U R ' s A l e r t S y s t e m 82

C H A P T E R IV: TRAINING 88

A C E T r a i n i n g C o n f e r e n c e - 1958 89 A C E R e a d i n e s s T e s t P r o g r a m 91 I m p o r t a n t NATO E x e r c i s e s , 1958 93 E x e r c i s e s in G e n e r a l 98 I n t e g r a t i o n of T r a i n i n g R e s o u r c e s 98 B r o a d P a t t e r n of Higher T r a i n i n g i960 100 R e l e a s e of I n f o r m a t i o n on NATO E x e r c i s e s 100 L e n g t h of Na t iona l M i l i t a r y S e r v i c e 101 The T r a i n i n g A r e a P r o b l e m 102 NATO Nava l T r a i n i n g C e n t r e 105 B e l g i a n - N e t h e r l a n d s T r a i n i n g A g r e e m e n t 106

C H A P T E R V: COMMAND STRUCTURE AND ORGANIZATION 107

C o m m a n d S t r u c t u r e , C e n t r a l E u r o p e 107 R e o r g a n i z a t i o n of C I N C E N T ' s H e a d q u a r t e r s 110 F u r t h e r P r o g r e s s t o w a r d E s t a b l i s h m e n t of COMNAVBALTAP 111 The G e r m a n Viewpoint 117 C I N C E N T ' s P r o b l e m s 120 R e c o n s t i t u t i o n of H e a d q u a r t e r s TWO A T A F 121 M o v e m e n t of FOUR A T A F 122 P e a c e t i m e E s t a b l i s h m e n t H e a d q u a r t e r s CENTAG and

NORTHAG 125 A F M E D R e p r e s e n t a t i o n in J C O C I z m i r 126

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C H A P T E R VI: LOGISTICS AND I N F R A S T R U C T U R E 129

In t roduc t i on 129

SECTION I - LOGISTICS 130 L o g i s t i c s I m p l i c a t i o n s of MC 70 130 L o g i s t i c s 1958 132 C I N C E N T ' s S tudies 135 L o g i s t i c P l a n n i n g F a c t o r s R e g a r d i n g S tockp i l e s 136 SHAPE Guidance I s sued ' 136 L o g i s t i c R e s o u r c e s 137 Sho r t age of War R e s e r v e P O L Stocks in T u r k e y 138 M a p s and C h a r t s P o l i c y 138

SECTION II - I N F R A S T R U C T U R E 139 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 the P e r i o d 1958-1963 139 E l ig ib i l i t y f o r C o m m o n Funding of C e r t a i n C a t e g o r i e s of

I n f r a s t r u c t u r e 141 R e v i e w of ACE I n f r a s t r u c t u r e S l i ces Two t h r o u g h Nine . . . . . . 141 The SHAPE R e v i e w of I n f r a s t r u c t u r e 142 I m p r o v e m e n t in the R a t e of C o n s t r u c t i o n of I n f r a s t r u c t u r e

P r o j e c t s 144 The SHAPE R e c o m m e n d e d Ninth Slice (1958) I n f r a s t r u c t u r e P r o g r a m 145 The SHAPE R e c o m m e n d e d Ten th Sl ice (1959) I n f r a s t r u c t u r e

P r o g r a m 146

C H A P T E R VII: COMMUNICATIONS 150

The F o r w a r d S c a t t e r S y s t e m - P r o g r e s s in 1958 150 The F o r w a r d S c a t t e r S y s t e m - I n c r e a s e d C o s t s 151 The R e a s o n s f o r t h e I n c r e a s e in C o s t s 153 The F o r w a r d Sca t t e r S y s t e m 154 E l e c t r o n i c C o i m t e r m e a s u r e s P l a n f o r ACE 157 P e r s o n n e l P r o b l e m s 160 P e r s o n n e l fo r L R E W S y s t e m 161 P e r s o n n e l f o r F o r w a r d Sca t t e r Sys t em 163 C o m m u n i c a t i o n s E q u i p m e n t 164 C o m m u n i c a t i o n s P l a n n i n g f o r the NIKE Air D e f e n s e Sys t em 165 Signals C o n f e r e n c e s 1958 166

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C H A P T E R VIII : I N T E L L I G E N C E 167

In t roduc t i on 167 B a s i c I n t e l l i g e n c e Guidance Backg round 168 B r i e f i n g s and P u b l i c a t i o n s 172 SHAPE I n t e l l i g e n c e P u b l i c a t i o n s 172 The Cab le 173 The E U R P I R 174 O t h e r P u b l i c a t i o n s 174 E x p l o i t a t i o n of E a r l y Warn ing S y s t e m s fo r In t e l l i gence

P u r p o s e s 175

C H A P T E R IX: AIR D E F E N S E - 1958 179

The I n t e g r a t i o n of the Air D e f e n s e of NATO E u r o p e 180 F r e n c h O b j e c t i o n s 192 The 10 D e c e m b e r 1958 NAC Mee t ing 194 The Be lg i an P r o p o s a l 199 S A C E U R ' s P r e s e n t a t i o n to t h e Counci l 201 R e s u l t of t h e M i l i t a r y C o m m i t t e e and N o r t h At lan t i c

Counci l M e e t i n g s 202 M C 70 and Ai r D e f e n s e '... 203 E a r l y Warn ing 203 R e a d i n e s s and Ac t ive Air D e f e n s e 204 S A C E U R ' s T a s k s ! 204 The Dep loymen t of M i s s i l e s f o r Air D e f e n s e 205 The F o r w a r d M i s s i l e Bel t 206 M i s s i l e Dep loymen t 208 The Fund ing of M i s s i l e S i tes 208 The ACE L o n g - R a n g e E a r l y Warning S y s t e m - P r o g r e s s

in 1958 209 I m p r o v e m e n t s t o t h e Ground E n v i r o n m e n t of the ACE

Air D e f e n s e S y s t e m 210 Data Handl ing S y s t e m 212 R u l e s f o r E n g a g e m e n t of Un iden t i f i ed A i r c r a f t 212

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C H A P T E R I

INTRODUCTION

G e n e r a l L a u r i s N o r s t a d , USAF, cont inued a s S u p r e m e All ied

C o m m a n d e r , E u r o p e , th roughou t 1958. His second y e a r a s SACEUR

wan m a r k e d fey the adopt ion of h i s s t r a t e g i c concep t of a m i n i m u m f o r c e .

The Nor th At lan t ic Counci l a p p r o v e d t h i s concept in Apr i l . SACEUR

and h i s s taff s tud ied the i m p l i c a t i o n s of t h i s a p p r o v a l . Many NATO

na t ions w e r e r e l u c t a n t to c o m m i t f unds f o r the f u t u r e wi thout a v e r y

c l o s e e x a m i n a t i o n of the c o s t of w e a p o n s , i n f r a s t r u c t u r e , r a d a r wa rn ing

s y s t e m s and o the r e s s e n t i a l r e q u i r e m e n t s .

Al though t h e r e w a s no m a j o r c r i s i s wi th in NATO - o r involving

NATO n a t i o n s c o m p a r a b l e t o the Suez c r i s i s in 1956, - c e r t a i n p o l i t i c a l

e v e n t s c a u s e d SACEUR s o m e anx ie ty .

SACEUR' 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 (MC 53, MC 70).

MC 53, i s s u e d in J u l y 1955, had se t f o r t h SACEUR' s r e s p o n s i b i l i t i e s .

His m i s s i o n w a s b r o a d l y to m a i n t a i n p e a c e in W e s t e r n E u r o p e and, f a i l -

ing t ha t , to de fend 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 . His

p e a c e t i m e func t ion w a s to e n s u r e tha t , if an e m e r g e n c y o c c u r r e d , the

NATO f o r c e s m a d e a v a i l a b l e by na t ions f o r the d e f e n s e of ACE w e r e

o r g a n i z e d , equipped, t r a i n e d , s u p p o r t e d and r e a d y to i m p l e m e n t a g r e e d

w a r p l a n s .

The a p p r o v a l of M C 70 in Apr i l 1958, whi le not f u n d a m e n t a l l y

changing t h e p o w e r s and r e s p o n s i b i l i t i e s given to SACEUR e n l a r g e d and

c l a r i f i e d h i s r e s p o n s i b i l i t i e s . In p e a c e t i m e , f o r e x a m p l e , he w a s r e q u i r e d

s p e c i f i c a l l y to p r e p a r e and k e e p up to da te a d e f e n s e p lan f o r the e m p l o y m e n t

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of h i s f o r c e s in w a r and, in c o o r d i n a t i o n with na t ions , p r o v i d e fo r the

m o s t e f f e c t i v e p o s i t i o n i n g of h i s f o r c e s to m e e t al l c o n t i n g e n c i e s . With-

out n e c e s s a r i l y hav ing r e c o u r s e to n u c l e a r weapons , it w a s h i s r e s p o n -

s ib i l i t y to p r e v e n t any inc iden t f r o m expanding , and to m a i n t a i n or r e s t o r e

t h e i n t e g r i t y of t h e NATO a r e a . MC 70 a l s o n a m e d SACEUR as t h e d i r e c t

c o o r d i n a t i n g a u t h o r i t y f o r h i s f o r c e s hav ing a n u c l e a r capab i l i t y .

M C 53 s t a t e d tha t in w a r t i m e SACEUR would e x e r c i s e the 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 that t h e s e p o w e r s m i g h t be de f ined

in g r e a t e r d e t a i l by t h e Nor th At lan t i c Counci l a f t e r consu l t a t i on wi th the

M i l i t a r y C o m m i t t e e . MC 70 s p e c i f i c a l l y d i r e c t e d SACEUR in w a r t i m e to

conduct an i m m e d i a t e n u c l e a r c o u n t e r - o f f e n s i v e wi th in h i s a r e a of r e s p o n -

s ib i l i t y . He w a s t o defend h i s a r e a a s f a r f o r w a r d a s p o s s i b l e wi th no

in t en t of m a j o r w i t h d r a w a l s andl wi th p a r t i c u l a r a t t en t ion to p r o t e c t i o n of

t h e o f f e n s i v e s t r i k i n g p o w e r . The w e a p o n s , t he i n s t a l l a t i o n s , t he gu idance

s y s t e m s , t h e con t inua t ion of p e a c e t i m e t a s k s and the p r e s e r v a t i o n , p r o t e c -

t ion and m a i n t e n a n c e of s ea c o m m u n i c a t i o n s , were o ther s p e c i f i c r e s p o n -

s i b i l i t i e s . SACEUR a l s o w a s d i r e c t e d to suppor t the o p e r a t i o n s of a d j a c e n t

NATO M a j o r C o m m a n d s . F i n a l l y , SACEUR w a s d i r e c t e d to conduct such

t a s k s a s w e r e r e q u i r e d fo r the r e - o r g a n i z a t i o n , r e - s u p p l y and the a c c o m -

p l i s h m e n t of n e c e s s a r y m i l i t a r y t a s k s l ead ing to the conc lus ion of the w a r .

The F u n c t i o n of SHAPE.

E a r l y in 1958, a staff s tudy w a s c o m p l e t e d at SHAPE for the p u r p o s e

of c l a r i f y i n g t h e w a r t i m e func t ion of 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 . The s tudy a s s u m e d ! t h a t thejre w e r e two m a i n p r o b a b i l i t i e s r e g a r d -

ing a p o s s i b l e e m e r g e n c y . The f irst ' : of t h e s e w a s a d e l i b e r a t e a l l - o u t

s u r p r i s e a t t a c k . T h e r e wouEd be c o m p l e t e s t r a t e g i c s u r p r i s e with wa rn ing

a m a t t e r of h o u r s , if not m i n u t e s . The second env i s ioned tha t a s t a t e of

t e n s i o n r e s u l t i n g f r o m an inc iden t o r - i n c i d e n t s in p e a c e t i m e migh t - if

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m i s h a n d l e d by one s ide or the o t h e r - l e a d to g lobal w a r . Given e i t h e r of

t h e s e cond i t ions , w a r n i n g of the n e e d fo r i m m i n e n t w a r l i k e m e a s u r e s

would be g e n e r a t e d by a g r a d u a l b u i l d - u p on both s i d e s . Advance w a r n i n g

of t h e d e c i s i o n by the o the r s i de to r e s o r t t o n u c l e a r w a r f a r e would be of

e x t r e m e i m p o r t a n c e , but the s tudy conc luded t h a t i t m igh t not be p o s s i b l e

to ob ta in such a w a r n i n g . In f a c t the p o s s i b i l i t i e s of t a c t i c a l s u r p r i s e wi th

a w a r n i n g conf ined to m i n u t e s had to be c o n s i d e r e d a s l i ke ly . The s tudy

a s s u m e d that the p r o b a b l e c o u r s e of any f u t u r e w a r would b e :

a . P h a s e One : A l l - o u t n u c l e a r exchange which would not be l i ke ly

to e x c e e d 30 d a y s ;

b. P h a s e Two: A l o n g e r p e r i o d of i n d e t e r m i n a t e d u r a t i o n to a l low

f o r r e - o r g a n i z a t i o n and r e - s u p p l y and the a c c o m p l i s h m e n t of any n e c e s s a r y

t a s k s l e ad ing to the c o n c l u s i o n of the

w a r . The s t a t e d p u r p o s e of the

SHAPE s tudy w a s to p r o v i d e m e a n s w h e r e b y SACEUR 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 and h i s t e r m s of r e f e r e n c e . T h e r e f o r e the S H A P E s taff

had

to enab le SACEUR at a l l t i m e s to r e c e i v e d i r e c t i v e s f r o m the. Standing

G r o u p , and in t u r n enab le h i m t o i n f o r m t h e s e a u t h o r i t i e s of the s t a t e of

o p e r a t i o n s . SACEUR had t o be f u r n i s h e d with the n e c e s s a r y i n t e l l i g e n c e

t o deve lop p l a n s and o r d e r o p e r a t i o n 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 . The SHAPE staff had to be r e a d y at a l l t i m e s to t r a n s l a t e t h e s e

d e c i s i o n s in to de t a i l ed o r d e r s f o r the c o n t r o l and d i r e c t i o n of o p e r a t i o n s

by t h e f o r c e s a s s i g n e d at any t i m e to SACEUR's command ' . SHAPE had to

be in a p o s i t i o n t o t r a n s m i t t h e s e o r d e r s to the a p p r o p r i a t e h e a d q u a r t e r s

and to recefcre i n f o r m a t i o n , and to p r o v i d e m e a n s of l i a i s o n wi th the na t iona l

a g e n c i e s of t h e c o u n t r i e s p rov id ing f o r c e s t o SACEUR' s c o m m a n d .

The SHAPE study l a i d down t h e n e c e s s a r y f u n c t i o n of t h i s h e a d q u a r -

t e r s in dea l ing wi th the m o s t l i k e l y c a u s e of an a l l - o u t w a r , i . e . , an i n c i -

den t . It w a s essen t ia l t h a t SACEUR be a s s i s t e d in applying and cont ro l l ing

v a r y i n g d e g r e e s of f o r c e s i n a s i t ua t i on w h e r e pub l i c opinion would be in

an e x c i t a b l e , d e l i c a t e s t a t e , and w h e r e p o l i t i c a l i n t e r f e r e n c e and c o n t r o l 3

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would b e v e r y s t r o n g .

A s s u m i n g t h a t t h e NATO m i l i t a r y concep t w a s b a s e d on a d e t e r r e n t

p o l i c y w h i c h p r e c l u d e d a l l p o s s i b i l i t y of a l i m i t e d w a r wi th the Soviet

Union , t h e s tudy conc luded t h a t SHAPE had to be c a p a b l e of i m m e d i a t e

a p p l i c a t i o n of t h e m a x i m u m n u c l e a r p o t e n t i a l . On t h e o the r hand, i t w a s

u n l i k e l y tha t t h e end of n u c l e a r e x c h a n g e s would b e t h e end of t h e w a r ;

t h e r e f o r e , S H A P E had t o b e c a p a b l e of ga in ing am a d v a n t a g e o v e r the e n e m y

by t h e e a r l i e s t p o s s i b l e r e - o r g a n i z a t i o n and r e - s u p p l y of t h e r e m a i n i n g

s t r e n g t h in NATO f o r c e s . In c o n c l u s i o n , t h e s tudy po in ted out tha t t o l i m i t

t h e w a r t i m e f u n c t i o n of t h e h e a d q u a r t e r s s i m p l y to hav ing an ab i l i ty to c o n -

duct an a l l - o u t n u c l e a r exchange of s h o r t d u r a t i o n w a s an u n n e c e s s a r y r i s k

s i n c e S A C E U R ' s t e r m s of r e f e r e n c e c l e a r l y r e q u i r e d o the r c a p a b i l i t i e s ,

i n c l u d i n g t h e hand l ing of i n c i d e n t s and t h e conduct of P h a s e Two in an a l l -( 1 )

out w a r . '

E v e n t s C o n c e r n i n g SHAPE.

A l g i e r s . Dur ing the c r i s i s wh ich c a u s e d the downfa l l of t h e F r e n c h

G o v e r n m e n t in m i d - 1 9 5 8 , SHAPE o f f i c e r s w e r e a d v i s e d by t h e Chief of

S taf f , G e n e r a l Schuy le r , t o e x e r c i s e d i s c r e t i o n in any d i s c u s s i o n of t h e

e v e n t s t ak ing p l a c e . G e n e r a l N o r s t a d w a s in M a l t a du r ing t h e e a r l y days

of the c r i s i s . H e w a s kep t i n f o r m e d of e v e n t s in P a r i s , A l g i e r s and e l s e -

w h e r e by a s e r i e s of m e s s a g e s sen t f r o m SHAPE. He w a s a d v i s e d not to

r e t u r n e a r l y to h i s h e a d q u a r t e r s a s t h i s ac t ion migh t l e a d to an i n c r e a s e in

t h e g e n e r a l n e r v o u s n e s s t h e n p r e v a l e n t in F r a n c e .

T h e m o v e m e n t of c e r t a i n e l e m e n t s of the F rench M e d i t e r r a n e a n f l e e t

a r o u s e d m u c h s p e c u l a t i o n . In a n s w e r to q u e s t i o n s on t h i s ac t iv i ty , SHAPE

s t a t e d t h a t i t h a d no i n f o r m a t i o n , and p o i n t e d out tha t t h e u n i t s in ques t i on

(1) P A N D P 6120 dtd 23 Jun 58, Staff Study - SACEUR' s W a r t i m e R e s p o n -s i b i l i t i e s .

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w e r e e a r m a r k e d and not a s s i g n e d nava l f o r c e s .

SACEUR w a s r e c e i v e d by G e n e r a l de Gaul le on 24 J u n e at the Hote l

Ma t ignon .

C y p r u s . The C y p r u s s i t ua t ion w o r s e n e d du r ing 1958. A d i r e c t r e s u l t

of t h e w idened sp l i t b e t w e e n t h e p a r t i e s invo lved w a s the d e c i s i o n by G r e e c e

t o w i t h d r a w a l l G r e e k p e r s o n n e l f r o m I z m i r . SACEUR w a s i n f o r m e d in a

m e s s a g e f r o m COMLANDSOUTHEAST on 14 J u n e tha t a l l G r e e k o f f i c e r s

and e n l i s t e d m e n , t o g e t h e r wi th c i v i l i a n s and dependen t s , had b e e n w i t h -

d r a w n f r o m t h e jo in t S IXATAF/COMLANDSOUTHEAST h e a d q u a r t e r s . The

m o v e m e n t i n s t r u c t i o n s had been g iven by G e n e r a l Oovas , G r e e k Chief of

Nationcd Defense , d i r e c t l y to G r e e k o f f i c e r s . No NATO a u t h o r i t i e s in

I z m i r , N a p l e s or P a r i s w e r e c o n s u l t e d p r i o r to the i s s u a n c e of the i n s t r u c -

t i o n s . C e r t a i n p r e c a u t i o n a r y m e a s u r e s w e r e t a k e n in I z m i r by the l o c a l

a u t h o r i t i e s , but no d i s o r d e r s o c c u r r e d . G e n e r a l N o r s t a d i m m e d i a t e l y

i n f o r m e d the Standing Group , and the S e c r e t a r y G e n e r a l NATO of the s i t u a -

t ion . He a l s o q u e r i e d M r . C a r a m a n l i s , MOD G r e e c e . In a l e t t e r to G e n e r a l

Dovas , SACEUR s t a t e d h i s deep c o n c e r n o v e r t h e ac t ion of t h e G r e e k Go-

v e r n m e n t . In m e s s a g e s to CINCSOUTH and CINCAFMED, SACEUR e m -

p h a s i z e d t h e " p a r t i c u l a r s e n s i t i v i t y w h i c h m i g h t a t t ack to any d i s c u s s i o n

of t h e C y p r u s i s s u e by a s e n i o r NATO o f f i c e r . " SACEUR w a s c o n c e r n e d

s i n c e t h e w i t h d r a w a l l e f t SHAPE in a d i f f i cu l t pos i t i on , p a r t i c u l a r l y r e g a r d -

ing c o m m u n i c a t i o n s . SHAPE i n f o r m e d a l l o the r h e a d q u a r t e r s and a g e n c i e s

of t h e n e e d to k e e p m e s s a g e s to I z m i r to a m i n i m u m . An add i t iona l c o n c e r n

w a s tha t in c a s e of e m e r g e n c y , t h e r e w a s obv ious ly a r e d u c e d c a p a b i l i t y

of t h e I z m i r h e a d q u a r t e r s to o p e r a t e . The G r e e k m i l i t a r y p e r s o n n e l h a d

not r e t u r n e d by t h e end of t h e y e a r , but t h e c iv i l i an p e r s o n n e l r e t u r n e d to (3) duty on 19 J u n e / '

(2) See SHAPE M s g s : SH 23898, SH 23899 and SH 23901, dtd 26 May 58. (3) See SHAPE M s g s : SH 24352, 24353, 40508, dtd 15 and 26 Jun 58; s e e

a l s o M i n u t e s of C O F S Mtg, SEC 2030, dtd 19 J u n 58; T h e LAND-SOUTHEAST 1958 H i s t o r y a l s o r e f e r s .

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I r a q . Ano the r c r i s i s a f f e c t i n g SHAPE dur ing t h e y e a r r e s u l t e d

f r o m t h e o v e r t h r o w of t h e I r a q G o v e r n m e n t d u r i n g Ju ly . G e n e r a l N o r s t a d

did no t f e e l a t t h e t i m e tha t t h e h e i g h t e n e d t e n s i o n s in the M i d d l e E a s t

r e q u i r e d any s p e c i a l a l e r t m e a s u r e s f o r A C E f o r c e s , but e v e n t s w e r e

w a t c h e d to s e e if any change m i g h t w a r r a n t such m e a s u r e s . UK and

U S f o r c e s w e r e sen t to J o r d a n and the Lebanon r e s p e c t i v e l y . T h e US

f o r c e s sen t to t h e L e b a n o n w e r e u n d e r the c o m m a n d of a n o n - N A T O o f f i c e r ,

who r e c e i v e d h i s o r d e r s d i r e c t l y f r o m t h e US Jo in t C h i e f s of Staff . How-

e v e r , t h e f a c t t ha t c e r t a i n f o r c e s w e r e t a k e n f r o m h i s a r e a w a s of v i t a l (4)

c o n c e r n to SACEUR, and he had to b e kep t a b r e a s t of t h e s i t u a t i o n / '

T h e Standing G r o u p w a s i n f o r m e d of the e f f e c t of t h e s e t r o o p m o v e -

m e n t s on t h e A C E F o r c e P o s t u r e . It w a s po in t ed out t ha t t h e y would f u r t h e r

d e p l e t e t h e a l r e a d y i n a d e q u a t e f o r c e s a v a i l a b l e f o r t h e d e f e n s e of the C e n t r a l

R e g i o n . SACEUR e x p r e s s e d the hope tha t t h e n a t i o n s c o n c e r n e d would m a k e

" e v e r y r e a s o n a b l e e f f o r t " to r e p l a c e t h e i r w i t h d r a w n f o r c e s a s r a p i d l y a s

p o s s i b l e . T h e Standing Group , in t u r n , i n f o r m e d t h e nat ions tha t they s h a r e d

t h i s hope .

SACEUR S ta t emen t on NATO.

Dur ing a s p e e c h to t h e L o s Ange le s World A f f a i r s Counci l on

13 J a n u a r y 1958, G e n e r a l N o r s t a d spoke of t h e m i s s i o n of t h e NATO f o r c e s ,

and r e f e r r e d to a r e s p o n s i b i l i t y wh ich w a s not u n d e r s t o o d e v e r y w h e r e . The

NATO f o r c e s w e r e dep loyed not only to f igh t , if w a r c a m e , but p r i m a r i l y

to p r e v e n t w a r f r o m c o m i n g . Since t h e f o r m a t i o n of the A l l i ance in 1949,

t h e m e m b e r n a t i o n s had un i t ed thei r e f f o r t s to d e t e r a g g r e s s i o n . The

NATO f o r c e s should not be m e a s u r e d a s g e o g r a p h i c a l l y s e p a r a t e and

(4) See SEC 2030, M i n u t e s C O F S M t he ld on 17 Ju l 58. T h e f o r c e s i nvo lved w e r e : 2 B a t t l e G r o u p s f r o m US 24th I n f a n t r y Div i s ion , one c o m p a n y f r o m UK 4th I n f a n t r y Divis ion, 1 R A F Can-b e r r a Squadron and one un i t of F 8 6 D a i r c r a f t f r o m U S A F E .

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c o n c e r n e d only wi th E u r o p e , i m p o r t a n t a s a f r e e E u r o p e w a s , but r a t h e r

a"s a c e n t r a l s o u r c e of s t r e n g t h in t h e v a s t a p p a r a t u s wh ich w a s te rmed t h e

d e t e r r e n t .

The m o s t e f f e c t i v e s ing l e e l e m e n t in t h e d e t e r r e n t con t inued to be

a h e a v y s t r a t e g i c s t r i k i n g f o r c e . SACEUR w a s conv inced tha t t h e c a p a c i t y

f o r d e c i s i v e r e t a l i a t i o n w a s t h e f a c t o r tha t we ighed m o s t h e a v i l y on t h e

W e s t ' s s i d e . T h i s r e t a l i a t o r y f o r c e w a s m a d e up of f o r c e s f r o m a l l m e m b e r

n a t i o n s . Al though SACEUR b e l i e v e d t h a t t h e f o r c e s in p l a c e w e r e c a p a b l e

of what waa e x p e c t e d of t h e m , h e e m p h a s i z e d t h a t a d e t e r r e n t s t r a t e g y

depended upon the r e c o g n i t i o n by any a g g r e s s o r tha t he r i s k e d h i s own

d e s t r u c t i o n . NATO m u s t t h e r e f o r e i n s u r e that t h e p r i c e of a g g r e s s i o n f o r

suiy e n e m y r e m a i n e d p r o h i b i t i v e l y h igh .

G e n e r a l N o r s t a d then t u r n e d to the un ique f e a t u r e of NATO s t r a t e g y ,

the Shield . The Shield w a s m a d e up of l and , s e a and air f o r c e s tha t w e r e

c h a r g e d wi th holding t h e f o r w a r d l i n e . It s e r v e d t h r e e p u r p o s e s . The

f i r s t w a s to g ive f i r m e v i d e n c e of N A T O ' s wi l l , and i t s ab i l i ty , to de fend

t h e p e o p l e s and t e r r i t o r i e s of t h e A l l i a n c e . B e c a u s e t h e p o s t u r e of the

NATO f o r c e s w a s s t r i c t l y d e f e n s i v e , and b e c a u s e i m p o r t a n t new w e a p o n s

j u s t i f i e d an a p p r o a c h qu i t e d i f f e r e n t f r o m what had been p o s s i b l e in the

p a s t , t h e NATO s t r a t e g y did not c o n t e m p l a t e v a s t and p r o l o n g e d c a m p a i g n s

of t h e t ype tha t f i l l h i s t o r y books . The t a s k of the Shield f o r c e s w a s to

hold in c a s e of a t t a ck un t i l t h e t o t a l weight of t h e r e t a l i a t o r y p o w e r cou ld

be b r o u g h t to b e a r . B e c a u s e t h i s i n t e r i m p e r i o d would be s h o r t , p e r h a p s

only w e e k s , t h e f o r c e s r e q u i r e d would be s m a l l g iven t h e m a g n i t u d e of t h e

t a 8k.

The second f u n c t i o n of t h e Shield w a s to i n t e g r a t e the s e v e r a l e l e m e n t s

of the d e t e r r e n t . SACEUR po in ted out tha t t h e r e w a s a lways t h e p o s s i b i l i t y

of a w a r a r i s i n g f r o m a m i s c a l c u l a t i o n or a b o r d e r inc iden t o r a p r o b i n g

o p e r a t i o n inv i t ed by w e a k n e s s . T h e Shield c o m p e l l e d a po t en t i a l i n v a d e r

to m e a s u r e the c o n s e q u e n c e s of u s ing f o r c e , no m a t t e r how l i m i t e d . He

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woxild be c o n f r o n t e d by t h e Shield in i m m e d i a t e oppos i t ion and would know

t h a t h i s u s e of f o r c e would b r i n g down t h e whole weigh t of the d e t e r r e n t ,

i nc lud ing t h e h e a v y s t r a t e g i c p o w e r .

If NATO c o n c e n t r a t e d on w e a p o n s s y s t e m s f o r g e n e r a l w a r only,

an o p p o r t u n i t y m i g h t be p r e s e n t e d to an a g g r e s s o r fo r a s e r i e s of l i m i t e d

i n c i d e n t s and t h e s e could in t h e i r c u m u l a t i v e e f f e c t s be d i s a s t r o u s . It w a s

e s s e n t i a l , t h e r e f o r e , t ha t t h e West have t h e ab i l i t y t o r e s p o n d to l e s s - t h a n -

u l t i m a t e i n c i d e n t s wi th d e c i s i v e , but l e s s - t h a n - u l t i m a t e m e a n s . T h u s the

t h i r d f u n c t i o n of t h e Shield w a s to g ive a u t h o r i t y to t h e d e t e r r e n t and f l e x i b i -

l i t y t o t h e p o l i t i c a l and m i l i t a r y s t r a t e g y of NATO.

G e n e r a l N o r s t a d conc luded h i s e x a m i n a t i o n of N A T O ' s s t r a t e g i c po l i cv

by s t a t i ng tha t m e m b e r s of t h e A l l i a n c e w e r e seek ing m e a n s f o r b r o a d e n i n g

and deepen ing t h e d e t e r r e n t and f o r m a k i n g i t e f f e c t i v e in a l l e s s e n t i a l

d i m e n s i o n s . In p r i n c i p l e , t h e n u m e r i c a l s t r e n g t h of the A r m y and Air

F o r c e s had i n c r e a s e d on the o r d e r of about f i v e to one , but when the f a c t o r

of m o d e r n e q u i p m e n t w a s app l ied , t he e f f ec t i venes s of t h e s e f o r c e s had to

b e m u l t i p l i e d m a n y t i m e s .

In t h e Sou the rn and N o r t h e r n r e g i o n s , t he g o a l s of m a n p o w e r and

b r o a d o r g a n i z a t i o n a l s t r u c t u r e had been l a r g e l y a c h i e v e d . In t h e Centred

r e g i o n , h o w e v e r , t h e r e con t inued to be d e f i c i e n c i e s , p a r t i c u l a r l y in the

l a n d and a i r f o r c e s of t h e Shie ld . The s h o r t a g e of a i r f o r c e s d e r i v e d l a r g e l y

f r o m t h e f a c t tha t t h e G e r m a n a i r p r o g r a m , which had s t a r t e d about t h r e e

y e a r s e a r l i e r , w a s only j u s t ge t t ing in to s t r i d e and beg inn ing to p r o d u c e

s q u a d r o n s . SACEUR t h e n r e f e r r e d to t h e w i t h d r a w a l of t h e F r e n c h d iv i s i ons

t o N o r t h A f r i c a wh ich p r e v e n t e d p r o p e r dep loymen t of t h e C e n t r a l r e g i o n ' s

f o r c e s .

The b u i l d - u p of t h e G e r m a n g round f o r c e s would c o r r e c t t he r e m a i n i n g

and m o s t i m p o r t a n t d e f i c i e n c y in the C e n t r a l r e g i o n . G e r m a n y had p l anned

to dep loy t w e l v e d i v i s i o n s . F i v e w e r e a l r e a d y o p e r a t i v e , and two m o r e

would . G e n e r a l N o r s t a d s t a t e d , be a v a i l a b l e in Apr i l 1958. The r e m a i n i n g

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f i v e would be a v a i l a b l e on a s c h e d u l e wh ich p r o v i d e d f o r t h e i r f a s t e s t

r e a s o n a b l e d e v e l o p m e n t .

SACEUR conc luded h i s s p e e c h wi th an examina t i on of t h e d e c i s i o n s

t a k e n at t he D e c e m b e r 1957 M i n i s t e r i a l M e e t i n g of the N o r t h At lan t i c Counc i l .

T h e s e d e c i s i o n s w e r e t a k e n l a r g e l y to o v e r c o m e two ou t s t and ing w e a k n e s s e s

wh ich e x i s t e d wi th in t h e A l l i ance . Since N A T O ' s m i l i t a r y p l a n s had f o r m o r e

t h a n t h r e e y e a r s c o n t e m p l a t e d t h e u s e of a t o m i c w e a p o n s , an a t o m i c c a p a -

b i l i t y had b e e n c r e a t e d wi th in Al l ied C o m m a n d E u r o p e . Equipped fo r bo th

g r o u n d and a i r d e l i v e r y , w ide ly d i s p e r s e d , m a n n e d and o p e r a t e d by US

p e r s o n n e l , t h i s c a p a b i l i t y w a s s u b s t a n t i a l . But i t s u f f e r e d f r o m the f a c t

t h a t b e c a u s e bo th t h e d e l i v e r y m e a n s and the w e a p o n s t h e m s e l v e s w e r e

r e s t r i c t e d t o A m e r i c a n u s e , SHAPE could n e i t h e r d i s t r i b u t e t h e m so wide ly

no r i n t e g r a t e t h e m in to the Al l ied F o r c e s so c l o s e l y a s m a x i m u m e f f e c t i v e -

n e s s r e q u i r e d . The second w e a k n e s s r e f e r r e d t o by G e n e r a l N o r s t a d w a s

t h e i m p l i c a t i o n of d i s c r i m i n a t i o n , of s e e m i n g to d iv ide the Al l i ance in to

f i r s t and s e c o n d c l a s s f o r c e s . The NATO a t o m i c s tockp i l e , a p p r o v e d at

t h e D e c e m b e r m e e t i n g of the N o r t h At lan t ic Counci l , w a s p l a n n e d to e l i m i n a t e

t h e s e w e a k n e s s e s .

The N o r t h At lan t i c Counci l had f u r t h e r dec ided , at i t s 1957 D e c e m b e r

m e e t i n g , to accep t t h e Uni ted S t a t e s ' o f f e r t o m a k e a v a i l a b l e t o f o r c e s of

the A l l i ance w h a t e v e r i n t e r m e d i a t e - r a n g e b a l l i s t i c m i s s i l e s a s w e r e r e q u i r e d

by d e f e n s e p l a n s . SACEUR p o i n t e d out t ha t t h e n a t u r e of t h e s e m i s s i l e s

gave h i m t h e w i d e s t l a t i t u d e in p lann ing t h e i r d i s t r i b u t i o n . It w a s not n e c e s -

s a r y , or even d e s i r a b l e , tha t t h e y b e l o c a t e d in a l l NATO c o u n t r i e s . A

d e c i s i o n on t h e d e p l o y m e n t of t h e s e m i s s i l e s would be m a d e only a f t e r s tudy

of t h e l o g i s t i c , t r a i n i n g and f i n a n c i a l p r o b l e m s involved .

How an A l l i ance G o e s to W a r .

In v i e w of t h e i n c r e a s i n g c o n c e r n in m a n y q u a r t e r s r e g a r d i n g t h e u s e

of n u c l e a r w e a p o n s and the r e s p o n s i b i l i t y of the NATO m i l i t a r y a u t h o r i t i e s

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r e g a r d i n g t h i s u s e in a n y f u t u r e w a r , S A C E U R ' s v i e w s on t h e s u b j e c t

w e r e of i n t e r e s t . D u r i n g a c o n f e r e n c e w i th t h e S H A P E s ta f f p r i o r t o t h e

I 9 5 7 D e c e m b e r N o r t h A t l a n t i c Counc i l M i n i s t e r i a l M e e t i n g , G e n e r a l N o r s t a d

h a d s t a t e d t h a t t h e c o r e of the p r o b l e m w a s t ha t t h e 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 wou ld b e a p o l i t i c a l r e s p o n s i b i l i t y . SACEUR b e l i e v e d i t u n l i k e l y

t h a t in t h e f o r e s e e a b l e f u t u r e t h e r e would be any r e a l d e l e g a t i o n to the

m i l i t a r y of t h e a u t h o r i t y t o u s e n u c l e a r w e a p o n s . Indeed , h e b e l i e v e d i t

wou ld b e i m p r o p e r t o c o n s i d e r any s u c h d e l e g a t i o n .

D u r i n g d i s c u s s i o n s w i t h t h e p o l i t i c a l a u t h o r i t i e s , SACEUR had a l w a y s

t a k e n a c l e a r l y d e f i n e d l i n e . P o i n t i n g out t h a t no n a t i o n had e v e r p r e c i s e l y

c o d i f i e d t h e r e s p e c t i v e l i m i t s of p o l i t i c a l and m i l i t a r y a u t h o r i t y in a d v a n c e

of h o s t i l i t i e s , SACEUR wen t t o s a y t h a t in m o d e r n t i m e s , wi th the i n c r e a s e d

d e s t r u c t i v e p o w e r of w e a p o n s and t h e c a p a b i l i t y of an e n e m y to a t t a c k wi th

l i t t l e o r n o w a r n i n g , t h e p r o b l e m took on new m e a n i n g . Whi l s t t he m o s t

s a t i s f a c t o r y a n s w e r wou ld be to t e l l t h e p o l i t i c a l a u t h o r i t i e s t h a t S H A P E had

p r e p a r e d a " b o o k " w i t h a l l t h e n e c e s s a r y p r o c e d u r e s c o v e r i n g al l e v e n t u a l -

i t i e s , i t w a s u n l i k e l y t h a t any s u c h " b o o k " would e v e r be c o m p i l e d , even if

SACEUR cou ld c o m p i l e one . T h e po in t a t i s s u e w a s e s s e n t i a l l y a q u e s t i o n

of t h e p o l i t i c a l / m i l i t a r y r e l a t i o n s h i p . E a c h g r o u p had to k e e p the o t h e r

iif o r m e d of d e v e l o p m e n t s in h i s r e s p e c t i v e s p h e r e s . SACEUR a d m i t t e d , how-

e v e r , t h a t t h i s d id no t m e e t t h e " p r e s s i n g r e q u i r e m e n t s of i n s t a n t a n e o u s

r e a c t i o n . " T u r n i n g t o m o r e s p e c i f i c n e e d s , SACEUR s t a t e d t h a t he d e s i r e d

t h e S H A P E s t a f f t o b r e a k down t h e who le " s p e c t r u n of p o s s i b i l i t i e s i n to a

f e w c l e a r - c u t c a t e g o r i e s of h o s t i l e a c t i o n s . " B e t w e e n t h e two e x t r e m e s of

an a l l - o u t Sovie t a t t a c k d e m a n d i n g f u l l u s e of t h e a v a i l a b l e p o w e r , and

l i m i t e d l o c a l a c t i o n s , i t wou ld b e n e c e s s a r y to e n v i s i o n two or t h r e e c a t e -

g o r i e s in b e t w e e n .

In c o n c l u s i o n , SACEUR e m p h a s i z e d to h i s s ta f f t ha t in any d e v e l o p m e n t

of i d e a s on t h i s s u b j e c t , t h e r e a l adm would be to p r o m o t e u n d e r s t a n d i n g (5)

b e t w e e n t h e p o l i t i c a l and m i l i t a r y a u t h o r i t i e s .

(5) See S H A P E / P P / 2 7 8 / 5 7 , 3 Dec 57: M e m o r a n d u m f o r R e c o r d of SACEUR C o n f e r e n c e on 30 Nov 57.

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Al l i ed C o m m a n d Ehirope.

The 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), L i e u t e n a n t -

G e n e r a l Sir C e c i l S tanley Sugden, UK A r m y , con t inued in o f f i c e un t i l

30 J u n e 1958. G e n e r a l Sugden w a s s u c c e e d e d by L i e u t e n a n t - G e n e r a l Sir

H o r a t i u s M u r r a y , UK A r m y . CINCNORTH' s o v e r a l l r e s p o n s i b i l i t i e s c o n -

t inued a s in f o r m e r y e a r s , but he w a s now a c t i v e l y c o n c e r n e d in p r o b l e m s

of c o m m a n d in t h e B a l t i c .

G e n e r a l J e a n Val luy , F r e n c h A r m y , con t inued a s C o m m a n d e r - i n -

Chief C e n t r a l E u r o p e (CINCENT) . His 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 w a s

occup ied with a c o n s i d e r a b l e a m o u n t of p lann ing , no tab ly in t h e f i e l d s of

a i r d e f e n s e and l o g i s t i c s .

In the South, A d m i r a l R o b e r t P , B r i s c o e , US Navy, r e m a i n e d a s

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 Sou the rn E u r o p e (CINCSOUTH).

A d m i r a l Sir C h a r l e s L a m b e , RN, w a s r e s p o n s i b l e fo r the M e d i t e r r a n e a n

a r e a , in h i s c a p a c i t y a s 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 M e d i t e r r a n e a n

( CINC AFM ED).

The SHAPE Staff .

Among the c h a n g e s which took p l a c e wi th in SHAPE, one at l e a s t

s e v e r e d a l o n g - t e r m connec t ion wi th Al l ied C o m m a n d E u r o p e . T h i s w a s

t h e r e t i r e m e n t f r o m m i l i t a r y s e r v i c e of F i e l d M a r s h a l The Viscoun t

M o n t g o m e r y of A l a m e i n , who had been Deputy S u p r e m e Al l ied C o m m a n d e r

s i n c e the a c t i v a t i o n of SHAPE in 1951. He w a s s u c c e e d e d on 20 S e p t e m b e r

by G e n e r a l Sir R i c h a r d Ga le , UK A r m y . G e n e r a l Ga l e had a l r e a d y had

s o m e e x p e r i e n c e in the NATO o r g a n i z a t i o n a s C o m m a n d e r , N o r t h e r n A r m y

Group , f r o m 1954 to t h e beginning of 1957.

The p o s t of Air Deputy to SACEUR, wh ich had been vacan t s i n c e

G e n e r a l N o r s t a d b e c a m e S u p r e m e Al l ied C o m m a n d e r in N o v e m b e r 1956,

w a s f i l l e d by t h e appo in tmen t of G e n e r a l L e o n W. Johnson , USAF. G e n e r a l

J o h n s o n , f o r m e r l y US Standing Group R e p r e s e n t a t i v e , took up o f f i ce

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S H A P E 5 8 / 6 ? NATO S E C R E T

on 1 M a y 1 9 5 8 . ^

(6) See C h a r t f o r O r g a n i z a t i o n of SHAPE Staff ; See "All ied H e a d q u a r t e r s S t r eng th R e p o r t " f o r a b r e a k d o w n of the SHAPE Staff by na t iona l i ty and r a n k s . '

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C H A P T E R II

F O R C E S

G e n e r a l .

Al though g r o u n d , s e a and a i r f o r c e s a v a i l a b l e to SACEUR at the

beginning of 1958 w e r e s t i l l i n a d e q u a t e , t h e i r o v e r a l l s t r e n g t h 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 the s i t ua t ion at t he beg in -

ning of 1957. T h e r e had b e e n addi t ion to t h e M - D a y land f o r c e s in the

C e n t r a l E u r o p e a n a r e a a l though c e r t a i n w i t h d r a w a l s w e r e even then

tak ing p l a c e . The o v e r a l l i m p r o v e m e n t r e s u l t e d f r o m the m a t u r i n g of

I 9 5 6 p l a n s , and f r o m p r o g r e s s m a d e in i m p l e m e n t i n g the r e c o m m e n -

d a t i o n s of the I956 Annual R e v i e w . Notably , t h e r e had been r e i n f o r c e -

m e n t in t h e f ight ing p o t e n t i a l of NATO t h r o u g h t h e e x t e n s i v e r é - e q u i p m e n t

and i n c r e a s i n g d e l i v e r y c a p a b i l i t y of m a n y of t h e na t i ona l a i r f o r c e s , t he

e n t r y in to s e r v i c e of new w a r s h i p s , and the s t r e n g t h e n i n g of g round

f o r c e s wi th a c l o s e s u p p o r t n u c l e a r capab i l i t y .

SACEUR had f i v e m o r e d i v i s i o n s a s s i g n e d h i m than in the p r e v i o u s

y e a r , and twe lve m o r e R C T s . He had a p p r o x i m a t e l y 20 m o r e m a j o r

v e s s e l s a s s i g n e d to h i s n a v a l u n i t s , a l though the a i r c r a f t t o t a l s t r e n g t h

had s o m e w h a t d e c r e a s e d . T h i s d e c r e a s e h o w e v e r , w a s in the f i e l d of

a i r d e f e n s e a i r c r a f t and t r a n s p o r t a i r c r a f t ; t he s t r i k e and a t t ack a i r c r a f t

had i n c r e a s e d by n e a r l y one h u n d r e d . ^

(1) CM (57) 143, P a r t I, R e p o r t of the 1957 Annual R e v i e w , 9 Dec 57. F o r c o m p l e t e r e v i e w of the f o r c e s s i tua t ion in Al l ied C o m m a h d E u r o p e dur ing 1957 to inc lude de f in i t i ons n e c e s s a r y to u n d e r s t a n d -ing of SACEUR' s f o r c e s , s e e F o r c e s C h a p t e r , 1957 SHAPE H i s t o r y . 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 u n i t 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 fo r a s s ignmen t on M o b i l i z a t i o n t o SACEUR in 1958 s e e SHAPE 1 3 / l /57 a s a m e n d e d and SHAPE 1 3 / 2 / 5 7 a s

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T h e m e r e l i s t i n g of n u m e r i c a l f o r c e g o a l s d o e s not a d e q u a t e l y

r e f l e c t i m p r o v e m e n t s or d e f i c i e n c i e s in SACEUR's f o r c e s o r of t h e i r

c o m b i n e d v a l u e . P r e p a r a t i o n s w e r e in hand to i n c r e a s e the f igh t ing

p o t e n t i a l of S A C E U R ' s g r o u n d f o r c e s t h r o u g h t h e addi t ion of n u c l e a r

w e a p o n s t o t h e i r a r s e n a l s . The U. S. con t inua l ly sought du r ing 1958

t o p r o v i d e i n i t i a l d e l i v e r y of m o d e r n w e a p o n s wi th p o t e n t i a l n u c l e a r

c a p a b i l i t y to o the r m e m b e r s of the Al l i ance . P r o g r a m s f o r t r a i n i n g (2)

p e r s o n n e l in hand l ing t h e s e w e a p o n s had a l r e a d y b e e n a r r a n g e d . '

S A C E U R ' s a i r f o r c e s f a c e d t h e c o n s i d e r a b l e d i f f i c u l t i e s of r e -

equipping on a large s c a l e a s m o d e r n t y p e s of a i r c r a f t w e r e put in to s e r v i c e .

N e v e r t h e l e s s , t h e r e w a s a d i s t i nc t i m p r o v e m e n t in the r e a d i n e s s of

a i r c r a f t and a i r c r e w s in m a n y a i r f o r c e s of t h e Al l i ance . T h e s e s t a n d a r d s

w e r e s t i l l f a r s h o r t of m e e t i n g t h o s e r e q u i r e d by SACEUR, h o w e v e r , and

i t w a s obvious t h a t m u c h f u r t h e r p r o g r e s s would be n e e d e d . The d i s p e r s a l

of a i r c r a f t in a c c o r d a n c e wi th t h e r e q u i r e m e n t s of M C 60 w a s s t i l l f a r

f r o m c o m p l e t e in m a n y n a t i o n a l a i r f o r c e s , and s o m e which had been

a s s i g n e d to SACEUR w e r e s t i l l so c o n c e n t r a t e d tha t t hey p r e s e n t e d l u c r a -

t i v e p o t e n t i a l t a r g e t s t o any e n e m y a i r a t t a c k .

M u c h p r o g r e s s had been m a d e du r ing 1957 in m o d e r n i z i n g n a v i e s .

M a n y o lde r v e s s e l s w e r e r e f i t t e d or r e p l a c e d , t h e f o r m e r by r e c o n s t r u c t i o n ,

(1)contd. a m e n d e d . See a l s o SHAPE 5 0 - 1 / 5 9 and SHAPE 5 0 - 2 / 5 9 . F o r s t r e n g t h 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 f o r 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 / 7 3 / 5 8 . i Str ength 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 roughou t A C E i s r e p o r t e d in d e t a i l in Al l i ed H e a d q u a r t e r s S t rength R e p o r t (SG AG 2) i s s u e d p e r i o d i c a l l y by SHAPE. The G e r m a n 2nd and 5th A r m o r e d Div is ion w e r e a s s i g n e d to NATO (ACE) on 1 J a n u a r y 1958 and t h e G e r m a n I s t Mounta in Divis ion and an Abu C o m b a t Group a s s i g n e d on 1 A p r i l . See SGM 1 - 5 8 fo r A s s i g n m e n t of F o r c e s , to SACEUR 1958.

(2) See 1958 S t r a t e g i c P l a n n i n g C h a p t e r fo r d e t a i l s of t h i s .

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t h e l a t t e r by l o a n s and p u r c h a s e s . H o w e v e r , o b s o l e s c e n c e w a s s t i l l a

p r o b l e m . T h e r e w a s a s h o r t a g e of m o d e r n m a r i t i m e a i r c r a f t and D-Day

a v a i l a b i l i t y of n a v a l un i t s w a s s t i l l f a r f r o m s a t i s f a c t o r y .

M C 7 0 .

T h e 1957 SHAPE M i n i m u m F o r c e Study se t f o r t h a s e x a c t l y a s

p o s s i b l e t h e m i n i m u m f o r c e s w h i c h would be r e q u i r e d to c a r r y out the

s t r a t e g y p l a n n e d b e t w e e n 1958-1963 . The Standing G r o u p had r e c e i v e d t h e

S H A P E s tudy and had i n f o r m e d S H A P E tha t it i n t ended to c o m b i n e SHAPE 'S

s tudy wi th s i m i l a r w o r k s by t h e o the r two M a j o r C o m m a n d e r s , SACLANT

and ClNCHAN, t o p r o d u c e u l t i m a t e l y a documen t which would be known

a s M C 70 and which would be t h e f o r c e " B i b l e " f o r t h e next f e w y e a r s . ^

P r e l i m i n a r y S tudies and D i s c u s s i o n s . It had b e e n p l a n n e d tha t t he

Standing G r o u p would c o m p l e t e the s tudy b e f o r e t h e end of 1957, but t h i s

w a s not p o s s i b l e f o r v a r i o u s r e a s o n s . v Ear ly in 1958 however , , t h e Standing

Group f o r w a r d e d to SHAPE fo r c o m m e n t and r e v i e w a d r a f t ve r s ion of

M C 70. The p r i n c i p a l comrt ient wh ich SHAPE had on t h i s d r a f t d o c u m e n t

w a s tha t i t had not adequa t e ly exp la ined s e v e r a l f u n c t i o n s of the Shield

f o r c e s , and a s a c o n s e q u e n c e t h e r e q u i r e m e n t f o r t h e s e f o r c e s w a s not

f u l l y s u p p o r t e d . In p a r t i c u l a r , i t f a i l e d to s t a t e a d e q u a t e l y t h e po in t

s t r e s s e d in t h e SHAPE M i n i m u m F o r c e Study: tha t Shield f o r c e s had

a v e r y s ign i f i can t r o l e in d e t e r r i n g or c o u n t e r i n g a g g r e s s i o n s s h o r t of

g e n e r a l w a r .

A second key poin t w a s tha t t he r e c o m m e n d a t i o n s con ta ined in t h e

p a p e r did not i nc lude the a p p r o v a l of c o u n t r y b r e a k d o w n s by the NAC.

SHAPE fe l t tha t it w a s a b s o l u t e l y n e c e s s a r y tha t t h e Counci l a p p r o v e c o u n t r y

b r e a k d o w n s a s gu idance , at l e a s t t h r o u g h D e c e m b e r 1961.

(3) F o r f u l l d e t a i l s of SHAPE M i n i m u m F o r c e Study 1958 /63 , and f o r t h e e a r l y h i s t o r y of MC 70, s e e SHAPE H i s t o r y 1957, S t r a t e g i c P l a n n i n g C h a p t e r .

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O n e of t h e m a j o r a s p e c t s of t h e d r a f t M C 70 w a s t h a t a v e r y 0 e x a c t c a p a b i l i t y w a s a t t r i b u t e d t o t h e Sovie t m i s s i l e f o r c e s b e t w e e n

1961 and 1963 . SHAPE c o n s i d e r e d t ha t m o r e e m p h a s i s shou ld b e p l a c e d

on t h e f a c t t h a t t h e c a p a b i l i t y wou ld b e a t o t a l c a p a b i l i t y and would not

b e e x a c t . S H A P E f e l t a l s o t ha t l o g i s t i c s h a d not b e e n a d e q u a t e l y t r e a t e d (4)

a n d t h a t S A C E U R ' s t a s k s shou ld b e m o r e c l e a r l y d e f i n e d in M C 70. '

On 17 F e b r u a r y 1958, G e n e r a l L e o n J o h n s o n , t h e n US m e m b e r of

t h e S tanding G r o u p , v i s i t e d S H A P E B p e c i f i c a l l y t o d i s c u s s SHAPE 'S

c o m m e n t s on M C 70. It w a s a p p a r e n t t ha t t h e Standing G r o u p and S H A P E

d i d not a g r e e on m a n y of t h e p o i n t s r a i s e d and on ly abou t f i f t y p e r c e n t (5)

of S H A P E ' S s u g g e s t i o n s f o r r e - w o r d i n g w e r e a c c e p t e d / '

When i t b e c a m e a p p a r e n t t h a t M C 70 w a s going t o b e d e l a y e d , c o n c e r n

d e v e l o p e d w i t h i n t h e N A T O C o u n c i l . At i t s m e e t i n g on 13 D e c e m b e r 1957

t h e C o u n c i l h a d b e e n t o l d by t h e Standing G r o u p C h a i r m a n tha t M C 70

w o u l d no t b e r e a d y b e f o r e t h e m i d d l e of F e b r u a r y 1958, and t ha t i t had

t o b e a p p r o v e d b y t h e M i l i t a r y C o m m i t t e e b e f o r e i t cou ld b e p r e s e n t e d to

t h e C o u n c i l . N a t i o n a l a u t h o r i t i e s would h a v e a c h a n c e t o s e e t h e d r a f t

of M C 70 w h i c h wou ld h a v e been f u r n i s h e d t o 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 a n d t h e y in t u r n cou ld p a s s c o p i e s t o t h e i r g o v e r n m e n t s . T h e

C o u n c i l h a d d e c i d e d t h a t M C 70 shou ld b e c o n s i d e r e d by a s p e c i a l s e s s i o n

of t h e C o u n c i l , w i t h on ly t h e D e f e n s e M i n i s t e r s p r e s e n t . T h e t i m i n g of

t h i s s p e c i a l D e f e n s e Counc i l would b e dqaendent upon t h e c o m p l e t i o n of

M C 70.

(4) S H A P E / 2 1 / 5 8 , C o m m e n t s on M C 70, 9 F e b 58; M C M - 1 9 - 5 8 , 30 J a n 58. F o r m o r e d e t a i l on n e g o t i a t i o n s b e t w e e n S H A P E and SGN on r e -d r a f t i n g of M C 70, s e e r e p o r t on v i s i t t o SGN by S H A P E p l a n n e r s in J a n u a r y 1958, M e m o r a n d u m , SEC 2030, 31 J a n 58.

(5) S H A P E / S E C / 3 - 5 8 , 19 F e b 58: G e n e r a l J o h n s o n ' s v i s i t i n r e g a r d t o M C 70. F o r e x a c t c o m p a r i s o n of w h a t S H A P E r e c o m m e n d e d and wha t t h e S tand ing Group a c c e p t e d s e e S H A P E / 2 1 / 5 8 a g a i n s t t h e b a c k g r o u n d of S H A P E / S E C / 3 - 5 8 .

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Dur ing J a n u a r y 1958, c o n s i d e r a b l e d i s c u s s i o n on t h i s m a t t e r took

p l a c e wi th in t h e Counci l . Even t h e e s s e n t i a l p u r p o s e of t h e m e e t i n g of

D e f e n s e M i n i s t e r s c a m e u n d e r d e b a t e - f o r e x a m p l e t h e r e w a s s o m e

d i s c u s s i o n a s t o whe the r t h e D e f e n s e M i n i s t e r s would only t a k e no t e of (6)

M C 70, or w h e t h e r t h e y would a c t u a l l y a p p r o v e the d o c u m e n t / '

In F e b r u a r y the Standing Group f o r w a r d e d to a l l 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 a d r a f t of M C 70, a sk ing t h e m to send t h e i r c o m m e n t s

f o r w a r d a s soon a s pos s i l i e . A c o m p i l a t i o n of a l l v i e w s f r o m National

M i l i t a r y A u t h o r i t i e s w a s p r e p a r e d and c i r c u l a t e d to 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 . C o m m e n t s had been r ece ived f r o m a l l n a t i o n s excep t

N o r w à y . T h e Standing G r o u p had t aken na t iona l v i e w s and p r e p a r e d a

c o r r i g e n d u m of M C 70 which w a s d i s t r i b u t e d s e p a r a t e l y . Ano the r p a p e r

se t f o r t h t h e s e c o m m e n t s which had not been l i s t e d in the c o r r i g e n d u m

T h e s e w e r e g e n e r a l c o m m e n t s wi thout s u g g e s t i o n s f o r any s p e c i f i c a m e n d -

m e n t s . T h e Standing Group be l i eved tha t c o u n t r i e s could r a i s e t h i s l a t t e r (7)

type of c o m m e n t at t he open s e s s i o n of the M i l i t a r y C o m m i t t e e /

M C 70, M i n i m u m E s s e n t i a l F o r c é R e q u i r e m e n t s 1958-1963 , w a s

c o n s i d e r e d by the M i l i t a r y C o m m i t t e e on 1 3 - 1 4 M a r c h 1958. The S u p r e m e

NATO C o m m a n d e r s p r e s e n t w e r e inv i t ed t o p r e s e n t t h e i r v i e w s , a c c o r d i n g

to which 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 h a s been e s t a b l i s h e d

wi th in t h e i r r e s p e c t i v e c o m m a n d s .

In t a lk ing to the M i l i t a r y C o m m i t t e e about M C 70, G e n e r a l N o r s t a d

po in t ed out tha t on 18 S e p t e m b e r 1957 he had b r i e f e d t h e C h i e f s of Staff

of t h e NATO c o u n t r i e s on h i s M i n i m u m F o r c e Study 1958-63 , and tha t

he would t h e r e f o r e only s u m m a r i z e the h igh l igh t s and c e r t a i n p o i n t s not

(6) F o r De ta i l ed i n f o r m a t i o n on t h e n a t u r e of t h e s e d i s c u s s i o n s , s e e Counci l R e c o r d s : CR(57)79; CR(58)3; C-R(58)6 ; C-R(58)8 ; C-R(58)10 , of J a n u a r y and F e b r u a r y 1958, and CR(58)5, a l so , ( s a m e p e r i o d ) .

(7) M C M - 3 1 - 5 8 , 5 M a r 58, should be e x a m i n e d by anyone i n t e r e s t e d in d e t a i l e d deve lopmen t of M C 70.

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f u l l y d e v e l o p e d i n t h e s tudy which m e r i t e d a t t en t ion wi th in t h e con tex t

of M C 70. In h i s m i n d , M C 70 r e p r e s e n t e d t h e t h i r d of t h r e e c r i t i c a l

p o i n t s on t h e c u r v e of t h e d e v e l o p m e n t of t h e m i l i t a r y f o r c e s of NATO.

T h e f i r s t h a d b e e n t h e d e c i s i o n s at t h e L i s b o n C o n f e r e n c e in 1952, t h e

s e c o n d had b e e n t h e a p p r o v a l of M C 48 in 1954. He s t a t e d tha t M C 70

w a s t a n g i b l e e v i d e n c e of a t h i r d c r i t i c a l po in t , in t ha t i t dea l t w i th a

p e r i o d f o r wh ich t h e b a s i c a s s u m p t i o n s w e r e tha t both s i d e s would h a v e

a d e q u a t e s t o c k s of n u c l e a r w e a p o n s and o p e r a t i o n a l l y s a t i s f a c t o r y d e l i v e r y

m e a n s .

G e n e r a l N o r s t a d then p r e s e n t e d d e t a i l of f i g u r e s of t h e D-Day

f o r c e s at t h a t da t e , and t h e g o a l s se t f o r 1963.

A p p r o v a l by t h e M i l i t a r y C o m m i t t e e . Fo l lowing a f u l l d i s c u s s i o n

by a l l of t h e r e p r e s e n t a t i v e s p r e s e n t on t h e i n t e l l i g e n c e a p p r e c i a t i o n of

t h e t h r e a t , t h e NATO s t r a t e g i c concep t , t h e 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 involving NATO, t h e i m p l i c a t i o n s of t h e d e v e l o p m e n t of new w e a p o n s ,

and t h e a n a l y s i s of f o r c e r e q u i r e m e n t 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 70 a s a m e n d e d and i n s t r u c t e d t h e I n t e r n a t i o n a l S e c r e t a r i a t t o f o r w a r d

i t t o t h e N o r t h At lan t i c Counci l . ^

Annual R e v i e w Guidance and M C 70.

T h e l a s t S H A P E planning g u i d a n c e which had b e e n i s s u e d p r i o r to

1958 w a s t h a t sen t to t h e n a t i o n s in A p r i l 1957 b a s e d on a s tudy of F o r c e s

P o s t u r e A C E 1960-62 . It w a s o u t - o f - d a t e not only b e c a u s e a f u l l y e a r

had e l a p s e d but b e c a u s e t h e M i n i m u m F o r c e s Study 1958-63 had shown

m a n y c h a n g e s wh ich n e e d e d to be m a d e i n na t iona l f o r c e s . SACEUR had

coun ted h e a v i l y on b a s i n g h i s g u i d a n c e on M C 70. A c c o r d i n g l y , a s sonn

a 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 and f o r w a r d e d MC 70 to t h e Counci l ,

S H A P E sen t a d r a f t gu idance to t h e M a j o r Subord ina te C o m m a n d s fo r l a t e r

(8) M C M - 3 9 - 5 8 , 1 Apr 58.

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t r a n s m i t t a l t o t h e n a t i o n s a s p l ann ing g u i d a n c e f o r t h e 1958 Annual

R e v i e w . It w a s i n t ended tha t t h i s p l ann ing g u i d a n c e be u s e d in e s t a b l i s h -

ing f i r m n a t i o n a l f o r c e g o a l s f o r 1959» p r o v i s i o n a l g o a l s f o r i 9 6 0 and

p l ann ing g o a l s f o r 1961.

F o r l a n d f o r c e s t h e f i r s t r e q u i s i t e w a s 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 t h e r e c o m m e n d e d t r a i n i n g s t a n d a r d s , m a n n i n g and equ ipmen t l e v e l s .

S H A P E r e c o m m e n d e d t h a t a h igh p r i o r i t y b e p l a c e d on t h e e a r l i e s t d e v e -

l o p m e n t of i n t e g r a t e d g r o u n d n u c l e a r c a p a b i l i t y t h roughou t t h e sh i e ld

f o r c e s , in l i n e wi th p h a s e d r e q u i r e m e n t s s t a t e d in MC 70. .

T h e gu idance on n a v a l f o r c e s w a s b a s e d on t h e f i g u r e s f o r n u m b e r s

of s h i p s and a i r c r a f t r e q u i r e d by M C 70. The m a j o r p r o b l e m f a c i n g A C E

n a v i e s w a s s t i l l t h e t a s k of p r o v i d i n g D - D a y s h i p s w h o s e hu l l s and a r m a -

m e n t s cou ld be c o n s i d e r e d f u l l y e f f e c t i v e .

T h e D e f e n s e M i n i s t e r s M e e t i n g . T h e D e f e n s e M i n i s t e r s of NATO

m e t in P a r i s on 15 Apri l . When h i s o p p o r t u n i t y c a m e to p r e s e n t h i s v i e w s i

on M C 70, G e n e r a l N o r s t a d fo l lowed g e n e r a l l y t h e s a m e l i n e s he had t a k e n

wi th t h e M i l i t a r y C o m m i t t e e s o m e w e e k s b e f o r e . He s t r e s s e d the d é t e r r e n t

a s p e c t of h i s m i s s i o n , and t h e f a c t t ha t h e n e e d e d a d e q u a t e s h i e ld and s t r i k e

f o r c e s in o r d e r to k e e p t h i s d e t e r r e n t i n be ing . He dea l t a l s o wi th t h e

p o s s i b i l i t y of s m a l l i n c i d e n t s and a t t a c k s wh ich would s t i l l r e q u i r e a d e -

q u a t e s h i e l d f o r c e s . D e a l i n g w i t h e a c h of h i s M a j o r Subord ina t e C o m m a n d s

in t u r n , G e n e r a l N o r s t a d showed how t h e f o r c e s r e q u i r e d by M C 48 d i f f e r e d

f r o m t h o s e r e q u i r e d by MC 70, a n d i n s o f a r a s p o s s i b l e showed the r e a s o n s (9)

f o r t h e s e d i f f e r e n c e s / '

Upon c o m p l e t i o n of t h e p r e s e n t a t i o n s by t h e M a j o r C o m m a n d e r s ,

d e t a i l e d and s e a r c h i n g q u e s t i o n s w e r e a s k e d of t h e m by t h e D e f e n s e M i n i s -

t e r s . G e n e r a l N o r s t a d w a s c a l l e d upon t o exp la in t h e s i g n i f i c a n c e 6f D - D a y

(9) C-VR(58)21 , 15 Apr 58, L i m i t e d D i s t r i b u t i o n - V e r b a t i m R e c o r d of D e f e n s e M i n i s t e r s ' Mee t ing , 15 Apr 58.

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d i v i s i o n s a s o p p o s e d t o 2nd eche lon d i v i s i o n s . He po in t ed out t ha t t h e

D - D a y f o r c e s w e r e t h e m o s t i m p o r t a n t f o r c e s , t ha t s o m e of t h e s e 30

d i v i s i o n s s c h e d u l e d f o r D-Day in C e n t r a l E u r o p e would not be c o m b a t -

r e a d y . U n d e r ques t i on ing G e n e r a l N o r s t a d po in ted out f u r t h e r tha t t h e

c o n d i t i o n s of w a r f a r e e n v i s a g e d in M C 1 4 / 2 e n v i s a g e d a p e r i o d of o r g a n i z e d

l a r g e s c a l e f igh t ing of c o m p a r a t i v e l y s m a l l d u r a t i o n , not l i k e l y t o e x c e e d

30 d a y s . T h e f i r s t f e w d a y s would be c h a r a c t e r i z e d by i n t e n s e n u c l e a r

e x c h a n g e . In P h a s e 2, a l o n g e r p e r i o d of i n d e t e r m i n a t e d u r a t i o n would

a l low f o r r e o r g a n i z a t i o n , r e supply , and the c a r r y i n g out of m i l i t a r y t a s k s

l e a d i n g to a c o n c l u s i o n of the w a r . F r o m a m i l i t a r y s t andpoin t , t h e t r e a t -

m e n t a c c o r d e d M C 70 at the h ighes t NATO l e v e l l e f t s o m e t h i n g to be

d e s i r e d . W h e r e a s NATO m i l i t a r y author i t ies had hoped f o r a l m o s t un -

q u a l i f i e d e n d o r s e m e n t of t h e i r r e c o m m e n d a t i o n s f o r s t r a t e g y and f o r c e s

a s act f o r t h in M C 70, no f i r m d e c i s i o n w a s t a k e n at t h e Counci l l e v e l by

a n y of t h e na t i ona l r e p r e s e n t a t i v e s to a d h e r e c o m p l e t e l y to t h e s e r e c o m -

m e n d a t i o n s .

NAC R e - c o n s i d e r a t i o n of MC 70. At m e e t i n g s h e l d in l a t e A p r i l ,

fo l lowing t h e m e e t i n g of D e f e n s e M i n i s t e r s , t h e NAC P e r m a n e n t R e p r e -

s e n t a t i v e s c o n s i d e r e d M C 70. The S e c r e t a r y G e n e r a l of NATO s u p p o r t e d

t h e d o c u m e n t , say ing tha t i t c o n s t i t u t e d the b a s i s f o r l o n g - t e r m m i l i t a r y

p o l i c y of t h e A l l i ance . It w a s u n d e r s t o o d tha t t h e p a r t i c u l a r p r o b l e m s

r a i s e d by M C 70 f o r v a r i o u s n a t i o n s would be s tud ied and r e s o l v e d in the

con t ex t of t h e Annual Rev i ew in 1958 and subsequen t ly . He e s p r e s s e d t h e

h o p e tha t t h e Counci l would a p p r o v e t h e documen t a t an e a r l y d a t e f o r

p l ann ing p u r p o s e s , and accep t t h e c o u n t r y b r e a k d o w n s a s gu idance f o r t h e

1958 Annual R e v i e w .

Dur ing t h e e a r l y s e s s i o n s on t h i s s u b j e c t , m o s t of the na t i ona 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 w i l l i n g n e s s to accep t MC 70 f o r p l ann ing p u r -

p o s e s , w h i c h would not c o m m i t any na t ion to p r o d u c e s p e c i f i c f o r c e s .

T h e r e w a s a d e l a y in t h e nego t i a t i ons when t h e T u r k i s h R e p r e s e n t a t i v e

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d e m a n d e d c l a r i f i c a t i o n in t h e u s e of t e r m s s u c h a s " 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 h o s t i l e a c t i o n s , " w h i c h migh t c h a n g e t h e s i g n i -

f i c a n c e of t h e p h r a s e " a r m e d a t t a c k , " i . e . t h e h e a r t of A r t i c l e s 5 and 6

of t h e N o r t h A t l a n t i c T r e a t y . It w a s obv ious t h a t the T u r k i s h a u t h o r i t i e s

f e l t t h a t a n y a t t a c k wi th a r m s a g a i n s t T u r k e y , w h e t h e r a l o c a l i n c u r s i o n

o r no t , shou ld b e r e p e l l e d by t h e c o m b i n e d f o r c e s of t h e e n t i r e A l l i a n c e .

NAC A p p r o v a l of M C 70. On 1 M a y 1958, the NAC p l a c e d a r a t h e r

n e b u l o u s s e a l of a p p r o v a l on M C 70, a f t e r a g r e e i n g to add to i t s d e c i s i o n

s e v e r a l p a r a g r a p h s d e s i g n e d t o o v e r c o m e t h e T u r k i s h o b j e c t i o n s . It

a p p r o v e d f o r p l a n n i n g p u r p o s e s , t h e to t a l f o r c e r e q u i r e m e n t s d e f i n e d by

M C 70 f o r t h e p e r i o d up t o t h e end of 1963; r e c o g n i z e d t ha t t h e c u r r e n t l y

e n v i s a g e d f o r c e r e q u i r e m e n t s f o r 1962 and 1963 would r e q u i r e f u r t h e r

r e v i e w in t h e l igh t of new c a p a b i l i t i e s of bo th s i d e s , and t ha t a p p r o p r i a t e

r e v i e w s of s u b s e q u e n t r e q u i r e m e n t s shou ld b e t a k e n p e r i o d i c a l l y t h e r e -

a f t e r ; and a c c e p t e d c o u n t r y b r e a k d o w n s se t out in M C 70 a s g u i d a n c e f o r

t h e 1958 Annua l R e v i e w / 1 0 ^

A n a l y s i s of t h e Counc i l a p p r o v a l r e v e a l s t ha t no s ing l e n a t i o n had

s t a t e d d e f i n i t e l y t h a t i t wou ld r a i s e any p a r t i c u l a r s i z e or t y p e of f o r c e

b y a n y p a r t i c u l a r d a t e . T h i s w a s s t i l l a s t a t e m e n t which wou ld b e r e s e r v e d

f o r t h e Annua l R e v i e w P r o c e s s .

At a m e e t i n g on 25 J u n e 1959, a t t e n d e d by SACEUR and a l l of h i s

k e y p l ann ing o f f i c e r s , a d i s c u s s i o n took p l a c e a s t o t h e d e g r e e t o wh ich f u t u r e

c h a n g e s shou ld b e m a d e t o SHAPE 'S m i n i m u m f o r c e s tudy , and u l t i m a t e l y

t o M C 70. It w a s p o i n t e d out t ha t wh i l e t h e f o r c e t a b s in t h e S H A P E m i n i m u m

f o r c e s tudy had b e e n b r o u g h t in to l i n e wi th t h o s e of M C 70, t h e j u s t i f i c a t i o n

f o r t h e f o r c e s in t h e m i n i m u m f o r c e s t udy t e x t h a d not b e e n c h a n g e d .

SACEUR p o i n t e d out tha t w h i l e M C 70 h a d b e e n a c c e p t e d in p r i n c i p l e by

a l l n a t i o n s , h e had a l w a y s m a d e i t qu i t e c l e a r tha t the b r e a k d o w n of f o r c e

r e q u i r e m e n t s w a s s u b j e c t t o f u r t h e r and con t inu ing e x a m i n a t i o n , t ha t t h e

f o r c e t a b s w e r e no t s a c r o s a n c t , and t ha t S H A P E had to b e f l e x i b l e in i t s

a p p r o a c h t o t h i s m a t t e r . T h e t a s k f a c i n g S H A P E w a s t o m e a s u r e wha t t h e

(10) C - R ( 5 8 ) 2 8 , 28 Apr 58; C -R(58 )29 , 30 Apr 58; C-R(58)30 , 12 M a y 58; M C 70(F£nal D e c i s i o n ) , 6 M a y 58.

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n a t i o n s s t a t e d t h e y would f u r n i s h a g a i n s t s t a n d a r d s se t in t h e m i n i m u m

f o r c e s tudy in t h e l igh t of t h e l a t e s t e s t i m a t e s of t h e t h r e a t , t o e n s u r e

t h a t r e q u i r e m e n t s e s t a b l i s h e d in the f o r c e t a b l e s were v a l i d . SACEUR

d i d n o t s e e a n y r e v i s i o n of M C 70 at tha t t i m e . Whi le t h e i n t e r n a l r e v i e w

of t h e m i n i m u m f o r c e s tudy m i g h t r e s u l t in s o m e v a r i a t i o n f r o m t h e p r e -

s e n t s tudy of r e q u i r e m e n t s , t h e r e would c e r t a i n l y be no p u b l i s h e d change

t o t h e m i n i m u m f o r c e s tudy p r i o r to the D e c e m b e r m e e t i n g of t h e N o r t h

A t l an t i c Counc i l . 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 h i s r e v i e w be c o m p l e t e d

i n t i m e f o r h i s u s e at t h e D e c e m b e r 1958 Counci l m e e t i n g s . Shoxild i t

a p p e a r t h a t t h e f o r c e c o n t r i b u t i o n s an t i c ipa t ed by t h e n a t i o n s w e r e f a l l i ng

be low a c e r t a i n l e v e l , he would h a v e to d e c i d e w h e t h e r or not to r e q u e s t

a m o d i f i c a t i o n of hi s m i s s i o n . SACEUR s t a t ed tha t he would t a k e up with

ind iv idua l M O D s , any s e r i o u s s h o r t - f a l l in a n a t i o n ' s c o n t r i b u t i o n . He

would only do t h i s , h o w e v e r , in t h o s e i m m e d i a t e a r e a s w h e r e he w a s

c o n v i n c e d of t h e v a l i d i t y of t h e r equ i r emen t e s t a b l i s h e d . ^ ^ ^

F o r c e G o a l s P r o b l e m s .

A p p r o v a l of M C 70 d i d n o t pu t an end to S A C E U R ' s p r o b l e m s on

f o r c e s . It b e c a m e a p p a r e n t , when the r e s u l t s of the 1958 Annual Rev i ew

w e r e r e c e i v e d , t ha t m a n y of t h e n a t i o n s w e r e not k e e p i n g M C 70 in m i n d .

If t h e n a t i o n s did no t r a i s e g r e a t e r f o r c e s than t h o s e which t h e y s t a t e d

t h e y i n t ended to r a i s e in r e p l y i n g t o the Annual R e v i e w , i t w a s obvious

t h a t t h e r e would be c o n s i d e r a b l e s h o r t - f a l l s be tween the r e q u i r e m e n t s of

M C ' 7 0 and t h e a c t u a l f o r c e s on t h e g round at spec i f ied p e r i o d s .

In r e p l y i n g to t h e 1958 Annual Rev i ew m o s t c o u n t r i e s c o v e r e d the

p e r i o d f r o m 1959-1961 , f o r e c a s t i n g what t h e i r a r m e d s t r e n g t h would be

(11) M e m o r a n d u m , s u b : R e c o r d of a Mee t ing he ld by SACEUR to d i s c u s s t h e Work P r o g r a m m e of t h e S t r a t eg i c STud ie s Sect ion, P A N D P 1240, 8 J u l 58.

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at v a r i o u s t i m e s du r ing that p e r i o d . The n a t i o n s had been a s k e d to

c o m m e n t on t h e 1963 g o a l s a s wel l i s i n c e t h e s e w e r e g e r m a n e to MC 70.

H o w e v e r , m o s t n a t i o n s l i m i t e d t h e i r s p e c i f i c c o m m i t m e n t s on f o r c e s to

1961. D e n m a r k did not r e p l y beyond 1958} Norway and F r a n c e did not

r e p l y beyond 1959. It t h e r e f o r e b e c a m e d i f f icu l t to eva lua te t h e i r e f f e c -

t i v e m e s s in 1961. The g o a l s f o r 1961 r e p r e s e n t e d an i m p o r t a n t s t age in

t h e a t t a i n m e n t of the c o m p l e t e d e f e n s i v e p o s t u r e f o r 1963 ca l l ed f o r by

M C 70. It w a s p o s s i b l e , by s tudying the 1961 goa l s to which the n a t i o n s

p l e d g e d t h e m s e l v e s , to have s o m e ind ica t ion of the pos i t ion of ACE In 1963«

It w a s obvious tha t s h o r t - f a l l s would ex is t be tween MC 70 r e q u i r e m e n t s

f o r I 9 6 I and the ac tua l f o r c e f o r 1961* While the e n t i r e a r e a of ACE w a s

e x a m i n e d in a r e p o r t to the Standing C r o u p in Oc tobe r 1958, i t wi l l s u f f i c e

to g ive a s ing le a r e a examina t ion to i l l u s t r a t e t h e m a n n e r in which SHAPE

po in ted out to i t s h igher a u t h o r i t i e s that t he na t ions a p p e a r e d to be fa l l ing

beh ind the n e c e s s a r y g o a l s .

AFNORTH. Spec i f i ca l ly , in the N o r t h t h e r e w a s g r e a t c o n c e r n f o t

N o r t h e r n Norway , w h e r e the g round r e q u i r e m e n t s w e r e not going t o be

l n e t . The SHAPE r e p o r t conc luded tha t in 1959 t h e n u c l e a r s t r e n g t h c a p a -

b i l i ty in t h e N o r t h would be only about 15% of t h e MC 70 r e q u i r e m e n t s ,

wh ich m e a n t t ha t i t s s t r i k e f o r c e s would not be ab le to p e r f o r m coun te r

n u c l e a r t a s k s in g e n e r a l w a r . The f o r c e s could p r o v i d e l i m i t e d n u c l e a r

suppor t to s u r f a c e f o r c e s and A s ign i f i can t d e g r e e of n o n - n u c l e a r suppor t .

R e c o n n a i s s a n c e would be c r i t i c a l . The a i t d e f e n s e capab i l i t y of the N o r t h

would a l s o b e f a r below tha t which w a s r e q u i r e d in MC 70. T h e r e w a s

a l s o a g r a v e l ack in n a v a l f o r c e s t o defend N o r t h e r n Norway , SHAPE

d e s c r i b e d in s o m e de ta i l the s h o r t a g e s which would exis t lot each c o m m a n d

u n l e s s t h e na t ions m a d e a f a r g r e a t e r e f f o r t than t h e i r r e p l i e s to the 1958 (12) Annual Rev iew i n d i c a t e d /

(12) Study Evalua t ion of MC 70 S h o r t - f a l l s , SHAPE 179 /58 AG 2103 P A N D P t a l s o s e e S H / P P / l 7 2 / 5 8 .

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S H A P E ' S j u d g e m e n t w a s t h a t s i nce m o s t of t h e i n f o r m a t i o n p r o v i d e d

f o r f o r c e s in N o r t h e r n C o m m a n d w a s l i m i t e d to 1958 and 1959, an e v a -

l u a t i o n in t e r m s of p r o g r e s s t o w a r d 1963 o b j e c t i v e s w a s not v e r y m e a n i n g -

f u l . In 1959 a beg inn ing would h a v e been m a d e t o p r o v i d e a n u c l e a r d e l i -

v e r y s t r i k e c a p a b i l i t y by equipping one Danish F B s q u a d r o n wi th F - 1 1 0 s ;

h o w e v e r , t h e n e u t r a l i z a t i o n of e n e m y a i r f i e l d s and m i s s i l e s i t e s con t inued

t o d e p e n d on f o r c e s o u t s i d e t h e a r e a . The a i r d e f e n s e c a p a b i l i t y would

i m p r o v e wi th t h e i n t r o d u c t i o n of s u r f a c e to a i r m i s s i l e in bo th N o r w a y

and D e n m a r k . L a c k of m a r i t i m e a i r suppor t i n t h e N o r t h , i n a d e q u a t e

M - D a y g r o u n d f o r c e s and l i m i t e d s t r i k e f o r c e s would m a k e t h e p r e v e n t i o n

of an a m p h i b i o u s lsmding in N o r t h e r n Norway , o r i t s expu l s ion if e n t r e n c h e d ,

v e r y d i f f i c u l t . With w a r n i n g , t h e s i tua t ion could i m p r o v e to t h e ex ten t

t h a t SACLANT f o r c e s would be in pos i t i on and t h e g round f o r c e p o s t u r e

wou ld h a v e b e e n e n h a n c e d by m o b i l i z a t i o n .

T h e m i s s i o n of de fend ing t h e Ba l t i c S t r a i t s could be f u l f i l l e d in

s p i t e of s h o r t - f a l l s and i t w a s c o n s i d e r e d tha t t h e p a s s a g e t h r o u g h t h e

S t r a i t s cou ld s t i l l be denied t o the e n e m y . The t a s k of i n t e r d i c t i n g s e a

l i n e s of c o m m u n i c a t i o n s in t h e Ba l t i c p r o b a b l y cou ld not b e a c c o m p l i s h e d .

T h i s would m e a n t h a t t h e c l o s e s e a and land d e f e n s e s of t h e Ba l t i c S t r a i t s

wou ld h a v e to w i t h s t a n d a h e a v i e r e n e m y t h r e a t t h a n a n t i c i p a t e d but t h e

i m p a c t of l a n d i n g s m i g h t be n u l l i f i e d by n u c l e a r a t t a c k s .

A F C E N T . D e f e n s e in t h e C e n t e r w a s j e o p a r d i z e d by two o v e r - r i d i n g

d e f i c i e n c i e s ; l a c k of an a d e q u a t e a i r d e f e n s e , and l a c k of s u f f i c i e n t g round

f o r c e s . Though t h e a i r d e f e n s e c a p a b i l i t y had i m p r o v e d , p r i m a r i l y b e c a u s e

of SAC, t h e r a t e of b u i l d - u p f e l l c r i t i c a l l y s h o r t of t ha t d e s i r e d . In 1961

t h e r e would not ye t be an e f f e c t i v e a i r d e f e n s e in t h e C e n t e r . P r e s e n t

i n d i c a t i o n s w e r e t h a t t h e si tuation would s t i l l b e u n s a t i s f a c t o r y in 1963.

T h i s f a c t , w h e n added to the d e l a y in i m p l e m e n t a t i o n of t h o s e s p e c i a l

m e a s u r e s ou t l ined in M C 60, p l a c e d in j e o p a r d y t h e r e s p o n s e of the s t r i k e

f o r c e s to a s u r p r i s e g e n e r a l a t t a c k .

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D e f i c i e n c i e s in g r o u n d f o r c e s of M - D a y and i s t eche lon d i v i s i o n s ,

u n d e r m a n n i n g , andposs ib l e s h o r t a g e s of n u c l e a r d e l i v e r y u n i t s , could

l e a d to c o n s i d e r a b l e r i s k s in fu l f i l l i ng t h e t ype of f o r w a r d d e f e n s e en -

v i s i o n e d in MC 70.

AFSOUTH. In Sou the rn E u r o p e t h e g r o u n d f o r c e s l e v e l f o r a l l

t h r e e n a t i o n s c o n c e r n e d would be m e t in 1959, 1961 and 1963. In f a c t ,

T u r k e y i n d i c a t e d tha t i t would have an e x c e s s of one and t w o - t h i r d s M -I

Day d i v i s i o n s ove r t h a t o r i g i n a l l y p l a n n e d . T h e r e would b e s h o r t - f a l l s in

M - D a y m a n n i n g of d i v i s i o n s , h o w e v e r . All c o u n t r i e s , in the Sou the rn

a r e a , u n d e r t o o k to m e e t M C 70 r e q u i r e m e n t s f o r g r o u n d n u c l e a r d e l i v e r y

u n i t s .

In t h e M e d i t e r r a n e a n , the c o u n t e r n u c l e a r t a s k cou ld be m e t in

1961, a l though s h o r t a g e s would en ta i l a de l ay in s t r i k i n g l o w e r p r i o r i t y

t a r g e t s . S h o r t a g e s in e s c o r t s and m a r i t i m e a i r c r a f t would l e a d to a

h e i g h t e n e d s u b m a r i n e t h r e a t at t he o u t b r e a k of h o s t i l i t i e s and a l ack of !

p r o t e c t i o n f o r s e a l i n e s of c o m m u n i c a t i o n s , in p a r t i c u l a r t h o s e supplying

N o r t h e r n G r e e c e . T h e d e f i c i e n c i e s in 1961 would m e a n tha t t h o s e s u b -

m a r i n e s b a s e d in Alban ia and the UAR would be a b l e t o e n t e r v i t a l a r e a s

of t h e M e d i t e r r a n e a n . M o s t s ign i f i can t du r ing the n u c l e a r p h a s e would

b e t h e d a n g e r to STRIKFORSOUTH. The s h o r t a g e in m a r i t i m e r e c o n n a i s -

s a n c e ove r the B lack Sea would m a k e i t m o r e d i f f i cu l t t o k e e p t r a c k of

t h e e n e m y a m p h i b i o u s f o r c e should i t pu t to s e a . T h i s , t h e r e f o r e , b e c a m e

a d i r e c t m e n a c e e i t he r to t h e S t r a i t s a r e a or e l s e w h e r e along the n o r t h

c o a s t of T u r k e y . Should t h e t h r e a t deve lop , i t would have to be m e t by

n u c l e a r f o r c e s e i t he r at b a s e or on t h e landing - if f o r c e s w e r e a v a i l a b l e .

The r i s k s in t h e South w e r e t h e r e f o r e p r i m a r i l y to f o r c e s o p e r a t i n g

i n t h e M e d i t e r r a n e a n , due to inadequate a n t i - s u b m a r i n e f o r c e s . No r e c o m -

m e n d a t i o n s w e r e m a d e at t h i s s t a g e fo r any c h a n g e s in p l a n s .

G e n e r a l N o r s t a d took the oppor tun i ty p r e s e n t e d by t h e D e c e m b e r 1958

m e e t i n g of t h e Counci l t o p r o t e s t t o t h e na t iona l a u t h o r i t i e s tha t t h e n a t i o n s

25

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a p p a r e n t l y w e r e i g n o r i n g M C 70. The r e c e n t Soviet t h r e a t to B e r l i n

g a v e added we igh t to h i s w o r d s when he e m p h a s i z e d t h e i m p o r t a n c e of

h a v i n g t h e s e f o r c e s - p a r t i c u l a r l y sh i e ld f o r c e s - in be ing . He to ld t h e

Counc i l tha t if h e w e r e c o m p e l l e d to j udge t h e s u b m i s s i o n s m a d e by t h e

n a t i o n s in t h e Annual R e v i e w , t h a t he would s a y t h e y w e r e in generel l

u n s a t i s f a c t o r y . T h i s w a s not only b e c a u s e in m a n y i n s t a n c e s t h e f o r c e s

wou ld b e i n a d e q u a t e but b e c a u s e even t h e ac t ion which n a t i o n s s a i d they

wou ld t a k e t o p r o v i d e t h e s e i n a d e q u a t e f o r c e s w a s in m a n y c a s e s , a s h e

d e s c r i b e d i t , h e s i t a n t and weak . S ince e a c h na t ion a l r e a d y h a d b e e n to ld

i n d i v i d u a l l y by t h e I n t e r n a t i o n a l Staff of i t s d e f i c i e n c i e s i n de t a i l he did

not speak of t h e m .

T h e r e w e r e o t h e r a c t i o n s and a c t i v i t i e s not i nc luded in the Annual

R e v i e w which a l s o would h a v e a d i r e c t b e a r i n g on t h e o v e r a l l p o s i t i o n f o r

A l l i ed d e f e n s e in E u r o p e . T h e r e w a s , f o r example , t h e i n t r o d u c t i o n of

new w e a p o n s . The m i n i m u m f o r c e s which SHAPE a d v o c a t e d w e r e p r e d i -

c a t e d on t h e a v a i l a b i l i t y of new w e a p o n s , which w e r e , in f a c t , a l r e a d y

b e c o m i n g a v a i l a b l e . Goie ra l N o r s t a d po in ted out tha t A C E w a s a t t e m p t i n g

to i n t e g r a t e t h e s e a v a i l a b l e new w e a p o n s in to i t s s y s t e m , but t h e r e had

b e e n d e l a y s . One of the b a s i c p r o b l e m s w a s tha t of f i n a n c i n g ; SACEUR

p o i n t e d l y r e f e r r e d to SHAPE 'S r e c o m m e n d a t i o n >for c o m m o n f inanc ing

of new i t e m s in o r d e r t ha t the w e a p o n s migh t be m o r e r e a d i l y a v a i l a b l e .

He po in t ed out the g r e a t de l ay of i n t e g r a t i o n in a i r d e f e n s e , u rg ing tha t

n a t i o n s g ive i t t h e i r c l o s e s t a t t en t ion . He noted tha t SHAPE w a s in a

p o s i t i o n to m o v e a h e a d wi th the F o r w a r d Sca t t e r S y s t e m .

G e n e r a l N o r s t a d conc luded h i s ta lk to the Counci l by s ay ing : " . . . .

if we a r e t o a c h i e v e a p o s i t i o n of s t r e n g t h which i s a c c e p t e d a s e s s e n t i a l

f o r the s e c u r i t y and w e l f a r e of our peop le , t he g o v e r n m e n t s of the Al l ianc

ind iv idua l ly and c o l l e c t i v e l y , m u s t c l e a r l y u n d e r s t a n d the p r o b l e m s , tha t

i s t he m i l i t a r y p r o b l e m s , b e f o r e t h e m and a s s u m e the p r i m a r y r e s p o n s i -

b i l i t y of s u p p o r t i n g t h e a c h i e v e m e n t of t h e s e g o a l s for the A l l i a n c e . "

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"MC 70 with i t s a p p r o v a l by the Counci l i s your s t a t e m e n t of

r e q u i r e m e n t s . It i s not a t r e a t y ; i t i s not a nego t i a t ing p a p e r . It i s a

s t a t e m e n t of what y o u r m i l i t a r y e x p e r t s , a s wel l a s t h o s e of the Al l i ance ,

c o n s i d e r the m i n i m u m f o r c e s n e c e s s a r y to a c h i e v e our n e c e s s a r y a i m s .

We wi l l be s t r o n g if you f a c e t h i s r e s p o n s i b i l i t y and give c l e a r and p o s i t i v e

e v i d e n c e of your d e t e r m i n a t i o n to f a c e up to t h i s p r o b l e m a s you have in (13) V

the p a s t f a c e d up to o the r m a j o r i s s u e s . m

R e v i s i o n of M C 70.

On 24 N o v e m b e r t h e Standing Group , in t a lk ing with S u p r e m e

C o m m a n d e r s , had p r o p o s e d c e r t a i n m i n o r r e v i s i o n s tha t would have to be

m a d e to M C 70. The Standing Group be l i eved and G e n e r a l N o r s t a d con -

c u r r e d , tha t the f o r c e r e q u i r e m e n t s f o r 1959» i960 and 1961 would con -

t i n u e to be s u b s t a n t i a l l y a s i nd i ca t ed , excep t where t hey m i g h t have t o be

m o d i f i e d b e c a u s e a change in t i m e p h a s i n g a p p e a r e d d e s i r a b l e or a r e -

a l l o c a t i o n be tween n a t i o n s a p p e a r e d a d v i s a b l e . New c a p a b i l i t i e s m i g h t n e -

c e s s i t a t e r e v i s i o n s of f o r ce r e q u i r e m e n t s f o r 1962, 1963 and 1964. The

Standing Group had in m i n d pub l i ca t i on of a r e v i s e d MC 70 about 1 M a r c h

1959 a s a b a s i s f o r t h e 1959 Annual R e v i e w . On 30 D e c e m b e r 1958,

D C P A N D P a d d r e s s e d t h e a p p r o p r i a t e s taff d i v i s i o n s on t h i s m a t t e r , s t a t ing

tha t he wanted Div is ion Ch ie f s of t h e s e d i v i s i o n s to m e e t wi th h i m in o r d e r

to i d e n t i f y t h o s e i t e m s in the c u r r e n t MC 70 which migh t have t o be changed .

T h e r e m i g h t , f o r e x a m p l e , be c h a n g e s in the p h a s i n g of i n t r o d u c t i o n of

n e w w e a p o n s b e c a u s e of ho ldups in the i n t r o d u c t i o n of c o u n t r i e s ' new

p r o g r a m s . T h e r e m i g h t be exchange of c o m m i t m e n t s b e t w e e n n a t i o n s . As

an e x a m p l e , the G e r m a n - N e t h e r l a n d s exchange of one r e c o n n a i s s a n c e

s q u a d r o n f o r one SSM s q u a d r o n w a s c i t ed .

(13) V e r b a t i m R e c o r d , Mee t ing of . the Counci l , 17 Dec 58, C-VR(58)63 , 17 Dec 58.

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The s t r a t e g i c s tudy s e c t i o n of P A N D P Div i s ion w a s c u r r e n t l y

u n d e r t a k i n g an a n a l y s i s of t h e Soviet m i s s i l e c a p a b i l i t y in 1964. They

w e r e a l s o p r e p a r i n g a l o n g - r a n g e s t r a t e g i c a p p r a i s a l of the p e r i o d 1965-

1970. A g a i n s t t h e b a c k g r o u n d of t h i s 1965-1970 p e r i o d , t h e i m p a c t of

s h o r t - f a l l s r e p o r t e d in c o u n t r i e s and r e p l i e s to t h e Annual R e v i e w 1958 (14) wotild h a v e t o b e s t u d i e d by SHAPE. * '

B a l a n c e d C o l l e c t i v e F o r c e s Concep t .

In p r e p a r i n g t h e M i n i m u m F o r c e Study 1958-63 , SHAPE had p l a c e d

s o m e e m p h a s i s on t h e p r i n c i p l e of b a l a n c e d c o l l e c t i v e f o r c e s and had begun

c e r t a i n s t u d i e s t o d e t e r m i n e how t h i s concep t migh t be app l i ed in Al l i ed

C o m m a n d E u r o p e . T h i s concep t w a s not n e w s ince in M a y 1950 b e f o r e

t h e c r e a t i o n of S H A P E t h e N o r t h At l an t i c Counci l had p a s s e d a r e s o l u t i o n

u r g i n g a l l m e m b e r s of the A l l i a n c e t o " c o n c e n t r a t e on the c r e a t i o n of

b a l a n c e d c o l l e c t i v e f o r c e s r a t h e r t h a n b a l a n c e d n a t i o n a l f o r c e s . " In a c -

t u a l i t y , t he o v e r a l l f o r c e r e q u i r e m e n t i nc luded in M C 70 r e p r e s e n t e d the

b e s t c o m p o s i t i o n f o r a b a l a n c e d c o l l e c t i v e f o r c e , wh i l e the c o u n t r y b r e a k -

down i n c l u d e d in M C 70 r e p r e s e n t e d a p r a c t i c a l c u r r e n t so lu t ion t o a t t a i n t h i s

o v e r a l l f o r c e . On 3 M a r c h 1958 t h e Standing Group f o r w a r d e d to SHAPE

a m e m o r a n d u m w h i c h had b e e n d i r e c t e d t o t h e N o r t h At l an t i c Counc i l on

t h e s u b j e c t of b a l a n c e d collective f o r c e s . SACEUR w a s a s k e d to c o n s i d e r

t h e q u e s t i o n of b a l a n c e d c o l l e c t i v e f o r c e s in r e l a t i o n to s p e c i f i c a r e a s

and t a s k s , t a k i n g n a t i o n a l v i e w s in to c o n s i d e r a t i o n when m ak ing h i s r e -

c o m m e n d a t i o n .

It w a s obv ious t h a t any d e c i s i o n on t h e i m p l e m e n t a t i o n of b a l a n c e d

c o l l e c t i v e f o r c e s m u s t be accep tab le t o the m i l i t a r y a u t h o r i t i e s but t ha t

a c t i o n l e a d i n g t o n a t i o n a l i m p l e m e n t a t i o n would be p r e d o m i n a n t l y p o l i t i c a l .

(14) F o r d e t a i l e d a s s e s s m e n t of p l ann ing r e s p o n s i b i l i t i e s a s of 30 D e c e m b e r

1958, s e e M e m o r a n d u m s u b j e c t " F o r c e R e q u i r e m e n t s P lann ing beyond C u r r e n t MC 70" , s igned D C P A N D P , 30 Dec 58.

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It was certainly feasible that progress could be made particularly in

limited fields and in local areas. This would require careful study of

each area and task, and consideration of such things as geographical

features, national characteristics and national commitments. With the

introduction of new weapons, the application of this balanced collective (15)

force principle could be easily applied in that f i e ld / '

On 15 April 1958 SHAPE sent comments to the Standing Group on

i ts paper. SHAPE realized that concrete recommendations which might

be agreed between SACEUR and national authorities could evolve only

slowly and in piecemeal fashion. Certainly the validity of MC 70 force

breakdowns would not be affected by the application of the balanced col-

lective force concept. The SHAPE definition stated: " Balanced collective

forces may be defined as forces of one or more service furnished by more

than one nation to fulfill the specific mission for which they are designed. Thfe

composition of the several, national contributions, which need not be ba-

lanced in themselves, i s determined by allocated roles and missions to

member nations, in such a way as to achieve maximum economy of re-

sources and overal military effectiveness. The concept of collective balance

also includes the consolidation and integration of the national training

and logist ics facilities which support these forces." Certain other recom-

mendations for revision of the Standing Group draft study were forwarded

by SHAPE. 6^

The Strategic Studies Section of PANDP Division was assigned the

task of preparing a detailed study during 1958 of all aspects of balanced

forces plans. On 4 August 1958 SACEUR and his key officers were briefed

on the findings of this study, of which a portion was devoted to the

(15) Memorandum for Secretary General, NATO, sub: "Concept of Balanced Collective Forces, " SGM-130-58, 3 Mar 58.

(16) Message SHAPE to SGN, SHAPTO 1638, 15 Apr 58.

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redistribution of tasks and the balancing of force contributions. Following

the briefing, SACEUR expressed his opinion that much morecould be done

in balancing ground and naval contributions. He approved a recommen-

dation by the Study Group to reconsider the distribution of the longer-range

ground nuclear delivery systems to achieve greater military effectiveness

and economy.

Force tables had been drawn up to accompany the study but it was

extremely difficult to arrive at a satisfactory set of proposals. General

Norstad pointed out that any application of the concept rested with the

nations but that the impetus must certainly come, at least in the beginning,

from NATO military authorities. Considerable discussion was carried on

concerning the feasibility of producing a proposal for collective balancing

of forces based solely on military factors and aiming at an ideal solution.

SACEUR believed that the most promising area for further study was in

the integration of training resources. He directed that the Major Subor-

dinate Commanders be given the annex to the study dealing with integration

of training resources and that this be discussed with them. General Norstad

directed that examination be made to determine whether i t would be possible

to integrate the pilot training for the German Air Force with that of

another country and whether or not it might be feasible to establish NATO

schools below the level of the NATO Defense College to promote instruc-

tion on NATO tactical doctrines and staff procedures.

On 26 May 1958, the Standing Group forwarded to the Military

Committee its final paper on balanced collective forces. This document,

MC 81, was passed to the Military Committee and approved by them on

2 October 1958.^17^

(17) The "Study on Balanced Collective Forces" prepared by SHAPE may be seen in the f i les of PANDP Div, SHAPE, or of the Adjutant General Div, SHAPE. See also Memo, sub: "Balanced Collective Forces Study, " PANDP 1240/2, 20 Aug 58; see also MC 81 (Final Decision), 3 Oct 58. Detailed information on balanced collective forces studies may be obtained from these documents.

30

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On 27 October 1958, the Standing Group directed SACEUR to make

recommendations under the provisions of MC 81 on the extension of the i

principle of balanced collective forces in relation to specific regions and

tasks, taking national views into consideration. These were sent on

25 November.^

SHAPE had already suggested areas for possible logistics conso-

lidation, including movement and transportation, road transport operations,

receipt and distribution of POL and specialist military engineering acti-

vities. Certain proposals for consolidation of effort with regard to training

were discussed with the Major Subordinate Commanders and the national

authorities. It was believed that the introduction of new weapons systems

would provide future opportunities for further application of the principle (19)

of balanced collective forces.

Netherlands Tactical Group.

To enable CINCENT to defend further to the East as intended during

the transition period 1958-1959 and to develop later a complete forward

strategy, General Valluy had recommended to SACEUR that certain steps

should be taken immediately. The Netherlands Land Forces, he believed,

in order to reach their battle positions much more quickly than was

currently possible and at the same time to improve their combat readi-

ness, should have a significant formation stationed in Germany in peace-

time. General Speidel had originated this proposal. CINCENT suggested

that a Netherlands Brigade be stationed in Germany at the earliest possible

date and that the periods between reliefs of this brigade be fairly short in

order to avoid having to provide family quarters in Germany.

(18) SGM-691-58, 27 Oct 58. (19) Letter to Standing Group, sub: "Balanced Collective Forces, "

25 Nov 58, AG 1240/2 PANDP.

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CINCENT proposed as the next step that sufficient logistic supplies

be built up East of the Rhine/ljssel line since restrictions on movements

and the fact that the combat zone must be self-sufficient in logist ics re-

quirements made this necessary. He felt that there should be a total of

15-days stock of supplies disposed on the East of the Rhine. This would

entail a logistic organization to bridge the existing gap between the national

bases in the communication zone and the Corps rear boundary. SACEUR

authorized CINCENT to undertake negotiations with the governments con-(20)

cerned on this mat ter / '

During 1958, negotiations were undertaken by CINCENT with the

Governments of Germany and the Netherlands to arrange for the stationing

of a Netherlands Tactical Group in Germany during peacetime. Both

governments concerned agreed to support this deployment in principle.

The obstacle remaining at the end of 1958 was a lack of suitable quarters

for stationing this formation in Northern Germany. SACEUR lent his

weight to CINCENT's recommendations by writing to Mr. Strauss, MOD Germany, asking his personal assistance in bringing about a solution to

(21) this problem/ '

is German Forces in Schleswig-Holstein.

In early July, Danish authorities visited SHAPE and at that time

inquired as to the s ize and composition of German forces which it was

planned would take over the defense of Schleswig-Holstein. Until early

1958, defense of this area had been the responsibility of Danish and UK

forces , but theBe had been withdrawn and Germany had been assigned

the t a s k / 2 2 )

(20) Msg, SCO IN 46870, CINCENT to SACEUR, 30 Dec 57. (21) Ltr, SACEUR to MOD Germany, 28 Nov 58, AG 1140 PANDP;

AFCE/207/58, 28 Oct 58. (22) For details of the Schleswig-Holstein problems and the events leading

up to assumption of responsibility by Germany, see Chapt.III, 1957 SHAPE History; the effective date of this action was 15 April 1958.

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SHAPE notified the Danes that, although only elements of a German

infantry division and an armored combat group were presently located in

Schleswig-Holstein, it was intended within the next several years to build

German ground strength in the area up to a full infantry division, an ar-

mored combat group and corps support units. These units would change

designation, since it had been agreed with German authorities that they

might, during this period, take elements of existing units to form new ones.

The Germans also had tentative plans for establishing and deploying

certain air force units in Schleswig-Holstein. This included two squadrons

of fighter bombers by the end of 1959, two IDF squadrons by the end of

i960; and two reconnaissance squadrons, possibly equipped with LWSR,

by mid-1961.( 2 3 )

Control of German Demarcation Line.

One of the problems which CINCENT faced was that of controlling

and supervising the demarcation line between East and West Germany.

Units of the various NATO nations authorized by existing treaties to have

forces on the demarcation line, supervised this line. German forces in

the area, the PGS, were under control of the Ministry of the Interior of

the German Federal Republic. There was by mutual agreement a great

deal of coordination between certain PGS units and the US Army Cavalry

units located in the same area.

COMLANDCENT recommended on 29 September 1958 that these

German units be placed under NATO operational control with the declara-

tion of the simple alert or of the orange alert in the case of counter-

surprise measures. This obviously was the first step in the direction of

asking for complete authority to have these German units supervise the

(23) Ltr, General Schuyler to Admiral Qvistgaard, 30 JxU 58, SH 114/54. DE

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demarcation line. '

SHAPE forwarded this letter on surveillance arrangements along

the German frontier to the German Minister of Defense, Mr. Strauss.

CINCENT was told that SHAPE agreed with his conclusions and that this

problem would be kept under active and close review.

Reduction of Danish Defense Effort.

The SHAPE Annual Review visiting team was told in Denmark that

to implement the MC 70 forces would require an increase in the ahnual

defense budget of forty percent. However, there was every indication in

Denmark that the intention was to decrease the defense budget. Danish

military authorities had been directed to submit overall re-organizations

plans based upon each of several different budgetary figures. The Danish

Parliamentary Defense Committee was expected to make a dedision with

respect to military support about 1 October.

SHAPE attempted to estimate what the impact of reduced budget

support in Denmark might be v i s - a - v i s the MC 70 Force Tab. It appeared

that Army M-Day forces would be reduced from the required three brigade

troops to two, and that second echelon forces would be considerably reduced

or might even be wiped out entirely. On the air forces, there was little

information available but it appeared probable that instead of three ulti-

mately-programmed NIKE battalions, Denmark would have only one, while

it was likely to have no surface-to-surface miss i l es squadrons although

one was called for by MC 70. The naval for ces would suffer a reduction

of 50% in its required destroyer strength and a substantial cut in patrol craft.

In short, it appeared that MC 70 would require 40% more funds in Denmark (25)

than would be voted/ '

(24) CINCENT to SACEUR, sub: "Control and Supervision of Demarcation Line between East and West Germany, " dtd 29 Sep 58, 1240/ jPO/PP/427.

(25) Memorandum for DCPANDP, sub: "Annual Review Denmark-Norway, " 4 Jul 58, from PANDP, PANDP 2103.

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While the re-organization being contemplated was only in the

preliminary stage, a trend was apparent which could dangerously weaken

NATO's defenses. SACEUR told the Minister of Defense, Denmark, on

5 August that he knew of no change in the war situation or development in

the military position of NATO, or of any lessening in the importance of

defending Denmark and the Baltic exits which would justify any reduced

defense effort. This position was supported by the latest political and in-

telligence estimates. SACEUR cited MC 70 as proof that national requi-

rements had been determined and that national authorities without exception

had agreed to these requirements. Any successful defense against enemy

attack in the event of war would require that the military commanders be

provided with forces of the general type and magnitude indicated in MC 70.

Should Denmark reduce her effort, other nations might feel justified in

doing the same thing. Re-organization of Danish defense forces was cer-

tainly a commendable measure if improvement of overall capabilities

was the goad. However, the gap between the forces required of Denmark

in MC 70 and the forces which would be possible under a reduced budget

could hardly be spanned by re-organization. SACEUR expressed the hope

that before any decision was taken to reduce the defense budget his views

on the over-riding importance of meeting MC 70 requirements be placed

before the Parliamentary Defense C o m m i t t e e / 2 ^

Removal of Certain Forces.

Certain troops were removed from SACEUR's command and others

placed on a stand-by status awaiting possible removal during the Middle

East cr is i s of mid-1958.

The US and UK authorities withdrew forces from SACEUR's area

(26) Ltr to MOD Denmark from SACEUR, 5 Aug 58, AG 0720 PROG. (27) SHAPE 112/58, 28 Jul 58.

35

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of command and control on an emergency basis during the 1958 Middle

East cr i s i s . On 16 July 1958, US authorities told SACEUR that, in view of

the situation in the Middle East, they found it necessary to move two

airborne battle groups of the US Forces in Germany to Lebanon, using

transport aircraft based in Europe. At the same time the UK, as well

as removing certain F85D aircraft, announced that it was withdrawing an

infantry company and a squadron of Canberra aircraft, again on a tempo-

rary basis . ^ ^

SACEUR's Report to SGN on Force Reductions.

Under his terms of reference SACEJR was required to report to

the Standing Group an estimate of the military effects of the transfer of

any forces by the nations from his command. Accordingly, on 18 July

1958, he told the Standing Group that neither the temporary transfer of

the UK Canberra squadron nor the removal of eight US aircraft would si-

gnificantly affect his overall air capability in Central Europe. "My atomic

strike plan can in an emergency still be carried out as planned. My air

defense capability, though slightly affected, will remain essentially at

normal level ."

With regard to his land forces in Central Europe, the loss of one

infantry company from the UK Forces was not significatn. Of the two US

airborne battle groups, one had already been transferred and the other

was remaining in Germany on a 24-hour alert. However, when the other

group had been transferred the 24th US Division would have been reduced

to 60% of its normal battle group strength.

"In summary, " General Norstad told the Standing Group, "the trans-

fer of the forces discussed above, while not in itself of great consequence,

(28) Msg, SH 40521, 16 Jul 58; Msg, SH 45022, 16 Jul 58.

36

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will further deplete the already inadequate forces available for defense

of the Central Region. In the present period of heightened tensions, re -

, suiting from the Middle East situation, any significant reduction in forces

in the vital Central area i s a serious concern. I hope that the nations con-

cerned will make every reasonable effort to replace forces withdrawn as (29)

early as practicable.'" '

These forces were returned to SACEUR's control following the

lessening of tension in the Middle East.

Tactical Airfields for the German Air Force.

One of the thorniest problems facing SHAPE during 1958 was the

matter of developing sufficient tactical airfields to support the expanding

German Air Force. It was not a matter of not having enough airfields in

Allied Command Europe, but rather of mal-distribution and a political

concern in which certain nations were reluctant to move forces purely on

military grounds.

There were programmed for construction in the Central Region

133 airfields of which 105 were either completed or under construction.

Of the 28 airfields which had been programmed but not started, 24 were

located in Germany and four in France. Based on 1958-1963 force goals,

the total requirements for tactical airfields were for 106 in 1958 and 105

in 1963. During the interim there would be an additional requirement,

fluctuating from year to year, which would reach a peak of 114 airfields

in 1961.

With the build-up of the German air force, it became obvious that

the Germans must have some place to station their tactical fighter squadrons

and wings, antithese fields could come only from new construction or

from redeployment by moving units of other nations from airfields in

(29) Msg to Standing Group. SH 40530, 18 Jul 58; SH 112/58, 28 Jul 58.

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Germany to airfields elsewhere in the Central Region, particularly

lb Belgium and the Netherlands, perhaps in France. In other words,

although the total number of airfields available in ACE was already in

line with MC 70, these airfields were not located in the right places. It

wotxld be necessary to build additional airfields in the right places, thus

exceeding the numerical total of MC 70 requirements, to move some units,

or to curtail the deployment of the German Air Force.

To SACEUR the obvious solution was for the nations occupying

airfields in Germany to move to other available fields. To this end,

during 1958, certain negotiations were undertaken, but unsuccessfully.

NATO airfields in Germany were occupied by, or assigned to, tactical

units of Canada, France, the UK and the US. Canada and France had two

fields each, the UK occupied seven and the US occupied nine. Unfortunately

for the progress of negotiations to move these forces, the individual nations

had made major investments to provide facil it ies nationally at these NATO

airfields. Dependents' quarters, officers' clubs, soldiers' billets, theatres

and numerous other installations and improvements had been built at na-

tional expense. SHAPE realized that the countries required to redeploy

from long-established airfields, fully provided with all facilities, including

those nationally financed, would be extremely reluctant to move unless

assured that this could be accomplished without cost to their governments,

and with assurance of receiving a fully operational airfields in lieu of

those relinquished. Germany, on the other hand, would certainly want to

be assured that it had received full and proper value for any funds spent

to duplicate in kind at othe^bases facil it ies recdved on airfields in Ger-

many, and that the resultant military posture of the German air force

would be acceptable. Another aspect bearing on the problem was the fact

that approximately L 31 million in NATO funds could be saved if eleven

unstarted airfields in Germany and four in France were cancelled since

they could not be developed to meet minimum NATO requirements. The

38

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costs charged to Germany for replacement of national infrastructure given

up by the nations whose units were being deployed as well as the cost of

moving these units might in great measure be off-set by a reduced re-

quirement for German national infrastructure and by reduction in expen-

diture for land acquisition and provision of airfields utilities. In early

1958, the SHAPE staff recommended that SACEUR assign action on this

matter to CINCENT and that he approach the permanent representatives

of the nations concerned to obtain their acceptance in general to movement

of their units from German airfields. On 25 February 1958, SACEUR sent

to General Valluy a detailed SHAPE study on this problem. He aeked him

to consider the extent to which requirements could be met by possible de-

ployment of forces to take maximum advantage of available airfields through

Central Europe. Heasked also that General Valluy discuss this as appropriate

with national authorities and send his recommendations to SACEUR. ^ ^

Representations to SACEUR by MOD Bonn. On 28 March 1958,

the Minister of Defense, Germany, reminded SACEUR that the GermanB

were having difficulty in building up their air forces because of the infra-

structure situation and asked for further help on this matter. He said that

because of the limited airfields available, German airfields to be activated

in 1958 could be deployed but that flying operations would only be possible

to a very restricted extent and in some cases not at all. He predicted that

the airfield situation would further deteriorate in 1959 since new airfields (31) construction would not be completed in time.v

SACEUR's Reply. On 24 April, General Norstad told Mr. Strauss

that he fully appreciat ed this problem, and that he was considering the

(30) Memorandum subject "Tactical Airfields for the German Air Force" to CINCENT, 25 Feb 58/ with enclosure "Study on Airfields for GAF, " AG 6100 PANDP.

(31) Mr. Strauss, MOD, to SACEUR, 28 Mar 58.

39

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advisability of moving certain non-German units from airfields in

Germany to available fields in Belgium, France and the Netherlands.

This would permit the vacated fields to be used by German squadrons.

In this connection, the nations moving units from Germany would undoub-

tedly expect to have certain facilities constructed at their new locations

an4 would probably ask compensation for the costs resulting from the move.

These anticipated expenses must, however, be compared to the alterna-

tive costs to the German government of procuring land and constructing

new airfields in Germany, He also said that he had asked General Valluy

to investigate all the aspects of this plan and report his findings by the

end of April. He anticipated that specific proposals to the nations con-

cerned could be made shortly after that date. General Norstad informed

Mr. Strauss that he would be kept fully informed of SHAPE'S progress

on this matter and would certainly be consulted before any final action

was recommended .^^

It was not until August that SHAPE received a report on the nego-

tiations from General Valluy's Headquarters, a report that revealed un-

satisfactory progress in gaining national approval for redistribution of

airfields in the Center. AIRCENT which had prepared the brief on the

matter, refused to accept responsibility for arranging the handover of

Allied airfields in Germany, claiming that these negotiations could be

handled only by SACEUR. The AIRCENT Staff held that this was mainly

a political and economic matter in which AIRCENT, in fact, was not em-

powered to negotiate with/nations. The views of the various nations con-

cerned and a report of their replies to AIRCENT on the question of moving

their forces from Germany were forwarded to SACEUR. All of them were

non-committal and certainly not encouraging. The conclusion reached

by AIRCENT stated: "AIRCENT wishes to re-iterate the belief that this

(32) Ltr l SACEUR to Mr. Strauss, MOD Germany, 24 Apr 58.

40

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highly intricate matter was approached wrongly and feels that SACEUR

himself should bring it before the NATO Council. It will be noted that in

not one single answer has a nation even hinted at its views on the political

economic or legal aspects of the proposals. AIRCENT i s convinced that no

real progress can be made before agreement in principle on all aspects

has been reached in the Council. To hold a formed meeting with the nations

in the near future is considered premature until the Council has given its

blessing."

MOD Bonn's Reply to SACEUR. Mr. Strauss, the Minister of Defense,

Germany, finally became impatient and on 22 October 1958 sent a strong

letter to General Norstad pointing out that the German air force would be

short of at least three airfields in 1959 if it was to fulfill the commitments

of Germany under the Annual Review. Mr. Strauss said, "I thought this

commitment could be accepted since you informed me ... that you would

arrange for measures to be taken to eliminate the existing deficiency of

airfields for the German air force and I could therefore assume that the

requirements for 1959 could thus be covered too." Mr. Strauss continued:

"...if the allocation of at least two wing main airfields for the 1959 activation

program is not possible thanks to your kind assistance, the activation pro-Il

gram of the German Air Force will have to be reduced in 1959 accordingly.'*

SACHJR was particularly concerned over this letter because recent

developments had given him the impression that the German airfield situation

was looking up. For example, the German reply to the Annual Review 1958

briefly mentioned some lack of airfields but the detailed report on the air

force did not mention any specific short-fall. Again, when the SHAPE

visiting teams had called at MOD Bonn early in the year, information was

given them which tended to disprove that there would be a lack of airfields

before i960. However, information given AIRCENT's representatives when

(33) Ltr, MOD Bonn to SACEUR, 22 Oct 58.

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they visited Bonn on 17 October did indicate that there would be delay

in completion of three major airfields in Germany and that a review of

estimates might be necessary. Several airfields had been released to the

German Air Force during the year and it seemed that at least one additional

field would be made available during 1959. Realizing that it would not be

possible in the immediate future to convince nations to move their forces

from airfields in Germany, SACEUR decided that an emergency measure

was justified if the'planned activation rate for the German Air Force was

to be kept. This emergency measure involved the authorization by SHAPE

for the development of three squadrons per airfield by the German Air Force

until German airfield construction could catch up with the agreed plan.

Most NATO and national air base facilities were inadequate for the support

of three squadrons and to convert to a permanent three-squadron standard

would be a risk which should not be taken. However, since the existing fore-

cast indicated a comparatively low strength in flying personnel for German

Air Force units during the next few years and ther.e appeared to be no accep-

table alternative solution, SHAPE was compelled to accept the risk inherent (34) in a more concentrated deployment/

Annual Review 1959.

In late 1958, indications developed that both SACLANT and CINCHAN

wished to cancel the Annual Review Procedure for 1959 although the

StcUiding Group had called a meeting with Supreme Commanders on 24 No-

vember to discuss this question, j „

WTiile the SHAPE staff members concerned with the Annual Review

felt that certain aspects of AR procedure might well be changed, they

believed it essential to SHAPE planning and operations that the basic elements

of the Annual Review was the only means available by which NATO secured

(34) Ltr, SACEUR to MOD Bonn, 31 Dec 58, On this same subject see also AAFCE COS 1596/9/9/58, (STSC/90l/58 and AIRCENT 181/58).

42

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formal commitments from the nations on their total programs for future

years, however conditional or incomplete these commitments might be.

This formal procedure had the effect of forcing countries to consider their

defense programs from a NATO viewpoint and had therefore, a beneficial ef-

fect on the general coordination of the NATO effort.

The Annual Review formed an essential basis for an orderly progres-

sion of SHAPE planning and programming. This was especially true since some

countries had failed to project their force goals beyond 1959 in the current

Annual Review, and experience had shown that many countries changed (35)

details of their previous provisional and planning force goals almost yearly.

Neither SACLANT nor CINCHAN raised the issue of cancellation of

the 1959 Annual Review at the 24 November meeting of the Standing Group

and Major NATO Commanders. SACEUR referred to the Standing Group

view that a new document should be prepared carrying force requirements

for I959» i960 and 1961 in substantially the same form as MC 70, except

that modifications would be made to indicate any accepted change in the

timing as a result of the current Annual Review, and any re-âllocations

between countries which might become desirable as a result of this. SACEUR

stated that he agreed in general with this procedure. However, the question

of 1964, which went beyond the SG proposal would then arise. ThiB entailed

projecting MC 70 and revising it on an annual basis with a view to projecting

one year forward in order to remain five years ahead. SHAPE believed that

before requirements for 1964 were promulgated, consideration should be

given to the period, 1965-1970 since this would constitute an important

period in which big miss i l es would be introduced, SACEUR felt therefore Z36V that this period should be studied before any firm plans were made for 1964.

(35) Memorandum for the Chief of Staff from ACOS PROG Div, 22 Nov 58, PROG 2100 AR-190/58; SCO IN 07647, 18 Nov 58.

(36) Record of Mtg, SG with Major Commanders, 24 Nov 58, SG 411, 1 Dec 58.

43

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Operational Compatibility of Ground Divieiona in Central Europe.

The Heads of Government of the NATO nations, had,at their meeting

in December 1957 expressed the opinion that "better use of the resources

of the Alliance and greater efficiency for its forces will be obtained through

a degree of standardization and integration as high as possible. . ." General

Norstad sought all means within his authority to achieve this high degree.

One way in which this might be done was by the re-organization and equip-

ment of the ground divisions, particularly in Central Europe, where variations

existed in divisional organization of the various nations, even of those who

would operate on the same front or sector side-by-side.

Less than two months following the announcement by the Heads of

Government, SACEUR addressed himself to CINCENT on this matter, refer-

ring to the study which CINCENT ordered in June 1957, which had been sent

to SACEUR and the MODs concerned. General Valluy was told: "... in the

light of real i t ies of the present situation, the adoption of a fully standardized I divisional structure agreed by all nations of Central Europe i s probably not

an achievable objective, nor does this appear entirely necessary in order

to arrive at the efficiency and economy of resources desired. It is , however,

highly desirable that the various national divisional organizations not differ

so widely from an average "norm" that they are incapable of operating

effectively together within our NATO Command and Control system."

SACEUR asked that CINCENT conduct an examination of the various

divisional structures within his command to determine the minimum orga-

nizational changes which should be adopted in order to insure a high degree

of operational compatibility for all of his ground forces. He sent General

Valluy a SHAPE document setting forth guidelines for a proposed conference

on this subject to be held at Fontainebleau, prior to discussions with national

authorit ies / 3 7^

(37) Ltr, SHAPEto CINCENT, AG 2160 OT, 13 Feb 58, w/enclosure.

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CHAPTER III

STRATEGIC PLANNING

General.

SHAPE, In nearly every aspect of its activities, was a planning

headquarters, for the defense of Western Europe. This defense had two

major objectives - first by the prevention of war through maintenance

of demonstrable and convincing strength and secondly, should war come,

to win that war acting upon prepared plans.

The staff agencies directly responsible for this type of planning

were the Plans and Pol ic ies Division (PANDP), headed by Major General

Puget, Fr AF, and in atomic matters only, the Air and Special Operations

Division, under Major General Coiner, USAF. The PANDP Division in

its planning operated directly under the Deputy Chief of Staff Plans and

Policy, Lt.General Foertsch, German Army, while AIROPS, because of

the operational aspects of its work, generally was in charge of the Deputy

Chief of Staff for Operations, Air Marshal Dunlap, RCAF.

The year 1958 did not see any drastic revision of the policies and the

higher strategic direction on which SACEUR was required to base his stra-

tegic planning. The approval of MC 70 only gave further authority to the

policy which SHAPE had already established for itself the previous year

In the Minimum Forces Study. MC 14/2, MC 48/2 and the Political Direc-

tive remained unchanged during 1958.

Intermediate Range Ballistic Miss i les .

With the development by the United States and Russia, and by certain

other nations on a more limited scale, of medium range guided miss i les ,

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f it became apparent that the logical next step in the development of a

nuclear weapons delivery system would be the introduction of such miss i l e s

as were available to the Western Powers into the arsenal of Allied Command

Europe* Scientific developments by 1958 had made possible the provision

of Intermediate Range Ballistic Miss i les (IRBMs) to SACEUR's forces

within the foreseeable future. While manned aircraft would still be depended

upon to a large extent, their limitations became increasingly evident as the

Soviets developed their miss i le capabilities. The most important limita-

tions were reaction time, vulnerability to attack, and all-weather capability.

It became necessary that the Western Powers develop and maintain

a weapons system which could survive a surprise attack and deal a reta-

liatory blow to the Soviets. Other types of miss i l es , particularly surface-

to-air mis s i l e s and anti-tank miss i les , were already being integrated as

far as possible into SACEUR's forces.

Any initial Soviet attack would undoubtedly be aimed at neutralizing

the West's nuclear capability and air power. The possession of the IRBM

would significantly enhance SACEUR's defensive posture as well as his

'offensive nuclear capability. Missi le bases could be much smaller, more

dispersed, and infinitely more difficult to locate than manned aircraft

Installations. Additionally they could be deployed away from large popula-

t i o n centers and other facilities and were more readily "hardened." These

factors would tend to reduce their vulnerability to attack, and, if attacked,

would limit the dangers to non-military activities.

SACEUR would be responsible for determining from the military

standpoint the general allocation within his command of IRBM units as they

became available. It was known, before study at SHAPE had gone far, that

military considerations would not demand a specific deployment pattern

within Allied Command Europe.

I SACEUR's Views on IRBMs. Shortly before the Heads of Governments

^met in Paris in December 1957, General Norstad had gathered his key

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planning advisors and had expressed to the'fti jv.er!y frankly his viéws on the

IRBM. He stated that he had taken the initiative with his superiors on the

matter of distributing IRBM weapons systems in Europe, He hoped as a

result of this that the United States would announce at the forthcoming meet-

ing of Heads of Governments that it would make effective IRBMs available to

NATO within a very short time. He felt that the target date for this avai-

lability should be the end of 1958, since this would be the earliest time at

which SHAPE could solve all the problems which could arise in positioning

these weapon systems. General Norstad emphasized the community aspects

of any plan of this nature wherein NATO would make a collective decision

of accepting or rejecting the concept of placing IRBMs in Western Europe.

Should the decision be made by NATO to accept these weapons from the

United States, the NATO Council acting on the advice of its military com-

manders would determine in which countries the weapons systems should

be positioned. Thereafter the United States would work out bilaterally the

necessary details with the individual nations concerned.

SACEUR's view was that any NATO nations possessing IRBMs would

posses s them primarily in the interests of NATO and not nationally. Con-

sequently, SACEUR would expect to have greater peacetime control over these

weapons than over the normal weapons. He felt that this weapons system

should be so organized as to be under his operational control in peacetime

as well as in war, either directly or through the Major Subordinate Com-

manders, and he directed that the SHAPE Staff study the command and

control aspect of the IRBM s. As an example, he pointed out that what he

wanted was something similar to his de facto control in peacetime over the

US 3rd Air Force. The problem of the development was also a matter which

he directed the SHAPE Staff to study.

His view was that the primary task of the IRBM would be to thicken

coverage of the deep targets in his area of responsibility, targets in Poland

for instance. During his talk with US national authorities and the Standing

r«f iCfT.ii ZT-TOP—SBGftg^

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Group, SACEUR had stated that he would reduce at least one squadron of

aircraft called for in the Minimum Force Study totals for each IRBM

squadron which was made available in NATO Europe. With the range

advantage which the IRBM possessed over the weapons presently available

to SACEUR, wovild undoubtedly come the secondary task of taking on stra-

tegic targets in the USSR which were outside his present targeting respon-

sibility. This would require coordination with, and possible adjustment

of, the forces structure of external strike forces . Information available to

SHAPE indicated that the f irst IRBM squadron would have 15 miss i les , each

with five and possibly 15 launches. These miss i l e s would be deployed on

the basis of one main and four satellite launching sites. Although the es-

timated initial cost of a squadron was 35 million US dollars,' SACEUR

foresaw that at least 15 million dollars must be added to this estimate to

cover the cost of infrastructure as well as other attendant expenses. The

problem of s i tes and acquisition of land for these sites would certainly be

difficult. It was obvious to him that their construction should be interna-

tionally funded/*^

US Government Proposals on IRBMs. In December 1957 the United

States Government placed before the other members of the Alliance a pro-

posal that the US make available IRBM equipment to NATO. This equipment

would be handed over to the forces of those nations that required IRBMs

for the fulfillment of their NATO mission. The US proposal was that these

weapons systems should be made available to the Alliance as distinct from

bi-lateral arrangements between the US and interested countries.

SACEUR's Presentation to NAC. The Council called upon General

Norstad to give his views of the military requirement for the IRBM, and

1 to indicate what functions it could perform in support of his mission. On

11 December 1957 General Norstad appeared before the Council and defined

(1) Memorandum for Record, "SACEUR's Conference on 9 December Meet-ing with Standing Group, " SHAPE PP278/57, 3 Dec 57.

48 . -"- y / ** i

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for them the characteristics of the IRBM. The IRBM being contemplated

for transfer to NATO had, at that time, a range of about 1500 miles . This

could be extended within l imits and the weapon could also be used for lesser

ranges. In its present form it was rather a large weapon, 15-20 metres

in length, and required rather extensive logistic support. It could be used

from two types of base - in one form it was mobile to some extent, although

not easily moved, and did not require extensive infrastructure or any great

preparation of the site. The IRBM, however, was more effective when used

from a hard base, i .e . , with the fixed site protected against attack and

taking advantage as far as possible of the natural features of the terrain.

With regard to his mission, the IRBM would offer an improved means

of dealing with some of the targets whose destruction was essential in case

of war. Because of its range the weapon might have some strategic uses .

However, General Norstad felt that if NATO accepted the IRBM its primary

use should be against those targets which were assigned to SACEUR for

destruction. He stated that he considered the acceptance of the IRBM by

NATO to be a military necessity for the Alliance.

He did not believe it would be desirable for every NATO country to

have these weapons. As a matter of fact, from the military standpoint, it

was only necessary for a very few of the NATO nations to be equipped with

them. The range and operating characteristics of the IRBM gave it great I

flexibility and it was not, therefore, necessary for any particular country,/

for instance Norway, to have these weapons, nor did the weapons system

need to be sited in any particular place. General Norstad was very insistent

that if NATO accepted these weapons, they would be available to the Alliance

as a whole. The forces of the NATO countries equipped with these weapon«/

should be under the control of the NATO military authorities in peace as in

war, and unless the deployment of the IRBMs in Europe was accepted by the

Alliance as a whole, it would be very difficult to work out a control organi-

zation which would meet the countries' desires.

49

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The French representative, referring to General Norstad's remark that

weapons systems should remain under NATO control in time of peace,

adced whether General Norstad was proposing a departure from the present

system of command and control. General Norstad told him that no NATO

commander could be very happy about the present relation between the

Allied Commands and the forces which would be allocated to them in wartime.

To be effective these forces should be more closely under NATO command

in peacetime than was the case. In particular the critical forces should

be in a position to re-act immediately in an emergency and this would only

be possible if there were a larger measure of Allied control in peacetime

than hithertofore. He referred to his proposals on integration of air defense,

stating that it was only one small aspect of the program of complete control ~

of all forces of NATO commands in peacetime, but for the critical forces

it was certainly essential.

In conclusion, General Norstad said that he would like to emphasize

that he was ready to accept one or two IRBM squadrons, each having 15

weapons, as soon as they could be made available and he would be prepared (2)

to recommend, if desired, which countries should have the first squadrons. '

NATO Communique on Nuclear Warhead Stocks. On 19 December 1957,

the North Atlantic Council issued a communique which stated that NATO had

decided to establish stocks of nuclear warheads and that the nations had

agreed that IRBMs would have to be put at the disposal of SACHJR.

Deployment of these stocks and of the miss i les , and arrangements

for their use, would be decided in conformity »rith NATO defense plans and

in agreement with the countries directly concerned. NATO authorities were

told to submit to the Council at an early date recommendations on the intro-

duction of these weapons in the common defense, which would then be con-(3) sidered by the Cotuicil in permanent session.

(2) C-R(57)78, 14 Dec 57. (3) Declaration and Communique issued at conclusion of the Heads of Govern-

ment and NAC Meetings in Paris, 17 - 19 Dec 57.

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(Note: Planning for NATO atomic stockpile, which also stemmed from

this communique, i s covered in another section of this chapter.)

* On 4 January 1958 a presentation on the development of the concept

for deployment of IRBMs in ACE was given to the Chief of Staff by off icers

. from the SHAPE special planning staff. Among the significant points raised

was that operational control of these IRBMs should be exercised by SACEUR

direct to the miss i l e squadron. A separate miss i l e command under SACEUR

might be necessary to handle the administration and logistics. No conclusion

on this point was reached, but further study was directed. The Chief of

Staff in his guidance to the planners directed that they take time to prepare

a paper on the lines of the presentation which they had made, modifying it (4)

as necessary so that there woiid be no mention of country deployment.

SHAPE Basic Study on IRBMs. The basic SHAPE stuiy on IRBMs was

issued on 11 February 1958 (PANDP 6440, 11 Feb 58), and a directive was

sent to certain staff divisions listing the subjects which would require detailed

analysis in furtherance of the IRBM planning project. The Assistant Chief (5) of Staff, Plans and Policy, was directed to coordinate all aspects of the work. '

The details of a satisfactory control and command of IRBMs, which

would be responsive to the requirements and responsibilities of SACEUR, and

agreements with nations in which miss i l e s were located had to be developed.

A detailed manner of targeting had to be devised for a suitable IRBM target

system. Intelligence Division was directed to develop target information

covering certain areas of Soviet Russia which were out of range of SACEUR's

present strike forces but which would be within range of IRBMs. Other

matters involved sitirig requirements, training responsibilities and programs,

communications requirements, costing, funding and infrastructure, meteo-

rological requirements, security requirements, provision of nuclear war-

heads for IRBMs, and an over-all cover plan. (4) Memo for Record. IRBM Presentation to COFS, 4 Jan 58, PANDP 6440,

7 Jan 58. ' , ... »' - r>> j J j (5) Memo, DCPANDP to AIROPS, INTEL, PANDP, PROG and ÖthJer^,J d -

"Required Staff Action on IRBM Project, " 19 Feb 58

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The f irst staff meeting to consider and coordinate the IRBM

project was held at SHAPE on 3 March under the chairmanship of General

Gazin, ACOS P A N D P / 6 )

The f irst units available for deployment on the Continent would consist

of Jupiter IRBMs, the f irst unit of Which was scheduled to be deployed in

December 1958. US authorities had established HQ USAFE as the Air

Force point of contact for this project. Documents concerning operational

training procedures, training plans and personnel skill requirements for

the Jupiter were being forwarded to the USNMR at SHAPE and action was

under way to re lease these documents or pertinent extracts to SHAPE and

to appropriate national authorities. From the national standpoint, country

negotiations would be established through diplomatic and MAAG channels (7)

with country representat ives /

SHAPE and Franco-US Negotiations, Later in the same month,

French authorities were told by SHAPE that General Gazin would serve

as the SHAPE coordinator, and procedures for working level discussions

among representatives of the US, France and SHAPE regarding IRBMs

were outlined. Interested members of the SHAPE staff would be briefed by

US technical advisory teams. SHAPE and French military authorities

would present to the US advisory teams l ists of problems which would be

examined by them to determine whether they fell within the diplomatic

area as opposed to the military technical area. Those problems in the

latter area would be used as a basis for more detailed discussion. At sub-

sequent meetings a SHAPE staff officer would attend as an observer to note

those problems of direct concern to SACEUR, Any conclusions and agreements

reached at the discussions between representatives of France and the US

would not, of course, represent firm commitments until governmental. (6) PANDP 6440, 3 Mar 58, Memo from ACOS P&P to DCPANDP, "Report

of Staff Progress on IRBM Project." (7) Memo for ACPANDP, PANDP 6440, 5 Mar 58, sub: "IRBMs for NATO."

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agreement had been given. However, SHAPE pointed out to French au-

thorities that an agreement should be concluded at the earliest practicable (8)

date in order to further the IRBM program. '

US-Turkish Negotiations on IRBMs. SACEUR served as the interme-

diary in the original Btages of negotiation between Turkish and US Govern-

ments on the establishment of an Honest John battalion in Turkey to strengthen

the defenses of the Turkish Straits. On 11 March he told the Chief of the

Turkish Joint Chiefs of Staff of the US proposal to place an Honest John

battalion in Turkey, with the equipment being provided under the Military

Assistance Program, and US personnel assisting in the training of a Turkish

unit. Custody and maintenance of nuclear warheads would be in accordance

with the principles of the NATO atomic stockpile program.

On 24 March 1958 SACEUR received confirmation from the Turkish

Government that it accepted both the proposal for the Honest John battalion

and the atomic stockpile in Turkey. He accordingly requested the US

government to make the necessary arrangements in conjunction with the

government of Turkey for carrying out these proposals, stating that SHAPE

and the subordinate headquarters at Naples and Izmir would provide advice

and assistance required and would coordinate the activity with CINCSOUTH1 s

defense p l a n s . ^ ^

Progress Report on IRBMs. In its 7 May progress report to the

Standing Group, SHAPE pointed out that SACEUR was Btill having discussions

with several nations in order to find suitable sites as quickly as possible and

to arrange for the necessary training of personnel to man the IRBM in the

national areas. No final arrangements had been concluded with any nation, but SHAPE was very hopeful that the necessary detailed agreements and

(8) AG 6440 PANDP, 24 Mar 58, Memo, sub: "IRBMs." (9) Msg to SEC DEF US from SACEUR, SHAPE 22435, 24 Mar 58. (10) PANDP 6440, 17 Apr 58, sub: "Required Staff Action on IRBM Project."

53 ' S ' • • ' . : r ,•

t>H».M|r; T\ tu KWt MlTK w s * ^ i t u C .

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arrangements could be completed In time to permit the installation of

the IRBM when it became available/*

After noting a progress report on the IRBM project which the SGN

had submitted on 13 June, certain meirbers of the Council asked when the

IRBMs would be available. It was pointed out that six squadrons, the first

to become available in December 1958 and the last expected in December

i960, would be placed in Continental Europe. During this Council meeting

the Netherlands_Representative expressed hope that SACEUR's current

discussions on the IRBM deployment would be successful. He stated how-

ever that he had noted that certain governments had indicated refusal to

accept the siting of IRBMs on their territory for political reasons. The

build-up of political pressure incident to such statements made it difficult

for other countries which had not been approached as yet to maintain a

favorable public opinion of the acceptance of such weapons on their terri-

tory. The Netherlands Representative asked that the Standing Group do

everything possible to accelerate current discussions while public opinion (12)

was still favorable/ '

IRBM Infrastructure. The Infrastructure Program for the period

1958-1963 had been considered and the "order of magnitude" cost estimate

on the program submitted to the North Atlantic Council. This did not mean,

however, that projects within the program would or should be financed by

NATO common infrastructure funds. Eligibility for common funding had

to be examined in every case by the Council. The urgency for the deploy-

ment of IRBM units and the length of time required for planning construc-

tion made it necessary, in the opinion of SHAPE officers, that an imme-

diate decision on the method of funding these sites should be reached.

: / . . .

(11) SHAPTO 1646, 7 May 58, SACEUR to SGN. (12) LOSTAN 2519, SGREP to SGN, 13 Jun 58. For additional information

of more detailed nature on IRBM Planning in 1958 see also: SH/ 204/58, 20 Dec 58; MC 79; SGWM-723-58; SH/57/58.

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" iiV t V' P1rtClV - . ^ e t e ' I I Ë ill

No problem existed in the case of four units which would be located in the UK

since arrangements had been made directly between the US and the UK on these

four sites« However, a decision was required with respect to units to be

located on the Continent scheduled for deployment at six-monthly intervals

beginning in December 1958.

Description of the Fixed Facilities Required for IRBMs. The fixed

facilities required for IRBM would consist of prepared dispersed sites for

the launchers together with the internal communications and operational

space needed for their coordination and support. In order to minimize the

cost of f ixed facilities and also to achieve certain operating advantages, it

was proposed that each squadron of IRBMs would be sited near an existing

airfield. This would permit use of the shop and administrative facilities

already in being and would correspondingly reduce construction requirements.

The comments which follow are based upon that ooncept. A rough estimate

of cost for all fixed facil it ies for one squadron, not "hardened, " was L 2

million.

Each IRBM squadron would require one "parent" launcher site and

four "satellite" launcher sites. The parent site would consist of emplace-

ments and pads for three launchers, a receipt and inspection building for

incoming miss i l es , a building for LOX equipment, an assembly and check-

out building, a "ready" building, three environmental shelter buildings, and

an operational building from which the firing of mis s i l e s from all five sites

could be controlled. Included would be the provision of facilities for the

operation and maintenance of external and internal communications and

cryptographic security. In addition there would be required the appropriate

connecting roads, security fencing and utilities.

The "satellite" launcher sites would consist of emplacements and

pads for three launchers, an environmental shelter building for each em-

placement, communications and cryptographic facilities, and "ready room"

space for operating personnel. Connecting roads and communications

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between parent and satellite sites would be needed. Generally speaking. It was to be expected that the parent site would be located about 25 miles from the associated air base and that the satellite sites would be IO to 20 mi les from the parent site. Each launcher site in the squadron, whether parent or satellite, would require about 60 acres of land including estimated safety zones in accordance with existing national regulations.

To accomplish the desired control by SACEUR, and to provide for essential external command, liaison, administrative and logistic functions, adequate and reliable communication facilities (radio and landline) had to be provided. Infrastructure requirements included the construction of ex-tensions to the national PTT systems to squadron sites, and the provision of telephone, teletype, and cryptographic equipment at each terminal/*

Since these comprised fixed facilities and since the IRBM was in direct line of succession from conventional bombers, SHAPE considered that facilities for IRBMs should be eligible for common funding just as were bomber bases. They were certainly "essential to the implementation of NATO operational plans."

It would not be claimed that IRBMs would be "commonly used." How-ever, since these IRBMs were being accepted by NATO to increase its deterrent and nuclear retaliatory capability for the common defense, com-mand and control would have to be vested in the NATO military organization. The relation facilities would therefore only be used for NATO common purposes,

"Common interest" in these facilities could clearly be demonstrated. Apart from their deterrent role, the function of IRBMs would be to attack dstant targets of primary importance to overall NATO objectives, notably the enemy's air and nuclear capability.

SACEUR's control was an essential principle to be safeguarded. It Implied not only operational control, but also control of siting which must accord with overall NATO -rather than purely national- defense plans.

(13) SHAPE/56/58, Encl 1 to SHAP*; Itr AG 6l00/ lP-46/58 PROG 16 May 58.

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It was difficult to see how this principle could effectively be safeguarded, f l4)

if sites were provided by means other than common funding.

By this time also, SHAPE had nearly completed assembling the

criteria and standards for the Jupiter type IRBM and was almost as far

along with those for the Thor type. Target data on the IRBM had been

received from the Standing Group nations. This information, while by

no means exhaustive, represented all that these countries were prepared

to release to NATO at the time. Progress had also been made on the study

of general policies and principles pertaining to communications for the

IRBM project, and the atomic stockpile. SHAPE was thus by mid-year,

well within its schedule and in a position to answer any questions on this (15) from national authorities.

Continuing Political Negotiations on IRBMs. There had been consi-

derable expectation on the part of NATO authorities and of national mili-

tary officials, that France would accept the stationing of IRBMs on her soil.

During the early part of 1958, negotiations were carried on to this end.

However, the worsening political situation in France during mid- and

late 1958, as well as the highly controversial potential involved in yielding

a degree of national sovereignty by granting NATO authorities control over

these weapons systems, combined to prevent an adequate solution and by

the end of 1958 it was apparent that the matter was not going to be easily

resolved.

However, in the case of Italy, a more favorable situation prevailed.

During discussions with Italian officials in March, General Norstad had

secured their agreement provisionally to consider accepting IRBMs from

the United States, if offered. Discussion with Italian officials continued,

and on 7 August 1958 General Norstad sent a message to the Secretary of

Defense, United States, whose nation would provide IRBMs to Italy in the

(14) AG 6100/IP-46/58 PROG, 16 May 58, "Provision of IRBM Sites;" see also AC/4-D/924 (STSC 551/58), 18 Jun 58.

(15) COFSMtg with Divisions Chiefs, 19 Jun 58.

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event agreement was reached. He told the Secretary of Defense that SHAPE

studies showed that high priority should be given to locating IRBM units

in Italy. He had personally discussed the deployment of these weapons with

the Italian Minister Qif Defense, who had indicated fyis approval in principle

to the stationing of the IRBM Jn Italy.

"The Italian Government desirçs, ajid I concur, " SACEUR stated,

"that all training and delivery of equipment incident to this program should

be handled insofar as i s practicable in accordance with normal military

assistance procedures, and that additional agreements between the US and

Italy should be restricted to letters or notes to cover these points which

cannot be satisfactorily treated under MAP."

"Accordingly, I now request the US Government to enter into direct

negotiations with the Italian government with a view to the installation of

the f irst of these IRBM units in Italy at an early d a t e . ,

On 18 August 1958, SACEUR pointed out to the Standing Group that i

no provisions had been made in MC 70 for incorporating IRBMs which

wotld be available by the end of the year, into Allied Command Europe.

He stated that he would recommend that when IRBMs were accepted by a

country they would be assigned such priority as to ensure their early oper-

ational capability. SHAPE was at that time preparing criteria and standards

for the Jupiter and Thor weapon miss i l e s which would be submitted through

the Standing Group. "It is assumed, " General Norstad said, "thatnations

initiating construction prior to final approval of these infrastructure stan-

dards will conform to SHAPE recommended criteria in order to simplify

retroactive funding of these projects if they are determined to be eligible

for common funding."^7)

By October 1958 the Italian Government had agreed officially to the

(16) Msg, SACEUR to SEC DEF Washington DC, SH 25442, 7 Aug 58. (17) Msg, SH 25627 to SG, 18 Aug 58.

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SHAPE 58/67 ^ M l M t o f f r f l f l ^ |i ' fpj ' l* ~jf

l I T ^ c ^ i i c . n

principle of accepting IRBMs in Italy. In a letter to MOD Italy, General

Norstad indicated satisfaction at this development and set forth his

thinking on the major principles of control and procedures for introduction

of these radical weapons into the ACE defense system. He realized that

many aspects of the IRBM problem were primarily the concern of Italy and

the United States. However, in view of the spirit and intent of the decision

taken by the NATO Heads of Government in this matter, he felt it necessary

to present his view to the Italian Government. He told the Italian MOD: "I

feel that an understanding between us on a number of principles will faci-

litate the eajly establishment of an intermediate range ballistic miss i le

capability in Italy... The decision to launch these weapons will be taken by

SACEUR only in agreement with the Governmentsof Italy and the United

States. The agreement of the two governments would be given in the light

of circumstances at the time and having regard to the undertaking they

have assumed in Article 5 of the North Atlantic Treaty.

"In principle, the operation control vested in SACEUR will be exer-

cised from SHAPE and will be direct to a single intermediate miss i le

headquarters above the squadron level. This intermediate headquarters

should be an Italian national unit and should be commanded by an Italian

General Officer. It Should be permanently assigned to NATO in peace and

in war in the same manner as the intermediate range ballistic miss i le

tactical squadrons.

"Although the location of miss i le units will be primarily a question

for agreement between the Governments of Italy and the United States,

Allied Command Europe requirements should be considered in the selection

of the sites. Consultation with SHAPE will ensure :(1) that security and

dispersal criteria are met; (2) that the sites selected will permit the proper

orientation for desired target coverage; and (3) that the sites can be prepared (18) in time to meet the operational availability of the weapons."

(18) See also SGWM-723-58, 24 Nov 58, for report by SGNto MC on "Pro-

' ( ' I I ' j. ' ^ 59 - • j j] f '

gress on Implementation of IRBM Project in Italy.," >> ,

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Toward the end of 1958 it became apparent also that Turkish autho-

rit ies were interested in having the IRBM stationed in their territory.

During discussions between General Erdelhun, MOD Turkey, and SACEUR

on 27 November, the Turkish official raised the question of IRBMs for

his nation. He said that the Prime Minister himself was ready and anxious

to move ahead on this issue and asked when SACEUR would be ready to

discuss it more fully. General Norstad told him that he «hoped to be in a

position to raise the matter officially with the Turkish Government some-

time in January 1959.

Sjpeaking to the members of the North Atlantic Council at their meet-

ing in December 1958, General Norstad gave the latest information on the

status of the IRBM program. Dealing with the first generation IRBMs,

the Thors and Jupiters, General Norstad pointed out that the year's accom-

plishments had been most encouraging. Italy had agreed in principle to

accept the IRBM, and at the moment the Italian Government and the US Go-(19)

vernment had reached agreement on technical factors involved.

Second Generation IRBM. SHAPE had foreseen the necessity for

a much improved model of the IRBM by mid-1963. Certain operational

requirements for performance had been sent to the Standing Group and to

the Assistant Secretary General for Production and Logistics of NATO,

Mr. Meili. In broad principle this statement established a need for a

quick-reaction IRBM weapons system in the NATO Alliance; its operational

mission would be the destruction of suitable military targets whose loca-

tion could be fixed within 1500 nautical miles . This weapon should be

available to operational units not later than 1963. It should be able to

attack targets up to ranges of 1500 nautical miles. It was felt that around

this basic miss i l e there should be developed further in the future certain

mi s s i l e s which could be directed to shorter ranges than this 1500 mile range.

(19) General Norstad's testimony before the NAC, 17 Dec 58, C-VR(58)64.

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As far as accuracy was concerned, SHAPE had asked that a weapon De

designed to give a circular error probable (CEP) of 2500 ft., although it

was hoped that this accuracy could be increased to 1500 ft. These oper-

ational characterist ics had been submitted to the appropriate authorities of

the Alliance and were being considered at the end of 1958.^2^

On 9 December 1958 SACEUR dispatched to the Standing Group a

paper containing the general military operational characteristics which

were deemed appropriate for an advanced generation IRBM for use in

Allied Command Europe. Some of the more significant requirements e s -

tablished were the ability to strike targets within 1500 nautical miles , a

reaction time of five minutes or l e s s , and the ability to survive an enemy

attack achieving both tactical and strategic surprise. The requirement

called for the start of this weapon system's availability in 1963 but also

suggested the possibility of developing a family of weapons for use at ranges (21) of l e s s than 1500 nautical miles . '

Atomic Stockpile Program.

Shortly before he met with the Standing Group on 9 December 1957,

and just prior to the meeting of the Heads of Government, General Norstad

discussed with his top officers his views of what must be done to increase the

flexibility and the usefulness of the atomic weapons available, or to become

available, in NATO Europe. He had recommended to the US authorities on

a national basis that action be taken to provide a system which would assure

the ability to promptly "marry up" nuclear weapons with the nuclear delivery

system available in Allied Command Europe. He did not feel it was

SHAPE'S problem to determine whether any particular nation should have

a nuclear capability. SHAPE'S sole concern was that SACEUR have the

(20) C-VR(58)64, 17 Dec 58, General Norstad's testimony before the NAC. (21) AG 2030 SEC, 22 Dec 58; AG 6800 PANDP, 9 Dec 58.

V

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means to carry out assigned tasks but it was very clear that, if he were

to have these means, a proper distribution of nuclear delivery means be

put into effect. Action was already under way in a limited sense to broaden

the ownership position of nuclear delivery means. It was consequently

essent ial that there exist in Allied Command Europe a nuclear weapon

supply system which could support all delivery means with equal efficiency.

There already existed in Europe a system for the support of strictly US

nuclear del ivery forces . General Norstad believed that this system could

be expanded without any change in the US laws, which required that nuclear

weapons remain in US custody in peacetime. It would be entirely possible,

General Norstad stated, for small cuBtodion units of US personnel to be

stationed with or very c lose to all nuclear delivery forces of whatever na-

tionality. The necessary security and support which would be required

could be provided by the local forces . If this system were developed to its

ultimate capability, it would be poss ible to service any nuclear delivery

force with the same degree of eff iciency that had already been obtained by

US Forces . From the military point of view, the question of who had actual

custody of the nuclear weapons wasiuriimpo'rtant. The essential factor was

that these weapons would be allocated to NATO for use on tasks assigned

them by SACEUR. No one nation whether US or otherwise owned these units

from an operational standpoint. The question was raised as to whether

there would have to be a similar broadening on the policy of re lease of

data on nuclear weapons which, at the present time, was under certain

restr ict ions by the United States. Actually considerable additional infor-

mation had been re leased to NATO in the past year and in SACEUR's view

the problem was more psychological than actual. He stated that the minor

quantity of data still bearing the US label was concerned exclusively with

weapons construction and allied technical details, which he found boring,

incomprehensible and in no case germane to the discharge of the tactical

task.

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- 1 —,'•-

ä * ! J ü i f u U vi'

In extension of these views and as a result of his talks with higher

authority, action was taken during the meeting of the Heads of Government

in 1957 to establish an atomic stockpile for Allied Command Europe.

When the Heads of Government issued their decision relative to

ixaking the IRBMs available, they stated that stocks of nuclear warheads

would be established so as to be readily available for the defense of the

AUiance in case of need. These warheads, of course, were not to be res -

tricted to those used by the IRBMs but would be used also in strike-aircraft

and in atomic artillery, such as the Honest John.

This decision was based on a proposal by the United States that "it

would deploy nuclear warheads under United States custody in accordance

with NATO defensive planning and in agreement with the states directly

concerned. In the event of hostilities, nuclear warheads would be released

to the appropriate NATO Supreme Allied Commander for employment by

nuclear capable f o r c e s . " ^ 2 )

This decision by the Heads of Government automatically placed upon

SACEUR a requirement to develop detailed plans for the establishment

of these stockpiles throughout ACE in order to support the atomic vehicles

and weapons which were in position or to be deployed in accordance with

his strategic plans. The period for planning, BO far as SHAPE was concerned,

covered only the initial phase, for example through mid-1960, and was based

on the nuclear delivery units including SAMs which were specified in the

ACE Minimum Force Study. In addition the six IRBM squadrons which

were being planned for mid-1960 would require support under the atomic

stockpile program.

Custody and maintenance of the weapons at the sites would be the

responsibility of US per sonn el in the storage sites. Security, i .e . , protec-

tion against enemy attacks by enemy forces, saboteurs or para-military

(22) Brief, PANDP 6430: "NATO Atomic Stockpile Program" (prepared for AR Visiting Teams), 21 May 58.

63 . - V-;.

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forces would be the responsibility of the NATO countries whose delivery

units were being supported.

In an emergency weapons would be released from custodial orga-

nizations to the delivery forces. The delivery forces would carry out

SACEUR's programs and the egional plans under the direction of the

NATO Commander designated in each approved plan.

The requirement for the number of custodial storage sites would be

directly related to the need for assuring appropriate reaction t imes and

for suitable dispersal of weapons. A standard storage capacity would be

designed to provide for each type of delivery force. In most cases these

factors would demand a storage site adjacent to the actual delivery unit.

Joint and combined storage would be desirable where this could be accom-(23)

plished without prejudicing operational requirements.

On 5 February 1958, SHAPE sent to the US authorities a statement

of US resources which would be required to support the NATO Stockpile (24) Program through mid-i960. '

On 8 March 1958, SHAPE sent to all the Major Subordinate Com-

manders a "Basic Plan for the NATO Atomic Stockpile." The primary

purpose of sending out this plan, aside from keeping the MSCs informed,

was to develop the necessary information to carry out more detailed plans

which would indicate specific locat i on s of delivery forces, storage sites

and weapons support units. Only the MSCs could make proper recommen-

dations as to the specific locations of delivery units which were planned to

be located in ACE by mid-i960, as well as for the location of associated

storage sites based on criteria and assumptions contained in the basic plan.

The MSCs were sent a l ist of the delivery units involved. For Air Force

(23) "NATO Atomic Stockpile Program", brief for AR Visiting team, PANDP 6430, 21 May 58. At this point, cover AG 6430 AO, CTS, 8 Mar 58, "NATO Atomic Stockpile, " sent to MSCs as the Basic plan.

(24) SHAPE 19/58, 5 Feb 58.

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\-r mm m mm. S H A P E 5 8 / 6 7 i f :

delivery Xinitar except the surface-to-surface miss i l es , they were told

to make their recommendations on the basis of existing airfields. For

ground delivery units, the locations would be stated generally within a

radius of approximatdy ten miles , unless greater accuracy were possible.

The MSCs were directed to submit their recommendations to SHAPE by

12 April 1958.(2 5)

SHAPE emphasized to the MSCs that joint and combined storage, as

defined in the basic plan, was highly desirable in order to reduce the cost

of the program in both manpower and money, who-e this could be accompli-

shed without prejudicing operational requirements. In many cases , it

was recognized, the need for assuring fast reaction t imes and for suitable

dispersal of weapons would require a storage site adjacent to the actual

delivery unit. In turn, delivery units should be located in peacetime, close

to the positions they were expected to occupy during the initial deployment for

general war.

A most important and vital aspect of this matter was the part to be

played by national authorities, and MSCs were told that in developing their

recommendations they should consult with these officials. Through the

National Military Representatives present at SHAPE, the MODs concerned

had been notified that the MSCs were taking this action. No commitment

on the part of any nation would be involved until SACEUR had received all

plans. He would, when appropriate, seek formal agreemeit from each MOD.

The Basic Plan. The basic plan for an atomic stockpile for ACE had

been prepared by the SHAPE Staff in the few months following the December

1957 decision of the Heads of Government. In drafting this plan it was

assumed that the NATO countries would have, in general, the nuclear de-

livery units specified in the ACE Minimum Force Study 1958-1963. In

addition to the forces listed in the Minimum Force Study, there would be

(25) Ltr, NATO Atomic Stockpile, COFS SHAPE, to all MSCs, 8 Mar 58.

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six IRBM squadrons by mid-60 which would require support by the NATO Atomic Stockpile. The NATO Council, it was presupposed, would approve

common financing under infrastructure procedures for the fixed operational facil it ies and the administrative facilities necessary to establish the NATO Atomic Stockpile. In its initial phàse, the atomic stockpile would not in-clude provision for atomic warheads for surface-to-air miss i le units.

The "Concept of Operations" contained sections Betting forth measures on control and use of weapons; security and custody of weapons; maintenance of weapons; emergency evacuation; transportation.

As a very necessary adjunct of the basic plan, a study estimating the number and general location of storage sites and US personnel who could be required for custody and maintenance of weapons had been com-pleted and forwarded to the Secretary of Defense, United States, for his comments and/or concurrence to ensure the availability of trained p e r s o n n e l / 2 ^

The basic plan contained a discussion of many of the detailed problems which were foreseen in establishing the stockpile, but none proved even-tually more significant than that section which stated that action to obtain approval in principle to location of NATO Stockpile Sites in countries would be initiated in each case by SACEUR^27)

Addressing the Military Committee on 13 March 1958, General Norstad presented the existing status of the work being done on the NATO Atomic Stockpile. He stated: "The SHAPE Staff has reached certain con= elusions as to special personnel requirements and has formulated certain recommendations. Organizationally, we have developed proposals for various . types of detachments to support the nuclear delivery units, and these are shown on the chart grouped by Army, Air Force and Navy. These

(26) SHAPE 19/58, 5 Feb 58. {27) For information on the Basic Pl^n, including definitions of the various

Typep of Stockpiles envisaged, see: SHAPE 24/58, AG 6430 AO, 9 May 58. . , , « •

V - U ¢ , 6 , \ i

9 h i m m b ^ V M M M

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S H A P E 5 8 / 6 7

detachments constitute our initial proposals as to the minimum personnel

needed to perform the US functions of custody and maintenance. You will

note that these individual detachments are small; the estimated total for

all of Allied Command Europe by mid-1960 will be about 2, 700.

"Our initial calculations were based on one atomic support detach-

ment for each nuclear delivery unit. Thus, this chart shows 63 detach-

ments, corresponding to the 63 nuclear delivery units which we have re -

commended be available to and manned by the individual countries (apart

from the US) by mid-1960. In fact, the total of atomic support detachments

may be something l e s s . My Subordinate Commanders have been directed

to study the matter and prepare specific recommendations as to locations,

as a basis for negotiations with governments concerned. We believe that,

in many instances, it will be possible for one site to serve two or more

nuclear delivery units, even of different nationalities. Therefore we have

urged that maximum consolidation be sought, consistent with operational

effectiveness."^8^

Funding of the Atomic Stockpile. It had been apparent from the f irst

that one of the key decisions which would have to be made in establishing

an atomic stockpile would be the decision on how it would be funded. The

stockpiling facil it ies were going to be costly and it was unlikely that the

individual nations would agree to pay for these. In the SHAPE view, nu-

clear ammunition storages should be paid for in the same manner as other

projects which were of military value to the alliance as a whole.

Although the Military Committee had submitted to the North Atlantic

Council a statement of the order of magnitude cost estimates for ACE

infrastructure during the period covered by MC 70 (1958-1963) and these

estimates had included provision for nuclear ammunition storages,

(28) MCM-39-58, 1 Apr 58; Note: General Norstad also spoke on "The IRBM and the NATO Atomic Stockpile" to the Défense MinistérV^ when they met on 17 April 1959;^ee C-VR(58)25,V 17 Apr 5¾. ; :

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the Committee had not said that these should be paid for by NATO

common infrastructure funds. They had stated rather that eligibility for

common funding should be examined and determined by the Council.

On 5 April, SHAPE told the Standing Group that it was necessary

to have the question of eligibility for common funding of these nuclear

ammunition storages determined without delay. There were two good

reasons for this. First, a Council decision to authorize additional infra-

structure funds would be facilitated by the determination of the eligibility

for common funding of the various component elements (including nuclear

ammunition storage). Second, given the urgency of establishing stocks

of nuclear warheads in ACE and the length of time w'rich would be required «

for the detailed planning and construction of storages, a declaration .was ( 2 9 )

immediately necessary on the method of provision of funds.

The details of the facilities which it was believed would be required

within ACE for nuclear storage were sent to the Standing Group along with

a request for their support in acquiring common funding of these f a c i l i t i e s / 3 ^

Since these storage facilities would be fixed in location and since they

could be called "essential to the implementation of NATO operational plans"

they fel l broadly within the Council criteria for NATO common infrastructure.

The rearward storage echelons would be of common use to forces of several

NATO nations operating the advanced echelon. Common use could also be

ascribed to forward storage echelons, inasmuch as the individual basic load

s i tes must be capable of supporting the delivery forces of any NATO nations,

in the event enemy action caused displacement. All echelons would be of

common interest, since the ammunition stored there would be used in sup-

port of a defensive system immediately responsible to SACEUR's control. (29) Ltr, SHAPE to SG, sub: "Provision of Nuclear Ammxuiition Storages, "

5 Apr 58, AG 6 l00 / lP -45 /58 PROG. (30) For full description of these facilities, to include rough estimate of

cost of each, see SHAPE 55/58, end 1, to SHAPE ltr "Provision of Nuclear Ammunition Storages, " 5 Apr 58.

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The essential principle was to be control of these weapons by

SACEUR. Not only would he have operational control, but in consulta-

tion with host nations, he would have control of the siting of the storage

facil it ies, which should be in consonance with the overall NATO rather

than merely national defense planning. If storages were not paid for out

of infrastructure funds it would be difficult for SACEUR to have this control.

Because of the overriding need to get some of these storage s i tes

under way, construction planning had already been started on several basic

load sites. Planning was done nationally, but in close consultation with

SHAPE. SACEUR hoped that this would not prejudice favorable consider-

ation of common funding, since a system completed only in part by the

initiative of nations financially able to undertake construction would clearly

not be acceptable. SHAPE recommended therefore to the Standing Group

that it seek early Council approval for the principle of common funding

for nuclear ammunition storages.

Following receipt of replies and comments on the draft "Plan for the

Atomic Stockpile, " which had been sent to the MSCs and the nations in

March, the SHAPE Staff began incorporating these into a final version of

the plan. This was sent to the Standing Group on 12 September 1958 and

contained not only the outline of planning for the stockpile, but annexes

filled with detailed information/ 3

In order to get construction started SHAPE and some of the nations

had worked out an agreement in the matter of financing. Pending a decision

by the Standing Group and the Council on the principle of common funding

for the facilities to establish the NATO Atomic Stockpile, SHAPE urged

that certain nations begin construction and pay for it, with the under stand-

ing that, if the principle of common funding were approved, the nation

(31) Ltr, sub: "Allied Command Europe Plan for the NATO Atomic Stock-pile, " 12 Sep 58, SHAPE to Chmn1 SGN, AG 6430 PANDP w/ Annexes A, C and E.

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would be reimbursed. But in sending the plan forward to the Standing

Group, SHAPE made its position clear by stating: "An early decision

on common funding would assist greatly in clearing the air and removing (32) a potential obstacle to rapid progress."

SACEUR's Progress Reports on IRBM and SAS.

On 11 December, SACEUR explained to the Military Committee

the progress which was being made, both on the IRBM project and on

the Special Ammxinition Storage projects, and gave the same explanation (33)

at the 17 December Ministeriell NAC Meeting/ 7

In addressing the MODs and the Council on special ammunition sto-

rage, SACEUR pointed out that plans were based on meeting stockpile

requirements as set forth in MC 70, generally following the priorities

established by that document. In the interest of economy, SHAPE was

attempting to develop a minimum number of these sites by doubling up

wherever possible and by having two or more delivery units use the same

storage sites and facilities. He referred to the detailed plan which had

been sent to the Standing Group on 12 September pointing out that this

plan related to storage site requirements, specifically to units, and fixed

those xuiits specifically to commands and geographical areas. While this

plan considered only requirements up to mid-1960, SHAPE was already

working on a study which would carry the plan forward to 1963, when the (34) xiltimate goals of MC 70 were scheduled to be reached.

(32) SHAPE/128/Af 58, with Annexes. (33) The last prior reports on progress in these fields were contained in

document MC 79 and MC 80, based on information furnished the Military Committee by SHAPE. These reports had been submitted to the NAC on 22 May 58.

Record, MC CS/22, 15 Jan 59. See Verbatim Record of Ministerial Meeting, C-VR(58)64.

(34) Verbatim Record of Coxincil Meeting, 17 Dec 58, C-VR(58)64.

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pointing out that f irst priority had been given to the existing system of

storage facilities designed to service the American forces which already

were equipped with a nuclear delivery capability. At that time within the

NATO area there were 40 such storage sites. Plans called for the creation

of 175 delivery units by mid-1961, and a total of 147 storage sites to be

made available by that time. SACEUR described the situation throughout

the command pointing out that in addition to 40 sites which existed, another

was being built in Turkey to support an Honest John battalion. In Germany

action was under way to provide sites to support four British Canberra

squadrons, and a site for a UK Corporal battalion. A fighter bomber squa-

dron of the German Air Force which was programmed within the NATO

Strike Forces was also being provided with a storage site. Other recent

developments included a Belgian request that a site be provided for one

of i ts strike squadrons, and a request by the Netherlands to have a site

able to support an Honest John unit.

General Norstad pointed out that in order to support the needs of

SACLANT, he would act as agent in the European area for those sites

which were required to support SACLANT's operations.

Turning to the question of common funding, SACEUR pointed out that

this had a very direct bearing on the atomic stockpile, and that there was

included in the IOth Slice Infrastructure Program a specific requiremeit

for L 14, 000, 000 for the stockpile, and L 12, 000, 000 for the Intermediate

Range Ballistic Missi le S i t e / 3 5 )

(35) For more information on Atomic Stockpile Program see also: SH/195/58; SH/24/58; SH/55/58; ALFCE 98/58; MC 80;ALFCE 99/58; AIRCENT/90/58; SH/A0/13/58; SH/AO/10/58; SGWM-724-58; AC-4-0-923 (STSC/547/58) 18 Jun 58; AC-4(PP)D/2381 (STSC/1318/58) 26 Nov 58; SH/19/58, 5 Feb 58.

71

< *y t " V

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Planning for Action Short of General War.

In the political directive issued in 1956, in MC 14/2, and again

in MC 70, the NATO Council and the Military Committee had recognized

that the Communist threat was not confined to general war but included

also such l e s s e r threats as local hostile action, incursions and infiltrations

in the NATO area, as well as a possibility of such actions in contiguous

areas. The possibil i ty of such lesser enemy courses of action necessitated

plans to counter such threats should they develop In 1958, NATO plans

provided only for an all-out response to an attack which had been estimated

to be a general war attack.

Recognizing this, General Norstad had directed his staff to see

what SHAPE and the MSCs should do to prepare for these l e s ser threats.

It was obvious that at this stage, before the military problems had been

covered within Allied Command Europe, there would be no point in pre-

paring detailed recommendations or even a report for the Standing Group.

A number of interesting points emerged from this advanced study. Assum-

ing that the normal defense posture would be based on defending as far for-

ward as possible, that national plans existed for re-acting against any

of the l e s ser types of aggression, and that Council authority would be

required for use of nuclear weaponB, the plan pointed out the great need

for flexibility in Allied Command EXirope cap bill t ies . It discussed in

detail the possible enemy courses of action short of general war. Major

Subordinate Commanders' responsibilities were identified specifically as

well as those of SHAPE and the higher echelons. A particularly significant

recommendation contained in this study was that a mobile task force should

be ready for use in any area of Allied Command Europe againist local

t h r e a t s . ( 3 6 )

(36) Memo for COFS, sub: "Plan for Action Short of General War, 20 Aug 58, PANDP 1200. For excellent summation of SHAPE'S thinking on this subject, Interested per sons should read this document in detail.

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MiU S e S I E T NATO Mobile Task Force.

The concept of a mobile task force had been mentioned briefly in

the Minimum Force Study. SHAPE was thinking in terms of an air trans-

portable force composed of units from Beveral nations, whose impact

would be primarily political and psychological, as evidence that SHAPE

was capable of immediately dispatching a NATO force - even though a

small one - to any threatened area. It should be reasonably effective militar-

i ly as soon as possible after reaching the area of deployment to which it

might be dispatched. This meant that the heavier logistical items had

to be available from the local resources. The force should have an inter-

national aspect in order to demonstrate united opposition to aggression,

but for this purpose no more than four or five nations need be involved.

There were obviously practical disadvantages in having too many. In

1958, SACEUR was thinking in terms of not more than one division strength

overall with an appropriate air force complement to compromise this

task force. While it would be impractical to earmark a full airborne or

air transportable division equipped as a normal fighting division, it might

be necessary to earmarked a force of about division size to cover several

national contributions and to give flexibility.

The units earmarked for this force would have to be selected among

the NATO assigned forces in the Central area. They would be given this

new mission as a planning responsibility but their main responsibility as (37)

part of the Shield Forces for Central Europe would remain unchanged/ '

In September 1958, CINCENT forwarded to SHAPE a detailed study

on a multi-national air transportable division, a study that Bet forth his

views concerning the appropriate measures, in addition to ful l-scale reta

Uation that could be taken to cope with emergency situations arising in ACE.1

(37) Ltr, SACEUR to Marshal of the RAF, sir William Dixon, Chairman, UK Chiefs of Staff Committee, 8 Apr 58.

(38) AFCE/179/58, 13 Sep 58.

' ' • r • -

73 . . ' ... ' •, * T

(38)

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This study dealt with a mobile task force and also with the employment

of reinforced air units.

The mobile force was intended primarily for use on the flanks. It

would have to be capable of being air-lifted. SHAPE proposed that the

force be composed of infantry battalion groups earmarked from Central

Europe forces organized and trained by CINCENT. CINCENT had proposed

to organize a new division additional to MC 70 force requirements for this

purpose. Discouraging replies for the 1958 Annual Review indicated that

such additional resources would not be available, therefore the various

contingents of such force would be drawn together only for operations

or whenever it would be necessary for training purposes.

Authority for launching the force would rest with SACEUR. Both

CINCNORTH and CINCSOUTH were told to consider how they could best

use this mobile task force in appropriate areas of their commands. Plan-

ning criteria were furnished to Major Subordinate Commanders who were

told to submit their plans to SHAPE for approval. CINCENT was requested

to accept responsibility for establishing the capability outlined and for

setting up the necessary liaison with CINCNORTH and CINCSOUTH as soon

as possible. "It should be appreciated, " the SHAPE letter concluded, "that

these measures directed towards increased flexibility are not intended to

generate a whole ser ies of new requirements in, for example, the field of

logistics. The resources planned for general war should be utilized to

the maximum extent possible to meet any requirement which might stem

from a situation where deployment of these units might be considered (39)

necessary."

Survivability.

One of the prime requisites of defensive plans was to ensure that regardless of an eilemy attack, SACEUR's retaliatory air forces would not (39) Ltr, sub:"Additional Planning Requirements, " SHAPE to Major

Subordinate Commands, AG 1200 PANDP, 6 Oct 58. • Vi

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be so crippled or desrcp .rry out their mission

of destroying the enemy's capability. The Military Committee had laid

down the objectives and measures for the improvement of SACEUR's

air posture. However, some of these measures establishing primary

reliance on squadron deployment and off-base dispersal, appeared in-

creasingly open to question as new information became available on the

enemy's capabilities and new weapons systems. In late 1958, SHAPE

sent a directive to the Commander of Allied Air Forces Central Europe

to undertake a detailed study of this problem to ensure that the best pos-

sible planning had been carried out.

There was some concern at SHAPE that the deployment and dispersal

measures laid down in MC 60 might not be the best pattern for survival

of Allied Air Forces in Europe. Recent technical developments, impro-

vements in weapons and methods of attack, increased power of weapons,

as well as heavy expense involved in adequate dispersal measures were

all factors which cast doubt upon MC 60 requirements, developments that

were complicated by the fact that considerable infrastructure funds had

been allocatéd to these measures and that new contracts were even then

being awarded.^^

SACEUR wanted either to re-aff irm the validity of the present measures

or to develop recommended changes. Obviously, Allied Air Forces Central

Europe was the headquarters best suited to deal with this problem. There-

fore, SHAPE sent terms of reference to AIRCENT for guidance in carrying

out detailed study. AIRCENT was directed to prepare an interim reply

within a month, indicating areas, if any, in which orders to start cons-

truction on already allotted infrastructure funds should be issued. The

initial phase of the study carrying through 1963 was asked for in no case (41 )

later than 1 December 1958.v '

(40) MC 60 (Final), 25 Apr 56 (NS). (41) Ltr, sub:"Survival Measures" to COMAIRCENT with "Terms of Re-

ference", AG 1450 PANDP, 5 Sep 58} see also SH/PP/244/58; SH/PP/246/58; and AIRCENT 163/58. . _

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NÂTO SECRET

SHAPE 58/67

The Light Weight Strike Fighter.

In the last months of 1957 flight test evaluations had been carried

on to determine which of the prototype models of the Light Weight Strike

Fighter (LWSF) would be selected for NATO production and incorporation

into ACE forces . SACEUR made it plain to his Staff that he did not want

SHAPE to become involved in "picking the winner" even though a SHAPE

officer was Chairman of the International Committee charged with this

selection. He felt it essential that the committee reach a clear-cut deci-

sion that one of the prototypes listed by one of the various manufacturers

was the best. If this was not possible, then their recommendations should

at least*list the prototypes singly in their order of merit. He disowned the

project as a SHAPE project, stating that the light weight strike fighter,

although originally proposed by his headquarters as a possible answer to

an outstanding problem, was essentially a matter for NATO political

authority. However, aircraft had been developed to meet certain oper-

ational criteria for which production facilities were known to exist and

the requirement for this aircraft had been stated in the Minimum Force

Study. In the last analysis it was up to the NATO Council to decide whether

to adopt a light weight fighter as a means of meeting the requirement for

c lose support aircraft which had been stated in the Minimum Force Study.

On 9 January the Advisory Committee of the NATO Light Weight

Tactical Strike Fighter Committee agreed unanimously that the Italian

G-91, with minor adjustments, should be the standard NATO aircraft for

initial LWSF squadrons through i960. At the same time it was recommen-

ded - - i n order to keep SHAPE squadrons abreast of advances technically--

that developments begin on a second generation LWSF. SACHJR agreed

with the recommendations of the Advisory Committee and forwarded them

to the Standing Group stating that this plan would meet SHAPE'S operational

requirements. While it had no authority to putih this project further, SHAPE

was very interested and hopeful that the project would develop and expand 76

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since it would set a pattern for other weapons systems developed under

SHAPE was further encouraged by the decision of certain NATO nations to purchase these G-91 aircraft. The French Government in April 1958 ordered 48, while Germany and Italy each ordered 50. In each case the nation ordered aircraft exceeding the number required by MC 70 through i960.

In order to test the light weight tactical strike fighter, an experi-mental squadron was established to begin the training phase of tactical trials in Italy. These trials began on 28 May and continued through Sep-tembér. It was intended through these trials to train operational and maintenance personnel for future LWSF squadrons in France, Germany, Greece, Italy and Turkey; to develop optimum tactics for the aircraft;

(43) and to produce tables or organization and equipment for the squadrons. '

An interesting development occurred in July when the Italian autho-rities received a request from the manufacturers of the LWSF to offer the aircraft for sale to a number of countries including many non-NATO nations. The Italian authorities asked for SHAPE'S views on this procedure since this aircraft had been developed at SHAPE'S initiative under NATO's auspices. SHAPE told the Standing Group that there was no objection from the military point of view to the G-91 being sold to nations other than the Soviet block nations and Egypt, providing certain conditions were observed. One condition was that re-equipment of NATO squadrons must not be affec-ted and that any equipment of non-Italian origin would be included in the (44) aircraft when sold without prior concurrence of countries of origin. '

A broad requirement for a successor to the LWSF was approved in

principle by SACEUR in September 1958. The main operational requirement (42) AG 2030 SEC 6,Feb 58. (43) AG 2030, SEC, 27 May 58. (44) AG 2030 SEC, 11 Jul 58; See also SH 24196 (SHAPTO 1666), 6 Jun 58.

NATO's auspices. (42)

77

COSMIC T O P — ^ 3

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for the successful aircraft would be the ability to achieve vertical or (45)

nearly vertical take-off and landing/ '

SACEUR's Emergency Defense Plan.

Since the establishment of SHAPE, SACEUR had maintained an

Emergency Defense Plan based on those forces which were actually avai-

lable as of any given year. In this respect it differed from other plans

which were projected into the future and which were based on forces to

become available. Each year, SACEUR's EDP was re- issued and re-

designated to indicate the proper year. It was carefully coordinated with

the Atomic Strike Pian (ASP) which was also issued anew each year .^° )

SACEUR's EDP did not undergo a major revision in 1958, but was

brought up to date with some minor amendments and redesignated EDP

1958. Late in the year, however, SACEUR's planners decided that it

should undergo major revision in order to achieve maximum usefulness

as a major SACEUR planning document. It was also decided - should the

SGN approve - that this new plan would be issued as a "no-year" plan

and remain effective until major changes in the strategic concept should

require publication.

Among the major changes introduced into the 'ho-year" version of

SACEUR's EDP was the introduction of SACEUR's atomic strike doctrine

as fundamental to the concept of operations and as basic guidance to

Major Subordinate Commanders. The intelligence presented in the plan

was amplified, and further emphasis was placed upon the forward stra-. ( 4 7 ) tegy concept/ '

(45) AG 2030 SEC, 25 Sep 58; For additional interesting information on the L W S F project and problems in connection therewith see the following documents: Ltr to SG REP from COFS SHAPE, 26 Jan 58; enclosing Ltr from Dr. Von Karman; Ltr, SHAPE to SGN, sub: "Provision of Facilit ies for Lightweight Aircraft, " 14 May 58, w/ enclosure; Summary MRecord of Meeting between Mr. Meili and

. / .

C 78 : , ' \ .

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Atomic Planning.

The planning for atomic warfare which was carried out In1ACEiint..., lc r'.Ot J6 JJiUi.'<? ~>il3 OKW {Diur IUllJ iO IXlUJ f*liiJiH-u J am. . I.uuf""'-'«* »i>W 1958, _as in the past,.^was done mainly on .a.US national,basis in view of-ii* .Itomfo^ slJosJiA ziJ-JOW OfiTYO ojvo iqqi is>ji»l /. l a w . f i a ^ ^ .-»v. restr ict ions placed by USiIawsjOn diffusion of nuclear weapons information. -

ftrtJ Xd bü3k Oh p 0 "Ï kU lTLft .. rf ^c w/ivi luliuuau.^r.iij f»« The Air and Spécial Operations. Division was primarily responsible.for 'i)OA oojsoq z UJOi- i i ansa no y juu.-» w r « w i v ^«..v^rssc, this planning to'include the overall supervision and coordination.of.those ' .ouoïû- j.^.minüu uaij. j . j i / o h j j j i u u . < (48) made by Major Subordinate Commanders . ; . . ' o a o l „ . » .> c c „r, iToituiiawcf wtJTJiTi'm-sj vaajixüvi onî «ocVi -xsdrnojqcS SS a'J

bobirloni otoi-tßxfpbaoii i--./ flo ro\ bsav od oî a i i a i i i o odî Jx/o gnitta« oiuft Criteria for NATO War H e a d q u a r t e r s . ^ ^ j j t t j l 7 l t 3 i 3 7 l f l l ß o r a m o D OTAW al

, The Military Committee and the Standing, Group.were4engaged-.during -bßSfl SinrJTCTy-IOt-SM UOwDUOiu :> SJïjuiXI IJVKS . °

the fir st half of 1958 in setting, out a military policy governing.peace,and „ OJ5V7 z-io&iw i&oioun jootio a yiiimaiq o«/liJ io-ir-P-u ~>~> ^-- r^ .1 t - _ .

(45)... Members of the Production & Logist ics Group, ; International. Staff,A . , u and Members of the SHAPE Staff on the LWSF, 2 Jul 58, DCPP/838/58,

amiîiÔ,Jul >58;/Msg ;SHAPTO)l 666,^DEF-i.9'46357rt an?d.^11^^01725,^11119*58. (46) SHAPE 5 0 0 / 5 7 , AG 1 2 2 0 PANDP, 1 0 Sep 5 7 „ Ltr to.alLMSCs.,,See

J i ü i ! i , i ' C u i . / i x j u C u J i u l w

in this same connection AFSOUTH 32/58; CINCSOUTH EDP-1; ÀF-scv SOU.TH -I1- 5 8 ;r HAFM E D d 3 5 /• 5 8 ;:t CIN C AFM ED ' E DP ÎTANDSOUTH

35/58: EDP CINCNORTH and EDR CINCENT. » - ^ w f t f m h r f t l I (47) Discussion during COFS Meeting with Division Chiefs, 22 Oct 58,

,crAG.r2030xSEC Y Js 2 41 Oc t "2 5 8r a vo :> bjaorft^vo ovfld ot b.srf Ji yIo?ÜI (48) SHAPE/AO/46/58; "TargetsRequirements'' , SHAPE/AO/44/58,and.n

'SHAPE 203/58; Recall Procedure SHAPE/AO/43/58; Restrictions on o'Atomi c vplanningsSHAPE/AO/39 / 58;'SH/ 53/ 58;*SHJPE/<i 99/58; tSH/

, 159/58; AFCE/205/58; ALFCE/l.99/,58; SACEUR/.US\CINCEUR.Re-* ' 0 t l ease of Atomic Warfare SH/ao/38/58 and SH/16O/A/58; SH/A0/31 /58;

tunoiSH/.l 6l/j58; a RegionalrAtomic' Plans^iPolicies'and'-'Procedur ee'l 2Ï6tà • ISEC/23/58;.AIRCENT; AFCE/1.76/.58; .SH/AO/37./,58;,SH/-AO/.20/.58;y AFCE/50/58; AFCE/206/58; SH/r89/58; SACEUR ASP, SH 225/57;

QitnIq Southern -RegiohVAtomicr/Plan^SR'AP-1;JAFS0UTH//23 /58; jXlJRSOUTH3

43/58; COM AIR SOUTH.EDP- l4(STSC/23158);. AFNORTH, 160/58;^ CINCNORTH ASP-I ; HAFMED/66/58; CINCAFMED ASP-1; CINCENT

-HkrASR;i:ReconnaissancerRèqùiremen~tVS Supply and.Resupply of.Atomic,Weaponsrduring Hostil it ies SH/AO/28/58; •va-ûar" i ' V* p i Ut» 1 • . . i Jii Ii ? I », . •• . '

• SH/11 5/58; AFCE/151/58; ALFCE/144/58; SH/A0/17 /58; AFNORTH/ qco rrî54 /- 5 8 ; i AG 6340 AO Improvement of Posture ^ A t o m i c Groundf Deli-

very Units SH/ AO/26/ 58; ALFCE/131158; SH/99/58; ALFCE 138 and — 1-3 9 / 58,-30-Jun-58;-Targets-SACE UR" Sc hedül ed' ProgFarrTT ärgeti;

A F S O U T H / . I 6 4 / 58/Ä1-2'D«T :5'87 ÀÏRCÊNT 1 2 4 / 5 8 , 4 ItfAug SÉL^Àirfield Targets S H / 2 8 / 5 8 . .82 lui

lAirfield j f . s e oaaATS ,-ae OC

79

tanuMV.'f MWOi jjiaioiîv^; n KtEi trcju E T tew f» 3

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war headquarters. The culmination of this study was the publication of

MC 32/12 in September 1958, later approved by the North Atlantic Council.

During the preparationof MC 32/12, SHAPE was requested by the

Standing Group to give assistance on certain points regarding peace and (49)

war headquarters throughout Allied Command Europe.

On 22 September 1958, the Military Committee published MC 32/12,

thus setting out the criteria to be used for all war headquarters included

in NATO Common Infrastructure Programs.

The Military Committee considered that all major wartime head-

quarters had to be planned on the prémise that a direct nuclear attack was

possible and in most c a s e s probable. It was essential that all headquarters

be capable of immediate occupancy and operation upon receipt or orders.

In no event should it take more tha^n twenty-four hours to bring a wartime

headquarters to i ts operational state.

The criteria!established the degree of protection required for war

headquarters. Each headquarters had to be at least 16 kilometers from a

likely target, it had to have overhead cover of 200 meters in thickness,

and the tunnel entrances had to have a minimum length of 700 meters.

The Military Committee paper was discussed at a meeting of the

North Atlantic Council held on 26 November 1958. The Council decided to

invite the NATO military authorities to "reaffirm their recommendations

with regard to the major war headquarters in the light of the MC 32/12

criteria." It was specifically stated that all modifications to existing plans

and any new plans had to be submitted to the Council for approval. The

Standing Group Representative at the Council meeting stated that the mili-

tary authorities would examine each war headquarters project on a case-by-

case basis in the light of agreed policies and criteria. The Standing Group

(49) STAND 2386, 5 Apr 58; SCO OUT 22870, 14 Apr 58; SH 24044,

30 May 58; STASEC 5237, 22 Jul 58.

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would examine the results of examinations carried out by the Major

Commanders and make appropriate recommendations to the Council. On

this basis, MC 32/12 was approved by the Counci l / 5 0 )

SHAPE was requested to initiate a survey of all ACE war bead-

quarters projects, to determine whether the standard of construction of

each project was acceptable in the light of the approved criteria and, if not,

what steps were necessary and feasible to bring it up to the required stan-

dards. Seeking further guidance, SHAPE asked the Stauiding Group if it

would agree to a suggested method of carrying out the review which invol-

ved classifying al^projects into those that already met the criteria, those

that Were militarily acceptable though they did not meet the required stan-

dards, and lastly, those which needed more work to bring them up to the

criteria. In addition, SHAPE would classify those projects which were

insufficiently advanced and could be stopped because they were militarily

unsatisfactory/ 5*)

SHAPE War Headquarters (DEVASTATE).

Certain decisions were taken in early 1958 regarding the wartime

headquarters from which SACEUR would operate. Following SACEUR's

direction that the existing war headquarters site, known as DEVASTATE,

should be improved, it was decided that the SHAPE Headquarters Operations

Center (SHOC),had to be established at the B i t e as the primary wartime

command p o s t / 5 2 )

(50) MC 32/12 (Revised) (Final Decision), dtd 18 Mar 58, shows that the Council approved MC 32/12 (Revised) on 26 Nov 58, subject to re -

, affirmation by the military authorities. The relevant Council paper i s CM(58)114, dtd 26 Nov 58; see also CR(58)56, same date.

(51) STAND 2732, 13 Nov 58; LOSTAN 2706, 26 Nov 58; SH 28386, 15 Dec 58.

(52) See SEC 2030 Minutes of COFS Meeting with Division Chiefs held at SHAPE on 22 Mar 58, and also same reference, ,6.Jun 58^

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It was planned that, as soon as DEVASTATE was ready, the existing

SHAPE Operations Center (SHOC) would be replaced by a center known as

SACEUR s Peacetime Operations Room. Signal circuits routed through the

war headquarters would permit the initiation and execution of the Atoxnic

Strike Plan and the Emergency Defense Plan from SACEUR's Peacetime (53)

Operations Room as well a s from SHOC.v

A site for a permanent SHAPE War Headquarters acceptable both

to SHAPF and the French Government could not be found near Paris. SHAPE

had completed a reconnaissance of areas witji suitable communièations

facil it ies and the appropriate cover but unfortunately all s i tes eligible

under the new MC 32/12 criteria were relatively far away. The next step

suggested was a thorough study to find a site within 250 mi les of the peace-

t ime site. If such a separation of peace and war headquarters was accep-

table to SACEUR, then the peace site found would be proposed to the

French Government. As it seemed likely that any SHAPE plan would have

to'be submitted to the SGN and also would have to have the approval of

the NAC, inevitably there would be difficulties and delays. In any case,

the planning process would be long and development of an interim war (54) headquarters site became essent ia l /

SACEUR's Alert System.

On 28 July 1958, SHAPE issued a manual, "SACEUR's Alert System"

(SHAPE/60/58), which replaced the document published in 1956. SHAPE

intended the measures contained in the new manual to be effective from

1 October 1958.

The original 1956 Alert System was based on the principle of a

Formal Alert System, using three categories of alert. These three alerts

--Simple, Reinforced and General-- were combined in a system designed

(53) SEC 2030, dtd 19 Jun 58. (54) SEC 2030, 3 Dec 58.

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to "facilitate the transition from peace to war in the event of a gradual

deterioration in the international situation." The Simple Alert measures

were preliminary measures intended to put the forces assigned to SACEUR

in a state of combat readiness. The Reinforced Alert was the Stage pre-

ceding an outbreak of war, and the measures it comprised were intended

to ensure that the NATO Forces were at their maximum readiness before

a probable enemy attack was launched. Finally, the General Alert would

begin with the outbreak of hostilities. All operational plans were to be

implemented, except for atomic operations. The latter would not be initiated (55)

until R-hour was declared by SACEUR.v ' During 1957, SHAPE planners had worked on certain amendments and

additions to the Alert System. The most important of these was the ACE Counter-Surprise Military Alert System. Developed as a direct result of deficiencies shown to have existed at the time of the Suez and Hungarian cr i ses in 1956, the Coiinter-Surprise System was designed to allow the NATO Commanders to take certain measures to counter certain situations (56) which were not covered by the existing Formal Alert System/

On 22 November 1957, SHAPE sent to the Standing Group the recom-

mended ACE Counter Surprise Military Alert System for i t s approval.

SHAPE stated that after discussions with the Major Subordinate Comman-

ders, it had been agreed that a state of "Military Vigilance" be included (57) in the recommended s y s t e m /

The Standing Group approved SHAPE'S recommendations on 11 March

1958. Following this approval, the NATO Governments were requested

to give their formal approval to the entire Alert System, as revised by

the addition of the Counter Surprise Alert System, with the State of Mili-

tary Vigilance/5®^ (55) See SHAPE/76/56, 23 May 56. (56) See SHAPE History 1957, Chapt. 2, for full explanation of the Counter

Surprise MiUtary Alert System. (57) AG 1210/1 PANDP, 22 Nov 57. (58) STAND 2355, 11 Mar 58, was SGÎf approval. The MODs were requested

to study the SHAPE recommendjations in AG 1210 PANDP, 13 Jun 58. » •

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The Counter Surprise Military Planning. The Counter Surprise

Military System sent to all NATO Governments for approval in June 1958,

was the result of many months of planning and discussion between SHAPE

and the Major Subordinate Commands. A8 finally developed, the System

was divided in two stages - -State Orange and State Scarlet. State Orange

had the aim of ensuring maximum survival and protecting the NATO coun-

ter-attack capabilities. It combined all the military measures which would,

be applied by the NATO Forces wheninfornation received indicated a

possible enemy attack within one or more hours with a maximum time

approximating 36 hours.

Various measures were proposed in the event of a State Orange.

All air, ground and naval forces were to be brought to a full state of oper-

ational alertness. Exanples of the measures to be taken included placing

the Control and Reporting Systems on a full operational basis, manning of

all communications networks, dispersing from air bases all essential

equipment and supplies and making logistic preparations to support forces

dispersed or in a counter-action role.

State Scaurlet had the same general aim as State Orange, but applied

to those measures necessary when information received indicated an enemy

attack within a few minutes. Measures envisaged under the State Scarlet

included the movement of maximum personnel to war headquarters and

other operational combat stations if not already manned, the dispersion

of ships and naval aircraft and the deployment of atomic counter-action

forces to operational positions.

SHAPE also recommended certain measures to be taken before the two Counter Surprise Military States. These measures were known as the State of Military Vigilance. This was not intended to be another alert state, but a precautionary condition applicable to all the NATO Forces in a period of delicate international relations, during which certain purely military precautionary measures, adapted to local conditions and geographi-cal features, would be ordered by the various ctpipmands, which had pre-

: I J viously prepared them. - j

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The object of the State of MiUtary Vigilance was to facilitate the

transition from peace to war by putting the armed forces in such a posture

as to enable them to meet an emergency situation as quickly as possible

by applying one of the states of either the formal Alert System or the Coun-

ter Surprise Military System. These purely military measures were such

that they could be continued for several weeks, or if necessary for several months, without major disadvantages. The State of Military Vigilance

would be declared by SACEUR for assigned forces, anihe would recommend

i t s application to earmarked and national forces if the national authorities

had not already taken this step of their own accord.

The national governments were requested to agree to the delegation

by SACEUR to the Major Subordinate Commanders of this authority to

order the State of Military Vigilance.

Among the measures proposed to be taken when a State of Military

Vigilance was declared were the manning of war headquarters by a skeleton

staff, the intensification of the collection of inteUigence, a daily intelli-

gence summary to be sent to SHAPE by National Staffs and the checking

and completion of mobilization plans and alert procedures.

In a covering letter sent to aU the MOOs in June 1958, SHAPE

pointed out that in the event that a State of Military Vigilance was declared ,

assigned and earmarked forces remained under national command. This

was also true should conditions Orange or Scarlet be ordered, before the

declaration of a Reinforced Alert.

In order to implement the military measures of the proposed Alert

System, the national governments were requested to delegate to SACEUR

and to the Major Subordinate Commanders authority to declare the State

Orange or Scarlet for assigned or earmarked forces during training exer-

c ises .

The NATO nations were requested to agree to the SHAPE recommenda-

tions by 1 August 1958. On receipt of this agreement, SHAPE intended to

/

85

n , T If-

iCOSMKS TO** SKCREl

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(59) publish the new manual which would replace the existing alert s y s t e m / '

The revised manual stated the aim of the Alert System and summa-

rized the NATO policy to be adopted in the event of an armed attack as

set forth by Articles 5 and 6 of the North Atlantic Treaty.

A statement on the conditions applicable to the outbreak of hostilities

showed that the Formal Alert System was intended to deal with a situation

where warning of enemy attack was available in sufficient time. The

Counter Surprise Military System was designed to deal with a situation

whereby a hostile attack was laimched with little or no warning. With the

addition of the State of Military Vigilance, SACEUR thus had three different

but complementary procedures available to him, dependent upon circums-

tances. He woxild recommend the implementation of his chosen procedures

to the National Authorities and/or the NATO agencies, and/or the MSCs

to carry out the implementation. SACEUR thus had six different possibili-

t i e . : <60>

( I. State of Military Vigilance \ II. Counter Surprise (State Orange

SACEUR's Alert ) Military System (State Scarlet (

System ( III. Formal Alert (Simple Alert ( System (Reinforced Alert ( (General Alert

A request for information on the status of negotiations on SACEUR's

Alert System was made to SHAPE by the Standing Group on 10 October

1958. SHAPE indicated that most nations had replied favorably to the

requests made when details of the Alert System were sent on 13 June.

Only three nations had not given their views on any aspect of the SHAPE

recommendations: Italy, the United Kingdom and Turkey. Certain pro-

blems were under discussion with the Danish authorities. Eleven nations

had given their formal agreement to SACEUR's Alert System.^*)

(59) AG 1210 PANDP. 13 Jun 58. (60) SHAPE/60/58, 28 Jul 58, SACEUR's Alert System. (61) SCO IN 05960, 10 Oct 58, SGN to SHAPE; SH 27139, 21 Oct 58, to SGN.

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SHAPE 58/67 G Ö F I M I R . R T T T P — I T B C T C T T — • )

Status of SACEUR's Alert Syatem - December 1958. The annual

report on the "Military Progress of NATO" prepared by the Military

Committee stated that the combination into one publication (SHAPE/60/58)

of the formal alert system and the ACE Counter Surprise System was

"a significant improvement."

By December 1958 negotiations on the formal alert system had been

completed with all nations, except Germany. Thirteen of the nations had

completed negotiations on the counter-surprise system, and an early

agreement with the United Kingdom was expected.

(62) MC 5/13 (Final Decision), 31 Dec 58.

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CHAPTER IV

T R A I N I N G

During 1958 the SHAPE Staff continued to perform those training

missions with which SACEUR was charged by his terms of reference.

This called for the organization and training by SACEUR of forces assigned

to him, or earmarked for assignment to him by the nations, into an effec-

tive integrated fighting force capable of defending Western Europe. SACEUR

was given direct control over the higher training of all forces assigned to

his command in peacetime and had the authority to inspect the training of

all forces assigned to his command. The nations were enjoined to give

him full facil it ies to inspect cadres and other forces within the area of

Allied Command Europe earmarked for his c o m m a n d . ^

The Assistant Chief of Staff for Organization and Training (ACOS

OANDT), carried out specific actions on behalf of SACEUR during 1958

to ensure that ACE forces received the best training possible in view of

all factors --including political and economic-- involved. He coordinated

training and training exercises and supervised the system of training ins-

pections throughout ACE. Officers from the SHAPE Staff supervised and

directed the training of major military formations throughout ACE and made

recommendations for improving the training and the combat readiness of

forces . Various exercises and maneuvers held under the supervision of

SHAPE and the Major Subordinate Commands throughout 1958, formed the

backbone of the ACE training program.

(1) MC (53) 9(Final), 7 Jul 55, "Revised T.erms of Reference for the Supreme Allied Commander Europe. For definition of assigned forces and earmarked forces see Chapter II on Forces.

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The pattern of higher training in 1958 had actually been formulated

in early 1956 during General Gruenther's period as SACEUR, when

SHAPE had issued to all Major Subordinate Commanders a training direc-(2)

tive covering 1958. It stated that the further practice and development

of SACEUR's atomic procedures and policies would sf;ill receive f irst

priority in training since atomic operations would remain the key to the

strategy and tactics for ACE. It also directed testing and developing the

air defense system; continuing practice and development of tactical doc-

trines for the future land battle; and small -scale live naval exercises and

paper naval control of shipping exercises .

The principle was established that regional training programs would

be reduced in 1958 as much as possible, keeping in mind the needs of

signal and other technical units for higher training so as to allow combat

formations to concentrate on smaller unit training. At the higher training

level it was suggested that sufficient live exercises be given to improve the

standard of coordination, cooperation and control of troops of different

nationalities working with each other in adjacent areas; that studies be

continued to improve procedures and policies for air and ground delivery

and atomic weapons; and that appropriate signal, logistic and other tech-

nical services be trained in operation.

ACE Training Conference - 1958.

On 17 January 1958, SHAPE called the Annual Allied Command

Europe Training Confererence, which was chaired by General Sixsmith,

ACOS OANDT, Representative f fom all the Major Subordinate Commands

attended. The exerc i ses to be sponsored or directed by SACEUR during

1958 were discussed. Steps which had been taken to combine the Joint

Atomic and Air Defense Exercises in mid-1958 were carefully reviewed;

SHAPE'S plans for an operational readiness test program were outlined;

and the exercises which would be sponsored or directed by SACEUR in the

(2) Ltr, AG 1700 OT, 16 Mar 56, sub: "The Broad Pattern of Higher Training 1958" to all MSCs, with Amendment of 20 Apr 57.

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foUowing year, 1959, were set forth by the Chairman.

The most significant portion of the conference centered around a

recommendation by CINCENT that the exercise load in ACE be reduced.

CINCENT felt that by so doing improved exercise planning and execution

would result. Among his recommendations were proposals that the Annual

Joint Atomic and Air Defense Exercises be combined in the future as they

were to be in 1958. CINCENT proposed that exercise periods directed

responsible or higher level commanders be limited to two per year and

that major exercises be kept to a maximum of six days duration. He felt

that the months of April and September should be fixed as the two periods

for conduct of major exercises in Allied Command Europe. He recommen-

ded also that SACEUR sponsor the September exercise. For those years

in which SACEUR's requirements for major exercises could not be ful-

filled by the Joint Atomic-Air Defense exercises , he suggested that

SACEUR establish the time setting for the second major exercise period in

conjunction with Major Subordinate Commands. Regional commanders

would be permitted at least one time in each three years to conduct the

September exercise so as to meet their own specific needs without having

SHAPE impose major requirements which would alter the setting of the

exercise. It was also proposed that the exercise planning cycle start with

the development of the tentative setting at the Allied Command Europe

Training Conference two years before the exercise year in question and

that a rough time frame for the setting of exercises be announced in the

broad pattern document. With the exception of the first recommendation

made by the CINCENT, all of these proposals were agreed to. As to the

f irst recommendation - that the Joint Atomic and Air Defense EIxercises

continue to be combined - -no definite commitment could be established

until it waa determined how well the existing plans succeeded in mid-1958.

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T h e r e p r e s e n t a t i v e s of CINCSOUTH and C I N C A F M E D f i r m l y s u p p o r t e d

C I N C E N T ' s r e c o m m e n d a t i o n , bu t t h e C I N C N O R T H r e p r e s e n t a t i v e s a i d

t h a t b e c a u s e of t h e r e s e r v e c a l l - u p p r o b l e m s in t h e N o r t h , one m a j o r

e x e r c i s e p e r i o d p e r y e a r w a s t h e m a x i m u m t o w h i c h C I N C N O R T H c o u l d

c o m m i t h i m s e l f . Any p r o g r a m invo lv ing r e s e r v e c a l l - u p s t w i c e i n o n e

y e a r w o u l d h a v e t o b e c o n s i d e r e d c a r e f u l l y by D a n i s h a n d N o r w e g i a n a u t h o -

r i t i e s .

T h e p o l i t i c a l f a c t o r s i n v o l v e d in m i l i t a r y e x e r c i s e s w e r e c o m m e n t e d

u p o n b y t h e c h a i r m a n i n v i e w of t h e g r e a t i n t e r e s t a t t h e p o l i t i c a l l e v e l

i n t h e N A T O e x e r c i s e s w h i c h h a d b e e n h e l d i n t h e p a s t y e a r . A l though

S H A P E d id no t i n t e n d t o c r e a t e a p o l i t i c a l r e - a c t i o n t o e x e r c i s e s h e l d

i n A C E , in v i e w of f l u c t u a t i n g p o l i t i c a l t e n s i o n s , no e x e r c i s e w a s f r e e of

p o l i t i c a l c o n s i d e r a t i o n . G e n e r a l S i x s m i t h a s k e d t o b e kep t i n f o r m e d of

a n y p o l i t i c a l f a c t o r s w h i c h m i g h t i n f l u e n c e t h e conduc t of an e x e r c i s e , and

of a n y s t e p s w h i c h t h e e x e r c i s e s p o n s o r s h a d t a k e n to m i n i m i z e p o l i t i c a l

e f f e c t s , s h o u l d t h e s i t u a t i o n so d i c t a t e .

A l s o d i s c u s s e d a t t h e c o n f e r e n c e w e r e t h e b r o a d p a t t e r n of h i g h e r

t r a i n i n g f o r i 9 6 0 , t h e r e q u i r e m e n t s f o r e x e r c i s e b r i e f s and r e p o r t s and

t h e m a t t e r of e x a m i n i n g , d u r i n g e x e r c i s e s , t h e p r o b a b l e e f f e c t s of r a d i o -

l o g i c a l f a l l - o u t . ^

A C E R e a d i n e s s T e s t P r o g r a m .

On 12 N o v e m b e r 1957, S H A P E h a d f o r w a r d e d 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 c e r t a i n p r o p o s a l s f o r e s t a b l i s h i n g a p r o g r a m of r e a d i n e s s

t e s t s t o i m p r o v e 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 . T h e f i r s t p r o g r a m w h i c h

S H A P E p r o p o s e d w a s d e s i g n e d on ly f o r 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 , i n t h e r e t a l i a t o r y r o l e and w i th e i t h e r c o n v e n t i o n a l

o r a t o m i c w e a p o n s . ^

(3) L t r , AG 2030 O T , 22 J a n 58, c o n t a i n i n g M i n u t e s of A C E T r a i n i n g C o n f e r e n c e at S H A P E , h e l d on 17 J a n 58.

(4) F o r f u r t h e r d e t a i l s of SHAPE 'S p r o p o s a l s s e e Chap t .5 , 1957 S H A P E H i s t o r y .

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On 16 J a n u a r y 1958, r e p r e s e n t a t i v e s f r o m CINCNORTH, CINCENT,

and CINCSOUTH g a t h e r e d at SHAPE f o r a m e e t i n g at which t h e A C E

R e a d i n e s s T e s t P r o g r a m w a s d i s c u s s e d . T h e de f in i t i ve a g r e e m e n t s r e a c h e d

at t h i s m e e t i n g a m o n g the c o n f e r e e s c o n s t i t u t e d t h e b a s i s f o r f u t u r e ac t ion .

T h e y a g r e e d f o r e x a m p l e , tha t t h e p u r p o s e of a t e s t would be t w o - f o l d :

t o a s s e s s t h e r e a d i n e s s p o s t u r e of S A C E U R ' s a i r f o r c e s and to i m p r o v e

t h i s p o s t u r e by iden t i fy ing and e l i m i n a t i n g d e f i c i e n c i e s in p lann ing , e x e -

cut ion and m a t e r i e l . It w a s a g r e e d tha t it would be p o s s i b l e t o t e s t r e a d i n e s s

by " a s p e c t s , " - - b y i s o l a t i o n of k e y e m e r g e n c y type a c t i o n s wh ich cou ld

be t e s t e d s e p a r a t e l y .

T h e t e s t would be b a s e d on c u r r e n t o p e r a t i o n a l p l a n s inc luding

E D P s and A S P s of SACEUR and t h e MSCs . It would apply not only to

p l a n s f o r c o m t a t ac t ion but a l s o t o a l l p l a n s f o r l o g i s t i c and o r d n a n c e

suppo r t , p r e - s t o c k i n g , e tc . T h e e x e r c i s e p l a n s would have to r e s e m b l e

a c t u a l p l a n s a s c l o s e l y a s p o s s i b l e and in t h e f u t u r e , i t w a s a g r e e d , would (5)

be p u b l i s h e d s i m u l t a n e o u s l y wi th the a c t u a l p l a n .

The f i r s t of a s e r i e s of A C E - w i d e a i r o p e r a t i o n a l r e a d i n e s s t e s t s

wh ich s t e m m e d f r o m t h e m e e t i n g he ld in J a n u a r y took p l a c e on 10 D e c e m b e r

1958. The p u r p o s e of t h i s t e s t w a s to d e t e r m i n e t h e i n i t i a l r e a c t i o n c a p a -

b i l i ty of t h e s t r i k e f o r c e s wi th r e s p e c t to t h e i r a s s i g n e d m i s s i o n in

SACEUR' s ASP in a s i tua t ion w h e r e l i t t l e or no w a r n i n g w a s g iven . Only

a i r u n i t s w e r e involved . T h e y w e r e a s s e s s e d on t h e i r ab i l i t y t o l a u n c h

c o m b a t - r e a d y a i r c r a f t wi th c o m b a t - r e a d y c r e w s and a c o m p l e t e l y f i l l e d

out c o m b a t p r o f i l e on an a s s i g n e d t a r g e t . Actua l f ly ing beyond m a r s h a l l -

ing at t he end of t h e r u n w a y w a s l e f t t o t h e d i s c r e t i o n of t h e s t r i k e f o r c e

c o m m a n d e r s . The f i r s t t e s t a p p e a r e d h ighly s u c c e s s f u l and i t w a s dec ided

tha t f u t u r e t e s t s would be even m o r e c o m p r e h e n s i v e and would be he ld

th roughou t ACE once each q u a r t e r .

(5) L t r , AG 2200, 17 F e b 58, s u b : " A C E R e a d i n e s s T e s t P r o g r a m , " wi th e n c l o s u r e s .

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I m p o r t a n t NATO E x e r c i s e s , 1958.

C P X VIII. C P X VIII, t h e l a s t of a s e r i e s of SHAPE C o m m a n d

P o s t e x e r c i s e s u n d e r t h e 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 C o m m a n d e r , Al l ied C o m m a n d E u r o p e , w a s he ld at SHAPE f r o m

28 A p r i l t o 1 M a y 1958, i n c l u s i v e .

T h e 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 Staff , by m e m b e r s of t h e Standing Group , by t h e m a j o -

r i t y of 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 A t l an t i c ,A l l i ance , by t h e

S u p r e m e C o m m a n d e r 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 At lan t ic ,

by t h e Al l i ed C o m m a u i d e r s - i n - C h i e f and s e n i o r o f f i c e r s of Channe l C o m m a n d ,

and by r e g i o n a l C o m m a n d e r s - i n - C h i e 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 .

F o r t h e f i r s t t i m e i n a SHAPE CPX, t h e S e c r e t a r y - G e n e r a l of NATO

took an a c t i v e p a r t in t h e e x e r c i s e .

T h e p u r p o s e of t h e e x e r c i s e w a s to s tudy how b e s t Al l i ed C o m m a n d

E u r o p e cou ld p r o d u c e t h e n e c e s s a r y f o r c e s in a c c o r d a n c e wi th p r a c t i c a l

r e a l i t i e s and f i n a n c i a l p o s s i b i l i t i e s .

T h e s u p p o r t a v a i l a b l e f r o m SACLANT and CINCHAN f o r SACEUR

w a s c o n s i d e r e d and d i s c u s s e d , and t h e p r o b l e m s of Air D e f e n s e in Al l ied

C o m m a n d E u r o p e w e r e g iven c o n s i d e r a t i o n .

T h e n e e d f o r c o l l e c t i v e b a l a n c e d f o r c e s th roughou t t h e n a t i o n s of

A l l i ed C o m m a n d E u r o p e w a s e m p h a s i z e d , and the u r g e n t n e e d f o r a f u l l y

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 w a s s t r e s s e d .

E x e r c i s e F U L L P L A Y . T h e Jo in t A t o m i c - A i r D e f e n s e e x e r c i s e

F U L L P L A Y w a s h e l d u n d e r S A C E U R ' s s p o n s o r s h i p f r o m 3 - 5 J u n e 1958.

T h e e x e r c i s e w a s s t a g e d in a l l r e g i o n s except the M e d i t e r r a n e a n . It w a s

d iv ided in to two m a j o r p o r t i o n s , a jo in t a t o m i c p o r t i o n , c o d e - n a m e d

F A S T P L A Y , and t h e a i r d e f e n s e p o r t i o n , GOOD P L A Y . T h e r e w a s a

f u n d a m e n t a l d i f f e r e n c e b e t w e e n F A S T P L A Y , t h e a t o m i c p a r t , and GOOD

P L A Y , t h e a i r d e f e n s e p a r t , b e c a u s e FAST P L A Y waB sponsored and

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c o n t r o l l e d by SHAPE and de ta i l ed p l ans w e r e p r e p a r e d in t h i s head -

q u a r t e r s . However , s ince SACEUR w a s only t h e a i r d e f e n s e c o o r d i n a t o r

of All ied C o m m a n d Europe , GOOD PLAY, al though s p o n s o r e d by SHAPE i

w a s d i r e c t e d and con t ro l l ed by the t h r e e M a j o r Subordinate C o m m a n d s .

Each r e g i o n a l c o m m a n d e r , within the v e r y b r o a d f r a m e w o r k given h i m

by SHAPE, had to p r e p a r e de ta i led p l ans which bes t sui ted the s i tua t ion

and geog raphy within h i s own a r e a . The a i m of the joint a tomic po r t i on

of F U L L P L A Y w a s to p r a c t i c e the p r o c e d u r e s involved in t he execut ion

of SACEUR's ASP. P a r t i c u l a r e m p h a s i s w a s given to t he p r a c t i c e of

p r o c e d u r e s which p r e v i o u s e x e r c i s e s had shown to be de f ic ien t . All land ,

nava l and a i r f o r c e s a s s i g n e d t o / o r e a r m a r k e d fo r SACEUR p l u s elements

of SAC and the UK Bomber Command p a r t i c i p a t e d in the a tomic po r t i on .

All 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 ve " b a s i s , whi le land and nava l f o r c e s

in s o m e c a s e s u s e d a CPX b a s i s if the c o m m a n d e r fe l t i t a p p r o p r i a t e . The

joint a tomic p o r t i o n FAST P L A Y w a s c o n s i d e r e d to have had r e s u l t s supe -I

r i o r to t h o s e ach ieved in any p r i o r e x e r c i s e . However , it w a s s t i l l appa ren t

that the vo lume of s igna l s t r a f f i c r e q u i r e d to put the ASP into e f fec t , even

under the bes t condi t ions , i m p o s e d a capac i ty load on A C E ' s f a c i l i t i e s .

C e r t a i n l y in w a r t i m e t h i s vo lume could not be m a i n t a i n e d without c o n s i d e r -

ab le delay . The t i m e r e q u i r e d to p a s s the g e n e r a l a l e r t / R - h o u r m e s s a g e

f r o m SHAPE to ope ra t iona l un i t s w a s l e s s than b e f o r e but t h e r e s t i l l w a s

a r e q u i r e m e n t to i m p r o v e on t h i s t i m e . The t i m e delay be tween a tomic

s t r i k e and t he r e c e i p t of r e c o n n a i s s a n c e r e s u l t s showed a need fo r f u r t h e r

i m p r o v e m e n t .

GOOD PLAYi t he a i r d e f e n s e p o r t i o n of the e x e r c i s e , w a s a i m e d

at e x e r c i s i n g the o v e r a l l a i r d e f e n s e o rgan i za t i on of ACE "including

na t ional and loca l p l a n s " aga ins t r a i d s o r t i e s g e n e r a t e d by the joiiit a tomic

e x e r c i s e . F r i e n d l y a i r de fense f o r c e s p a r t i c i p a t i n g w e r e those 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 including f o r c e s a s s i g n e d to COMSTRIK-

FORSOUTH, a s wel l a s the a i r d e f e n s e f o r c e s of Belg ium, the N e t h e r l a n d s

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and F r a n c e . In add i t ion , c e r t a i n o the r na t iona l h e a d q u a r t e r s and NATO

h e a d q u a r t e r s p a r t i c i p a t e d . T h i s e x e r c i s e c o n c e n t r a t e d an i m p o r t a n t

p a r t of t h e a i r d e f e n s e f o r c e s of ACE in t h e T W O A T A F and F O U R A T A F

a r e a . It d e m o n s t r a t e d tha t t he c o o p e r a t i o n be tween a i r d e f e n s e u n i t s w a s

not sxiff ic ient ly c l o s e b e c a u s e of i n a d e q u a t e c o m m u n i c a t i o n s . The e a r l y

w a r n i n g s y s t e m w a s only p a r t i a l l y e f f e c t i v e owing obv ious ly to i n a d e q u a t e

r a d a r equ ipmen t and l a c k of t r a i n e d p e r s o n n e l t h roughou t t h é s y s t e m .

T h e p r i m a r y d i f f i c u l t y h a m p e r i n g t h e execu t ion of GOOD P L A Y w a s the

l a c k of an a p p r o v e d r e g i o n a l a i r d e f e n s e p l an . In f a c t , GOOD P L A Y w a s

a c t u a l l y t h r e e s e p a r a t e e x e r c i s e s (TWOATAF, FOUR AT AF, and F r e n c h

DAT a r e a s ) conduc t ed s i m u l t a n e o u s l y in C e n t r a l E u r o p e . Iden t i f i ca t i on

w a s an a c u t e p r o b l e m . The e x e r c i s e r e v e a l e d s o m e de f in i t e d i f f e r e n c e s

of opinion b e t w e e n a r m y and a i r f o r c e p e r s o n n e l r e g a r d i n g t h e o p e r a t i o n a l

u s e of NIKE. Dur ing t h e e n t i r e e x e r c i s e m o r e t han 900 a i r d e f e n s e s o r t i e s

w e r e f lown wi th m o r e t h a n 800 r a i d s being i n t e r c e p t e d . T h e r e w e r e a l s o (6)

0

830 s u c c e s s f u l NIKE e n g a g e m e n t s .

E x e r c i s e M E D F L E X F O R T . M E D F L E X F O R T w a s a m a j o r nava l

e x e r c i s e h e l d f r o m 1 9 - 2 4 May 1958, wh ich took p l a c e in t h e e n t i r e M e -

d i t e r r a n e a n a r e a f r o m t h e D a r d a n e l l e s to the S t r a i t s of G i b r a l t a r and w a s

i n t e n d e d t o e x e r c i s e M e d i t e r r a n e a n f o r c e s in c a r r y i n g out t h e i r appo in ted

t a s k s at a r e l a t i v e l y l a t e s t age in a t o m i c w a r . As a s u p p l e m e n t a r y a i m ,

t h e r e d e p l o y m e n t of f o r c e s r e q u i r e d f o r d e f e n s e of t h e Aegean in the event

t h a t t h e T u r k i s h S t r a i t s f e l l w a s a l s o t e s t e d . C I N C A F M E D d i r e c t e d t h e

e x e r c i s e and r e t a i n e d o p e r a t i o n a l c o m m a n d of Al l ied F o r c e s M e d i t e r r a -

n e a n . T h e s t r e s s in t h i s e x e r c i s e w a s on a n t i - s u b m a r i n e m e a s u r e s .

E x e r c i s e HOSTAGE NOIR. The p r o b l e m s of w a r f a r e wi th in t h e

C e n t r a l R e g i o n b a s e d upon t h r e e t y p e s of a g g r e s s i o n a g a i n s t NATO w e r e

(6) M C 4 3 / 6 , NATO E x e r c i s e s 1958, 18 J a n 59, Appendix B. (7) Ibid, Appendix C.

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e x a m i n e d by CINCENT in E x e r c i s e HOSTAGE NOIR. The f i r s t two

s i t u a t i o n s u s e d t h e s a m e e n e m y p l a n for an a l l - o u t a t t ack by t h e c o m m u n i s t

b loc , except tha t in t h e f i r s t c a s e t h e a g g r e s s o r a c h i e v e d c o m p l e t e s u r p r i s e ,

wh i l e in t h e s econd c a s e NATO f o r c e s w e r e ab le t o i m p l e m e n t a l e r t m e a -

s u r e s to a c h i e v e a h ighe r d e g r e e of r e a d i n e s s b e f o r e being a t t a c k e d . The

t h i r d p a r t of t h e e x e r c i s e c o n s i d e r e d a s i tua t ion w h e r e t h e a g g r e s s o r a i m e d

only at l i m i t e d o b j e c t i v e s and conf ined h i s a t t ack to t h e u s e of conven t iona l

w e a p o n s . P a r t i c u l a r e m p h a s i s w a s p l a c e d upon p r o b l e m s of a i r d e f e n s e (8)

and of c o m m u n i c a t i o n s in t h e C e n t r a l zone .

E x e r c i s e HOSTAGE B L E U . In e a r l y N o v e m b e r 1958 at t he E c o l e

S u p é r i e u r e de G u e r r e in P a r i s , t h e 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 s t a g e d a m a p e x e r c i s e of m a j o r i m p o r t a n c e . All s e n i o r l and f o r c e

c o m m a n d e r s of t h e C e n t r a l Reg ion down to and inc luding C o r p s C o m -

m a n d e r s , t h e A T A F C o m m a n d e r s , m a n y na t iona l Ch ie f s of Staff and

s e n i o r o f f i c e r s f r o m SHAPE inc lud ing SACEUR and DSACEUR a t t ended

t h i s e x e r c i s e , which w a s known a s HOSTAGE B L E U . The e x e r c i s e a i m e d

at b r i ng ing m i l i t a r y th inking a m o n g sen io r l and f o r c e c o m m a n d e r s Into

l i n e on s t r a t e g i c a l land f o r c e p r o b l e m s wi th in t h e a r e a of L A N D C E N T .

The a i m w a s not t o t e s t c u r r e n t or f u t u r e o p e r a t i o n a l p l a n s but to t e s t

new i d e a s on t h e conduct of o p e r a t i o n in a t o m i c w a r f a r e . T h i s w a s t h e

f i r s t o c c a s i o n in which s en io r l and f o r c e c o m m a n d e r s in C e n t r a l E u r o p e

had been ab le to exchange t h e i r i d e a s in de t a i l . The se t t ing fo r HOSTAGE

BLEU w a s b a s e d on the t ype of w a r e n v i s a g e d by MC 70 and t h e s i tua t ion

began on the evening of D - p l u s - Z wi th f r i e n d l y f o r c e s on t h e d e f e n s i v e

a g a i n s t t h e i n v a d e r ' s i n i t i a l s u c c e s s . T h e e x e r c i s e r a n p r o g r e s s i v e l y

t h r o u g h f i v e d i f f e r e n t p r o b l e m s and s i t ua t i ons , e a c h changing on a p h a s e d

t i m e b a s i s . S t r e s s w a s g iven to t h e u s e of g round a t o m i c w e a p o n s du r ing

t h e l a n d ba t t l e . ^ ^

(8) MC 4 3 / 6 , NATO E x e r c i s e s 1958, Appendix D. (9) Ibid, Appendix E.

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E x e r c i s e C R E S C E N T HINGE. A Jo in t A t o m i c S t r i k e E x e r c i s e w a s

c o n d u c t e d in W e s t e r n T u r k e y and a d j a c e n t w a t e r s on 7 and 8 O c t o b e r 1958.

It i n c l u d e d a n t i - s u b m a r i n e w a r f a r e p l a y . F r i e n d l y f o r c e s w e r e t h o s e a s s i g -

n e d t o CINCSOUTH, w h i l e t he e n e m y f o r c e s w e r e c o n t r i b u t e d by CINC-

A F M E D a n d t h e R A F B o m b e r C o m m a n d . C R E S C E N T HINGE w a s d e s i g n e d

t o e x e r c i s e h e a d q u a r t e r s and u n i t s of AIRSOUTH, LANDSOUTHEAST and

STRIKFORSOUTH; t h e 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 ;

and CINCSOUTH'S r e g i o n a l a t o m i c p l a n . It o r i g i n a l l y had b e e n p l a n n e d

t o hold E x e r c i s e C R E S C E N T HINGE in two p h a s e s - - t h e f i r s t p h a s e t o

p r a c t i c e e x e c u t i o n of t h e A S P s , t h e s e c o n d p h a s e t o e x e r c i s e h e a d q u a r t e r s

and u n i t s i n jo in t d i r e c t a i r s u p p o r t o p e r a t i o n s and a m p h i b i o u s l and ing

o p e r a t i o n s . H o w e v e r , b e c a u s e of t h e p o l i t i c a l l y d i f f i cu l t s i t ua t i on in t h e

E a s t e r n M e d i t e r r a n e a n d u r i n g t h e Au tumn of 1958, i t w a s judged p r u d e n t

t o c a n c e l p h a s e two , p a r t i c u l a r l y t h e a m p h i b i o u s landing o p e r a t i o n . The

o b j e c t i v e s of p h a s e one w e r e c a r r i e d out and a c c o m p l i s h e d . E x c e l l e n t

t r a i n i n g i n s t r i k e a i r d e f e n s e and a n t i - s u b m a r i n e o p e r a t i o n s w a s r e c e i v e d

by t h e f o r c e s p a r t i c i p a t i n g .

C a n c e l l a t i o n of E x e r c i s e F L A M E TIDE. U n s e t t l e d p o l i t i c a l cond i t ions

in t h e M e d i t e r r a n e a n a r e a w e r e r e s p o n s i b l e f o r t he c o m p l e t e c a n c e l l a t i o n

of one m a j o r e x e r c i s e d u r i n g 1958. E x e r c i s e F L A M E TIDE had b e e n

s c h e d u l e d f o r t h e p e r i o d 12-19 S e p t e m b e r , t o t e s t t h r o u g h m a n o e u v r e s

and C P X t h e c a p a b i l i t y of t he g r o u n d f o r c e s s i t ua t ion in N o r t h e r n G r e e c e

and T u r k i s h T h r a c e . S A C E U R ' s a l e r t s y s t e m , t he c u r r e n t E D P of LAND-

SOUTHEAST, t he 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 SIXATAF and S T R I K F O R -

SOU T H and t h e i r c a p a b i l i t y in conven t iona l and a t o m i c s t r i k e s in s u p p o r t

of G r e e k and T u r k i s h f o r c e s w e r e t o be t e s t e d . H o w e v e r , owing t o t he

d i f f i c u l t i e s of m o u n t i n g a l a r g e - s c a l e e x e r c i s e in t he E a s t e r n M e d i t e r r a n e a n

u n d e r t he c i r c u m s t a n c e s wh ich t h e n e x i s t e d , SACEUR dec ided to c a n c e l

t h e e x e r c i s e . In o r d e r t o d e r i v e t h e m a x i m u m b e n e f i t s p o s s i b l e f r o m p a r t i -

c i p a t i o n in t h e p l ann ing , n a t i o n a l a u t h o r i t i e s conduc ted a p p r o p r i a t e p o r t i o n s

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of t h e e x e r c i s e u n d e r na t i ona l a u s p i c e s . NATO o f f i c e r s and s ta f f c o m -

m a n d e r s p a r t i c i p a t e d o n l y ' a s o b s e r v e r s / * 0 ^

E x e r c i s e s in G e n e r a l .

While no m a j o r p r o b l e m s w e r e e n c o u n t e r e d in p lanning e x e r c i s e s ,

s e v e r a l i m p o r t a n t p r o b l e m s w e r e m e t in t h e i r execut ion , f i r s t , i n a d e q u a t e

c o m m u n i c a t i o n s cont inued t o be a m a j o r p r o b l e m , p a r t i c u l a r l y in N o r t h

N o r w a y and T u r k e y and be tween land h e a d q u a r t e r s and h e a d q u a r t e r s a f l o a t .

The c o m m u n i c a t i o n s s e c u r i t y d u r i n g E x e r c i s e F U L L P L A Y r e v e a l e d

p r a c t i c e s and p r o c e d u r e s which could h a v e c o m p r o m i s e d p o r t i o n s of o p e r -

a t iona l p l a n s .

L a c k of a d e q u a t e c o m m u n i c a t i o n s m a d e i t n e c e s s a r y f o r Subord ina t e

C o m m a n d e r s , t o ac t o v e r c o n s i d e r a b l e p e r i o d s in a b s e n c e of c o n t a c t w i th

t h e i r s u p e r i o r s . An o v e r a l l a i r d e f e n s e p l a n b a s e d on the p r i n c i p l e of i n -

t e g r a t i o n w a s bad ly needed . B e f o r e t h e e m e r g e n c y d e f e n s e p l a n could b e

i m p l e m e n t e d t h e r e had to be a h igh d e g r e e of r e a d i n e s s . T h e h ighes t p o s -

s ib le s t a t e of r e a d i n e s s wi th in c u r r e n t r e s o u r c e s , and addi t iona l r e s o u r c e s

c r i t i c a l t o t h e s u r v i v a l and r e t a l i a t i o n had t o be obta ined .

I n t e g r a t i o n of T r a i n i n g R e s o u r c e s .

T r a i n i n g w a s b a s i c a l l y a n a t i o n a l r e s p o n s i b i l i t y but in t h o s e c a s e s

w h e r e t r a i n i n g r e q u i r e m e n t s w e r e obv ious ly beyond the c a p a c i t y of t h e i n -

d iv idua l na t i on c o n c e r n e d , SHAPE f e l t t ha t s p e c i a l a r r a n g e m e n t s should

be m a d e on a NATO b a s i s to m e e t t h e s e r e q u i r e m e n t s . T o w a r d t h i s end

a n u m b e r of s p e c i a l t r a i n i n g f a c i l i t i e s had a l r e a d y been c r e a t e d and o t h e r s

w e r e u n d e r d e v e l o p m e n t . T h e s e w e r e :

- Deve lopment of Air Weapons T r a i n i n g I n s t a l l a t i o n s - S o l e n z a r a

and D e c i m o m a n n u ;

- Deve lopmen t of f i gh t e r w e a p o n s i n s t r u c t o r school at S o l e n z a r a ;

- I nves t i ga t i on of t h e p r o b l e m s of p r a c t i c e f i r i n g r a n g e f a c i l i t i e s f o r the t r a i n i n g of m i s s i l e u n i t s in E u r o p e ;

(10) L t r , AG 1700 OANDT, 11 M a r 59, to SGN1 sub : " R e p o r t on NATO E x e r c i s e s 1958."

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- D e v e l o p m e n t of t h e NATO. T a c t i c a l Ai r Nav iga t ion School at t h e R o y a l N e t h e r l a n d s Ai r F o r c e - R a d a r School, Dee len , N e t h e r l a n d s ;

- T h e Act ion Speed T a c t i c a l T r a i n e r at M a l t a f o r t h e NATO n a v a l f o r c e s in t h e M e d i t e r r a n e a n ;

- U s e of t h e R o y a l Navy T a c t i c a l School at Woolwich, England , f o r NATO n a v a l f o r c e s in t h e N o r t h e r n r e g i o n ;

- I n s t r u c t i o n ' o f t h e ACE n a v a l o f f i c e r s in a t o m i c w a r f a r e both at

t h e SACLANT f a c i l i t y , Nor fo lk , and by ACLANT t o u r i n g t e a m s ;

- T h e I n s t r u c t i o n p r o v i d e d by US M i l i t a r y A s s i s t a n t A d v i s o r y G r o u p s ;

- Jo in t u s e of a r e a s or r a n g e s , p a r t i c u l a r l y in the C e n t r a l Reg ion ; a s e x a m p l e s , u s e of t h e AA r a n g e at P u t l o s by N o r t h e r n A r m y G r o u p f o r c e s and the Hohne tank r a n g e s by bo th N o r t h e r n and C e n t r a l A r m y G r o u p s ;

- F o u r NATO C o u r s e s at t he School of L a n d / A i r W a r f a r e , Old S a r u m , U . K . ;

- A NATO s e n i o r o f f i c e r s ' Study P e r i o d at t he Jo in t C o n c e a l m e n t C e n t r e , N e t h e r a v e n , U . K . ;

- T h r e e NATO c o u r s e s at t h e Jo in t S e r v i c e s A m p h i b i o u s W a r f a r e C e n t r e , P o o l e , D o r s e t , U . K . ;

- T h r e e NATO c o u r s e s at t he US A r m y Specia l Weapons School, O b e r a m m e r g a u , G e r m a n y ;

- A NATO a i r - g r o u n d o p e r a t i o n s c o u r s e at t h e U S A F E A i r - G r o u n d School, R a m s t e i n , G e r m a n y ;

- SHAPE O r i e n t a t i o n C o u r s e f o r Staff Signal O f f i c e r s conduc ted

by t h e Signal Divis ion at SHAPE.

In J a n u a r y 1958, SHAPE had, in an e f f o r t t o b r i n g about s o m e of

t h e b e n e f i t s of i n t e g r a t i o n in t r a i n i n g r e s o u r c e s , a s k e d t h e n a t i o n s wh ich

of t h e i r t r a i n i n g e s t a b l i s h m e n t s could be e n l a r g e d to a d m i t a NATO i n -

t a k e and what f u t u r e t r a i n i n g r e q u i r e m e n t s w e r e e n v i s a g e d f o r wh ich

o u t s i d e a s s i s t a n c e would be r e q u i r e d and which , t h e r e f o r e , would be b e s t

hand led on a NATO b a s i s . The r e p l i e s r e c e i v e d to t h e s e q u e r i e s w e r e

i n c o n c l u s i v e and l ed n o w h e r e . SHAPE, t h e r e f o r e , dec ided t h a t t h e p r o b l e m

should be r e - a p p r a i s e d w i th a v i e w t o s t r e a m l i n i n g t h e c o m b i n e d m i l i t a r y

e f f o r t of NATO and t h u s r e l i e v i n g t h e f i n a n c i a l b u r d e n of c o s t s on t h e

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NATO n a t i o n s . In D e c e m b e r 1958, SHAPE a d d r e s s e d a l l t h e M a j o r Su-

b o r d i n a t e C o m m a n d e r s on the t h r e e r e l a t e d p r o b l e m s of i n t e g r a t i o n of

t r a i n i n g r e s o u r c e s , t h e a d v i s a b i l i t y of e s t a b l i s h i n g a NATO Staff College ~

and t h e m e a n s of i m p r o v i n g i n t e g r a t i o n of Al l i ed C o m m a n d E u r o p e p i lo t

t r a i n i n g p r o g r a m s . The 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

g ive t h e i r f u l l c o n s i d e r a t i o n to t h e s e p r o b l e m s which w e r e out l ined and

d e s c r i b e d f o r t h e m in t h e SHAPE c o m m u n i c a t i o n and to a d v i s e SHAPE by

30 J a n u a r y 1959 of t h e i r c o m m e n t s and r e c o m m e n d a t i o n s . ^ ^

B r o a d P a t t e r n of Higher T r a i n i n g i 9 6 0 .

As had b e e n t h e c a s e in t h e p a s t , SHAPE i s s u e d in A p r i l 1958 a

d i r e c t i v e ex tending SACEUR's t r a i n i n g p o l i c y t h r e e y e a r s in to t h e f u t u r e ,

in t h i s c a s e t h r o u g h t h e y e a r i 960 . The f a c t o r s which would a f f e c t t r a i n -

ing in i 960 , t h e t r a i n i n g a i m s f o r t h a t y e a r and the e x e r c i s e s which would i b e he ld in i 9 6 0 , wh ich w a s t h e t h i r d y e a r of t h e NATO t h r e e - y e a r t r a i n i n g

c y c l e , w e r e se t out in t h i s d i r e c t i v e . The d i r e c t i v e w a s sent to a l l M a j o r

Subord ina te C o m m a n d e r s f o r ac t ion , w i th a l l na t i ona l MODs in Al l i ed (12) C o m m a n d E u r o p e be ing f u r n i s h e d i n f o r m a t i o n c o p i e s .

R e l e a s e of I n f o r m a t i o n on NATO E x e r c i s e s .

The fu l l r e p o r t on NATO e x e r c i s e s wh ich had b e e n he ld in 1957

w a s f u r n i s h e d t o t h e NATO Coxincil in m i d - 1 9 58. Som e of t h e Counci l

m e m b e r s f e l t tha t t h i s w a s t oo long a de l ay fo l lowing t h e c o m p l e t i o n of

t h e e x e r c i s e s and tha t t h e Counci l should be f u r n i s h e d f u l l i n f o r m a t i o n on

the r e s u l t s of an e x e r c i s e a s soon a s p o s s i b l e a f t e r t he e x e r c i s e had been

c o n c l u d e d . ^ ^

(11) L t r , AG 1100 OANBT, 5 DEC 58, t o M S C s , sub : " I n t e g r a t i o n of T r a i n i n g R e s o u r c e s . "

(12) L t r , AG 1700 OT, 5 F e b 58, to a l l M S C s , sub : " 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 i 9 6 0 . "

(13) M s g , SCO IN 1283, SGREP to SGN, 2 J u l 58.

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L e n g t h of Nationatl M i l i t a r y S e r v i c e .

A p r o b l e m which had s e r i o u s e f f e c t on the c o m b a t r e a d i n e s s of

S A C E U R ' s f o r c e s amd which had n e v e r been r e s o l v e d s a t i s f a c t o r i l y w a s

tadten u n d e r v e r y c a r e f u l s tudy du r ing 1958. Since the f o r m a t i o n of

SHAPE, v a r i o u s n a t i o n s had r e d u c e d t h e l eng th of the p e r i o d of na t i ona l

s e r v i c e , r e d u c i n g a c c o r d i n g l y , of c o u r s e , t h e p e r i o d of t r a i n i n g and, in

t h e S H A P E v iew, t h e o v e r a l l e f f e c t i v o i e s s of the f o r c e s . In N o v e m b e r

I 9 5 7 , at S A C E U R ' s r e q u e s t , Ed inbu rgh U n i v e r s i t y m a d e a v a i l a b l e t h e

s e r v i c e s of M r . Den i s McMahon , Senior L e c t u r e r of P s y c h o l o g y , who

w a s a s k e d to s tudy t h e q u e s t i o n of t h e l e n g t h of nationad s e r v i c e f r o m t h e

s c i e n t i f i c poin t of v i e w . P r e v i o u s l y t h e p r o b l e m had b e e n s tud ied by

S H A P E and the s taff r e c o m m e n d a t i o n w a s tha t c o u n t r i e s be a s k e d not to

r e d u c e t h e i r p e r i o d s of na t iona l s e r v i c e be low 18 m o n t h s . In c a r r y i n g out

h i s i n v e s t i g a t i o n s du r ing 1958, M r . McMahon v i s i t e d i n f a n t r y , t ank and

a r t i l l e r y u n i t s of s ix of t h e NATO n a t i o n s in t h e f i e l d and had c o n f e r e n c e s

wi th c o m m a n d i n g o f f i c e r s of t h e s e un i t s . Dur ing t h i s p e r i o d h e t a lked

wi th m o r e t h a n 450 o f f i c e r s f r o m t h e s e n a t i o n s . He a t t e m p t e d to d e t e r m i n e

t h e po in t at wh ich a p l a t e a u in the c u r v e of m i l i t a r y ef f i c i e n c y of t r o o p s w a s

r e a c h e d and conc luded tha t unde r n o r m a l cond i t ions of t r a i n i n g i t took an

a v e r a g e of 12 m o n t h s t o t r a i n new r e c r u i t s to a poin t w h e r e t h e c u r v e of

m i l i t a r y e f f i c i e n c y f l a t t e n e d out . T h i s did not m e a n tha t t r o o p s a f t e r

12 m o n t h s c e a s e d to i m p r o v e , but m e r e l y tha t a f t e r 12 m o n t h s t h e i r i m -

p r o v e m e n t w a s l e s s m a i k e d . The t i m e r e q u i r e d t o t r a i n NCOs auid d e t a c h -

m e n t c o m m a n d e r s a v e r a g e d about 18 m o n t h s . The f a c t o r s , of c o u r s e ,

wh ich a f f e c t e d t h e a c h i e v e m e n t of c o m b a t r e a d i n e s s i n c l u d e d t h e s t r e n g t h

and e x p e r i e n c e of t h e r e g u l a r NCO c a d r e ; t h e qua l i ty of the t r o o p s ; t h e

r e p l a c e m e n t s y s t e m ; t h e ava i l ab i l i t y of t r a i n i n g a r e a s and equ ipmen t ;

auid t h e a m o u n t of a d m i n i s t r a t i o n and housekeep ing 4 u t i e s wh ich i m p e d e d

t r adn ing . M r . McMahon , in t h e r e p o r t which he s u b m i t t e d t o SACEUR,

p o i n t e d out t ha t , in h i s opinion, t h e r e w a s no s p e c t a c u l a r m e a n s by which

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t h e t i m e n e e d e d f o r t r a i n i n g could be s h o r t e n e d ; t ha t du r ing t h e f i r s t

12 m o n t h s t h e a c t u a l t i m e t r o o p s spent in t r a i n i n g w a s a m a j o r f a c t o r in

ob ta in ing e f f i c i e n c y . Addi t ional t i m e w a s n e e d e d in h a r d e n i n g and weld ing

t r o o p s in to c o m b a t t e a m s b e f o r e t h e y w e r e c o m b a t . r e a d y .

While t h e n a t i o n depended on na t iona l s e r v i c e t o p r o v i d e a s ign i f i can t

p r o p o r t i o n of i t s a r m y , it w a s not p o s s i b l e to r e d u c e na t iona l s e r v i c e

be low 18 m o n t h s and s t i l l r e t a i n NATO a s s i g n e d f o r c e s at a f u l l y a c c e p -(14)

t a b l e s t a t e of c o m b a t r e a d i n e s s /

The T r a i n i n g A r e a P r o b l e m .

One of t h e m o s t s e r i o u s p r o b l e m s in t h e f i e ld of t r a i n i n g w a s tha t

of p r o c u r i n g l and t r a i n i n g a r e a s on which to conduct unit and ind iv idua l

t r a i n i n g . T h i s w a s p a r t i c u l a r l y t r u e in G e r m a n y , w h e r e t h e a c q u i s i t i o n

of l and wh ich had been d i f f i cu l t du r ing 1957 r e m a i n e d a c u t e du r ing 1958.

SHAPE had been a t t e m p t i n g f o r s o m e t i m e to c o o r d i n a t e a r r a n g e m e n t s f o r

u s e of a c o m b i n e d t r a i n i n g a r e a on t h e G e r m a n - B e l g i a n b o r d e r , t h e

V o g e l s a n g - E l s e n b o r n a r e a . E f f o r t s had been m a d e t o p r o v i d e t h i s a r e a

wi th t h e u n d e r s t a n d i n g tha t both G e r m a n and Be lg ian f o r c e s would u t i l i s e

i t a s we l l a s a t h i r d na t ion , which both Be lg ium and G e r m a n y had a g r e e d • (15)

would be a l lowed t o u s e t h e a r e a du r ing a s ix w e e k s t r a i n i n g p e r i o d / '

The Be lg i an G e n e r a l Staff , work ing t h r o u g h SHAPE, p roposed tha t

p. m e e t i n g be he ld wi th G e r m a n r e p r e s e n t a t i v e s in o r d e r tha t b i - l a t e r a l

a r r a n g e m e n t s be m a d e f o r t h e d iv i s ion of the r e m a i n d e r of t h e t r a i n i n g

t i m e be tween B e l g i u m and G e r m a n y . On 24 J u n e 1958, the Chief of Staff ,

SHAPE, w r o t e to t h e Chief of t j ie G e r m a n A r m e d F o r c e s Staff p r o p o s i n g

(14) M e m o r a n d u m AG 0910 OT, Oct 58, s u b : " L ength of Nat iona l S e r v i c e and M i l i t a r y E f f i c i e n c y ; " - R e p o r t ' s u b m i t t e d by Dr . McMahon , 11 Aug 58, "Leng th of S e r v i c e and M i l i t a r y E f f i c i e n c y , " kep t in S e c r e t a r i a t f i l e and in f i l e s of OANDP Divis ion .

(15) L t r , G e n e r a l Schuyler to G e n e r a l H e u s i n g e r , 24 J a n 58; L t r , G e n e r a l Schuyler to G e n e r a l H a r t e o n , 24 J a n 58.

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t h a t such a m e e t i n g b e h e l d and t h a t SHAPE send an o b s e r v e r t o t h i s

m e e t i n g .

In h i s r e p l y t h e G e r m a n o f f i c i a l po in t ed out t ha t e s t a b l i s h i n g a

c o m m o n t r a i n i n g g r o u n d at V o g e l s a n g - E I s e n b o r n w a s s t i l l f a r f r o m a

r e a l i t y and would r e q u i r e a c o n s i d e r a b l e l eng th of t i m e . T h i s s t e m m e d f r o m

t h e n e c e s s i t y f o r s e c u r i n g a g r e e m e n t of t h e l o c a l g o v e r n m e n t , LAND

N O R D R H E I N - W E S T F A L E N t o t h e e x t e n s i o n of t h e Voge l sang t r a i n i n g a r e a .

He s u g g e s t e d tha t B e l g i a n - G e r m a n d i s c u s s i o n s and n e g o t i a t i o n s be p o s t -

p o n e d un t i l a g r e e m e n t had been r e a c h e d f o r t h e a c q u i s i t i o n of t h e n e c e s -

s a r y l a n d wi th in G e r m a n y . The Chief of Staff , SHAPE, k e p t t h i s i s s u e

open , h o w e v e r , by a g a i n a d d r e s s i n g G e n e r a l H e u s i n g e r on 18 Apr i l ,

po in t ing out t ha t , wh i l e he fu l l y a p p r e c i a t e d the d i f f i c u l t i e s in s e c u r i n g

add i t i ona l l and , c e r t a i n d e v e l o p m e n t s w o r t h y of a t t en t i on had t aken p l a c e

i n t h e m e a n t i m e . At SHAPE 'S r e q u e s t , t h e s u s p e n s i o n f o r m e r l y i m p o s e d

on i n f r a s t r u c t u r e f u n d s f o r t h i s t r a i n i n g p r o j e c t had b e e n l i f t e d b e c a u s e

a g r e e m e n t on p a r t i c i p a t i o n by a t h i r d na t ion had been r e a c h e d . It w a s

u n d e r s t o o d f r o m t h e C o m m a n d e r of N o r t h e r n A r m y G r o u p tha t both t h e

UK and the N e t h e r l a n d s would b e p r e p a r e d to u s e t h e a r e a a s the " t h i r d

n a t i o n . " G e n e r a l Schuy le r po in t ed out t ha t r e g a r d l e s s of the d i f f i cu l ty of

a c q u i r i n g l and b e t w e e n Voge l sang and t h e G e r m a n / B e l g i a n f r o n t i e r , s o m e

p r o g r e s s had to be made i n t h e f o r m of n e g o t i a t i o n s s i n c e i t m igh t be

d i f f i cu l t t o j u s t i f y r e t e n t i o n of t h e f u n d s t e m p o r a r i l y a v a i l a b l e u n l e s s t h i s

w a s d o n e . He a s k e d tha t G e r m a n y c o m m e n c e n e g o t i a t i o n s f o r t h e d iv i s ion

of t h e r e m a i n i n g t r a i n i n g t i m e wi th Be lg i an a u t h o r i t i e s and, secondly ,

t h a t t h e y s t a r t at once nego t i a t i ng t o a c q u i r e t h e n e c e s s a r y land . At the

s a m e t i m e , S H A P E a s k e d Be lg ian a u t h o r i t i e s t o a c q u i r e t h e n e c e s s a r y

l a n d on t h e i r s i d e of t h e f r o n t i e r / * ^

(16) L t r , G e n e r a l H e u s i n g e r t o G e n e r a l Schuy le r , 19 F e b 58; L t r , G e n e r a l Schuy le r to G e n e r a l H e u s i n g e r , 18 Apr 58; L t r , G e n e r a l Schuy le r to G e n e r a l H a r t e o n , 18 Apr 58.

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About a m o n t h l a t e r , G e r m a n o f f i c i a l s r e p l i e d t o G e n e r a l S c h u y l e r ' s

r e q u e s t , po in t ing out t ha t n e g o t i a t i o n s w e r e p r e s e n t l y be ing he ld wi th t h e

g o v e r n m e n t of the Land N o r d r h e i n - W e s t f a l e n but tha t t h e s e n e g o t i a t i o n s

w e r e "at p r e s e n t r a t h e r d i f f i cu l t owing to the f o r t h c o m i n g e l e c t i o n s f o r the

L a n d t a g " and tha t t h e n e g o t i a t i o n s on l and p r o c u r e m e n t could be cons ide red

only a f t e r an a g r e e m e n t had been r e a c h e d wi th the Land G o v e r n m e n t on

t h e so lu t ion of t h e p r o b l e m . He did not f e e l tha t t h e r e would be any poin t

in t r y i n g to s c h e d u l e t r a i n i n g t i m e s with the Be lg i ans , s i n c e it w a s not

p o s s i b l e to p r e d i c t w h e t h e r o r not t h e y would be s u c c e s s f u l in s e c u r i n g the

n e c e s s a r y l and . As a r e s u l t of t h i s r e p l y , SHAPE no t i f i ed t h e Be lg ian

Chief of Staff tha t it would be a d v i s a b l e to p o s t p o n e negotiat ions awai t ing

r e s u l t s of the l oca l G e r m a n g e n e r a l e l e c t i o n s . The Be lg i an a u t h o r i t i e s

w e r e a l s o holding up a c q u i s i t i o n of land awai t ing r e s u l t s of t h e ac t ion in

G e r m a n y . On 10 June , G e n e r a l Schuyler a s k e d G e n e r a l H e u s i n g e r to

r a i s e t h e m a t t e r with l o c a l a u t h o r i t i e s a s soon a s p r a c t i c a l a f t e r t he e l e c -

t i o n s had t a k e n p l a c e . "As you know, " he sa id , "SHAPE had o r i g i n a l l y

p l a n n e d f o r m o r e land t r a i n i n g a r e a s in G e r m a n y but i t be ing i m p o s s i b l e

to a c q u i r e such land , SHAPE h a s c o n c u r r e d in f o r e g o i n g a l l p r o j e c t s '

excep t the V o g e l s a n g - E l s e n b o r n . You a r e we l l a w a r e , of c o u r s e , of the

v i t a l i m p o r t a n c e of t h i s s p e c i f i c t r a i n i n g a r e a . " SHAPE kep t p r e s s i n g

t h i s i s s u e c l o s e l y and on 14 August , once t h e e l e c t i o n s w e r e over in G e r -

m a n y and a new Land tag had been f o r m e d in N o r d r h e i n - W e s t f a l e n , G e n e r a l (17)

Schuyler aga in a sked the G e r m a n a u t h o r i t i e s to c o n s i d e r t h i s p r o j e c t / '

The r e c r u i t i n g and t r a i n i n g of su f f i c i en t t e c h n i c i a n s and s p e c i a l i s t s

con t inued t o be a m a j o r m i l i t a r y p r o b l e m in All ied C o m m a n d E u r o p e

du r ing 1958, a s the r e q u i r e m e n t f o r such p e r s o n n e l i n c r e a s e d with the

(17) L t r , G e n e r a l H e u s i n g e r to G e n e r a l Schuyle r , 23 May 58; L t r , G e n e r a l Schuyler to G e n e r a l H e u s r n g e r , 10 J u n 58; L t r , G e n e r a l Schuyler to G e n e r a l H e u s i n g e r , 14 Aug 58.

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p r o g r e s s i v e i n t r o d u c t i o n of m o r e s o p h i s t i c a t e d w e a p o n s and equ i pm en t .

Al though much p r o g r e s s h a d b e e n m a d e in t r a i n i n g du r ing 1957, t h i s

h a d not b e e n m a t c h e d by r e c r u i t m e n t of su f f i c i en t m e n c a p a b l e of be ing

t r a i n e d t o t h e high s t a n d a r d s r e q u i r e d in t h e m o d e r n a g e . The c o m p e t i t i o n

f r o m i n d u s t r y f o r t e c h n i c a l m a n p o w e r i n c r e a s e d t h i s p r o b l e m .

On 12 F e b r u a r y 1958, SACEUR to ld CINCENT t h a t he w a s a l s o c o n -

c e r n e d o v e r t h e s low p r o g r e s s in solving t h e p r o b l e m of land t r a i n i n g a r e a s

wi th in C e n t r a l E u r o p e . T h e r e w a s a d a n g e r tha t even though t h e n a t i o n s

c o n t r i b u t e d s u f f i c i e n t f o r c e s t o the Shield, t h i s l a c k of l a n d t r a i n i n g a r e a s

m i g h t m a k e i t i m p o s s i b l e t o t r a i n t h e m a d e q u a t e l y .

NATO Nava l T r a i n i n g C e n t r e .

F o r s o m e t i m e e f f o r t s had been m a d e t o a c t i v a t e a NATO Nava l

T r a i n i n g C e n t r e t o s e r v e s o m e of the n a v i e s in t h e N o r t h e r n E u r o p e a n a r e a ,

t o i n c l u d e N o r w a y , D e n m a r k and G e r m a n y . Dur ing 1957 two p r o p o s a l s had

b e e n m a d e , one an i n t e r i m p l a n t o u s e an ex i s t i ng t a c t i c a l schoo l at Wool-

wich , England , s p o n s o r e d by t h e Roya l Navy and the o the r a long t e r m

p l a n t o a c t i v a t e a C e n t r e in e i t h e r N o r w a y , D e n m a r k or G e r m a n y , r u n

j o i n t l y by t h e u s e r n a t i o n s . In e a r l y 1958, h o w e v e r , t he UK m a d e a f i r m

o f f e r t o SHAPE t o s p o n s o r two 3 - w e e k c o u r s e s at Woolwich which would

s e r v e t h e p u r p o s e of NATO. Fo l lowing a m e e t i n g in London be tween SHAPE

o f f i c e r s and UK o f f i c i a l s , SHAPE a r r a n g e d f o r t h e n a t i o n s c o n c e r n e d t o

d i s c u s s d i r e c t l y wi th t h e T a c t i c a l School the e s t a b l i s h m e n t of a NATO

Nava l O f f i c e r s C o u r s e , involving t h e N o r t h e r n E u r o p e a n n a t i o n s , and d e t e r -

m i n e d the n u m b e r of s t u d i e s which would be hand led at each c o u r s e .

T w e n t y - o n e o f f i c e r s f r o m G e r m a n y , D e n m a r k and N o r w a y a t t ended

t h e f i r s t NATO N a v a l T a c t i c a l C o u r s e at t h e Roya l Nava l T a c t i c a l School

at Woolwich f r o m 24 M a r c h to 11 A p r i l 1958. It w a s d e c i d e d tha t f u r t h e r

c o u r s e s would i n c l u d e i n s t r u c t i o n s in Ba l t i c O p e r a t i o n s and t h e a t t e n d a n c e

f r o m o t h e r NATO n a v i e s would be sought .

(18) AG 2030 SEC, 25 Apr 58.

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B e l g i a n - N e t h e r l a n d s T r a i n i n g A g r e e m e n t .

On 23 S e p t e m b e r t h e MODs of the N e t h e r l a n d s and B e l g i u m announced

f & ^ t & e y Itad a g r e e d t o - i n t e g r a t e t r a i n i n g o f ' t h e i r Air F o r c e s . T h i s cu l -

minâ^éd a g r e a t dea l of e f f o r t by SHAPE in t h e f o r m of d i s c u s s i o n s wi th

a u t h o r i t i e s of bo th n a t i o n s to b r i n g about t h i s f i r s t s t ep f o r what migh t be

c o n s i d e r e d collective, b a l a n c e d f o r c e s . The i n t e g r a t i o n a g r e e d upon by

t h e Dutch and B e l g i a n s w a s tha t t h e Be lg i ans would t a k e c a r e of the i n i t i a l

t r a i n i n g of Dutch and Be lg i an p i l o t s and the N e t h e r l a n d s would t a k e c a r e

of t h e second p h a s e of the p i l o t s ' t r a i n i n g unt i l c o m p l e t i o n . The MODs had

a g r e e d on a jo in t m a i n t e n a n c e p r o g r a m f o r guided m i s s i l e s and h a d a g r e e d

f u r t h e r a con t inued e f f o r t f o r ach iev ing c o o r d i n a t e d E u r o p e a n m i l i t a r y (19)

p r o j e c t s / '

(19) AG 2030 SECY, 25 Sep 58.

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C H A P T E R V

COMMAND STRUCTURE AND ORGANIZATION

The m a j o r i t y of the p r o b l e m s e n c o u n t e r e d du r ing 1958 in the a r e a of

c o m m a n d s t r u c t u r e and o r g a n i z a t i o n wi th in Al l ied C o m m a n d E u r o p e w e r e

p r o b l e m s a r i s i n g f r o m the i n t e r n a t i o n a l n a t u r e of SACEUR's c o m m a n d .

^Command S t r u c t u r e , C e n t r a l E u r o p e

In l a t e 1957 G e n e r a l Val luy had m a d e a n u m b e r of p r o p o s a l s f o r

c h a n g e s in the c o m m a n d s t r u c t u r e wi th in h i s r e g i o n of Al l ied C o m m a n d

E u r o p e , p a r t i c u l a r l y in the l and f o r c e s s t r u c t u r e . SACEUR had r e p l i e d

t o h i m on 20 D e c e m b e r t e l l ing h i m not t o t a k e any de f in i t e ac t ion to change

t h e c o m m a n d s t r u c t u r e f o r the p r e s e n t t i m e .

On 24 J a n u a r y 1958, in t a lk ing wi th G e n e r a l N o r s t a d , G e n e r a l

Va l luy aga in b rough t up th i s m a t t e r , poin t ing out tha t he w a s r e a d y to

s t a r t d i s c u s s i o n wi th the n a t i o n s on p o s s i b l e c h a n g e s in c o m m a n d s t r u c -

t u r e G e n e r a l Val luy fo l lowed t h i s v i s i t wi th a l e t t e r to G e n e r a l N o r s t a d

in wh ich CINCENT m a d e c e r t a i n p r o p o s a l s wi th r e g a r d to l og i s t i c suppor t

of h i s f o r c e s , dep loymen t of h i s f o r c e s and the c o m m a n d s t r u c t u r e . He

sa id tha t at t he p r e s e n t t i m e h i s f o r c e s w e r e d i s p o s e d to c a r r y out what

he c a l l e d a "half f o r w a r d s t r a t e g y . " He t h e r e f o r e f e l t it w a s n e c e s s a r y

to pos i t i on ea s t of the Rhine a 15-day comba t supply load and to o r g a n i z e

d e p o t s t o suppor t t he ba t t l e e a s t of the Rh ine . He fe l t a l s o tha t it would be

n e c e s s a r y to r e c o m m e n d to the n a t i o n s a w a r t i m e dep loymen t p lan f o r

land f o r c e s b a s e d on the m i n i m u m f o r c e s tudy f r o m which would deve lop

what he c a l l e d a p e a c e t i m e loca t ion p lan , a g e n e r a l depot i n f r a s t r u c t u r e

p l an and a b e t t e r g e n e r a l c o m m a n d s t r u c t u r e . He fe l t i t w a s t i m e to go

107

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t o t h e n a t i o n s and to beg in s tudying s e r i o u s l y t h i s m a t t e r of c o m m a n d

s t r u c t u r e and d e p l o y m e n t a s we l l a s l o g i s t i c a l a r r a n g e m e n t s . He f e l t

t h a t l o g i s t i c a l i n t e g r a t i o n t o a g r e a t e r d e g r e e w a s a b s o l u t e l y n e c e s s a r y

and he a s k e d t o be a l lowed to s t a r t wi thout d e l a y negot ia t ing wi th t h e

n a t i o n s f o r t h e m o v e m e n t of s u p p l i e s e a s t of the Rh ine and dep loyment

in c o m m a n d s t r u c t u r e i m p r o v e m e n t s . ^

SACEUR exp la ined once aga in t o CINCENT that he did not want to

s u g g e s t any s p e c i f i c m a j o r a l t e r a t i o n s , even f o r t h e f u t u r e , t o the n a t i o n s .

He s t a t e d tha t he d i d n o t f e e l tha t a l l t h e f a c t o r s which m i g h t i n f l u e n c e

t h e s i t ua t ion w e r e s u f f i c i e n t l y c l e a r at p r e s e n t t o w a r r a n t a d i s c u s s i o n

with n a t i o n a l a u t h o r i t i e s and he sa id , "I p r o p o s e to wi thhold ac t ion of

changing s t r u c t u r e a s p r o p o s e d by CINCENT unt i l at l e a s t t h e Spr ing of

I 9 5 9 . " With r e g a r d to l o g i s t i c a l m a t t e r s , h o w e v e r , he had a n o t h e r v iew.

"I f u l l y a g r e e , " SACEUR s t a t ed , " tha t i t i s now a p p r o p r i a t e f o r you to

c o n s i d e r wi th n a t i o n a l a u t h o r i t i e s the p r o b l e m s of i m p r o v e d l o g i s t i c sup -

p o r t and I sha l l s h o r t l y a d v i s e t h e s e a u t h o r i t i e s of m y r e q u e s t t o you to

r a i s e t h i s m a t t e r wi th t h e m .

On 29 M a r c h 1958, G e n e r a l Val luy sent to SHAPE h i s c o n c l u s i o n s

and v i e w s on t h e a d v a n t a g e s and d i s a d v a n t a g e s of having l e v e l s of na t iona l

or i n t e r n a t i o n a l c o m m a n d at the m a j o r g r o u p i n g s such a s c o r p s and a r m y .

He had e a r l i e r d i s c u s s e d with G e n e r a l N o r s t a d the p o s s i b i l i t y of e l i m i n a t -

ing an eche lon of comrrand. His s tudy showed the a d v a n t a g e s and d i s a d -

v a n t a g e s in m o r e d e t a i l and d i s cus sed the p r o b l e m of w h e t h e r t h e r e should

be f o r C e n t r a l E u r o p e a c o m m a n d s t r u c t u r e which w a s na t iona l f o r s o m e

f o r c e s and i n t e r - a l l i e d f o r o t h e r s . In a p e r s o n a l l e t t e r t o G e n e r a l Val luy

on 3 May , G e n e r a l Schuyle r po in ted out tha t it would be v e r y d i f f i cu l t to

e s t a b l i s h an e n t i r e l y h o m o g e n e o u s o r g a n i z a t i o n th roughou t C e n t r a l E u r o p e

(1) L t r , CINCENT to SACEUR r e c e i v e d 5 F e b 58, 1 2 4 0 / J L A / 9 8 / 5 8 . (2) L t r , G e n e r a l N o r s t a d t o G e n e r a l Val luy , 12 F e b 58.

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and s t a t ed tha t he be l i eved tha t SACEUR fe l t the s a m e way about t h i s .

••However, " G e n e r a l Schuyler cont inued, "SACEUR i s s t i l l f i r m l y con-

v inced tha t we now have too m a n y eche lons of c o m m a n d and tha t one such

echelon should somehow be r e d u c e d - not n e c e s s a r i l y in the s a m e way fo r (3)

each nat ion or f o r each s e c t o r , "

At the m e e t i n g of the M i l i t a r y C o m m i t t e e on 14 M a r c h 1958, when

M C 70 w a s being c o n s i d e r e d , a G e r m a n r e p r e s e n t a t i v e m a d e à v e r y s t rong

s t a t emen t point ing out tha t h igher c o m m a n d h e a d q u a r t e r s and command

^ s t e r n s wi thin ACE should be o r g a n i z e d along what he t e r m e d " m o r e

r a t i o n a l l i n e s . " He c l a i m e d tha t r e c e n t Command P o s t e x e r c i s e s had

poin ted up w e a k n e s s e s in t h e s e h e a d q u a r t e r s and Command s y s t e m s .

M o r e o v e r , he m a i n t a i n e d , o v e r - s i z e d h e a d q u a r t e r s i n h e r e n t l y g e n e r a t e d

ac t i v i t i e s which b u r d e n e d the combat un i t s and f u r t h e r w e r e not in keeping

wi th the r e q u i r e m e n t s of n u c l e a r w a r f a r e .

The Canadian r e p r e s e n t a t i v e s t rong ly suppor t ed the G e r m a n s t a t e -

ment, point ing out that the NATO c o m m a n d s t r u c t u r e was o r ig ina l ly e s -

t ab l i shed to c a t e r f o r a c o n s i d e r a b l y l a r g e r f o r c e than ex i s ted , and it was

c e r t a i n l y o v e r - s i z e d .

G e n e r a l N o r s t a d s ta ted tha t he had taken and w a s constantly taking

act ion to m o d i f y t he c o m m a n d s t r u c t u r e but tha t , whi le t h i s w a s e a s y

f r o m an All ied s tandpoint , i t w a s somewhat m o r e di f f icul t to a c c o m p l i s h

f r o m a na t iona l s tandpoint . He c o n s i d e r e d , h o w e v e r , that s imp l i f i c a t i on

w a s n e c e s s a r y , and to ld the M i l i t a r y C o m m i t t e e tha t he would w e l c o m e

any suppor t to tha t end.

As a r e s u l t , an addi t ion to p a r a g r a p h 34 of MC 70 was made , which

s t a t e d : "The o rgan iza t ion and s i ze of the h igher c o m m a n d s m u s t be r e v i e w e d

with a v iew to t h e i r r a t i o n a l i z a t i o n in the f i e ld of p e r s o n n e l and m a t e r i e l .

(3) L t r , wi th enc losed study, CINCENT to SHAPE, 2200/CAB -C0s /168; L t r , G e n e r a l Schuyler to G e n e r a l Valluy, 3 May 58.

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The c o m m a n d and r e p o r t i n g s y s t e m i s in need of s i m p l i f i c a t i o n and un i -

f i c a t i o n . 4^

R e o r g a n i z a t i o n of C I N C E N T ' s H e a d q u a r t e r s .

On 17 Ju ly 1958, CINCENT to ld SACEUR tha t he f e l t t ha t t he s t r u c -

t u r e of h i s c o m m a n d in F o n t a i n e b l e a u wi th i t s f o u r h e a d q u a r t e r s , CINCENT,

COMAIRCENT, COMNAVCENT and COMLANDCENT, w a s too unwie ld ly

and would p r o v e in t i m e of w a r . He f e l t tha t in p e a c e t i m e he should have

a s i n g l e , f u l l y i n t e g r a t e d , jo in t , w e l l - b a l a n c e d h e a d q u a r t e r s along the l i n e s

of SHAPE, and tha t t h e v a r i o u s e l e m e n t s of h i s s ing le h e a d q u a r t e r s should

be i n s t a l l e d c l o s e t o g e t h e r , u s i n g t h e s a m e a d m i n i s t r a t i v e suppor t and

f a c i l i t i e s . He had s t u d i e s t h e r e v i s i o n of the ex i s t ing s t r u c t u r e and f o r -

w a r d e d t h i s t o SHAPE f o r c o n s i d e r a t i o n by SACEUR. He p r o p o s e d tha t

h i s Staff be c o m p o s e d of 50% A r m y , 35% Air F o r c e and 15% Nava l p e r s o n n e l .

While t h e r e o r g a n i z a t i o n c h a r t wh ich he f o r w a r d e d did not a l l o c a t e p o s t s

a m o n g n a t i o n s , h e r e a l i z e d tha t such a l loca t ion would g ive r i s e t o p o l i t i c a l

d i f f i c u l t i e s but t h i s h e f e l t w a s no r e a s o n to r e j e c t an e f f e c t i v e so lu t ion .

He f e l t t h a t i t would be n e c e s s a r y t o m o v e h i s h e a d q u a r t e r s f u r t h e r and

t h a t i t would be w e l l t o abandon F o n t a i n e b l e a u a s a l oca t i on a s soon a s (5)

p o s s i b l e / '

SACEUR did no t a p p r o v e G e n e r a l V a l l u y ' s p r o p o s a l s and on 6 August

to ld h i m tha t h e a p p r e c i a t e d h i s e f f o r t s to i m p r o v e h i s h e a d q u a r t e r s but

t h a t u n d e r ex i s t i ng cond i t i ons , t h e p r e s e n t s y s t e m should be cont inued .

G e n e r a l Va l luy did no t , h o w e v e r , g ive up h i s i d e a s on t h i s m a t t e r and,

(4) S u m m a r y R e c o r d , 19th Sess ion , M i l . C o m t e e , s e c t . 6 , STSC/333 /58 , lApr58 . (5) F o r d e t a i l s of r e o r g a n i z a t i o n s u g g e s t e d by CINCENT s e e l e t t e r , sub :

" 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 H e a d q u a r t e r s , " G e n e r a l Val luy to SACEUR, 17 J u l 58, 2 5 0 0 / C A B / C O S / 3 5 7 , wi th 3 e n d .

F o r v i e w s of one of C I N C E N T ' s p r i n c i p a l s u b o r d i n a t e c o m m a n d e r s on t h i s r e o r g a n i z a t i o n , s e e a l s o l e t t e r to G e n e r a l Val luy f r o m COM-AIRCENT, C C - 2 2 0 2 / l , sub : " C o m m a n d O r g a n i z a t i o n F o n t a i n e b l e a u , " 29 J u l 58.

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on 16 October expounded in g r e a t e r l eng th and de ta i l on h i s p r o p o s a l s .

He sent a copy of t h i s l e t t e r t o SACEUR te l l ing h i m tha t h i s s tudy w a s

cont inuing and tha t he w a s c o n c e r n e d l e s t h i s c o m m a n d be u n p r e p a r e d

fo r what he ca l l ed the g r e a t r evo lu t i on in s t r a t e g y involved in the f u t u r e

adopt ion of the F o r w a r d S t r a t egy c o n c e p t . ^

F u r t h e r P r o g r e s s t o w a r d E s t a b l i s h m e n t of COMNAVBAJ..TAP.

During 1957 c o n s i d e r a b l e e f f o r t had been m a d e to f ind some solut ion

t o the vexing p r o b l e m of e s t a b l i s h i n g a s a t i s f a c t o r y c o m m a n d a r r a n g e m e n t

in the Bal t ic . The nego t i a t ions which had taken p l a c e during tha t y e a r b o r e

a c e r t a i n amount of f r u i t s ince COMNAVNORCENT had been e s t a b l i s h e d

at Holtenau, G e r m a n y . On 15 O c t o b e r , COMNAVNORCENT e s t a b l i s h e d

a N o r t h / C e n t e r Naval P l ann ing Group .

The N o r t h / C e n t e r P lann ing Group w a s c h a r g e d wi th p r e p a r i n g fo r

the Naval Command o rgan i za t i on in the Ba l t i c r e c o m m e n d a t i o n s which

would be f o r w a r d e d th rough CINCNORTH to CINCENT. Th i s Group r e -

c o m m e n d e d tha t f o r the a r e a of Danish t e r r i t o r y , Schleswig-Hols te in^and

West G e r m a n t e r r i t o r y down to the boundary be tween AFNORTH and A F -

CENT, the Kat tega t , the Ba l t i c S t r a i t s , and t h e Bal t ic Sea w e s t of 16° ea s t ,

an o v e r a l l nava l command , COMNAVBALTAP, wi th an i n t e g r a t e d staff

should be e s t a b l i s h e d . The P l ann ing Group f u r t h e r p r o p o s e d that d i r e c t l y

under COMNAVBALTAP should be two Subordinate C o m m a n d s , F l a g O f f i c e r

D e n m a r k (FOD) and COMNAVGERBALT, each with a s s i g n e d a r e a s of

p r i m a r y r e s p o n s i b i l i t y . T h e s e two Subordina te C o m m a n d s , a s a g e n e r a l

r u l e , would command f o r c e s of t h e i r own na t iona l i ty . However , in the a r e a s

s o u t h - e a s t of the m a i n Danish i s l a n d s , s e v e r a l t a s k s would exis t which

(6) See L t r , CINCENT to COMAIRCENT, sub : "Organ iza t ion of C o m m a n d at Fon ta ineb leau , " 16 Oct 58, 2 5 0 0 / C A B / C O S / 4 7 6 ; and L t r to a l l Subordinate C o m m a n d e r s f r o m CINCENT s u b : " C e n t r a l E u r o p e Head-q u a r t e r s Organ iza t ion , " 22 Aug 58, 2 5 0 0 / C A B / C O S / 4 0 2 ; and L t r CINCENT to SACEUR, no sub jec t , 22 Aug 58, 2500/CAN /C0s /403.

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could not be a s s i g n e d t o the f o r c e s of one na t ion only and a m o r e f u n c -

t i o n a l o r g a n i z a t i o n would have to be e s t a b l i s h e d . CINCNORTH d i s c u s s e d

t h i s p r o b l e m in g r e a t de t a i l , say ing tha t he a g r e e d tha t the P l ann ing G r o u p

had p roduced a s e n s i b l e and c l e a r p a p e r and tha t in g e n e r a l t e r m s he a c c e p -

t ed t h e c o n c l u s i o n s . The m a i n s tumbl ing block which he saw in t h i s m a t t e r

w a s t h e e x t r e m e r e l u c t a n c e of the Danish Gove rnmen t to accep t a jo in t

c o m m a n d wi th t h e G e r m a n s , even in p r i n c i p l e . H e r e c o m m e n d e d t h a t t h e

p r i n c i p l e of c o m m a n d and the loca t ion of h e a d q u a r t e r s be kep t s e p a r a t e

i s s u e s . As t o t h e n a t i o n a l i t y of the Naval C o m m a n d e r , CINCNORTH a c c e p t e d

t h e p r e v a i l i n g v i e w tha t t he C o m m a n d e r should be e i t h e r a G e r m a n or a

D a n e and tha t t h e c o m m a n d should r o t a t e be tween the two n a t i o n a l i t i e s . The

G e r m a n s had a l r e a d y sa id t hey would l ike a Danish A d m i r a l a s the f i r s t

C o m m a n d e r but CINCNORTH doubted tha t D e n m a r k would accep t t h i s , s i nce ,

by i m p l i c a t i o n , i t would f o r c e t h e m to a c c e p t a G e r m a n a s the next one.

He b e l i e v e d , h o w e v e r , tha t t hey would accep t a B r i t i s h A d m i r a l .

At a m e e t i n g which r e c e n t l y had been he ld be tween CINCNORTH

and SACEUR, SACEUR had r u l e d tha t when the new c o m m a n d , COMNAV-

B A L T A P w a s e s t a b l i s h e d , COMNAVNORTH had t o be a b o l i s h e d and r e p l a c e d

by t h e Nava l Deputy at K o l s a a s of a l o w e r r a n k . SACEUR a l s o r u l e d tha t

a l l p l ann ing and d i s cus s ion in the f u t u r e on COMNAVBALTAP w a s to be

b a s e d on the a s s u m p t i o n that D e n m a r k and t h e Ba l t i c a r e a w e r e to r e m a i n

in t h e Ba l t i c C o m m a n d and would not in due c o u r s e be t r a n s f e r r e d to

C e n t r a l E u r o p e . H o w e v e r , CINCENT w a s obvious ly involved s i n c e the

Ho l t enau P l a n n i n g G r o u p w a s r e s p o n s i b l e to both CINCNORTH and CINCENT

and t h e G e r m a n Naval F o r c e s in the Ba l t i c in p e a c e t i m e w e r e a s s i g n e d t o

CINCENT t h r o u g h COMNAVCENT. ^

(7) L t r , Gen Sugden to Gen Schuy le r , 2 Apr 58, A F N E CS/420 ; Study by N o r t h / C e n t e r P l a n n i n g Group , "Naval C o m m a n d S t r u c t u r e in t h e B a l t i c A p p r o a c h A r e a , " 12 M a r 58, P G / P ( 5 8 ) 4 .

B r i e f f o r SACEUR, "Naval C o m m a n d S t r u c t u r e in the Ba l t i c A p p r o a c h A r e a , " p r e p a r e d by L t . C o l . A n d r e a s s e n .

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Within s e v e r a l d a y s a f t e r r e c e i v i n g CINCNORTH' s v i e w s , SACEUR

w a s f u r n i s h e d a d e t a i l e d p a p e r on t h e Ba l t i c f r o m G e n e r a l Val luy, who

w a s c o n c e r n e d p r i m a r i l y wi th the c o n t r o l of a r m y f o r c e s in the a r e a . He

po in ted out t h a t t h e d e f e n s e of t h e Ba l t i c w a s p r i m a r i l y the c o n c e r n of

G e r m a n y and D e n m a r k hut tha t t he a x e s of d e f e n s e f o r the two n a t i o n s w e r e

d i v e r g e n t , G e r m a n y ' s a x i s runn ing e a s t and w e s t and tha t f o r D e n m a r k

n o r t h and south . He c h a r g e d tha t t h e r e w a s no d e f e n s e p l an for tha t a r e a ,

but s i m p l y a w i t h d r a w a l e a s t - w e s t f o r the G e r m a n f o r c e s and s o u t h - n o r t h

f o r the D a n i s h f o r c e s . He be l i eved t h a t u n l e s s a jo int c o m m a n d wi th

s t r o n g G e r m a n r e p r e s e n t a t i o n w a s f o r m e d , no n o r t h - s o u t h suppor t could

b e expec t ed f r o m t h e G e r m a n s . He f e l t t ha t wi th in a jo in t c o m m a n d t h e r e

would be s u b o r d i n a t e a m p h i b i o u s c o m m a n d s , o r even p u r e l y nava l c o m m a n d s ,

if n e c e s s a r y , which would be r e s p o n s i b l e f o r the i n i t i a l d e f e n s e of the a d -

v a n c e d p o s t s and which would c o m m a n d both Danish and G e r m a n f o r c e s .

He f e l t tha t t h e c o m m a n d could wel l be g iven to a B r i t i s h A d m i r a l / i

On 26 A p r i l , SHAPE sent a r e p l y to G e n e r a l Val luy r e v e a l i n g G e n e r a l

N o r s t a d ' s th inking on t h e s i tua t ion in the B a l t i c . CINCENT w a s t o l d tha t

p u r e l y f r o m t h e m i l i t a r y s tandpoin t , G e n o a l N o r s t a d would not and cou ld

not d i s a g r e e wi th h i s g e n e r a l concept of a t r i - s e r v i c e c o m m a n d f o r Den-

m a r k , S c h l e s w i g - H o l s t e i n and the Ba l t i c A p p r o a c h e s , wi th the c o m m a n d e r

of t h i s to be r e s p o n s i b l e d i r e c t l y t o SACEUR. G e r m a n a u t h o r i t i e s had

a l s o s u p p o r t e d t h i s pos i t i on . However , G e n e r a l N o r s t a d r e c o g n i z e d tha t

a n u m b e r of o the r f a c t o r s than p u r e l y m i l i t a r y o n e s t ended t o d r a w the

Scandinav ian c o u n t r i e s t o g e t h e r . The o v e r a l l s t r e n g t h and p o s i t i o n of

t h e s e k a t i o n s a s a g r o u p w a s c o n s i d e r a b l y g r e a t e r t h a n t h e s u m of t h e i r

ind iv idua l s t r e n g t h s and Genera l N o r s t a d c o n s i d e r e d i t would be a m i s t a k e

t o f o r m a m i l i t a r y o r g a n i z a t i o n which would s e p a r a t e D e n m a r k f r o m N o r w a y .

F o r t h e next y e a r o r two, SACEUR e n v i s a g e d e f f o r t s t o w a r d a b e t t e r

(8) Staff Study l O O O / l l / 1 1 7 / C I N C / l 19 /58 , s u b : " C o n s i d e r a t i o n s on t h e B a l t i c , " 16 Apr 58.

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i n t e g r a t i o n of t h e f o r c e s wi th in t h e f r a m e w o r k of t h e p r e s e n t N o r t h e r n

c o m m a n d s t r u c t u r e . He v i s u a l i z e d t h e e a r l y e s t a b l i s h m e n t of t h r e e s e p a r -

a t e s e r v i c e c o m m a n d s wi th t h e i r t h r e e c o m m a n d e r s o p e r a t i n g in an e m e r -

g e n c y f r o m a s i n g l e J C O C , p r o b a b l y in N o r t h e r n D e n m a r k . T h e f r a m e -

w o r k f o r two of t h e s e c o m m a n d s - L a n d C o m m a n d (LANDDENMARK) and

t h e Ai r C o m m a n d (AIRDENMARK) a l r e a d y ex i s t ed . T h i s m a d e i t even

m o r e u r g e n t in G e n e r a l N o r s t a d 1 s v i ew tha t a t h i r d c o m m a n d in COMNAV-

B A L T A P be e s t a b l i s h e d . SHAPE then exp la ined to G e n e r a l Val luy why

G e n e r a l N o r s t a d i n t h e p r e v i o u s y e a r had a s s i g n e d the newly c r e a t e d

Gerzran f o r c e s in S c h l e s w i g - H o l s t e i n t o CINCNORTH. He fe l t tha t if t h e s e

f o r c e s w e r e b rough t to f u l l s t r e n g t h a s r a p i d l y a s p o s s i b l e , t h e D a n e s

m i g h t be p e r s u a d e d t o i n t e g r a t e t h e m in to LANDDENMARK, accep t ing at

t h e s a m e t i m e c e r t a i n G e r m a n o f f i c e r s f o r the Staff of LANDDENMARK,

and G e n e r a l Va l luy w a s w a r n e d tha t G e n e r a l N o r s t a d f e l t s t r o n g l y tha t

any t r a n s f e r of t h e s e u n i t s to C e n t e r C o m m a n d would be a s t ep in the w r o n g

d i r e c t i o n .

As to t h e n a t i o n a l i t y of the f u t u r e COMNAVBALTAP, G e n e r a l N o r s t a d

w a s p r e p a r e d to a c c e p t a C o m m a n d e r of any na t iona l i ty to which the n a t i o n s

invo lved would a g r e e . He r e a l i s e d , h o w e v e r , tha t i t m igh t be i m p o s s i b l e

t o s e c u r e a g r e e m e n t on e i t h e r a Dane o r a G e r m a n f o r t h i s p o s t and he

i n t e n d e d in t h i s c a s e to u r g e a B r i t i s h A d m i r a l a s the f i r s t C o m m a n d e r .

As h a s been s t a t e d when COMNAVBALTAP w a s f o r m e d , COMNAVNORTH (9)

would be a b o l i s h e d /

F r o m t h e m i l i t a r y s tandpoin t i t w a s indeed f e a s i b l e to e s t a b l i s h a

s i ng l e NATO Nava l C o m m a n d e r in t h e Ba l t i c , t he q u e s t i o n s of h i s n a t i o n a -

l i t y and t o w h o m h e would be a s s i g n e d no twi ths tand ing . In p e a c e t i m e a l l

G e r m a n Nava l f o r c e s a s s i g n e d to NATO w e r e u n d e r the c o m m a n d of CINCENT

t h r o u g h COMNAVCENT and COMNORSEACENT. In w a r t i m e the G e r m a n

(9) L t r , G e n e r a l Schuy le r to G e n e r a l Val luy , 26 Apr 58.

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Nava l f o r c e s in t h e N o r t h Sea s u b - a r e a (COMNORSEACENT) would

r e m a i n u n d e r CINCENT, whi le t h o s e f o r c e s in t h e Ba l t i c Sea a r e a would

c o m e u n d e r the c o m m a n d of CINCNORTH t h r o u g h COMNAVNORTH. 0^

Dur ing C P X VIII when the M a j o r Subord ina t e C o m m a n d e r s w e r e

p r e s e n t in P a r i s , SHAPE r e p r e s e n t a t i v e s exchanged v i e w s with C o m m a n d e r s

and Staff f r o m both CINCNORTH and CINCENT. It w a s obvious , h o w e v e r ,

f r o m a l e t t e r which G e n e r a l Val luy had a d d r e s s e d to G e n e r a l N o r s t a d on

9 M a y 1958 fo l lowing the CPX, tha t he had not changed h i s v iew e x p r e s s e d

e a r l i e r t ha t t h e r e should be a t r i - s e r v i c e s ing le c o m m a n d and tha t t h e

Ba l t i c a r e a , b e c a u s e of i t s g rowing G e r m a n d e f e n s e f o r c e s , m u s t m a i n t a i n

v e r y c l o s e t i e s in a l l a r e a s with CINCENT. A copy of t h i s l e t t e r w a s m a d e

a v a i l a b l e to CINCNORTH who r e c a p i t u l a t e d h i s v i e w s on t h i s d i f f i cu l t

and c o m p l e x p r o b l e m on 29 May 1958. He sa id tha t D e n m a r k , Sch leswig-

Ho l s t e in and the W e s t e r n Bal t i c should be r e g a r d e d a s one m a j o r t a c t i c a l

a r e a with one c o m m a n d o r g a n i z a t i o n c o m m a n d i n g the s e r v i c e of a l l t h r e e

s e r v i c e s and a l l na t iona l i t i e s o p e r a t i n g in the a r e a , and r e p e a t e d h i s con-

t en t ion tha t t h e h e a d q u a r t e r s should be l o c a t e d in C e n t r a l Ju t l and . CINC-

NORTH saw tha t once a f o r w a r d s t r a g e t y had been adopted tha t t he a r e a

in ques t ion should be inc luded in the C e n t r a l E u r o p e a n C o m m a n d s ince the

l and b a t t l e in S c h l e s w i g - H o l s t e i n and the N o r t h G e r m a n P l a i n would be

one s ing le ba t t l e and tha t the l a r g e p ropor t ion of a i r f o r c e s in the Ba l t i c

a r e a would c o m e f r o m C e n t r a l E u r o p e . B e c a u s e , h o w e v e r , a f o r w a r d

s t r a t e g y would not be adopted f o r a long t i m e and b e c a u s e the Danes had

sa id they did not w i s h t o b e s e p a r a t e d f r o m N o r w a y in the NATO c o m m a n d

o r g a n i z a t i o n , CINCNORTH had continued h i s p lanning on the b a s i s that the

W e s t e r n Ba l t i c a r e a would r e m a i n unde r h i m . He de t a i l ed the s i tua t ion

which ex i s t ed with r e g a r d to the p o s s i b i l i t i e s f o r se t t ing up a jo int c o m -

m a n d o r g a n i z a t i o n u n d e r CINCNORTH, poin t ing out tha t t h e r e w a s a

(10) Staff Study, S ing l eNATO C o m m a n d e r f o r G e r m a n Naval F o r c e s , 30 Apr 58.

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ICOC - the land! f o r c e and! t h e a i r f o r c e h e a d q u a r t e r « - a l r e a d y in e x i s -

t e n c e , IC would1 b« a « i m p i e m a t t e r f r o m a t e c h n i c a l point of v i e w t© «et

tap a h e a d q u a r t e r * to> c o n t r o l G e r m a n and Danish f o r c e « in t h e W e s t e r n

B a l t i c , A s i n g l e c o m m a n d e r wi th h e a d q u a r t e r « n e a r K a r u p would have F l a g

O f f i c e r D e n m a r k and C o m m a n d e r of t h e G e r m a n B a l t i c F l e e t a « d i r e c t

s u b o r d i n a t e « . H e then d i«cu«««d the p o l i t i c a l « i tuat ion wi th r e g a r d t o

e s t a b l i s h i n g h i« h e a d q u a r t e r « and a s k e d tha t SACEUR i»«ue p l ann ing i n s -

t r u c t i o n « on which a l l c o n c e r n e d could c o n c e n t r a t e , ^

M e a n w h i l e , G e n e r a l N o r « t a d had been work ing on a so lu t ion to t h e

a p p o i n t m e n t of a COMNAVBALTAP, He fe l t tha t a Canad ian A d m i r a l

would b e a c c e p t a b l e t o both Dane« and G e r m a n s , and on 13 J u n e 1958,

a s k e d t h e Canad ian G o v e r n m e n t t o m a k e a v a i l a b l e t o h i m a Canadian o f f i c e r

f o r t h i s a « s i g n m e n t . He to ld the Canadian G o v e r n m e n t t h a t , once he had

r e c e i v e d a g r e e m e n t in p r i n c i p l e t o t h e a s s i g n m e n t of a Canad ian A d m i r a l ,

h e would pu t t h e m a t t e r b e f o r e t h e Standing Group and would e s t a b l i s h COM-

N A V B A L T A P , COMNAVBALTAP would be r e s p o n s i b l e t o CINCNORTH

f o r t h e d e f e n s e of t h e B a l t i c S t r a i t s in w a r , f o r p e a c e t i m e p lann ing and

f o r t h e conduc t of nava l e x e r c i s e « in tha t a r e a . The a s s i g n m e n t would

en ta i l c o m m a n d in w a r of t h e m a j o r p o r t i o n s of t h e G e r m a n and Danish

f o r c e « . T h e C o m m a n d e r would have a s m a l l i n t e g r a t e d s ta f f c o n s i s t i n g

m a i n l y of G e r m a n and Danish o f f i c e r s wi th p o s s i b l y one or two US or

UK o f f i c e r s . ( 1 2 ^

The Canad ian G o v e r n m e n t , h o w e v e r , w a s u n a b l e to p r o v i d e a q u a -

l i f i ed f l a g o f f i c e r f o r t h e p o s t of COMNAVBALTAP. T h i s w a s u n f o r t u n a t e

s i n c e SACEUR had r e c e i v e d a p p r o v a l f r o m t h e Danish and G e r m a n au tho-

r i t i e s i n f o r m a l l y vtith the u n d e r s t a n d i n g tha t a Canad ian a d m i r a l would be

m a d e a v a i l a b l e f o r t h e p o s t . SACEUR then dec ided tha t t h e m o s t r e a s o n -

a b l e a l t e r n a t i v e would b e t o p r o p o s e a s e n i o r B r i t i s h a d m i r a l f o r the

(11) L t r , G e n e r a l Sugden to G e n e r a l N o r s t a d , A F N E , 29 M a y 58. (12) M s g , SACEUR to MOD Canada , SCO OUT 24318, 13 Jun 58.

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p o s t of C O M N A V B A L T A P . On 21 Ju ly , he a s k e d CINCNORTH fo r h i s

v i e w s on t h i s m a t t e r , po in t ing out tha t t h e r e p r o b a b l y would be ob j ec t i ons

f r o m t h e G e r m a n s ide , and tha t h i s p r o p o s a l would have a b e t t e r c h a n c e

of a c c e p t a n c e if he could announce at t h e s a m e t i m e t h e e l i m i n a t i o n of

COMNAVNORTH. He a s k e d f o r the c o m m e n t s of G e n e r a l Sugden on t h i s

p r o j e c t / 1 3 ^

CINCNORTH a g r e e d tha t C O M N A V B A L T A P ' s h o u l d b e e s t a b l i s h e d

and tha t i n i t i a l l y a B r i t i s h o f f i c e r would be a r e a s o n a b l e a l t e r n a t i v e a s

C o m m a n d e r . He p r e f e r r e d , h o w e v e r , t o have h i m at t h e r a n k of r e a r -

a d m i r a l . With r e g a r d t o t h e i n a c t i v a t i o n of COMNAVNORTH, CINCNORTH

f e l t tha t t h i s c o m m a n d should con t inue f o r s e v e r a l m o n t h s a f t e r e s t a b l i s h -

m e n t of C O M N A V B A L T A P / 1 4 )

SACEUR r e p l i e d tha t t h e r e w e r e two r e a s o n s f o r having a r e a r -

a d m i r a l a s the f i r s t c o m m a n d e r . F i r s t , i t would a f f o r d a smoo th t r a n s i -

t i on t o a s s i g n the p r e s e n t C h a i r m a n of the N o r t h Group . G e n e r a l Townsend

(COMNAVNORCENT), a s the f i r s t c o m m a n d e r and i t would be m o r e a d a p -

t a b l e f o r a f u t u r e c o m m a n d w h e r e i n the Jo in t C o m m a n d e r would have a

t h r e e - s t a r r a n k . He to ld G e n e r a l M u r r a y tha t he would be w r i t i n g to the

Standing Group and would at t ha t t i m e r e q u e s t the d i s e s t a b l i s h m e n t of

COMNAVNORTH c o n c u r r e n t wi th or s h o r t l y fo l lowing COMNAVBALTAP.

The G e r m a n Viewpoin t .

SACEUR l e a r n e d i n e a r l y August tha t t he G e r m a n s contended tha t

t h e only m i l i t a r i l y a c c e p t a b l e so lu t ion w a s f o r the whole of the Danish

p e n i n s u l a , t o i nc lude t h e Danish C o m m a n d s of COMNORSEACENT and

COMNAVCINCENT to c o m e u n d e r the c o m m a n d of CINCENT. The r e a -

sons f o r t h i s w e r e s t r a t e g i c in t ha t it would be i m p o s s i b l e f o r t h e N o r t h e r n

C o m m a n d e r t o e x e r c i s e c o m m a n d a s f a r south a s the E lbe and aga in , of

(13) M s g , SACEUR to CINCNORTH, SCO OUT 25114, 21 J u l 58. See a l s o M e m o r a n d u m f o r G e n e r a l Schuyler f r o m A d m i r a l Sala, sub :

J O J

A C /T» tr»T<

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c o u r s e , t h e a i r s u p p o r t f o r the b a t t l e m u s t c o m e f r o m C e n t r a l E u r o p e .

O p e r a t i o n s f r o m a i r f i e l d s in D e n m a r k would be out of the q u e s t i o n du r ing

w a r t i m e and c l e a r l y no c a r r i e r could be expec t ed f r o m the N o r t h Sea.

Any l o g i s t i c s u p p o r t coming f r o m o v e r s e a s would have to c o m e t h r o u g h

F r a n c e , B e l g i u m or Hol land . The G e r m a n s , of c o u r s e , wan ted t h e i r nava l

f o r c e s u n d e r one c o m m a n d . If t h e m i l i t a r y so lu t ion which they wanted

could not be a c c e p t e d by t h e Danes , t h e G e r m a n s s t a t e d tha t they would

p r e f e r t o r e t a i n s t a t u s quo in the Ba l t i c , r a t h e r than t o a c c e p t an i n t e r i m

so lu t ion . The G e r m a n a u t h o r i t i e s doubted w h e t h e r the Danish G o v e r n m e n t

would a c c e p t t h e p r i n c i p l e of a l t e r n a t i v e nava l c o m m a n d s , Danish and

G e r m a n , but t h e y w e r e qu i t e f ixed in t h e i r a t t i tude tha t they would not

a c c e p t a NATO Ba l t i c Nava l C o m m a n d e r o v e r t h e i r f o r c e s u n l e s s the D a n e s (15)

a g r e e d tha t t h e C o m m a n d e r should a l t e r n a t e be tween the two n a t i o n s .

On 11 Augus t , SACEUR sent to a l l i n t e r e s t e d MODs a p r o p o s e d

l e t t e r to the Standing G r o u p se t t ing f o r t h the r e q u e s t f o r the e s t a b l i s h m e n t

of an Al l ied Nava l C o m m a n d fo r the Ba l t i c A p p r o a c h e s . SACEUR' s p r o p o -

s a l s e n v i s a g e d t h e e s t a b l i s h m e n t of COMNAVBALTAP on 1 Apr i l 1959,

the d i s e s t a b l i s h m e n t of COMNAVNORCENT and the N o r t h C e n t e r P l a n n i n g

G r o u p and p l a c i n g F l a g O f f i c e r Norway d i r e c t l y u n d e r CINCNORTH. Si-

m u l t a n e o u s l y , he p r o p o s e d to begin the d i s e s t a b l i s h m e n t of COMNAVNORTH.

H E s t a t e d tha t he i n t ended to appoint t h e C h a i r m a n of the N o r t h Cen te r

P l a n n i n g G r o u p , R e a r A d m i r a l Townsend , a B r i t i s h A d m i r a l , a s i n i t i a l

c o m m a n d e r of t h i s o r g a n i z a t i o n but tha t when Townsend c o m p l e t e d h i s T t o u r of duty he would b e r e p l a c e d by a F l a g O f f i c e r f r o m one ' t he n a t i o n s

( 1 3 ) . . . / . " E s t a b l i s h m e n t of a Naval C o m m a n d Ba l t i c A p p r o a c h e s , " 1 0 J u l 58, and M e m o r a n d u m f o r R e c o r d , C O F S ' s c o n v e r s a t i o n s wi th A d m i r a l Q v i s t g a a r d , Chief of De fense , D e n m a r k , at Copenhagen , 4 J u l 58, dtd 12 J u l 58.

(14) M s g , SCO IN 02237, 25 J u l 58, G e n e r a l N c r s t a d f r o m Gen. M u r r a y . (15) M e m o r a n d u m f o r R e c o r d , s u b : " D i s c u s s i o n on Ba l t i c Nava l C o m m a n d

d u r i n g v i s i t of V i c e - N a v a l Depty to MOD Bonn, " 7 Aug 58, NAVDEP 70.

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c o n t r i b u t i n g f o r c e s to t h i s c o m m a n d . A p r o p o s e d se t of t e r m s of

r e f e r e n c e f o r COMNAVBALTAP w a s a l s o e n c l o s e d / 1 ^

In i t i a l r e a c t i o n to SACEUR' s p r o p o s a l s w a s m i x e d but t h e r e w a s

s o m u c h oppos i t ion vo i ced tha t SACEUR dec ided he would not p l a c e t h e

m a t t e r b e f o r e t h e Standing Group f o r a d e c i s i o n . F r e n c h c o m m e n t s on

S A C E U R ' s p r o p o s a l s i nd i ca t ed tha t t he F r e n c h G o v e r n m e n t saw no r e a s o n

f o r t h e i m m e d i a t e e s t a b l i s h m e n t of COMNAVBALTAP, a l though i t would

not ob j ec t in p r i n c i p l e . Howeve r , t he F r e n c h would not a g r e e to p l ac ing

COMNAVBALTAP unde r CINCNORTH and tha t i n s t e a d i t should , f r o m (17) i t s a c t i va t i on , b e p l a c e d under C I N C E N T . v '

The N o r w e g i a n G o v e r n m e n t c o n c u r r e d without c o m m e n t in SACEUR's (18)

p r o p o s a l s to t h e Standing Group .

The UK G o v e r n m e n t a g r e e d but c o m m e n t e d on the f a c t tha t , m i l i -

t a r i l y , p l ac ing the Ba l t i c A p p r o a c h e s C o m m a n d u n d e r t h e C e n t e r w a s

m o r e su i t ab l e and by wonder ing why i t would not be p o s s i b l e to d i s è s t a b l i s h

NAVCENT at t h e s a m e t i m e COMNAVBALTAP w a s se t up. In v i ew of t h e

r e s e r v a t i o n s e x p r e s s e d , G e n e r a l N o r s t a d dec ided tha t he would hold up

f u r t h e r ac t ion on t h e Ba l t i c Naval C o m m a n d unt i l a g r e a t e r m e a s u r e of

a g r e e m e n t among the n a t i o n s could be r e a c h e d . On 19 O c t o b e r , he no t i f i ed

t h e MODs tha t COMNAVNORCENT and t h e N o r t h Cen te r P l ann ing G r o u p

would con t inue to func t ion u n d e r t h e i r ex i s t ing t e r m s of r e f e r e n c e and

tha t in t h e event of w a r the G e r m a n Nava l F o r c e s Ba l t i c would p a s s to

the c o m m a n d of CINCNORTH. On 31 Oc tobe r 1958, SACEUR no t i f i ed t h e

Standing Group of t h i s ac t ion . T h i s d i d not s e t t l e t h e m a t t e r , h o w e v e r , and

c e r t a i n n a t i o n s w e r e d i s t u r b e d about c e r t a i n a s p e c t s of SACEUR's s t a t e d

o r i g i n a l p lan . F o r e x a m p l e , MOD D e n m a r k b e c a m e c o n c e r n e d ove r p r e s s (16) L t r , SHAPE to MODs, s u b : " E s t a b l i s h m e n t of Al l ied Nava l F o r c e s

C o m m a n d Ba l t i c A p p r o a c h e s , " w / e n c l l t r to SG, 11 Aug 58,AGl 5 3 0 / 2 P A N D P .

(17) L t r , Gen Ely t o SACEUR, s u b : " C r e a t i o n of an Al l ied Nava l F o r c e s ' Ba l t i c A p p r o a c h C o m m a n d , " 25 Aug 58.

(18) L t r , NMR Norway to SACEUR, 29 Aug 58.

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r e p o r t s t h a t Dan i sh t e r r i t o r y m i g h t be t r a n s f e r r e d f r o m t h e N o r t h e r n

r e g i o n and p l a c e d u n d e r t h e C e n t e r . G e n e r a l N o r s t a d f e l t i m p e l l e d to

r e a s s u r e MOD D e n m a r k in a p e r s o n a l c a b l e tha t h i s h e a d q u a r t e r s had

n o p l a n s o r p r o p o s a l s involv ing any c h a n g e s in the c o m m a n d a r r a n g e m e n t s

wh ich would p l a c e D e n m a r k u n d e r the C e n t e r nor did he expec t to p r o -(19) p o s e such a c h a n g e in the f u t u r e .

C I N C E N T ' s P r o b l e m s .

On 16 J u l y 1958, CINCENT f o r w a r d e d to SACEUR a f a i r l y b r i e f

s t a t e m e n t of f o u r of t h e m a j o r ou t s t and ing p r o b l e m s which , f r o m a

s t r a t e g i c s t andpo in t , w e r e b o t h e r i n g h i m and h i s c o m m a n d e r s and f o r

wh ich he hoped tha t a so lu t ion could be w o r k e d out. The 1958 EDP s t a t ed

t h a t t h e p r i m a r y l i ne of d e f e n s e would be e a s t of t h e Rh ine . Acco rd ing

t o G e n e r a l Va l luy t h i s d e c i s i o n had b e e n t aken b e c a u s e of the bel ief tha t

a l l g r o u n d u n i t s would be equipped wi th t a c t i c a l a t o m i c w e a p o n s which

would a l low t h e m to d e f e n d even though t h e r e w a s no d e f e n s i v e b a r r i e r or

o b s t a c l e s u c h a s the R h i n e . While the C e n t r a l A r m y Group w a s equipped

wi th a t o m i c w e a p o n s , no such w e a p o n s e x i s t e d in N o r t h e r n A r m y Group .

A so lu t ion had b e e n w o r k e d out which involved the f o r m a t i o n of a N o r t h e r n

A t o m i c T a s k F o r c e , d r a w n f r o m C E N T A G ' s f o r c e s , which would m o v e

in to t h e a r e a N o r t h e r n A r m y G r o u p in an e m e r g e n c y . H o w e v e r , G e n e r a l

Va l luy f e l t t ha t t h i s so lu t ion w a s u n s a t i s f a c t o r y b e c a u s e of the t i m e i n -

vo lved to m o v e t h i s f o r c e t o p o s i t i o n in NORTHAG's a r e a . The only way

out a c c o r d i n g to h i m would be t o equip t h e v a r i o u s na t iona l f o r c e s wi th

t h e i r own o r g a n i c a t o m i c w e a p o n s . The second p r o b l e m was t h e l ack of

s u r v e i l l a n c e of the f r o n t i e r a r e a s be tween E a s t and West G e r m a n y , which

u n d e r c u r r e n t r u l e s could be done only by B r i t i s h and A m e r i c a n f o r c e s .

(19) L t r , AG 1 5 3 0 / 2 P A N D P , s u b : " E s t a b l i s h m e n t of All ied Nava l F o r c e s C o m m a n d Ba l t i c A p p r o a c h e s , 11 18 Oct 58; L t r to SC», sub : "Al l i ed Nava l C o m m a n d i n the Bal t i c A p p r o a c h e s , " 31 Oct 58. See a l s o SHAPE 118 /58 , l t r , Gen N o r s t a d to Gen Val luy, 8 Aug 58, and L t r to CINCENT AG 1530 /2 P A N D P , 16 Sep 58. Addit ional i n f o r m a t i o n on COMNAVBALTAP p r o b l e m s in AFNORTH 165 /58 ; L t r DEN NMR 7 9 / 5 8 ; S H / 1 1 8 / 5 8 .

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The c o m m a n d e r of N o r t h e r n A r m y Group found t h i s a v e r y d i f f i cu l t

s i t ua t ion and f e l t tha t t h e f o r c e s of t h e G e r m a n D e f e n s e and Secu r i t y

F o r c e should s h a r e t h e w o r k of s u r v e i l l a n c e unde r N A T O ' s o v e r a l l

s u p e r v i s i o n . T h i r d l y , G e n e r a l Val luy w a s c o n c e r n e d over the p r o b l e m of

how o p e r a t i o n a l c o m m a n d would be a s s u m e d by NATO c o m m a n d e r s in an

e m e r g e n c y . He i n s i s t e d tha t a s s i g n e d f o r c e s be p l a c e d u n d e r NATO

c o m m a n d t h e m o m e n t the o r a n g e a l e r t w a s d e c l a r e d . ^ ^

R e c o n s t i t u t i o n of H e a d q u a r t e r s TWO A T A F .

When H e a d q u a r t e r s TWO ATAF, l o c a t e d at M u n c h e n - G adbach ,

w a s f i r s t a c t i v a t e d in 1952, i t w a s s u p e r i m p o s e d upon t h e UK Nat iona l

H e a d q u a r t e r s . T h i s a r r a n g e m e n t w a s adopted f o r r e a s o n s of e c o n o m y

and to a c h i e v e e f f e c t i v e n e s s at a s e a r l y a da t e a s p o s s i b l e . However , in

t h e m e a n t i m e , the a i r f o r c e s of B e l g i u m and the N e t h e r l a n d s , a s we l l a s

of t h e UK, had been a s s i g n e d to t h e C o m m a n d e r of TWO A T A F and had

been s u b j e c t t o t a c t i c a l p l a n s r e q u i r i n g i n t e g r a t e d e f f o r t . Howeve r ,

COMTWOATAF had n e v e r , b e e n a u t h o r i z e d an i n t e g r a t e d i n t e r n a t i o n a l

s taff t o a s s i s t h i m in d i s c h a r g i n g h i s i n t e r n a t i o n a l r e s p o n s i b i l i t i e s a s a

NATO M i l i t a r y C o m m a n d e r . The p r i n c i p l e of the i n t e g r a t i o n of f o r c e s

at t he t a c t i c a l a i r f o r c e s l e v e l had been c o n f i r m e d by the Nor th At lah t ic

Counci l in Oc tobe r 1954. It w a s obvious tha t with the advent and bu i ld -

up of the G e r m a n Air F o r c e , e l e m e n t s of which would be a s s i g n e d to

COM TWOATAF, t h e r e w a s an add i t iona l r e q u i r e m e n t that COM TWOATAF

be a u t h o r i z e d an independen t i n t e g r a t e d a l l i ed s taff f o r e x e r c i s e of h i s

r e s p o n s i b i l i t i e s . It w a s f o r e s e e n a l s o tha t t he d e v e l o p m e n t of p l a n s and

o r g a n i z a t i o n f o r the i n t e g r a t i o n of a i r d e f e n s e in Al l ied C o m m a n d E u r o p e

would p l a c e fuf r ther r e s p o n s i b i l i t i e s upon t h i s C o m m a n d e r at t h e Al l ied

Tact ica l . Air F o r c e l e v e l .

(20) L t r , CINCENT to SACEUR, 16 Ju l 58, I 2 4 0 / C A B / C 0 s / 3 6 0 .

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In 1958, SHAPE s u b m i t t e d to t h e n a t i o n s c o n c e r n e d a p r o p o s e d

i n t e r n a t i o n a l p e a c e e s t a b l i s h m e n t f o r h e a d q u a r t e r s T W O A T A F . The

p r o p o s e d i n t e r n a t i o n a l p e r s o n n e l e s t a b l i s h m e n t f o r both s ta f f and suppor t

t r o o p s f o r h e a d q u a r t e r s T W O A T A F w a s sen t to the n a t i o n s f o r c o n c u r r e n c e

on 9 Augus t . The n a t i o n s a g r e e d t o t h e p e r s o n n e l r e q u i r e m e n t s and t o

t h e i n t e r n a t i o n a l f i n a n c i a l r e q u i r e m e n t s n e c e s s a r y to s u p p o r t 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 . On 27 N o v e m b e r 1958, SHAPE sen t to the Standing

G r o u p a r e q u e s t t o a l low t h e r e c o n s t i t u t i o n of H e a d q u a r t e r s TWOATAF a s

a f u l l y i ndependen t i n t e g r a t e d a l l i ed h e a d q u a r t e r s wi th e f f e c t f r o m 1 J a n -

u a r y I959 . O f f i c e r s a n d o the r r a n k s f r o m Be lg ium, G e r m a n y , the N e t h e r -

l a n d s and t h e UK would be r e q u i r e d , wi th 108 o f f i c e r s , 454 o ther r a n k s

a n d 5 NATO c i v i l i a n s invo lved . No r e p l y to t h i s r e q u e s t had been r e c e i v e d (21)

f r o m t h e Standing G r o u p by the end of 1 9 5 8 / '

M o v e m e n t of F O U R A T A F .

In e a r l y 1958 COMAIRCENT r e c o m m e n d e d t h r o u g h CINCENT tha t

in t h e i n t e r e s t s of e c o n o m y and i m p r o v e d c o m m u n i c a t i o n , t h e C o m m a n -

d e r - i n - C h i e f US Air F o r c e s E u r o p e a l so a s s u m e c o m m a n d of t h e FOUR-

A T A F and tha t h i s h e a d q u a r t e r s be l o c a t e d at R a m s t e i n . Since the FOUR-

— A T A F h e a d q u a r t e r s w a s l o c a t e d then at T r i e r , t h i s would invo lve a p h y s i c a l

m o v e of o f f i c e r s and s o m e equ ipmen t . G e n e r a l Val luy, in p a s s i n g on t h i s

r e c o m m e n d a t i o n , s a id t h e V i c e - C o m m a n d e r of F O U R A T A F should be a

" C o n t i n e n t a l " o f f i c e r b e c a u s e he saw a de f in i t e d i s a d v a n t a g e if t h e

C o m m a n d e r of F O U R A T A F a l s o c o m m a n d e d one of h i s own na t iona l e l emen t

The C h i e f - o f - S t a f f of the F r e n c h D e f e n s e Staff , G e n e r a l Ely, a l s o a g r e e d

(21) L t r to SG f r o m SHAPE, s u b : " R e c o n s t i t u t i o n of H e a d q u a r t e r s TWO-A T A F , " 27 Nov 58, AG 4030 C - 8 p P A N D A , wi th e n c l o s u r e . See a l s o Staff Study August 1958, " P r o p o s e d I n t e r n a t i o n a l P e r s o n n e l E s t a b l i s h m e n t f o r H e a d q u a r t e r s TWOATAF and NORTHAG."

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t ha t t h i s would m a k e i t d i f f i cu l t in w a r t i m e t o i n t e g r a t e f o r c e s u n d e r

s u c h a command a r r a n g e m e n t . The SHAPE Staff r e c o m m e n d e d that

G e n e r a l N o r s t a d a p p r o v e the p r o p o s i t i o n in p r i n c i p l e but tha t t h e r e be a

s e p a r a t e c o m m a n d f o r US F o r c e s a s s i g n e d to F O U R A T A F , tha t t h e V i c e -

C o m m a n d e r be a E u r o p e a n o f f i c e r , and tha t s u c c e s s i v e s t e p s be t a k e n in

t h e c o m p l e t e r e o r g a n i z a t i o n of t h e A T A F s inc lud ing i n t e g r a t i o n of t h e (22)

Air D e f e n s e and G e r m a n u n i t s .

On 25 M a r c h 1958, SACEUR no t i f i ed t h e C h a i r m a n of t h e Standing

Group tha t he w a s p lann ing to r e o r g a n i z e and r e l o c a t e t h e h e a d q u a r t e r s

of the Foxirth Al l ied T a c t i c a l Air F o r c e . T h i s w a s be ing done in t h e

i n t e r e s t s of e c o n o m y and i n c r e a s e d e f f i c i e n c y in t h e C e n t r a l E u r o p e Reg ion

and i t invo lved t h e m o v e m e n t of h e a d q u a r t e r s F O U R A T A F f r o m i t s T r i e r

l oca t ion to R a m s t e i n , G e r m a n y . The C o m m a n d e r of t h e US Air F o r c e

E u r o p e would b e c o m e C o m m a n d e r of the F o u r t h Al l ied T a c t i c a l Air F o r c e ,

cont inuing to c a r r y out h i s na t iona l d u t i e s . T h e Deputy C o m m a n d e r of

F O U R A T A F would be appo in ted f r o m one of the E u r o p e a n n a t i o n s con t r ib -

ut ing f o r c e s to F O U R A T A F , i n i t i a l l y F r a n c e . SACEUR had dec ided on

t h i s change f o r a n u m b e r of r e a s o n s . F i r s t , i t would b r i n g t h e C o m m a n d e r

of U S A F E in to t h e NATO cha in of c o m m a n d where h i s h igh r a n k and a u t h o r -

i ty in na t iona l i s s u e s could be used to t h e b e s t advan t age of NATO. The

bulk of t h e f o r c e s in F O U R A T A F w e r e Amer i can . Secondly, t h i s m o v e

would p r o v i d e p e a c e t i m e c o n t r o l f ac i l i t i e s and an o r g a n i z a t i o n at R a m s t e i n

which would a l so be s u i t a b l e and i m m e d i a t e l y a v a i l a b l e f o r w a r t i m e u s e .

The exce l l en t c o m m a n d f a c i l i t i e s a l r e a d y ' a v a i l a b l e at R a m s t e i n would

g r e a t l y s t r e n g t h e n t h e o p e r a t i o n a l s t r u c t u r e of F O U R A T A F in p e a c e and

would f a c i l i t a t e a r a p i d change towar s t a t u s wi thout any i n t e r r u p t i o n of

c o n t r o l . I m p r o v e d and s i m p l i f i e d ccmmuni ca t ion s would be b rough t about

and, g e o g r a p h i c a l l y , R a m s t e i n would b e n e a r e r to t h e C e n t r a l A r m y Group

(22) M e m o on COFS m e e t i n g w / Div Chfs , 5 M a r 58, SEC 2030, 7 M a r 58.

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H e a d q u a r t e r s t h a n T r i e r . T h i s m o v e would a l so b r i n g the c o m m a n d s e t - u p

i n t h e C e n t r a l R e g i o n in to l ine wi th tha t in t h e N o r t h e r n r e g i o n , w h e r e

t h e C o m m a n d e r T W O A T A F w a s on t h e s a m e l eve l a s t h e C o m m a n d e r N o r -

t h e r n A r m y G r o u p .

It a p p e a r e d t h a t t h e p r o p o s e d m o v e would y ie ld a c o s t sav ing to

NATO. No i n c r e a s e in NATO p e r s o n n e l would b e r e q u i r e d and no change

in s t a t u s would b e i nvo lved . H o w e v e r , s o m e a d m i n i s t r a t i v e and f i n a n c i a l

p r o b l e m s w e r e i n v e s t i g a t e d , inc luding the funding of the m o v e f r o m T r i e r

t o R a m s t e i n , t h e s t a t u s and u s e of T r i e r a f t e r i t had been v a c a t e d , t h e

s t a t u s and t y p e of fund ing f o r t h e h e a d q u a r t e r s at R a m s t e i n , and t h e suppor t

of n o n - U S p e r s o n n e l at wha t w a s then a US h e a d q u a r t e r s at R a m s t e i n .

SACEUR d e s i r e d to b r i n g t h i s m o v e about in J u n e or Ju ly 1958 if i t could

b e d o n e / 2 3 ^

In e a r l y A p r i l i t w a s announced at a m e e t i n g of t h e Chief of Staff

w i th Div is ion Ch ie f s t ha t G e n e r a l N o r s t a d d e s i r e d to appoint G e n e r a l

E v e r e s t , t hen CINCUSAFE, to t h e addi t ional p o s t of C O M F O U R A T A F . A

F r e n c h o f f i c e r would i n i t i a l l y s e r v e a s deputy C O M F O U R A T A F . ^ 2 4 ^

It w a s d e t e r m i n e d t h a t a uni t sav ing f r o m moving t h e F O U R A T A F

would a c c r u e in t h e a m o u n t of a l m o s t a q u a r t e r of a m i l l i o n dollars . B e c a u s e

of t h e in i t i a l c o s t , h o w e v e r , of t h e m o v e , which would be only about

$25, 000, i t w a s n e c e s s a r y fo r SHAPE to a sk the Standing Group to obta in

Counc i l a u t h o r i z a t i o n by 15 May f o r t h i s move . In e a r l y May, G e n e r a l

N o r s t a d v i s i t e d t h e U n i t e d S t a t e s and t h e Standing Group a s k e d if he would

d i s c u s s wi th t h e m in Wash ing ton c e r t a i n a s p e c t s of the p r o p o s e d change in

F O U R A T A F . The m e s s a g e f r o m t h e Standing Group b o r e an i m p l i c a t i o n

t h a t t h i s p r o j e c t m i g h t b e he ld up pending r e s o l u t i o n of t h e u l t i m a t e d i spo -

s i t ion of the T r i e r / T h i o n v i l l e i n s t a l l a t i o n s a l r e a d y occup ied and p o s s i b l e

(23) L t r , AG 2700 4 A T A F P A N D P , SHAPE to C h a i r m a n , SG, 25 M a r 58, Bubr n Reorgan i za t i on and R e l o c a t i o n of F o u r t h Al l ied T a c t i c a l Air F o r c e .

(24) M e m o c o v e r i n g C O F S Mtg w / Div. Chfs , 3 Apr 58, AG 2030 SEC, 5 Apr 58.

124

Nf M PT7»r"r» r«

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c h a n g e s in the w a r t i m e loca t ion of CENT AG. CINCENT a l r e a d y had

p r o p o s e d e s t a b l i s h i n g a s m a l l a d v a n c e h e a d q u a r t e r s f o r LANDCENT at

T r i e r and SHAPE had r e a c t e d to t h i s sugges t i on by ask ing h im to s tudy

• t h e p o s s i b l e m o v e of t h e e n t i r e l and h e a d q u a r t e r s to t ha t loca t ion . Also ,

MOD G e r m a n y had shown s o m e i n t e r e s t in u s ing t h e f a c i l i t i e s at T r i e r

^ f o r na t iona l p u r p o s e s . It w a s p o s s i b l e a l s o tha t SHAPE migh t w i s h to

r e t a i n the f a c i l i t i e s at Th ionvi l Ie a s the m a i n F O U R A T A F w a r h e a d q u a r -

t e r s and a s i t e f o r t h e J C O C . P r o t e c t e d w a r t i m e f a c i l i t i e s at R a m s t e i n

w e r e somewha t l i m i t e d f o r both s p a c e and t h e d e g r e e of p r o t e c t i o n p r o -

v ided . SHAPE did not f e e l tha t e i t he r of the p o i n t s i m p l i e d by the Standing

Groiip w e r e g e r m a n e to t h e m a i n i s s u e of w h e t h e r or not FOURATAF

should be m o v e d and G e n e r a l N o r s t a d w a s so adv i s ed . He w a s told a l s o -

tha t t h e F r e n c h and Canad ian o f f i c i a l s w e r e g e n e r a l l y s a t i s f i e d with t h e

a d m i n i s t r a t i v e a r r a n g e m e n t s being w o r k e d out but tha t it w a s n e c e s s a r y

t o h a v e a d e c i s i o n soon so tha t a d e q u a t e no t i c e could be g iven in cance l l i ng (25)

l e a s e s and t e r m i n a t i o n of a d m i n i s t r a t i v e c o n t r a c t s . '

On 4 June , t h e Counci l a u t h o r i z e d the r e o r g a n i z a t i o n and r e l o c a t i o n

of F O U R A T A F a s r e c o m m e n d e d by SACEUR. G e n e r a l E v e r e s t assumed

c o m m a n d of F O U R A T A F on 1 Ju ly 1 9 5 8 . ^ 2 ^

P e a c e t i m e E s t a b l i s h m e n t H e a d q u a r t e r s CENTAG and NORTHAG.

On 19 M a y 1958, A F C E N T f o r w a r d e d to SHAPE a p r o p o s e d p e a c e t i m e

e s t a b l i s h m e n t f o r h e a d q u a r t e r s C e n t r a l A r m y Group s t a t ing that t h i s

did not cnns t i t u t e a f i na l and c o m p l e t e solut ion to the r e q u i r e m e n t f o r

e s t a b l i s h i n g h e a d q u a r t e r s CENTAG a s a f u l l y i n t e r n a t i o n a l , i n t e g r a t e d

and independen t NATO h e a d q u a r t e r s . SHAPE b e l i e v e d tha t h e a d q u a r t e r s

CENTAG should be o r g a n i z e d on a c o m p l e t e l y i n t e r n a t i o n a l s t a t u s a s soon

(25) M s g to D. A. p e r s o n a l f o r Gen N o r s t a d f r o m Gen Schuy le r , SCO 23577, 12 M a y 58.

(26) SCO IN 19878, SGREP to SGN, 4 J u n 58; SCO OUT 24261, 10 J u n 58.

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a s p r a c t i c a l and so i n f o r m e d CINCENT. SHAPE po in ted out to h i m

t h a t an i n t e r n a t i o n a l TO & E could be e s t a b l i s h e d at once and the p o s t s

f i l l e d at t he e a r l i e s t f e a s i b l e da te which w a s m u t u a l l y a g r e e a b l e to (27)

CINCUSAREUR and to t h e MODs of F r a n c e and G e r m a n y / '

The p r o p o s e d i n t e r n a t i o n a l p e r s o n n e l e s t a b l i s h m e n t f o r the Staff

of H e a d q u a r t e r s NORTHAG w a s s u b m i t t e d to t h e n a t i o n s c o n c e r n e d for

t h e i r c o n c u r r e n c e in Augus t 1958. The p r o p o s e d e s t a b l i s h m e n t fo r suppor t

t r o o p s f o r t h e s a m e h e a d q u a r t e r s w a s sent to n a t i o n s on 1 S e p t e m b e r . The /

t o t a l n u m b e r of p e r s o n n e l invo lved c a l l e d f o r 203 o f f i c e r s and 1925 o ther

r a n k s and c i v i l i a n s f r o m B e l g i u m , Canada , G e r m a n y , t h e N e t h e r l a n d s

and t h e UK. ^2 8^

A F M E D R e p r e s e n t a t i o n in J C O C I z m i r .

SHAPE'S a p p r o v a l of e m e r g e n c y p l a n s in t h e Black Sea a r e a w a s

p r e d i c a t e d on t h e e s t a b l i s h m e n t of c l o s e coo rd ina t i on be tween CINCSOUTH

and CINCAFMED. In o r d e r to a c c o m p l i s h t h i s c l o s e coo rd ina t i on , CINC-

A F M E D p r o p o s e d to e s t a b l i s h r e p r e s e n t a t i v e s in CINCSOUTH J C O C at

I z m i r . MOD T u r k e y i n d i c a t e d h i s g e n e r a l a g r e e m e n t wi th C I N C A F M E D ' s

p l a n s but MOD G r e e c e s t a t e d tha t he w a s unab le to a g r e e . Dur ing h i s

d i s c u s s i o n s wi th A d m i r a l L a m b in J a n u a r y 1958, G e n e r a l N o r s t a d dec ided

tha t t h e f a c t tha t t h e G r e e k s would not p a r t i c i p a t e should not de l ay p l ac ing

A F M E D r e p r e s e n t a t i o n in JCOC at I z m i r . SACEUR a p p r o v e d C I N C A F M E D ' s

p l a n to e s t a b l i s h r e p r e s e n t a t i o n at I z m i r J C O C by 1 M a r c h and d i r e c t e d

CINCSOUTH and C I N C A F M E D to w o r k out the d e t a i l s so a s to m e e t t h i s

da t e . At the s a m e t i m e MOD G r e e c e w a s i n f o r m e d of SACEUR's d e c i s i o n

but w a s to ld tha t t h i s did not p r e c l u d e eventua l G r e e k p a r t i c i p a t i o n if t h e (29) G r e e k s so d e s i r e d .

(27) L t r , SHAPE to CINCENT, AG 4 0 3 0 / C - 9 PA, 1 J u l 58, s u b : " P e a c e E s t a b l i s h m e n t H e a d q u a r t e r s CEN-TAG. "

(28) Annex I t o B r i e f , " P r o p o s e d I n t e r n a t i o n a l P e r s o n n e l E s t a b l i s h m e n t fo r H e a d q u a r t e r s T W O A T A F and NORTHAG, " 14 Aug 58. Other

. / . . . I 12.6

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An o f f i c e r t e a m r e p r e s e n t i n g CINCAFMED/ COMM EDNOREAST

w a s i n s t a l l e d at t h e J C O C in I z m i r in M a r c h on a t r i a l b a s i s . At that

t i m e A d m i r a l L a m b p r o p o s e d tha t f o r t h e t i m e being ,^0 a l t e r n a t i v e

a r r a n g e m e n t s be m a d e c o n c e r n i n g e n e m y s u r f a c e f o r c e s in the Black Sea.

He s t a t e d tha t h i s r e p r e s e n t a t i v e at JCOC I z m i r had t h e n e c e s s a r y a u t h o r -

i t y to r e l e a s e w e a p o n s aga ins t t h e t h r e a t in t h e Black Sea and that t h e

a r r a n g e m e n t s could be t e s t e d dur ing E x e r c i s e F U L L P L A Y , which would

t a k e p l a c e soon.

SACEUR a g r e e d tha t f o r t h e t i m e being t h e r e should be no change in

t h e a t o m i c p l a n s in t h e a r e a , a l though he fe l t tha t t he CINCAFMED r e p r e -

s e n t a t i v e in J C O C I z m i r should be d e s i g n a t e d a s p r i m a r y r e l e a s i n g

c o m m a n d e r f o r a t o m i c weapons , whi le CINCAFMED would be d e s i g n a t e d

u l t i m a t e r e l e a s i n g c o m m a n d e r , and he a s k e d that C I N C A F M E D eva lua t e

t h e e f f e c t i v e n e s s of t h e s e a t o m i c r e l e a s e p r o c e d u r e s f r o m t h e J C O C at

I z m i r and p a s s on h i s v i e w s when p o s s i b l e / 3 0 ^

Fol lowing h i s a t t e n d a n c e at E x e r c i s e F U L L P L A Y , CINCAFMED

r e p o r t e d to SACEUR tha t t he ex i s t i ng a r r a n g e m e n t s w o r k e d wel l , tha t

c o o r d i n a t i o n w a s exce l l en t and tha t t he exchange of w e a p o n s be tween p l a n s ,

a l though not a c tua l l y e x e r c i s e d , could have been c a r r i e d out r e a d i l y . It

w a s obvious tha t b e c a u s e of d e l a y s in c o m m u n i c a t i o n s f r o m JCOC I z m i r

to t h e C I N C A F M E D ' s h e a d q u a r t e r s in Ma l t a , tha t i t would have been

i m p o s s i b l e unde r t h e c i r c u m s t a n c e s fo r CINCAFMED to have s e r v e d

e f f e c t i v e l y a s the r e l e a s i n g c o m m a n d e r . He s t a t ed tha t t h e r o l e p l a y e d by

t h e r e p r e s e n t a t i v e at I z m i r ( A F M E D r e p r e s e n t a t i v e ) w a s e s s e n t i a l .

(28) . / . . . o r g a n i z a t i o n a l and c o m m a n d da t a of i n t e r e s t a r e con ta ined in S H / P P / 188 /58 ( T u r k i s h A r m y R e o r g a n i z a t i o n ) ; AFSOUTH 148 /58 ; A F C E 117 /58 ; A F C E 130 /58 .

(29) AG 2030 SECY, 8 F e b 58; SCO IN 12316, 7 J a n 58; SCO IN 12446; SCO IN 12420; SCO IN 12419.

(30) F o r m o r e d e t a i l s on t h i s , s e e l t r Admirad L a m b to G e n e r a l N o r s t a d , 25 M a r 58, and l t r G e n e r a l N o r s t a d to Admirad L a m b , 19 Apr 58.

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He f u l l y a g r e e d wi th SACEUR in e s t a b l i s h i n g t h e A F M E D r e p r e s e n t a t i v e

at I z m i r a s e f f e c t i v e p r i m a r y r e l e a s i n g c o m m a n d e r f o r a t o m i c p l a n s (31) in the B l a c k S e a / '

(31) See L t r A d m i r a l L a m b to G e n e r a l N o r s t a d , 4 Ju l 58, f o r addi t iona l b a c k g r o u n d on P e f f o r m a n c e of A F M E D r e p r e s e n t a t i v e in E x e r c i s e

F U L L P L A Y .

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SHAPE 5 8 / 6 7

C H A P T E R VI

LOGISTICS AND I N F R A S T R U C T U R E

I n t r o d u c t i o n ,

T h e r e l u c t a n c e of m a n y NATO n a t i o n s t o c o m m i t t h e m s e l v e s f i n a n -

c i a l l y un t i l t h e r e s u l t s of new s t r a t e g i c p l a n s and p o l i c i e s had b e e n c l o s e l y

e x a m i n e d w a s m o s t n o t i c e a b l e in t h e f i e l d s of l o g i s t i c s and i n f r a s t r u c t u r e ,

and con t inued t h r o u g h 1958. D e s p i t e e x h a u s t i v e s tudy by t h e h i g h e s t NATO

m i l i t a r y a u t h o r i t i e s , d e c i s i o n s w e r e s t i l l no t m a d e by t h e N o r t h At lan t i c

Counci l , wh ich would a l low t h e M a j o r S u p r e m e C o m m a n d s t o p r o v i d e t h e

n e c e s s a r y l o g i s t i c s u p p o r t f o r t h e i r f o r c e s .

The p l a n n e d i n t r o d u c t i o n of new w e a p o n s in to A C E c r e a t e d m a n y

p r o b l e m s . The n a t i o n s w e r e p r e p a r e d to s end p e r s o n n e l f o r t r a i n i n g t o

o p e r a t e and suppor t t h e s e n e w w e a p o n s , bu t r e l u c t a n t to c o m e to g r i p s wi th

t h e f i n a n c i a l a s p e c t s of t h e n e c e s s a r y i n f r a s t r u c t u r e . D i s c u s s e d by t h e

Counci l , no t ab ly a t t h e D e c e m b e r 1957 and t h e A p r i l and J u n e b a s i s . Many

m e e t i n g s w e r e he ld t o d i s c u s s the f inanc ing of t h e s e new w e a p o n s , m a i n l y

t o e s t a b l i s h t h e i r e l ig ib i l i ty f o r 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

funding .

A p i e c e m e a l so lu t ion f a v o r e d by t h e Counci l did not s a t i s f y t h e m i l i -

t a r y p l a n n e r s .

SHAPE w a s i n t i m a t e l y c o n c e r n e d wi th t h e NATO h i g h e r m i l i t a r y

bod ie s in p r o v i d i n g d e t a i l e d j u s t i f i c a t i o n f o r 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 . At t h e s a m e t i m e , s t u d i e s w e r e u n d e r t a k e n at SHAPE t o d e t e r m i n e

what d e g r e e of s a v i n g s could be e f f e c t e d to o f f s e t any f u t u r e f i n a n c i a l c o m -

m i t m e n t s . Dur ing 1958, t h e c o n c l u s i o n s of t h e s e s t u d i e s w e r e f o r w a r d e d

to t h e Counci l by t h e M i l i t a r y C o m m i t t e e .

129

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F u r t h e r p r o g r e s s w a s m a d e du r ing t h e y e a r in t h e f i e ld of l o g i s t i c s

i n t e g r a t i o n , inc lud ing a s tudy m a d e of the p r o b l e m by a F r a n c o - G e r m a n

l o g i s t i c s t e a m .

SECTION I - LOGISTICS

L o g i s t i c s I m p l i c a t i o n s of MC 7 0 .

Annex " F " of t h e " A C E M i n i m u m F o r c e Study" con ta ined t h e p r i n c i p a l

l o g i s t i c s r e q u i r e m e n t s which had to be me t to s u p p o r t S A C E U R ' s o p e r a t i o n a l

t a s k s . S H A P E d e v e l o p e d a s tudy out l in ing t h e ac t ion r e q u i r e d to a c h i e v e

t h i s s u p p o r t , wh ich w a s sent t o t h e M S C s . ^ Dur ing F e b r u a r y and M a r c h

1958 S H A P E t e a m s v i s i t e d the M S C s to d i s c u s s t h i s s tudy and r e c e i v e

c o m m e n t s .

Fo l lowing t h e a p p r o v a l of MC 70 by t h e Counci l on 9 M a y 1958, a

r e v i s e d S H A P E p a p e r w a s p r e p a r e d , w h o s e t i t l e w a s changed to r e f e r it

t o M C 70; i t w a s a m e n d e d to i n c o r p o r a t e t h e r e c e n t l y r e v i s e d " M i l i t a r y

P l a m i i n g F a c t o r s " (MC 5 5 / l ) , and m o s t of t h e c o m m e n t s m a d e by t h e MSCs (2)

on t h e s t u d y ' s e a r l i e r v e r s i o n /

The f i r s t p a r t of t h e SHAPE s tudy deaU w i t h t h e "Stockpi l ing of

T h e a t r e O p e r a t i o n a l S t o c k s . " The f a c t o r s wh ich d e t e r m i n e d t h e s i z e of

t h e s t o c k p i l e s n e e d e d t o s u p p o r t S A C E U R I S o p e r a t i o n a l t a s k s had been p r o -

m u l g a t e d in MC 5 5 / 1 . A S H A P E s t u d y on t h e s e d e t e r m i n i n g f a c t o r s had

b e e n f o r w a r d e d to t h e Standing Group , but a new eva lua t ion of t h e s e f a c t o r s

m a d e by S H A P E had b e e n i s s u e d a s gu idance f o r t h e 1958 Annual R e v i e w . ^ ^

The s tockp i l ing g o a l s w e r e s t a t e d to be t h e m i n i m u m r e q u i r e d to

(1) AG 1 2 2 0 . 1 6 / P & M - 1 0 5 / 5 8 LOG, dtd 24 F e b 58 :"Act ion R e q u i r e d on L o g i s t i c I m p l i c a t i o n s of A C E M i n i m u m F o r c e Study 1958-63 . "

¢2) AG 1 2 2 0 . 1 6 / P & M - 3 2 6 / 5 8 LOG, dtd 28 J u n 58 :"Act ion R e q u i r e d on L o -g i s t i c I m p l i c a t i o n s of MC 70, a s app l i cab l e t o ACE. "

(3) S H A P E / 2 2 2 / 5 7 / 4 Oct 57 : " Impac t of the 30 -day Concept on t h e Stock-p i l ing S i t u a t i o n . " . / . . .

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s u p p o r t S A C E U R ' s o p e r a t i o n a l t a s k s , t o be r e a c h e d a s qu ick ly a s p o s s i b l e

and c e r t a i n l y not l a t e r t han t h e beginning of 1963. It w a s c o n s i d e r e d e s s e n -

tial t ha t a l l n a t i o n s a t t a i n equa l l e v e l s in the s i z e of t h e i r s t ockp i l e s , t o

a c h i e v e the r e q u i r e d i n t e g r a t i o n and m u t u a l s u p p o r t . a

The SHAPE s tudy m a d e i t c l e a r t ha t s t o c k s r e q u i r e d f o r P h a s e I

( the f i r s t 30 days ) of w a r would have t o be p o s i t i o n e d in p e a c e t i m e so tha t

t hey could be i m m e d i a t e l y a v a i l a b l e . The s t o c k s r e q u i r e d t o suppor t a l l

f o r c e s l i k e l y to be engaged in t h e fo l lowing 60 days had t o be p o s i t i o n e d in

p e a c e t i m e and be r e a d i l y a v a i l a b l e .

As new w e a p o n s and equ ipmen t w e r e added, the n e c e s s a r y l o g i s t i c

s u p p o r t should be p r o v i d e d . The MSCs w e r e to k e e p t h e bu i l d -up of s t o c k s

u n d e r cons t an t r e v i e w , wi th a s y s t e m of p r i o r i t i e s to a s s u r e tha t M - d a y

f o r c e s b a s i c equ ipmen t , f o r e x a m p l e , would be s tocked f i r s t .

Gu idance w a s g iven on t h e r e p a i r of i n f r a s t r u c t u r e i n s t a l l a t i o n s , and

t h e e m e r g e n c y r e p a i r of such v i t a l l o g i s t i c s i n s t a l l a t i o n s a s t h e P O L p i p e -

l i ne s y s t e m .

The SHAPE s tudy e m p h a s i z e d tha t l o g i s t i c suppor t w a s to be p r o v i d e d

f o r SACEUR's f o r c e s on t h e a s s u m p t i o n tha t t h e r e would be no p e r i o d of

w a r n i n g . Should t h e r e be a p r i o r p e r i o d of t e n s i o n , the MSCs and n a t i o n s

had to p r e p a r e p l a n s f o r mak ing the b e s t u s e of t h i s t i m e , inc luding d i s t r i -

bu t ion of n u c l e a r w a r h e a d s .

Unt i l f u r t h e r p r o g r e s s had been m a d e in e s t a b l i s h i n g the m i s s i o n ,

o p e r a t i o n a l r o l e and composi t ion of SACEUR' s t a s k f o r c e s , t h e SHAPE

s tudy s t a t ed that it w a s not p o s s i b l e to e x a m i n e the l og i s t i c i m p l i c a t i o n s in

•any de t a i l P r o b a b l y t h e s e f o r c e s would be d r a w n f r o m r e a d y u n i t s a l r e a d y a

a s s i g n e d t o SACEUR, and vtould be employed to coun te r a developing t h r e a t

. / . (4) The r e v i s e d eva lua t ion of the f a c t o r s a f f e c t i n g the s i z e of s t o c k p i l e s w a s AG 1 2 2 0 . 1 6 / P & M - 2 5 8 LOG, 13 M a y 58. The Na t ions w e r e r e q u e s t e d to u s e t h i s gu idance fo r the Annual Rev iew 58, and w e r e r e q u e s t e d to f o r w a r d t h e i r c o m m e n t s , if any, t o S H A P E by 1 Oct 58. In f a c t , s o m e n a t i o n s ' c o m m e n t s did not r e a c h SHAPE unt i l a f t e r 31 Dec 58, and SHAPE p lanned to r e v i s e the p lanning f a c t o r s once m o r e e a r l y in 1959 f o r u s e i n t h e 1959 Annual Rev i ew . See LOG Div Q u a r t e r l y R e p o r t , 7 J a n 59 (LOG 2300/ P & M - 1 0 / 5 9 ) .

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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 . It w a s l i ke ly tha t t h e f o r c e employed

in any p a r t i c u l a r o p e r a t i o n would be d r a w n f r o m two or m o r e na t iona l

c o n t i n g o i t s o p e r a t i n g u n d e r an i n t e g r a t e d s ta f f .

The d e l i v e r y of n u c l e a r w a r h e a d s w a s expec ted to i n c r e a s e th roughou t

ACE, c o m p l i c a t i n g l o g i s t i c p r o b l e m s . O the r p o i n t s dea l t wi th in the SHAPE

s tudy on t h e l o g i s t i c i m p l i c a t i o n s of MC 70 inc luded m e d i c a l suppor t and

t h e 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 ; t h e s tockpi l ing , d i s t r i b u t i o n and w a r -

t i m e c o n t r o l of P O L ; and t h e s p e c i f i c a i r f o r c e l o g i s t i c s u p p o r t in a g e n e r a l

w a r .

L o g i s t i c s 1958.

One a s p e c t of t h e " 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

1 9 5 8 - 6 3 " - - " N a v a l M o b i l e L o g i s t i c S u p p o r t " - - w a s t h e s u b j e c t of a s tudy

w i t h g u i d a n c e i s s u e d by SHAPE to MOOs, a c c o m p a n i e d by an annex fo r (5)

e a c h na t ion dea l ing wi th i t s p a r t i c u l a r n e e d s / '

SHAPE r e c o g n i z e d tha t t he p r o v i s i o n of add i t iona l or r e p l a c e m e n t

l o g i s t i c s u p p o r t s h i p s w a s of s econd p r i o r i t y to r e p l a c e m e n t of o b s o l e s c e n t

c o m b a t t a n t s h i p s r e q u i r e d to m e e t D-day r e q u i r e m e n t s .

CINCENT had r e c o m m e n d e d tha t n a t i o n s should p o s i t i o n 30 d a y s '

r e q h i r e m e n t s in s t o c k p i l e s e a s t of the Rhine , and c o n t r o l of a l l l o g i s t i c s

r e s o u r c e s p o s i t i o n e d by t h e n a t i o n s in the combat zone in s u p p o r t of t h e i r

a s s i g n e d f o r c e s should be g iven to All ied C o m m a n d e r s f r o m D - d a y o n w a r d s ,

t o p e r m i t u s e of t h e r e s o u r c e s w h e r e v e r n e e d e d . ^ In o r d e r t ha t CINCENT migh t p r o p e r l y e x e r c i s e h i s d e l e g a t e d r e -

a l l o c a t i o n p o w e r s in w a r and a l s o to e n s u r e the m o s t e f f i c i en t u s e in w a r

(5) AG 6960 .o l / P & M - l 5 9 / 5 8 LOG, sub : "Nava l Mobi le L o g i s t i c Suppor t " , dtd 5 Apr 58.

(6) A F C E / 6 0 0 0 . 1 2 J L A LOG 525 /57 . In f a c t , t h r e e work ing g r o u p s w e r e e s t a b l i s h e d to s tudy not only the i n t e g r a t i o n p r o b l e m , b u t a l s o to p r e -p a r e an o v e r a l l l o g i s t i c s p l an and to e x a m i n e the p r o b l e m s of l og i s t i c o r g a n i z a t i o n in t h e c o m b a t zone. The s tudy s u b m i t t e d to SHAPE on 25 J u n e 57 w a s t h e w o r k of Working Group No 1.

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of a l l a v a i l a b l e r e s o u r c e s in the c o m b a t zone , he f u r t h e r r e c o m m e n d e d t h r e e

p e a c e t i m e m e a s u r e s :

a . I n t e g r a t i o n of l o g i s t i c s t a f f s t o p e r m i t f l ex ib i l i t y and economy. The

l e v e l of i n t e g r a t i o n w a s not de f ined .

b . E s t a b l i s h m e n t of a s e r i e s of Al l ied depot c o m p l e x e s c o m p o s e d of

na t i ona l s u b - d e p o t s . P e a c e t i m e t r a i n i n g of na t i ona l l o g i s t i c t e a m s in t h e

b r o a d p r i n c i p l e s of the l o g i s t i c o r g a n i z a t i o n and p r o c e d u r e s of o the r na t iona l

s y s t e m s .

c . F ind ing m e a n s to f i n a n c e t h e add i t iona l i n s t a l l a t i o n s n e c e s s a r y

t o i m p l e m e n t the p r o p o s a l s .

I n t e g r a t i o n of L o g i s t i c Suppor t . - SHAPE'B P r o p o s a l s . On 25 F e b r u a r y

1958 a SHAPE p a p e r on t h e " I n t e g r a t i o n of L o g i s t i c Support f o r the F o r c e s

of Al l ied C o m m a n d E u r o p e " w a s sent t o t h e Standing Group . SHAPE'S s tudy

ou t l ined t h e l i m i t a t i o n s i m p o s e d by MC 3 6 / l , and s t a t e d that a l e s s r e s -

t r i c t i v e v i ew would have to be t a k e n of SACEUR' s p o w e r s t han tha t se t f o r t h

in t h i s d o c u m e n t . In addi t ion it had not been p o s s i b l e to r e a c h N A T O - w i d e

a g r e e m e n t r e g a r d i n g the def in i t ion of r e s o u r c e s to be m a d e a v a i l a b l e t o

SACEUR and t h e MSCs . A t h i r d d i f f i cu l ty w a s the u n c e r t a i n t y a s to what

c o n s t i t u t e d an e m e r g e n c y , a s p r o p o u n d e d in MC 36 /1 , s i nce d i f f e r e n t i n t e r -

p r e t a t i o n s e e m e d p o s s i b l e .

SACEUR s u p p o r t e d a l l t h e p r o p o s a l s m a d e to h i m by CINCENT and

po in t ed out tha t SHAPE w a s deve lop ing v a r i o u s o the r s t u d i e s a i m e d at t he

i m p r o v e m e n t of t h e l og i s t i c suppor t o r g a n i z a t i o n . It w a s be l i eved tha t t h e r e

w a s c o n s i d e r a b l e po ten t i a l f o r f l e x i b i l i t y and e c o n o m y in t h e p o s s i b l e c o n -

so l ida t ion and i n t e g r a t i o n in to t h e NATO o r g a n i z a t i o n of na t iona l u n i t s and

s t a f f s engaged in m o v e m e n t s and t r a n s p o r t a t i o n , r o a d t r a n s p o r t o p e r a t i o n ,

r e c e i p t and d i s t r i b u t i o n of P O L , and s p e c i a l i z e d m i l i t a r y eng inee r ing

a c t i v i t i e s .

The NATO S p a r e P a r t s Agency p r o v i d e d a p o s s i b l e s t a r t i n g po in t .

U n d e r i n t e g r a t e d m a n a g e m e n t t h e r e migh t be e f f e c t i v e r e d i s t r i b u t i o n and

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s tockp i l i ng , a d e g r e e of c e n t r a l i z e d p r o c u r e m e n t and m u t u a l a s s i s t a n c e

in t h e a c c o m p l i s h m e n t of m a i n t e n a n c e and o v e r h a u l p r o g r a m s . S H A P E

c o n s i d e r e d tha t a l l t h e s e s t u d i e s had deve loped to the poin t of p r a c t i c a l t r i a l

îuid t e s t i n g .

S H A P E p o i n t e d out t h a t t h e Centred. Reg ion would b e m o s t ab le to t e s t

t h e i n t e g r a t e d o r g a n i z a t i o n , and t h e r e f o r e a t t en t ion should be d i r e c t e d to

t h e d e v e l o p m e n t of i n t e g r a t i o n in tha t r e g i o n . Should the t e s t s be found

s u c c e s s f u l , t h e o r g a n i z a t i o n migh t be i n t r o d u c e d in to t h e o the r r e g i o n s a s

d e s i r a b l e . It w a s r e c o m m e n d e d tha t t h e Standing G r o u p a p p r o v e p r a c t i c a l

e x p e r i m e n t s to be conduc t ed by SACEUR in t h e C e n t r a l Reg ion - - e x p e r i m e n t s

t ha t would t e s t t h e i n t e g r a t i o n of suppor t un i t s .

SHAPE c o n s i d e r e d tha t n a t i o n s w h o s e f o r c e s c o n s t i t u t e d the C e n t r a l

C o m m a n d should p o s i t i o n e a s t of the Rh ine r e s e r v e s t o c k s c o n s i s t i n g of

30 d a y s ' supp ly a s p a r t of t h e i r 9 0 - d a y s t o c k p i l e s , wh ich would be r e g a r d e d (7)

a s p a r t of the 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 SACEUR.v '

On 1 M a r c h 1958, G e n e r a l N o r s t a d w r o t e to t h e f i v e i n t e r e s t e d MODs

( F r a n c e , B e l g i u m , N e t h e r l a n d s , L u x e m b o u r g and G e r m a n y ) on t h e s u b j e c t

of f u t u r e d i s c u s s i o n of l o g i s t i c s p r o b l e m s with CINCENT. ^ SACEUR

s t a t e d tha t he had g iven a g r e e m e n t in p r i n c i p l e to C I N C E N T ' s concep t ( a s

c o n t a i n e d i n r e c o m m e n d a t i o n to SGN da ted 25 F e b r u a r y 1958.) He had a l s o

p r o p o s e d to t h e Standing G r o u p that p r a c t i c a l e x p e r i m e n t s be c a r r i e d on a

l i m i t e d s c a l e , t h e p r i n c i p l e s of i n t e g r a t i o n of l og i s t i c suppo r t .

T h e Standing G r o u p ' s Views . In o r d e r t o a s s i s t t h e NATO I n t e r n a t i o n a l

Staff p r e p a r e f o r t h e A p r i l M i n i s t e r i a l Mee t ing , t he Standing Group sent an

i n t e r i m p a p e r s t a t ing tha t it had c o n s i d e r e d the i n t e g r a t i o n of l o g i s t i c s (9) p r o b l e m , b u t w a s s e e k i n g na t iona l v i e w s / '

(7) AG 6 0 0 0 / P & M 8 9 / 5 8 LOG, 25 F e b 58. (8) AG 6 0 0 0 / P & M 1 2 2 / 5 8 LOG, 1 M a r 58. (9) SGM-146- 58, 7 M a r 58.

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T h e r e w e r e b a s i c d i f f e r e n c e s a m o n g s t t h e n a t i o n s in c e r t a i n f u n -

damenta l c o n c e p t s a s yet unso lved - - f o r e x a m p l e t h e extent to wh ich

na t iona l l o g i s t i c r e s o u r c e s would be m a d e a v a i l a b l e to SACEUR f o r r e d e -

p l o y m e n t in w a r , and t h e leve l of s tockp i l ing f o r n e c e s s a r y r e s e r v e s . The

b a s i c p r o b l e m w a s to m a k e l o g i s t i c s r e s p o n s i v e to c o m m a n d .

The F r a n c o - G e r m a n s tudy w a s f o c u s s e d on t h e d e g r e e of i n t e g r a t i o n

f e a s i b l e b e t w e e n t h e two na t iona l l o g i s t i c s s y s t e m s . In t h e event tha t p o s i t i v e

r e s u l t s w e r e r e a c h e d , t h e NATO m i l i t a r y a u t h o r i t i e s w e r e to be i n f o r m e d with

a v iew to inv i t ing o the r n a t i o n s to p a r t i c i p a t e .

The Standing Group sent a fo l low-up p a p e r to t h e Counci l s taff which

inc luded c o m m e n t s on SACEUR' s r e c o m m e n d a t i o n s of 25 F e b r u a r y . ^ ^

As h i s p r o p o s a l s w e r e app l i cab le p r i m a r i l y to l and f o r c e s , t h e Standing

Group s t a t e d tha t a s e p a r a t e examina t ion of t h e a i r f o r c e s ' l o g i s t i c s p r o -

b l e m s would have to be m a d e . O the r c o n c l u s i o n s r e a c h e d by the Standing

Group w e r e :

a . An e f f i c i en t l o g i s t i c suppor t o r g a n i z a t i o n had to ex is t in p e a c e t i m e ;

b. A p r i m a r y goa l of SACEUR's s t u d i e s would be to d e t e r m i n e t h e

h ighes t d e g r e e of i n t e g r a t i o n p o s s i b l e in a p e a c e t i m e o r g a n i z a t i o n ;

c . The 3 0 - d a y e a s t - o f - t h e - R h i n e concept w a s c o n s i d e r e d m i l i t a r i l y

sound.

C I N C E N T ' s S tud ies .

In an t i c ipa t ion of app rova l of MC 70 and of t h e Standing G r o u p ' s

a g r e e m e n t to h i s p r o p o s a l s , SACEUR i n s t r u c t e d CINCENT to u n d e r t a k e

c o o r d i n a t e d s t u d i e s wi th na t iona l a u t h o r i t i e s of t h e C e n t r a l E u r o p e a n coun -

t r i e s , and r e q u e s t e d h i m to f o r w a r d the work ing g r o u p r e p o r t s on l o g i s t i c s

i n t e g r a t i o n , t o inc lude de ta i l ed p r o p o s a l s f o r i n t e g r a t i o n of c e r t a i n l o g i s t i c

suppor t f a c i l i t i e s . SHAPE and A F C E N T , a f t e r i s s u a n c e of the Working

(10) SGM-215-58 , 7 Apr 58.

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G r o u p No. 2 r e p o r t , he ld a m e e t i n g to c o n s i d e r i t s r e c o m m e n d a t i o n s .

S H A P E a g r e e d to a c c e p t t h e m a i n c o n c l u s i o n s , but the extent of the s t o c k -

p i l e s e a s t of t h e R h i n e w a s to be r e - s t u d i e d . ^ ^

L o g i s t i c P l a n n i n g F a c t o r s R e g a r d i n g S tockp i l e s .

A p p r o v e d in 1955, M C 55 w a s among the b a s i c p lann ing documents

wh ich had to be r e v i s e d a s a r e s u l t of c h a n g e s in s t r a t e g i c c o n c e p t s adopted

du r ing 1957 and 1958. T h e c h a n g e s w e r e t h o s e n e c e s s a r y to b r i n g t h e MC 55

m i l i t a r y p l ann ing f a c t o r s in to l ine wi th s t r a t e g i c c o n c e p t s con ta ined in t h e

M C 14 and 48 s e r i e s , and t h e M i n i m u m F o r c e Study. The d iv i s ion of a

f u t u r e w a r in to two p h a s e s w a s a s s u m e d and the e s t i m a t e d perf.od b e f o r e

r e - s u p p l y of c o m b a t f o r c e s engaged in w a r w a s 90 days . T h e f a c t o r s to be

u s e d when c a l c u l a t i n g t h e s i z e of o p e r a t i o n a l s t ockp i l e s w e r e s t a t ed to b e :

a . T h e s i z e and p h a s i n g of f o r c e s a s a c c e p t e d in f o r c e g o a l s ;

b . T h e r a t e of f o r c e a t t r i t i o n a s e s t a b l i s h e d by the M a j o r a p p r o p r i a t e

n a t i o n a l a u t h o r i t i e s .

c . T h e i n t e n s i t y of o p e r a t i o n s a s e s t a b l i s h e d by t h e M a j o r NATO

C o m m a n d e r s .

d. W a r t i m e consumpt ion r a t e s f o r s t o r e s and equ ipmen t .

e. L o s s of s t o c k s due to e n e m y ac t ion .

f . The s t a n d a r d i z a t i o n of s t o c k s .

A change in t h e s y s t e m of r e p o r t i n g of o p e r a t i o n a l s t o c k s w a s a l s o

r e c o m m e n d e d . ^ ^

S H A P E Gu idance I s s u e d .

Fol lowing t h e a p p r o v a l of MC 55 /1 on 1 4 M a y 1958, SHAPE i s s u e d

g u i d a n c e to the M a j o r Subord ina t e C o m m a n d e r s and the na t iona l a u t h o r i t i e s

wi th a r e q u e s t tha t t h e above f a c t o r s be u s e d when comple t ing the 1958

(11) AG 6 0 0 0 / P & M - 1 2 2 / 5 8 LOG, 1 M a r 58; AG 6 0 0 0 / P & M - 2 7 8 / 5 8 , 28 M a y 58. (12) M C 55 /1 , 19 M a y 58.

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Annual R e v i e w Q u e s t i o n n a i r e / '

L o g i s t i c s R e s o u r c e s .

P a r t U of t h e Al l ied C o m m a n d E u r o p e L o g i s t i c s S y s t e m set out

t h e s u g g e s t e d p r o c e d u r e s t o b e fo l lowed by t h e NATO n a t i o n s and the

NATO m i l i t a r y a u t h o r i t i e s when p lanning t h e pos i t i on ing of s t o c k s of equ ip-

m e n t and m a t e r i a l s . T h e s e s t o c k s w e r e m a d e up f r o m na t iona l r e s o u r c e s

" m a d e a v a i l a b l e " to SACEUR, a l though t h e r e w a s no o f f i c i a l de f in i t ion of (14)

t h e t e r m " log 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 . " v '

The SHAPE r e c o m m e n d a t i o n s t a t ed tha t a l l t h e l o g i s t i c r e s o u r c e s of

t h e c o m b a t and s e r v i c e u n i t s a s s i g n e d to A C E w e r e to be c o n s i d e r e d a s

m a d e a v a i l a b l e to SACEUR, and sub jec t to r e - a l l o c a t i o n in an emergency in

w a r . O the r na t i ona l r e s o u r c e s s t a t i oned wi th in A C E w e r e c o n s i d e r e d not

s p e c i f i c a l l y m a d e a v a i l a b l e f o r r e - a l l o c a t i o n , excep t a s migh t be a g r e e d t o (15)

by t h e na t iona l a u t h o r i t i e s on gu idance of the M i l i t a r y C o m m i t t e e / '

T h e Standing Group c o n s i d e r e d SHAPE'S p r o p o s a l s , and m a d e c o m p r o m i

c o u n t e r - p r o p o s a l s which i t f e l t migh t be m o r e a c c e p t a b l e to t h e n a t i o n s , and

which SHAPE c o n s i d e r e d i n e f f e c t u a l . A m e e t i n g of SHAPE and Standing-

Group p l a n n e r s b rough t f o r t h a new c o m p r o m i s e p r o p o s a l .

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 t h i s new SGN r e c o m m e n d a t i o n

- - M C 8 6 - - du r ing O c t o b e r , and a p p r o v e d i t a t t h e end of t h e y e a r / * ^ The

f i n a l v e r s i o n of t h e p a p e r s t a t e d : "All l o g i s t i c r e s o u r c e s in t h e p o s s e s s i o n

of or c o n t r o l l e d by t h e c o m b a t f o r c e s , inc luding t h e s e r v i c e u n i t s u n d e r

t h e i r c o m m a n d , wh ich a r e a s s i g n e d to Al l ied C o m m a n d E u r o p e , a r e con-

s i d e r e d a s m a d e a v a i l a b l e to SACEUR and h i s M a j o r Subord ina t e C o m m a n d e r s

(13) AG 1 2 2 0 . 1 6 / P & M - 2 5 8 / 5 8 LOG, 13 M a y 58. (14) F o r e a r l y h i s t o r y on t h i s p r o b l e m , s e e 1957 SHAPE H i s t o r y ,

. L o g i s t i c s c h a p t e r . T h e SHAPE r e c o m m e n d a t i o n w a s : (15) AG 1220 .08 /PScM-338/57 LOG, 27 J u n 57: L o g i s t i c R e s o u r c e s to be

m a d e a v a i l a b l e in an E m e r g e n c y in W a r . (16) MC 86 ( F i n a l Dec is ion) , 30 Dec 58.

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f o r t h e s u p p o r t of t h e s e a s s i g n e d f o r c e s w h e t h e r in t h e Comba t or C o m -

m u n i c a t i o n s Z o n e s . As such t h e y a r e 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 . Such a u t h o r i t y f o r r e - a l l o c a t i o n of t h e s e r e s o u r c e s ou t s ide

n a t i o n a l t e r r i t o r y , h o w e v e r , i s s u b j e c t t o p r i o r nego t i a t i on , p r e f e r a b l y

in p e a c e t i m e , b e t w e e n SACEUR and n a t i o n s a s m a y be n e c e s s a r y . O the r

n a t i o n a l r e s o u r c e s , w i th in t h e a r e a of Al l ied C o m m a n d E u r o p e , a r e not

m a d e a v a i l a b l e to Al l i ed C o m m a n d e r s f o r r e - a l l o c a t i o n i n an E m e r g e n c y in

w a r , e x c e p t a s m a y b e a g r e e d to be t h e n a t i o n s in a c c o r d a n c e wi th t h e

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 p o l i c y and g u i d a n c e . " The na t i ona l a u t h o r -

i t i e s w e r e t h u s g iven t h e s a f e g u a r d s t h e y r e q u i r e d . Deqsite t h e SHAPE

r e c o m m e n d a t i o n t h a t a l l t h e c o m b a t f o r c e s ' 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

w e r e c o n s i d e r e d to b e s u b j e c t to 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 he

M i l i t a r y C o m m i t t e e added a p r o v i s o tha t t h i s a u t h o r i t y m u s t be sub jec t t o

p r i o r a g r e e m e n t , p r e f e r a b l y in p e a c e t i m e .

S h o r t a g e of War R e s e r v e P O L Stocks in T u r k e y .

In a l e t t e r to t h e SGN, G e n e r a l Schuyler d r e w a t t en t ion to t h e f a c t

t ha t P O L s tock s t a t u s r e t u r n s con t inua l ly indica ted tha t T u r k e y had been

u n a b l e to a c h i e v e t h e 30 w a r d a y s ' supply of a l l f u e l s e s t a b l i s h e d by the

NAC a s t h e m i n i m u m l e v e l , and w e r e f o r s h o r t - t e r m p e a c e t i m e r e q u i r e m e n t s

o n l y . ' 1 7 »

It had long a p p e a r e d i m p r o b a b l e tha t T u r k e y could r e m e d y t h e s i tua t ion

by h e r own e f f o r t s , or t h a t l o g i s t i c a l d e f i c i e n c i e s in T u r k e y could be m a d e

up by m e a s u r e s wi th in t h e t e r m s of r e f e r e n c e of t h e m i l i t a r y a u t h o r i t i e s .

It wag t h e r e f o r e r e c o m m e n d e d tha t t h e SGN acquain t t h e Counci l wi th the

f u l l s i g n i f i c a n c e of T u r k e y ' s inadequate r e s e r v e s t o c k s .

M a p s and C h a r t s P o l i c y .

S H A P E i s s u e d g u i d a n c e to t h e M a j o r Subord ina t e C o m m a n d s and t o

(17) A G / P O L 0 1 3 7 / 5 8 LOG, 18 Jun 58.

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t h e NATO n a t i o n s on t h e p o l i c y f o r NATO m a p s and c h a r t s which c o v e r e d :

a . T h e a l loca t ion of p r i m a r y m a p p i n g r e s p o n s i b i l i t y ;

• b . War r e s e r v e s t o c k s of m a p s and c h a r t s ;

c . The exchange of l a n d m a p s and r e l a t e d m a t e r i a l ;

* d. The exchange of a e r o n a u t i c a l c h a r t s and r e p r o d u c t i o n m a t e r i a l .

. M a p s and c h a r t s p o l i c y wi th in A C E w a s i n t ended t o e n s u r e tha t a

s m o o t h swi t ch would be m a d e f r o m p u r e l y na t iona l to l a r g e l y i n t e r n a t i o n a l

m a p and c h a r t p r o d u c t i o n and d i s t r i b u t i o n , on t h e o u t b r e a k of a w a r .

*****

SECTION II - INFRASTRUCTURE

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 t h e P e r i o d 1958-1963.

The M i l i t a r y C o m m i t t e e p r e p a r e d a r e p o r t on 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 t h e p e r i o d 1958-1963 fo l lowing t h e D e c e m b e r 1957 Counci l m e e t -

(18)

ing . Many na t iona l d e l e g a t e s at t h i s m e e t i n g had e x p r e s s e d c o n c e r n at

t h e c o s t of p r o j e c t s n e c e s s a r y to s u p p o r t MC 70, p a r t i c u l a r l y t h o s e c o n n e c t e d

wi th m i s s i l e s . In tended a s a c o m p l e m e n t a r y r e p o r t t o MC 70, t h e i n f r a -

s t r u c t u r e r e p o r t , MC 3 2 / 1 1 , w a s p r e s e n t e d to the Coxmcil at t h e Apr i l 1958

m e e t i n g .

T h e M i l i t a r y C o m m i t t e e e s t i m a t e d t h e to t a l c o s t of 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 t h e f i v e - y e a r p e r i o d at L 420 m i l l i o n . T h i s o v e r a l l f i g u r e

w a s shown u n d e r two m a i n h e a d i n g s , t he f i r s t showing t h o s e p r o j e c t s which

c a m e wi th in t h e ex i s t ing c o s t e s t ima te of L 225 m i l l i o n and wh ich would be

p r o g r a m m e d f o r t h e Ten th (1959) and E leven th ( i960) S l i ce s . The Al l i ed

C o m m a n d E u r o p e p o r t i o n of t h e f i r s t c a t e g o r y w a s m a d e up a s f o l l o w s :

(18) M C 3 2 / 1 1 w a s a p p r o v e d by t h e MC on 14 M a r 58.

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P r o j e c t s a l r e a d y e l i g ib l e f o r c o m m o n funding : L m i l l i o n

F o r w a r d S c a t t e r 15

C o m p l e t i o n of a i r f i e l d s t o M C 70 s t a n d a r d s 20

Cont inued d e v e l o p m e n t of : War H e a d q u a r t e r s 2 Signal C o m m w i i c a t i o n s 5 P O L F a c i l i t i e s 5 Nava l B a s e s 4

E l ig ib i l i t y f o r c o m m o n fund ing not d e t e r m i n e d :

F a c i l i t i e s f o r l igh twe igh t a i r c r a f t 4

N u c l e a r a m m u n i t i o n s t o r a g e ( a tomic s tockpi l ing) 20

S u r f a c e - t o - a i r and s u r f a c e - t o - s u r f a c e m i s s i l e s i t e s exc lud ing IRBM s 60

IRBM Si tes 15

A n t i - s u b m a r i n e w a r n i n g s y s t e m 1

M o d e r n i z a t i o n of c o n t r o l and w a r n i n g s y s t e m 20

Cont ing enci e s 19

To ta l 190

T h e second c a t e g o r y l i s t e d t h o s e p r o j e c t s f o r p r o b a b l e p r o g r a m m i n g

in t h e Twe l f th (1961) and T h i r t e e n t h (1962) S l i ces fo r which no f u n d s had yet

b e e n a u t h o r i z e d . The t o t a l A C E r e q u i r e m e n t in t h i s c a t e g o r y w a s e s t i m a t e d

to be L 167 m i l l i o n .

T h e M i l i t a r y C o m m i t t e e d r e w the a t t en t ion of t h e Counci l t o t h e f a c t

t h a t many of t h e p r o j e c t s i nc luded in f u t u r e p r o g r a m s w e r e t h o s e t y p e s on

wh ich no d e c i s i o n had been r e a c h e d a s to t h e i r e l ig ib i l i ty f o r NATO c o m m o n

fund ing .

T h e q u e s t i o n of fund ing t h e e s t i m a t e d 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

w a s dea l t wi th in M C 3 2 / 1 1 . In 1957 t h e Counci l had a p p r o v e d a ce i l ing of

L 225 m i l l i o n f o r t h e f o u r - y e a r p e r i o d , 1957-1960. If a p p r o v a l w e r e g iven t o

t h e Ninth Sl ice P r o g r a m (1958), about L 40 m i l l i o n would be l e f t t o f i n a n c e

t h e r e m a i n i n g two annua l S l i ces , c r e a t i n g a de f i c i t of about L 150 m i l l i o n f o r

S l i c e s T e n and E l e v e n a s f a r a s ACE w a s c o n c e r n e d .

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The M i l i t a r y C o m m i t t e e s u g g e s t e d p o s s i b l e w a y s of sav ing m o n e y

a l r e a d y a l l o c a t e d to f o r m e r i n f r a s t r u c t u r e s l i c e s f o r p o s s i b l e u s e in fund ing

new r e q u i r e m e n t s . It s t a t e d tha t a r e v i e w by S u p r e m e C o m m a n d e r s of a l l

u n s t a r t e d p r o j e c t s in f o r m e r i n f r a s t r u c t u r e s l i c e s migh t r e v e a l p r o j e c t s

f o r wh ich t h e m i l i t a r y r e q u i r e m e n t s h a d l e s s e n e d or d i s a p p e a r e d ; i t m i g h t

a l s o b e p o s s i b l e to m a k e a m o r e f l e x i b l e u s e of f u n d s a l r e a d y a p p r o v e d by

d e c r e a s i n g t h e o v e r a l l ce i l ing of f u n d s f o r S l i ce s Two t h r o u g h Seven, and

i n c r e a s i n g t h e ce i l ing of L 225 m i l l i o n f o r c u r r e n t S l i ce s .

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 w a s s t i l l unde r 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 a t i o n at t he enf of 1958. T h e Counci l , h o w e v e r , did a p p r o v e

the r e c o m m e n d a t i o n m a d e in MC 3 2 / 1 1 tha t a m o r e f l e x i b l e u s e of a p p r o v e d

f u n d s be m a d e . On i n s t r u c t i o n s r e c e i v e d f r o m the Standing Group , SHAPE

s t u d i e s w e r e m a d e wi th the a i m of obta in ing the m a x i m u m s av ings p o s s i b l e

in t h e p r o v i s i o n of i n f r a s t r u c t u r e s u p p o r t f o r SACEUR's f o r c e s . i i

E l ig ib i l i t y f o r C o m m o n Funding of C e r t a i n C a t e g o r i e s of I n f r a s t r u c t u r e .

M C 32 /11 inc luded a r e m i n d e r to t h e Counci l tha t no d e c i s i o n had yet

b e e n r e a c h e d on t h e c o m m o n funding of c e r t a i n t y p e s of i n f r a s t r u c t u r e , e .g . ,

m i s s i l e s i t e s . It w a s the opinion of the M i l i t a r y C o m m i t t e e tha t t h i s w a s a

d e c i s i o n t h a t only the Counci l could t a k e .

The M i l i t a r y C o m m i t t e e w a s r e q u e s t e d to e x a m i n e each p r o j e c t c o n t a i -

ned in MC 3 2 / I I f o r e l ig ib i l i ty f o r c o m m o n funding , b a s e d on i n f o r m a t i o n

supp l i ed by SACEUR.

R e v i e w of A C E I n f r a s t r u c t u r e S l i ce s Two t h r o u g h Nine .

T h e S tand ing Group i n s t r u c t e d S u p r e m e C o m m a n d e r s to r e v i e w u r -

gen t ly a l l p r o g r a m m e d i n f r a s t r u c t u r e in S l i ces Two t h r o u g h Nine f o r which

f u n d s had not yet b e e n c o m m i t t e d ^ T h e amoun t a v a i l a b l e f o r S l i ce s T e n and

(19) Standing Group i n s t r u c t i o n s a r e con ta ined in STAND 2404, 28 Apr 58.

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E l e v e n w a s , In t h e c a s e of ACE, not m o r e than L 12 m i l l i o n .

S u p r e m e C o m m a n d e r s w e r e a s k e d s p e c i f i c a l l y to show in t h e i r

r e v i e w a l l i t e m s which cou ld be c n n s i d e r e d fo r s u s p e n s i o n , j u s t i f i c a t i o n f o r

t h e r e t e n t i o n of t h e r e m a i n d e r , and t h e r i s k s tha t would be invo lved if t h e s e

w e r e t o be s u s p e n d e d .

T h e SHAPE r e v i e w w a s c o m p l e t e d by 1 J u l y 1958, and w a s sent to

t h e f o u r 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 f o r s t u d y . ^ 2 ^ R e p r e s e n t a t i v e s

f r o m t h e M S C s w e r e r e q u e s t e d not to consu l t t h e NATO n a t i o n s . On Standing

G r o u p i n s t r u c t i o n , t h e S H A P E r e v i e w w a s g iven t h e n o r m a l d i s t r i b u t i o n f o r

an annua l s l i c e p r o g r a m , and na t iona l c o m m e n t w a s inv i t ed at a l a t e r m e e t i n g

of a l l n a t i o n s h e l d to d i s c u s s t h e annua l s l i c e p r o g r a m .

T h e S H A P E r e v i e w showed tha t L 262 m i l l i o n w a s t h e t o t a l amoun t

c o v e r e d by t h e r e v i e w . SHAPE had a l r e a d y s u s p e n d e d L 33 m i l l i o n , and

r e c o m m e n d e d L 38 m i l l i o n f o r f u t t h e r s u s p e n s i o n . L<91 m i l l i o n w a s r e c o m -

m e n d e d f o r r e t e n t i o n .

The SHAPE R e v i e w of I n f r a s t r u c t u r e .

On the day t h e S H A P E Rev i ew of I n f r a s t r u c t u r e w a s d e s p a t c h e d to t h e

M S C s , m e m b e r s of t h e N o r t h At lant ic Counci l v i s i t e d SHAPE.

SACEUR e x p l a i n e d tha t ACE w a s m ak ing t h e m a x i m u m p o s s i b l e cut in

conven t iona l i n f r a s t r u c t u r e , e .g . , t h e t a c t i c a l a i r f i e l d s p r o g r a m w a s being

cut f r o m a t o t a l of 205 to 158 a i r f i e l d s . If t h e s e new r e q u i r e m e n t s w e r e n o t

p r o v i d e d , A C E had no s t r a t e g i c c o n c e p t . The new r e q u i r e m e n t s r e p r e s e n t e d (21)

t o a g r e a t ex ten t f u n c t i o n s which had h i t h e r t o been l e f t to na t iona l fund ing .

SACEUR s t a t e d t h a t he w a s s a t i s f i e d g e n e r a l l y with t h e r e v i e w , but

t h a t h e c o n s i d e r e d tha t t h e a i r f i e l d c a t e g o r y o f f e r e d t h e p o s s i b i l i t y of f u r t h e r

s a v i n g s beyond t h e t o t a l of L 19 m i l l i o n p r o p o s e d f o r s u s p e n s i o n . D i s c u s s i o n s

(20) AG 6 1 0 0 / P I - 1 2 0 / 5 8 P R O G , 1 J u l 58. (21) AG 6 1 0 0 / l P - 1 1 3 / P R O G , 3 Ju l 58.

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on t h e p o s s i b i l i t i e s of r e d e p l o y m e n t in t h e C e n t r a l Reg ion had a b e a r i n g on

t h i s . He did not b e l i e v e tha t s u b s t a n t i a l new a i r f i e l d c o n s t r u c t i o n in G e r m a n y

w a s p r a c t i c a b l e , s i n c e t h i s r e q u i r e d l a r g e s c a l e l and acqu i s i t i on . T h e r e

should be t h e r e f o r e a c o n s i d e r a b l e r e d u c t i o n in t h e L 80 m i l l i o n r e p r e s e n t i n g

a i r f i e l d p r o j e c t s f o r r e t e n t i o n . New fund ing tha t w a s shown to be r e q u i r e d

f o r S l i ce s Ten and E leven (L 105 mi l l i on ) , m i g h t be r e d u c e d to L 75 m i l l i o n -

L 100 m i l l i o n , b a s e d on t h i s p o s s i b i l i t y , and a l s o on the p o s s i b i l i t y tha t

e s t i m a t e s f o r new r e q u i r e m e n t s w e r e on the high s i c e , in v iew of p o s s i b l e

s h o r t f a l l s in d e l i v e r i e s of new w e a p o n s . T h e L 33 m i l l i o n a l r e a d y s u s p e n d e d

w a s not a v a i l a b l e f o r new p r o g r a m m i n g s i n c e it w a s to be u s e d t o s e t t l e

o v e r r u n s in S l i ces 2 -7 .

The A C E R e v i e w of I n f r a s t r u c t u r e w a s d e s p a t c h e d t o t h e Standing (ZZ) Group and i t s c o n c l u s i o n s w e r e t a b u l a t e d a s f o l l o w s /

L m i l l i o n

To ta l v a l u e of p r o j e c t s f o r wh ich m o n e y had not been r e l e a s e d in S l i c e s 2 - 9 261

To ta l su spended dur ing p a s t y e a r 33

To ta l r e c o m m e n d e d addi t iona l s u s p e n d o n s 30

To ta l s u s p e n s i o n s 63

Suspens ions a s a p e r c e n t a g e of t o t a l u n d e r c o n s i d e r a t i o n 24%

T h e p r o j e c t s r e c o m m e n d e d f o r r e t e n t i o n in t h e p r o g r a m a m o u n t e d to

198 m i l l i o n p o u n d s . SACEUR po in ted out tha t it w a s v i t a l tha t t h e a i r c r a f t

be r e t a i n e d - both o f f e n s i v e and d e f e n s i v e ; A C E had b a s e d a i r f i e l d r e q u i r e -

m e n t s on M C 70 f o r c e g o a l s and accep ta t ie , though m i n i m u m , s t a n d a r d s f o r

squad ron d i s p e r s a l . Th i s m e a n t a s e p a r a t e a i r f i e l d f o r each of t h e m o r e

v i t a l o f f e n s i v e u n i t s , and two s q u a d r o n s p e r a i r f i e l d fo r s m a l l e r and IeBs

c r i t i c a l u n i t s . SACEUR po in ted out t ha t s o m e f u r t h e r s av i ngs migh t be p o s s i b l e

depending on t h e u l t i m a t e so lu t ion of the G e r m a n a i r f i e l d p r o b l e m , t h r o u g h

(22) AG 6 1 0 0 / l P - 1 2 5 PROG, 15 J u l 58.

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r e d e p l o y m e n t , w e s t w a r d , of s o m e of the n o n - G e r m a n a i r f o r c e s l o c a t e d in

t h e F e d e r a l R e p u b l i c . With t h i s excep t ion , SACEUR b e l i e v e d t h a t A C E had

r e d u c e d a i r f i e l d r e q u i r e m e n t s to t h e m i n i m u m c o n s i s t e n t w i th s a f e t y .

Fo l lowing t h e C o n f e r e n c e on I n f r a s t r u c t u r e he ld at S H A P E f r o m 2 - 4

S e p t e m b e r 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 e s and r e p r e s e n t a t i v e s of

SHAPE, M S C s , NAC I n t e r n a t i o n a l Staff and E L L A , only m i n o r a d j u s t m e n t s

to t h e r e v i e w w e r e n e c e s s a r y .

MC 3 2 / 1 5 w a s a p p r o v e d in f i n a l f o r m by t h e M i l i t a r y C o m m i t t e e be ing

in a c c o r d a n c e wi th NATO m i l i t a r y p l a n s . The 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 (23)

t h a t s a v i n g s a m o u n t e d to one t h i r d of a u t h o r i z e d f u n d s . The C o m m i t t e e

f u r t h e r s t a t e d tha t i t w a s not f e a s i b l e to work out a s y s t e m of p r i o r i t i e s .

About t w o - t h i r d s of the t o t a l de l e t i ons would t a k e p l a c e in t h e a i r f i e l d c a t e g -

o r y , though c e r t a i n p r o j e c t s in the c a t e g o r i e s of nava l b a s e s , P O L f a c i l i t i e s ,

n a v a l a i d s , s i g n a l s and w a r h e a d q u a r t e r s w e r e inc luded .

I m p r o v e m e n t in t h e R.ate of C o n s t r u c t i o n of I n f r a s t r u c t u r e P r o j e c t s .

At ten t ion w a s aga in f o c u s s e d on the s l o w n e s s of 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 d u r i n g 1958. S e v e r a l f a c t o r s had a b e a r i n g on t h e p r o b l e m : t h e

even l a r g e r n u m b e r of p r o j e c t s in p r e v i o u s l y a p p r o v e d s l i c e s which had not

b e e n s t a r t e d , amoun t ing t o a p p r o x i m a t e l y o n e - t h i r d of the t o t a l a p p r o v e d

p r o g r a m s ; t h e l i s t s of s u s p e n s i o n s s u b m i t t e d in 1957-58 and t h e r e c e n t

R e v i e w of I n f r a s t r u c t u r e , wh ich r e s u l t e d in a p p r o x i m a t e l y L 70 m i l l i o n be ing

m a d e a v a i l a b l e f o r r e p r o g r a m i r i n g ; and t h e n e c e s s i t y to p r o v i d e f i n a n c i a l l y

f o r t h e fund ing of p l a n n e d new w e a p o n s s y s t e m s , a s i n d i c a t e d in MC 3 2 / 1 1 .

T h e Standing G r o u p u n d e r t o o k t o study t h e p r o b l e m . SHAPE s u b m i t t e d

a d e t a i l e d s t a t e m e n t showing t h e m a i n c a u s e s of de l ay and the ac t ion con-

s i d e r e d n e c e s s a r y t o a l l e v i a t e t h e m . The SHAPE r e c o m m e n d a t i o n s w e r e (24) i n c o r p o r a t e d in a Standing Group r e c o m m e n d a t i o n to the C o u n c i l / '

(23) M C 3 2 / 1 5 ( F i n a l Dec i s ion ) , 15 Dec 58. (24) See SH 27068, 17 Oct 58.

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Act ion w a s t a k e n a long t h e l i n e s r e c o m m e n d e d p r i o r to f o r m a l Council

a p p r o v a l i n M a r c h 1959.

The Standing G r o u p c o n s i d e r e d tha t i t w a s n e c e s s a r y to w i t h d r a w i t s

suppor t f r o m a l l o r p a r t s of p r o j e c t s p r o g r a m m e d in S l i c e s Two t h r o u g h

F i v e f o r w h i c h f u n d s had not been r e l e a s e d by 1 J u n e 1959. The M N C s

w e r e r e q u e s t e d to r e v i e w a l l p r o j e c t s in t h i s c a t e g o r y on a c a s e - b y - c a s e

b a s i s and if any p r o j e c t s w e r e s t i l l c o n s i d e r e d m i l i t a r i l y e s s e n t i a l , t hey

could be r e - p r o g r a m m e d a f t e r t h e n e c e s s a r y s c r e e n i n g . It w a s s t a t e d tha t

t h e o u t c o m e of t h e ac t i on r e l a t i n g to t h e fou r s l i c e s would be eva lua ted not

l a t e r t h a n M a r c h i 960 , and t h e Standing Group would then dec ide whe the r (25

to con t inue s i m i l a r ac t ion or a l t e r n a t i v e m e a s u r e s f o r t h e r e m a i n i n g s l i c e s .

SACEUR w a s r e q u e s t e d to p r o d u c e at t h e end of each y e a r , beginning

in D e c e m b e r 1959, an annua l conso l ida t ion of con t inuous r e v i e w , to be c a l l e d

t h e " Y e a r l y I n f r a s t r u c t u r e R e p o r t , " in wh ich e a c h i t e m of p r o g r a m m e d but

i n c o m p l e t e d i n f r a s t r u c t u r e would be e x a m i n e d . T h i s r e p o r t would d e t e r m i n e

t h e p r o s p e c t i v e u s e f u l l i f e of e a c h p r o j e c t f r o m t h e t i m e i t w a s l i ke ly to be

c o m p l e t e d . The p r o j e c t s would be c l a s s i f i ed f o r r e c o n s i d e r a t i o n a f t e r a

p r e s c r i b e d p e r i o d : fo r s u s p e n s i o n , and m o d i f i c a t i o n or deletion.

The SHAPE R e c o m m e n d e d Ninth Sl ice (1958) I n f r a s t r u c t u r e P r o g r a m .

The M i l i t a r y C o m m i t t e e r e p o r t (MC 3 2 / 1 0 , 15 Nov 57) on t h e SHAPE

R e c o m m e n d e d Ninth Sl ice I n f r a s t r u c t u r e P r o g x a m w a s s u b m i t t e d 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 of the Counci l a long wi th o the r d e t a i l e d s c r e e n i n g

p a p e r s f o r f i n a l r e v i e w e a r l y in F e b r u a r y 1958.

In a m e s s a g e to a l l MSCs and MODs, SHAPE i n f o r m e d t h e m tha t t h e

Counci l had a g r e e d to p r o v i s i o n a l l y a p p r o v e t h e 1958 (Sl ice Nine) P r o g r a m .

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 i n s t r u c t e d to b r i n g t h e Ninth Sl ice P r o -

g r a m back t o t h e Counci l f o r f u r t h e r c o n s i d e r a t i o n wi th w h a t e v e r m o d i f i c a t i o n s

(25) SG 1 3 7 / 5 5 ( F i n a l Dec is ion) , 31 M a r 59.

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t o t h e p r o g r a m w e r e to be found n e c e s s a r y .

Dur ing t h e p e r i o d M a y - N o v e m b e r 1958, v a r i o u s n a t i o n s r e q u e s t e d

t h e r e l e a s e of f u n d s to i m p l e m e n t c e r t a i n Ninth Sl ice p r o j e c t s . By 28 Nov-

e m b e r 1958, h o w e v e r , i t b e c a m e a p p a r e n t tha t ac t ion to i m p l e m e n t Sl ice

N i n e would soon c o m e t o a s t a n d s t i l l . Only p r o j e c t s of excep t iona l u r g e n c y

w e r e a p p r o v e d w h e r e c o n s t r u c t i o n or p l ann ing cou ld beg in in 1958. SHAPE

s e n t a m e s s a g e t o t h e Standing Group po in t ing out t ha t f i n a l a p p r o v a l of Sl ice

N i n e p r e s u m a b l y h a d to wa i t un t i l t h e NAC had c o n s i d e r e d t h e i m p l i c a t i o n s of

t h r e e s t u d i e s . ' T h e s e c o n c e r n e d t h e r e v i e w of S l i ce s Two t h r o u g h Nine,

t h e e l ig ib i l i t y f o r c o m m o n funding of new c a t e g o r i e s of i n f r a s t r u c t u r e , and

a d e t e r m i n a t i o n of how m u c h m o n e y r e m a i n e d f o r p r o g r a m m i n g out of f u n d s

a l r e a d y a u t h o r i z e d by t h e Counci l .

SHAPE p o i n t e d out t h a t i t w a s obvious tha t n a t i o n s would not be ab le

£o s u b m i t d e t a i l e d c a l c u l a t i o n s r e f l e c t i n g r e c e n t NAC d e c i s i o n s un t i l we l l

i n to I 9 5 9 . One n a t i o n h a d a l r e a d y put f o r w a r d t h e i d e a tha t t h e p a r t of S l ice

N ine w h i c h had not ye t been f i n a l l y a p p r o v e d w a s of l i t t l e u r g e n c y . SHAPE

r e q u e s t e d t h e Standing G r o u p to r e p e a t to t h e Counci l once aga in t h e n e c e s s i t y

f o r k e e p i n g t h e Sl ice Nine p r o g r a m going.

T h e S H A P E R e c o m m e n d e d Ten th Sl ice (1959) I n f r a s t r u c t u r e P r o g r a m .

A m e s s a g e w a s sen t to a l l MSCs i n f o r m i n g t h e m of t h e f i n a n c i a l b a c k -te?)

g r o u n d t o t h e T e n t h S l ice P r o g r a m / ' S H A P E c o n s i d e r e d t h a t f o r b o t h

conven t iona l i n f r a s t r u c t u r e and t h e i n i t i a l i m p l e m e n t a t i o n of MC 70 t h e r e

w e r e h igh p r i o r i t y r e q u i r e m e n t s f o r about L 75 m i l l i o n . F u n d s i m m e d i a t e l y

a v a i l a b l e f o r S l i c e s T e n and E leven a m o u n t e d to l e s s t h a n L 30 m i l l i o n .

T h e s u b m i s s i o n s f r o m the MSCs t o t a l l e d o r i g i n a l l y about L 37 mi l l i on .

T h i s f i g u r e SHAPE had r e d u c e d t o about L 13 m i l l i o n . Addi t ional funding w a s

n e e d e d t o c o m p l e t e t h e E igh th Sl ice F o r w a r d Sca t t e r Sys t em - a b o u t L l 5 m i l l i o n . (26) SH 28021, 28 Nov 58. (27) SH 23679, 16 M a y 58.

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On t h e a s s u m p t i o n tha t NAC a p p r o v a l would be g iven f o r c o m m o n funding

of m i s s i l e s i t e s , a p p r o x i m a t e l y L 20 m i l l i o n would be r e q u i r e d fo r t h e f i r s t

SAM s i t e s , and a p p r o x i m a t e l y L< 20 m i l l i o n f o r t h e f i r s t n u c l e a r s t o r a g e

p r o j e c t s . T h e o v e r a l l t o t a l , w i th 10% added f o r con t ingenc ies , a m o u n t e d

t o about L 75 m i l l i o n .

Although t h e M i l i t a r y C o m m i t t e e had a s k e d t h e NAC f o r add i t iona l

fund ing by t h e i n t e r i m u s e of s a v i n g s d e r i v e d f r o m t h e w i t h d r a w a l of t h e

l o w e s t p r i o r i t y p r o j e c t s f r o m a p p r o v e d S l i ce s , t h e r e w a s no r e a s o n to

s u p p o s e tha t t h e i m m e d i a t e fund ing p r o b l e m could b e so lved by s a v i n g s .

The M S C s w e r e i n f o r m e d of t h o s e p r o j e c t s which i t w a s a l r e a d y appa -

r e n t SHAPE would be u n a b l e t o i nc lude in i t s R e c o m m e n d e d T e n t h Sl ice (28)

(1959) P r o g r a m . S H A P E sent t h i s p r o g r a m to SGN s u m m a r i z e d a s fo l lows : v 7

C a t e g o r y Cost E s t i m a t e Tota l . ( L m . )

A i r f i e l d s 11 ,029

Nava l B a s e I n s t a l l a t i o n s 0 .146

P O L In s t a l l a t i o n s 0.150

Signal C o m m u n i c a t i o n s 0 .773

War H e a d q u a r t e r s 0 .126 12,224

Atomic S tockpi le Si tes 14 ,430

S u r f a c e - t o - a i r m i s s i l e (NIKE s i t e s ) 24, 000

Sur f a c e - t o - s u r f a c e m i s s i l e (MATA-DOR s i t e s ) 2 , 0 0 0

IRBM s i t e s 12, 000 52 ,430

T O T A L : ^ k 6 5 4 _

The e l ig ib i l i t y of the l a s t f o u r i t e m s f o r c o m m o n fund ing had not ye t

b e e n d e t e r m i n e d , but i t w a s e s s e n t i a l t ha t t h e y w e r e p r o v i d e d b e f o r e t h e

end of i960 .

(28) AG 6 1 0 0 / I P / 1 0 - 1 1 5 / 5 8 P R O G , 11 J u l 58.

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The Standing G r o u p had m a d e m i n o r a d j u s t m e n t s to t h e o r i g i n a l

S H A P E r e c o m m e n d a t i o n s , r e s u l t i n g i n a r e d u c e d t o t a l c o s t e s t i m a t e of

L 61 m i l l i o n .

T h e M i l i t a r y C o m m i t t e e e x a m i n e d the SHAPE r e c o m m e n d e d T e n t h

S l i ce I 9 5 9 I n f r a s t r u c t u r e P r o g r a m f o r m i l i t a r y n e c e s s i t y , a d e q u a c y and

c o m m o n i n t e r e s t . T h i s e x a m i n a t i o n w a s c o m b i n e d wi th S A C L A N T ' s p r o -

p o s e d I959 i n f r a s t r u c t u r e p r o g r a m and p r e s e n t e d to t h e N o r t h At lant ic

C o u n c i l / 2 9 ^

T h e I n t e r n a t i o n a l Staff had e s t i n a t e d tha t s u f f i c i e n t f u n d s w e r e a v a i l -

a b l e to f i n a n c e S H A P E ' S r e c o m m e n d e d Ten th Sl ice wh ich would n e e d a p p r o -

x i m a t e l y L 62 m i l l i o n . It a p p e a r e d tha t s a v i n g s f r o m p r e v i o u s S l ices and

S A C E U R ' s s u s p e n s i o n l i s t s would c o v e r t h e es t imated f i g u r e when added t o

f u n d s a c c r u i n g f r o m o v e r h e a d s and t a x e s . The SHAPE p r o g r a m w a s b r o k e n

down a s f o l l o w s :

T y p e s of p r o j e c t s Cos t in L m .

A i r f i e l d s 7 .45

Nava l b a s e i n s t a l l a t i o n s 0 .15

P O L i n s t a l l a t i o n s 0.20

Signal c o m m u n i c a t i o n s 0.77

War H e a d q u a r t e r s 0 .13

A t o m i c S tockpi le S i t es 14.4

S u r f a c e - t o - a i r m i s s i l e s i t e s (NIKE) 24.0

S u i & c e - t o - s u r f a c e m i s s i l e s i r e s (MATADOR) 2.0

IRBM 12.0

_6l._10 _

T h e conven t iona l p r o j e c t s , i . e . , t h o s e in c a t e g o r i e s a l r e a d y a p p r o v e d

f o r c o m m o n fund ing , t o t a l l e d L 8.7 m i l l i o n . They w e r e , in g e n e r a l ,

(29) M C 3 2 / 1 4 , 1 Oct 58, con ta ined fu l l d e t a i l s of t h e SHAPE r e c o m m e n -d a t i o n s , i nc lud ing c h a r t s .

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e x t e n s i o n s a n d / o r d e v e l o p m e n t s of c a t e g o r i e s a l r e a d y a p p r o v e d . The

a i r f i e l d s p r o j e c t s i n c l u d e d c o n v e r s i o n of r u n w a y s and f a c i l i t i e s to b r i n g

t h e m up t o NATO s t a n d a r d s , m o b i l e f a c i l i t i e s , a r r e s t o r g e a r s and add i -

t i o n a l a m m u n i t i o n s t o r a g e .

The n a v a l b a s e i n s t a l l a t i o n s i nc luded a t o r p e d o r e g u l a t i o n s t a t ion and

P O L , t o r p e d o , and 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 . T h e s e two f a c i l i t i e s w e r e

i n T u r k e y . The s igna l c o m m u n i c a t i o n s p r o j e c t s c o n s i s t e d of t h r e e new

r a d i o r e l a y s in G r e e c e and T u r k e y and one add i t iona l equ ipmen t on ex i s t ing

f a c i l i t i e s in G e r m a n y .

SACEUR inc luded f o u r new c a t e g o r i e s of p r o j e c t s w h o s e e l ig ib i l i ty

f o r NATO C o m m o n I n f r a s t r u c t u r e had not been d e t e r m i n e d by t h e Counci l .

T h e s e w e r e ;

1. P r o v i s i o n of n u c l e a r a m m u n i t i o n s t o r a g e ( a t o m i c s tockp i l ing) ;

2. S u r f a c e - t o - a i r m i s s i l e (NIKE) s i t e s . T h è s e p r o j e c t s i n c l u d e d

f a c i l i t i e s r e q u i r e d f o r t h e o p e r a t i o n and m a i n t e n a n c e of t h e w e a p o n s s y s t e m s .

3. S u r f a c e - t o - s u r f a c e m i s s i l e (MATADOR) s i t e s , i nc lud ing f a c i l i t i e s .

4 . IRBM s i t e s , inc lud ing f a c i l i t i e s .

T h e M i l i t a r y C o m m i t t e e no t ed tha t t h e Counci l had p r o v i s i o n a l l y -

a p p r o v e d t h e f inanc ing of t h e f i r s t 20 s u r f a c e - t o - a i r m i s s i l e (NIKE) s i t e s

t o b e c o n s t r u c t e d in Al l ied C o m m a n d E u r o p e . The p r o b l e m of f inanc ing

t h e o t h e r m i s s i l e s i t e s which m a d e up t h e 1959 P r o g r a m had a l r e a d y been

dea l t wi th in M C 32 /11 (SG 137 /54) . No d e c i s i o n w a s t a k e n by t h e N o r t h

At lan t i c Counc i l on the M C r e p o r t on SACEUR's 1959 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 , un t i l 29 Apr i l 1959.

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C H A P T E R VII

COMMUNICATIONS

The m o r e i m p o r t a n t c o m m u n i c a t i o n p r o j e c t s du r ing 1958 w e r e

the ACE Long R a n g e E a r l y Warning Sys t em, the F o r w a r d Sca t t e r

Systenrv and t h e ACE 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 P l a n . Dur ing the

y e a r s , h o w e v e r , a g r e a t dea l of the w o r k involved r o u t i n e m a t t e r s

n e c e s s a r y f o r the s m o o t h o p e r a t i o n of the c o m m u n i c a t i o n s ne twork se t

up to p r o v i d e SACEUR with the n e c e s s a r y c o m m u n i c a t i o n s s u p p o r t .

Rout ine t a s k s inc luded the n o n - s t o p o p e r a t i o n of the SHAPE

C o m m u n i c a t i o n s C e n t e r , the m a i n t e n a n c e of t e l e p h o n e s and t e l ephone

l i n e s , t h e r e l a y i n g of m e s s a g e s , the i s s u a n c e of gu idance to

s u b o r d i n a t e h e a d q u a r t e r s on equ ipmen t p r o c u r e m e n t , and m a n y o the r

m i n o r but n o n e t h e l e s s i m p o r t a n t m a t t e r s .

The F o r w a r d Sca t t e r Sys t em - P r o g r e s s in 1958

I m p o r t a n t though the r o u t i n e t a s k s w e r e , h o w e v e r , a t t en t ion m u s t

be f o c u s s e d on the p r o g r e s s m a d e in 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 .

As a r e s u l t of the f ind ings of the p r e l i m i n a r y des ign s t u d i e s m a d e

dur ing 1957 by the I n t e r n a t i o n a l Standing E l e c t r i c C o r p o r a t i o n and

H y c o n - E a s t e r n I n c o r p o r a t e d , it w a s c l e a r tha t the n u m b e r of l i nks

150

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Invo lved in t h e F o r w a r d S c a t t e r S y s t e m would have to be i n c r e a s e d by

25 p e r c e n t . In o r d e r t ha t a r e v i s e d c o s t e s t i m a t e migh t be deve loped

by S H A P E , i t b e c a m e n e c e s s a r y to ex tend the l i f e of the Letter of

In ten t w i th I n t e r n a t i o n a l S t anda rd E l e c t r i c C o r p o r a t i o n . It w a s f e l t t ha t

i t w a s u n w i s e to f i n a l i z e the c o n t r a c t be tween the l a t t e r o r g a n i z a t i o n and

S H A P E un t i l s u c h t i m e a s 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 had had the

o p p o r t u n i t y t o r e v i e w t h e o v e r a l l e s t i m a t e s f o r the n e t w o r k . A c c o r d i n g l y ,

S H A P E e x t e n d e d t h e l i f e of the L e t t e r of Intent f r o m iS D e c e m b e r 1957

un t i l 15 M a r c h 1 9 5 8 . ^

T h e F o r w a r d S c a t t e r S y s t e m - I n c r e a s e d C o s t s

A m e e t i n g w a s he ld on 4 F e b r u a r y 1958 be tween m e m b e r s of the (2)

I n f r a s t r u c t u r e C o m m i t t e e of NATO and SHAPE r e p r e s e n t a t i v e s * ' to

a c q u a i n 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 with the f a c t that i t w a s n e c e s s a r y

t o r e q u e s t m o r e f u n d s f o r t h e F o r w a r d Sca t t e r Sys t em arid, at t he s a m e

t i m e , t o g ive the r e a s o n s f o r the r e q u e s t .

G e n e r a l C o n r a d , Chief Signal O f f i c e r , SHAPE, s t a t ed tha t a s

i n v e s t i g a t i o n s and s t u d i e s p r o g r e s s e d , i t b e c a m e i n c r e a s i n g l y a p p a r e n t

t ha t the o r i g i n a l c o s t e s t i m a t e s f o r the c o n s t r u c t i o n of the S y s t e m had

b e e n u n d e r e s t i m a t e d . He had been a u t h o r i z e d to s a y that 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 the F o r w a r d Sca t t e r Sys t em w a s no i e s ö i m p o r t a n t at

t ha t t i m e than when f i r s t a p p r o v e d by the Counci l . Irt f a c t , the r e q u i r e m e n t

f o r t h e m i l i t a r i l y owned and o p e r a t e d s y s t e m had beert r e i n f o r c e d by the

c h a n g e s tha t had t a k e n p l a c e on o p e r a t i o n a l and s t r a t e g i c c o n c e p t s .

(1) AG 3120/2 SIG/FS , 28 J a n 58.

(2) AG/4-R/"240 , 21 F e b 58; See a l s o SHAPE H i s t o r y 1957, C o m m u n i c a t i o n s C h a p t e r , f o r e a r l y SHAPE d o c u m e n t a t i o n . The r e p o r t of the Ad Hoc C o m m i t t e e w a s C-M(56)93 .

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D r . M i l l e r , Chief , F o r w a r d S c a t t e r B r a n c h , SHAPÉ, r e c a l l e d

tha t t h e S y s t e m s t e m m e d f r o m p lann ing s t u d i e s done in the l a t e s u m m e r

of 1955, wh ich took cogn izance of t h e gu idance p r e s e n t e d in MC 48.

S i m i l a r s t u d i e s w e r e c a r r i e d out by 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 , and a p r o p o s a l w a s s u b m i t t e d by t h i s o r g a n i z a t i o n t o SHAPE.

A s a r e s u l t of t h i s e a r l y p lanning , SACEUR p r e s e n t e d h i s " 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 i ed C o m m a n d E u r o p e C o m m u n i c a t i o n s

S y s t e m , i n c o r p o r a t i n g the u s e of t h e F o r w a r d Sca t t e r t e c h n i q u e " t o t h e

Standing G r o u p on 7 D e c e m b e r 1955. In F e b r u a r y 1956, the 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 to the N o r t h At lan t i c Counci l in d o c u m e n t M C 59»

s t r o n g l y e n d o r s i n g SACEUR's r e q u i r e m e n t and r e c o m m e n d i n g i m p l e m e n t a t i o n

of t h e p r o p o s e d s y s t e m a s a m a t t e r of u r g e n c y .

In M a r c h of t h e s a m e y e a r , t he Co\incil appoin ted an Ad Hoc

C o m m i t t e e to r e p o r t upon the p r o c e d u r e s n e c e s s a r y f o r f i nanc ing and

i m p l e m e n t i n g t h e s y s t e m . The r e p o r t of t h i s Ad Hoc Commit te .e w a s (3)

i s s u e d on 10 J u l y 1956. L a t e r , t he Counci l a p p r o v e d t h i s r e p o r t / '

In Augus t 1956, SHAPE i s s u e d an inv i t a t ion to qua l i f i ed e l e c t r o n i c

f i r m s to s u b m i t p r o p o s a l s f o r e n g i n e e r i n g and i n s t a l l a t i o n s e r v i c e s .

In D e c e m b e r 1956, SHAPE r e c o m m e n d e d the s e l e c t i o n of a consu l t an t

e n g i n e e r i n g f i r m f o r the s y s t e m . A f t e r d i s c u s s i o n s wi th in 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 and a f t e r f u r t h e r s tudy, the SHAPE r e c o m m e n d a t i o n

w a s r e v i s e d in F e b r u a r y 1957. The r e v i s é d r e c o m m e n d a t i o n i nc luded 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 c o n t r a c t o r , t o g e t h e r wi th a consu l t an t

e n g i n e e r i n g f i r m s e r v i n g a s a d i r e c t e d s u b - c o n t r a c t o r .

(3) C-M(56)U6

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The fo l lowing M a r c h , SHAPE w a s a u t h o r i z e d to en te r in to

n e g o t i a t i o n s wi th 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 and

Hycon E a s t e r n I n c o r p o r a t e d f o r t h e p r o v i s i o n of e n g i n e e r i n g / i n s t a l l a t i o n

and c o n s u l t a n t e n g i n e e r i n g s e r v i c e s r e s p e c t i v e l y . Nego t i a t ions w e r e

a l s o u n d e r t a k e n by SHAPE wi th I n t e r n a t i o n a l S t anda rd E l e c t r i c

C o r p o r a t i o n and Hycon E a s t e r n I n c o r p o r a t e d on 10 A p r i l 1957 and a

d e f i n i t e L e t t e r of In ten t w a s s igned on 1 M a y Since tha t da t e , SHAPE

had b e e n engaged in t h e a c t i v e p lann ing and e n g i n e e r i n g of the s y s t e m .

Si te s u r y e y s had been c a r r i e d out, d e t a i l e d equ ipmen t s p e c i f i c a t i o n s

p r e p a r e d , p r o p o g a t i o n p a t h t e s t s c a r r i e d out and an e n g i n e e r i n g s y s t e m

h a d b e e n d e v e l o p e d which SHAPE w a s s u r e would m e e t the o p e r a t i o n a l

and p e r f o r m a n c e r e q u i r e m e n t s .

T h e R e a s o n s f o r t h e I n c r e a s e in C o s t s

The f i r s t c o s t e s t i m a t e p r e p a r e d in 1956 w a s b a s e d on a hypo-

t h e t i c a l and t oo s i m p l i f i e d c i r c u i t . A l a t e r cos t e s t i m a t e w a s b a s e d on

p r e l i m i n a r y d e s i g n s t u d i e s c a r r i e d out d u r i n g 1957 by the two c o n t r a c t i n g

f i r m s . As a r e s u l t of t h e s e s t u d i e s , a n e e d f o r e ight m o r e r e l a y s t a t i o n s

w a s i n d i c a t e d . In add i t ion , a h ighe r t r a n s m i t t i n g p o w e r , l a r g e r a n t e n n a s

and m o r e a u x i l i a r y e q u i p m e n t w e r e n e e d e d t o b r i n g the p r o j e c t e d s y s t e m

up t o SHAPE p e r f o r m a n c e r e q u i r e m e n t s .

An add i t i ona l r e a s o n f o r the i n c r e a s e d c o s t e s t i m a t e w a s the f a c t

t ha t t h e o r i g i n a l e s t i m a t e p r e s u m e d a f a r g r e a t e r u s e of ex i s t ing bu i ld ings

and f a c i l i t i e s t han p r o v e d p o s s i b l e in the l a t e r and m o r e r e c e n t s i t e

s u r v e y .

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The F o r w a r d S c a t t e r S y s t e m

On 13 J u n e 1958, the Standing G r o u p ' s a t t en t i on w a s d r a w n to the

u r g e n c y f o r a d e c i s i o n on the p r o b l e m of i n c r e a s e d c o s t s f o r t h e (4)

s y s t e m / SACEUR had twice exp la ined the r e a s o n f o r the i n c r e a s e

in c o s t s , had r e - a f f i r m e d the u r g e n c y and m i l i t a r y n e c e s s i t y of the

p r o j e c t , and had i n d i c a t e d a m e t h o d of ob ta in ing add i t iona l f u n d s .

• The Standing Group w a s i n f o r m e d tha t t h e " log ica l p r o g r e s s of

s y s t e m s d e s i g n , p r o c u r e m e n t a c t i o n s and c o n s t r u c t i o n p l a n n i n g " had

b e e n u p s e t "by l a c k of a p p r o v a l f o r t h e i n c r e a s e d f u n d s . " The l o s s of

the 1958 c o n s t r u c t i o n s e a s o n at the i n a c c e s s i b l e s i t e s , p r i m a r i l y in

N o r w a y , G r e e c e and T u r k e y , m i g h t ex tend t h e comple t i on d a t e s of the

s y s t e m to 1961. The s y s t e m w a s r e a c h i n g the c r i t i c a l s t age w h e r e b y t h e

con t inued d e l a y would i n c r e a s e c o s t s at the r a t e of a p p r o x i m a t e l y

L100 , 000 p e r m o n t h and de lay the u l t i m a t e c o m p l e t i o n da te .

If t he add i t iona l f u n d s w e r e not f o r t h c o m i n g , SHAPE b e l i e v e d

tha t the e n t i r e concep t of a r e l i a b l e , i n t e g r a t e d , m i l i t a r y c o n t r o l l e d

and o p e r a t e d c o m m u n i c a t i o n s s y s t e m would have to be abandoned .

T h i s gave r i s e to the ques t i on a s to w h e t h e r o r not SACEUR could

a c c o m p l i s h t h e m i s s i o n s a s s i g n e d to h i m in t h e a r e a s of a i r d e f e n s e ,

e a r l y w a r n i n g and r e t a l i a t o r y a t o m i c s t r i k e ac t ion .

The Standing Group a p p r o v e d t h e n e c e s s i t y f o r t h e i n c r e a s e in (5)

cos t s of the s y s t e m on 18 June 1958. ' A p p r o v a l w a s a l s o g iven , f r o m

t h e m i l i t a r y po in t of v iew, f o r the a l l oca t i on of add i t iona l f u n d s in

a c c o r d a n c e wi th SHAPE 'S r e v i s e d e s t i m a t e . SACEUR w a s r e q u e s t e d

(4) SH 24342, 13 J u n 58, SHAPE to SGN.

(5) STAND 2487, 20 J u n 58.

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t o c o n f i r m t h a t t h e a d d i t i o n a l a m o u n t i n v o l v e d r e m a i n e d a t Lil5 m i l l i o n ,

a n d t h a t t h e r e v i s e d e s t i m a t e w a s , i n f a c t , s t i l l v a l i d .

S A C E U R w r o t e t o t h e S e c r e t a r y G e n e r a l of N A T O o n 4 D e c e m b e r / 1 9 5 8 o n t h e p r o b l e m of t h e r e l e a s e of f u n d s f o r t h e F o r w a r d S c a t t e r

S y s t e m . H e p o i n t e d o u t t h a t S H A P E h a d b e e n i m p l e m e n t i n g t h e p r o j e c t

a c c o r d i n g t o p r o c e d u r e s l a i d d o w n b y t h e C o u n c i l . ^ A l t h o u g h t h e

b e g i n n i n g of t h e p r o j e c t w a s m a r k e d b y " d i f f i c u l t i e s a n d d e l a y s , m a n y of

w h i c h s h o u l d n e v e r h a v e a r i s e n , " w o r k h a d p r o c e e d e d s a t i s f a c t o r i l y d u r i n g

t h e p a s t f e w m o n t h s . H o w e v e r , a n e w p r o b l e m h a d a r i s e n w h i c h , " i f n o t

i m m e d i a t e l y s o l v e d , " w o u l d c a u s e a c o n s i d e r a b l e w a s t e of m o n e y a n d

i n v o l v e g r e a t d e l a y s i n t h e f u r t h e r i m p l e m e n t a t i o n of t h e p r o j e c t .

T h e S e c r e t a r y G e n e r a l w a s r e m i n d e d t h a t S H A P E w a s g i v e n t h e

s t a t u s of a h o s t n a t i o n f o r t h e i m p l e m e n t a t i o n of t h e p r o j e c t , a n d t h e

C o u n c i l e s t a b l i s h e d t h e p r o c e d u r e s w h i c h S H A P E h a d t o f o l l o w i n r e s p e c t

of t h e p u r c h a s e a n d p r o c u r e m e n t of e q u i p m e n t . T o e n s u r e t h a t t h e e q u i p -

m e n t f i n a l l y s e l e c t e d r e s u l t e d f r o m a n i m p a r t i a l t e c h n i c a l e v a l u a t i o n ,

S H A P E h a d l a i d d o w n d e t a i l e d p r o c e d u r e s . T h e s e p r o c e d u r e s r e q u i r e d

t h a t b i d s w e r e o p e n e d i n p u b l i c a n d t h e n s u b j e c t e d t o a n e x h a u s t i v e a n d

c r i t i c a l e x a m i n a t i o n b y r e p r e s e n t a t i v e s of t h e t e n d i f f e r e n t n a t i o n s

b e l o n g i n g t o t h e F o r w a r d S c a t t e r B r a n c h a t S H A P E , a n d t h e r e s i d e n t

t e a m of s c i e n t i s t s b e l o n g i n g t o t h e S H A P E A i r D e f e n s e T e c h n i c a l C e n t e r .

T h e r e s u l t i n g r e c o m m e n d a t i o n s w e r e t h e n s u b m i t t e d t o a B o a r d of A w a r d s

c o m p r i s e d of t h e C h i e f of B u d g e t a n d F i n a n c e D i v i s i o n , S H A P E , a

r e p r e s e n t a t i v e of t h e S c i e n t i f i c A d v i s o r t o S A C E U R ( in t h i s c a s e a F r e n c h

(6) S C O O U T 28164 , 4 D e c 58 , S A C E U R t o SGN, q u o t i n g l e t t e r d a t e d 4 D e c 58 , S A C E U R t o S E C G E N N A T O , " R e l e a s e of F u n d s f o r P r o c u r e m e n t of E q u i p m e n t f o r t h e A C E F o r w a r d S c a t t e r S y s t e m " ; S e e a l s o , L O S T A N 2 7 0 7 , S G R E P t o SGN.

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c i v i l i a n , D r . D a v i d ) , a n d t h e D i r e c t o r of S A D T C . T h i s B o a r d t h e n m a d e

i t s r e c o m m e n d a t i o n s t o t h e P r o j e c t s M a n a g e r of t h e F o r w a r d S c a t t e r

B r a n c h a n d , i f t h e f i r m s e l e c t e d w a s t h e l o w e s t b i d d e r , t h e c o n t r a c t

w a s s i g n e d . If i t w a s d e c i d e d t h a t t h e c o n t r a c t s h o u l d n o t b e g i v e n t o

t h e l o w e s t b i d d e r , f u l l d e t a i l s of t h e c a s e w e r e p r o v i d e d f o r t h e

a p p r o p r i a t e n a t i o n a l a u t h o r i t y o r 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 A C E U R a l s o r e q u e s t e d t h a t t h e C o u n c i l c o n s i d e r t h i s p r o b l e m a s

a m a t t e r of u r g e n c y a n d p r o v i d e t h e n e c e s s a r y a u t h o r i z a t i o n f o r t h e

p r o c u r e m e n t of e q u i p m e n 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 a g a i n d i s c u s s e d t h e p r o b l e m of t h e

p r o c u r e m e n t of t h e e q u i p m e n t f o r t h e F o r w a r d S c a t t e r S y s t e m a t a (7)

m e e t i n g o n 5 D e c e m b e r 1958. ' T h e F r e n c h D e l e g a t e s t a t e d t h a t h i s

c o u n t r y ' s e a r l i e r d e c i s i o n t o p l a c e a r e s e r v a t i o n on t h e a u t h o r i z a t i o n

of f u n d s u n l e s s t h e y w e r e a l l o w e d t o t a k e p a r t i n t h e e v a l u a t i o n of b i d s

r e m a i n e d u n c h a n g e d . A f t e r t h e S H A P E r e p r e s e n t a t i v e h a d s a i d t h a t

a n y c o m p r o m i s e s o l u t i o n w a s u n a c c e p t a b l e , t h e C h a i r m a n of t h e

C o m m i t t e e r e a d o u t S A C E U R ' s l e t t e r t o t h e S e c r e t a r y G e n e r a l . T h e

C h a i r m a n t h e n s t a t e d ^ t h a t t h e m a t t e r w o u l d c l e a r l y h a v e t o g o t o t h e

C o u n c i l f o r d i s c u s s i o n a n d a s k e d w h e t h e r t h e r e w a s a n y p o i n t i n f u r t h e r

d i s c u s s i n g i t i n 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 .

D u r i n g t h e d i s c u s s i o n w h i c h f o l l o w e d , t h e S H A P E r e p r e s e n t a t i v e

a d d e d t o t h e p o i n t s a l r e a d y b r o u g h t ou t i n S A C E U R ' s l e t t e r b y s t a t i n g

t h a t t h e p r i c e s S H A P E h a d o b t a i n e d w e r e u n u s u a l l y l o w , a n d e s t i m a t e d

(7) L O S T A N 2718, 5 D e c 58, S G R E P t o SGN; A d d i t i o n a l d o c u m e n t s f o r b a c k g r o u n d on F o r w a r d S c a t t e r P r o j e c t : M C 59 ( R e v i s e d ) , 11 M a y 56 ; C - M ( 5 6 ) 9 3 , 10 J u l 56 - c o m p l e t e p r o c e d u r e s ; C - M ( 5 8 ) U 3 , 30 J u l 58 ; C - M ( 5 7 ) 9 7 a n d A C / 4 - D / 5 5 5 - t h e s e t w o d o c u m e n t s l a i d d o w n p r o c e d u r e s c o v e r i n g d i s p u t e s a n d a r b i t r a t i o n f o r t h e P r o j e c t .

156

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t h e c o s t of t h e d e l a y w h i c h w o u l d i n e v i t a b l y f o l l o w a t s o m e L.800, 0 0 0 .

T h i s f i g u r e r e p r e s e n t e d p r i c e i n c r e a s e s , p l u s L1Q0, 0 0 0 p e r m o n t h

w h i c h w a s r e q u i r e d f o r r u n n i n g e x p e n s e s .

A f t e r a c a t e g o r i c a l a s s u r a n c e b y t h e S H A P E r e p r e s e n t a t i v e t h a t

t h e a g r e e d p r o c e d u r e s c o v e r i n g a r b i t r a t i o n a n d d i s p u t e s w o u l d b e

f o l l o w e d t o t h e l e t t e r , t h e F r e n c h D e l e g a t e l i f t e d t h e r e s e r v a t i o n a n d

a c c e p t e d t h e S H A P E p r o p o s a l s . T h e C o m m i t t e e t h e n a u t h o r i z e d

L>12, 941, 577 f o r t h e p r o c u r e m e n t of e q u i p m e n t . L 3 5 , 0 0 0 w a s t o b e

w i t h h e l d f r o m t h i s s u m p e n d i n g a g r e e m e n t o n t h e p u r c h a s e of t r a i n i n g

e q u i p m e n t .

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 P l a n f o r A C E

T h e N A T O p o l i c y o n E l e c t r o n i c W a r f a r e w a s a p p r o v e d b y t h e

M i l i t a r y C o m m i t t e e a n d i s s u e d a s M C 6 4 ( F i n a l ) on 18 O c t o b e r 1 9 5 6 . ^

T h e S t a n d i n g G r o u p w a s g i v e n t h e o v e r a l l r e s p o n s i b i l i t y f o r c o o r d i n a t i n g

t h e f o r m u l a t i o n of t h e p o l i c y a n d d o c t r i n e f o r 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 b y N A T O f o r c e s . T h e S u p r e m e C o m m a n d e r ' s

r e q u i r e m e n t s f o r n e w e q u i p m e n t w o u l d a l s o b e c o o r d i n a t e d t h r o u g h t h e

S G N .

S A C E U R ' s r e s p o n s i b i l i t i e s i n c l u d e d :

a . T h e p l a n n i n g a n d c o n d u c t of e l e c t r o n i c w a r f a r e w i t h i n A C E .

b . 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 w i t h i n h i s o w n h e a d -

q u a r t e r s a n d s u b o r d i n a t e c o m m a n d s f o r t h e c o n d u c t a n d c o n t r o l of

e l e c t r o n i c w a r f a r e .

(8 ) M C 6 4 ( F i n a l ) , 18 O c t 5 6 .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

c . T h e d e v e l o p m e n t , w i t h i n A C E , of p o l i c i e s a n d p l a n s w h i c h

w e r e i n a c c o r d w i t h SGN d i r e c t i v e s . A f t e r c o o r d i n a t i o n w i t h n a t i o n a l

a u t h o r i t i e s a n d o t h e r M a j o r C o m m a n d e r s , t h e s e p o l i c i e s a n d p l a n s

w e r e t o b e s u b m i t t e d t o t h e SGN f o r a p p r o v a l .

d . T h e c o l l e c t i o n of t a c t i c a l e l e c t r o n i c w a r f a r e i n f o r m a t i o n ,

i t s a n a l y s i s a n d d i s s e m i n a t i o n , a n d t h e e x c h a n g e of s u c h i n f o r m a t i o n

w i t h o t h e r M a j o r C o m m a n d e r s a n d n a t i o n a l a u t h o r i t i e s .

P o l i c y a n d g u i d a n c e 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 i n A C E w a s (9)

i s s u e d t o M S C s a n d n a t i o n s o n 10 S e p t e m b e r 1957 . x

A n o v e r a l l 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 P l a n f o r A C E w a s

d e v e l o p e d a t S H A P E a n d , i n a c c o r d a n c e w i t h M C 64 , w a s d e s p a t c h e d f o r

a p p r o v a l t o t h e S t a n d i n g G r o u p on 29 D e c e m b e r 1 9 5 8 . ^ ^ T h e P l a n w a s

a l s o s e n t t o t h e M S C s a n d n a t i o n a l a u t h o r i t i e s f o r p r e l i m i n a r y p l a n n i n g

p u r p o s e s .

T h e S H A P E E C M P l a n s u p p o r t e d t h e S A C E U R E D P a n d p r o v i d e d

f o r t h e e s t a b l i s h m e n t a n d o p t i m u m u s e of a n e f f e c t i v e E C M c a p a b i l i t y .

I t s t a t e d t h e E C M c a p a b i l i t i e s n e e d e d w i t h i n t h e l a n d , s e a a n d a i r f o r c e s

of A C E t o p r o v i d e t h e m i n i m u m s u p p o r t r e q u i r e d f o r t h e e f f e c t i v e

p r o s e c u t i o n of S A C E U R ' s m i s s i o n .

D e f i n i t i o n s w e r e g i v e n of t h e v a r i o u s s u b - d i v i s i o n s of E C M w a r f a r e ,

i n c l u d i n g A c t i v e E C M , P a s s i v e E C M , a n d E l e c t r o n i c C o u n t e r - C o u n t e r m e a s u r

A n a n a l y s i s of t h e S o v i e t T h r e a t f r o m a n E C M v i e w p o i n t s h o w e d t h a t

t h e r e w a s t e c h n i c a l e v i d e n c e of t h e c o m p e t e n c e of t h e S o v i e t s t o j a m

r a d a r s , n a v i g a t i o n a l a i d s a n d 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 s y s t e m s of a l l

t y p e s . I t w a s a s s u m e d b y S H A P E t h a t t h e S o v i e t s p o s s e s s e d a c a p a b i l i t y

(9) AG 1460 S I G / E L , 10 Sep 57 .

(10) AG 1460 S I G / E L , 29 D e c 58.

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of s e r i o u s l y d i s r u p t i n g N A T O m i l i t a r y t r a n s m i s s i o n s , a n d t h a t t h i s

c a p a b i l i t y w o u l d b e u s e d d u r i n g a n i n i t i a l a t t a c k a n d s u b s e q u e n t

o p e r a t i o n s . O n t h e o t h e r h a n d , t h e S o v i e t s t h e m s e l v e s w e r e v u l n e r a b l e

t o E C M a t t a c k , e s p e c i a l l y i n r a d a r s , g r o u n d / a i r c o m m u n i c a t i o n s

f a c i l i t i e s a n d c e r t a i n b o m b i n g a n d n a v i g a t i o n s y s t e m s . S H A P E a s s u m e d

t h a t e x t e n s i v e e f f o r t s w e r e u n d e r w a y t o i m p r o v e t h i s s i t u a t i o n a n d t h a t

t h e S o v i e t t e c h n i c a l c a p a b i l i t y i n t h i s r e g a r d w a s e q u a l t o t h a t of N A T O .

T h e M S C s w e r e r e q u i r e d t o s u b m i t E C M p l a n s t o S H A P E f o r

a p p r o v a l . U p o n a p p r o v a l b y S H A P E of t h e i r p l a n s , t h e M S C s w e r e

a u t h o r i z e d t o r e q u e s t t h e n e c e s s a r y s u p p o r t f r o m n a t i o n a l s o u r c e s , a n d

w e r e r e s p o n s i b l e f o r e n s u r i n g t h a t t h e i m p l e m e n t a t i o n of t h e a p p r o v e d

p l a n s w e r e p r e - p l a n n e d d o w n t o o p e r a t i n g l e v e l t o t h e m a x i m u m e x t e n t

p r a c t i c a b l e .

T h e r e q u i r e d c a p a b i l i t i e s of t h e E C M w e r e a s s e s s e d f o r a l l f o r c e s

of N A T O . T h e o v e r a l l p r i o r i t y t o b e f o l l o w e d w h e n t h e r e w a s a n y d o u b t

a s t o t h e r e l a t i v e i m p o r t a n c e of E C M c a p a b i l i t i e s w a s g i v e n :

a . A t o m i c C o u n t e r - O f f e n s i v e

b . E a r l y W a r n i n g a n d A l e r t

c . A i r D e f e n s e

d . I m m e d i a t e P o s t D - D a y O p e r a t i o n s of t h e S h i e l d F o r c e s

e . S u b s e q u e n t O p e r a t i o n s

T h e l i s t g i v e n d i d n o t , h o w e v e r , i m p l y t h a t a l l m e a s u r e s i n s u p p o r t

of t h e a t o m i c c o u n t e r - o f f e n s i v e w o u l d b e i m p l e m e n t e d b e f o r e a s t a r t w a s

m a d e o n a n y of t h e o t h e r c a p a b i l i t i e s .

T h e a t t a i n m e n t of t h e m i n i m u m c a p a b i l i t i e s of t h e E C M P l a n

r e q u i r e d t h e e x i s t e n c e of p r o p e r l y t r a i n e d p e r s o n n e l a n d u n i t s w i t h i n

t h e a s s i g n e d o r e a r m a r k e d f o r c e s of t h e n a t i o n s of A C E . T h e p l a n

t h e r e f o r e c o n t a i n e d a n e s t i m a t e , b y n a t i o n a n d b y s e r v i c e s , of t h e

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a p p r o p r i a t e n u m b e r s of n a t i o n a l p e r s o n n e l i n v o l v e d . A p p r o v a l of t h s

p l a n b y t h e S t a n d i n g G r o u p , a n d a g r e e m e n t b y t h e n a t i o n s t o p r o v i d e

a t l e a s t t h e c a p a b i l i t i e s . p l a n n e d , m e a n t a r e q u i r e m e n t f o r a t o t a l of

2 7 0 5 f o r t h e l a n d f o r c e s , 9 3 2 f o r t h e a i r f o r c e s a n d 413 f o r n a v a l f o r c e s .

S H A P E p r o p o s e d t h a t t h e n a t i o n s a c h i e v e d t h e p l a n n e d 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 c a p a b i l i t i e s o v e r t h e f o u r - y e a r p e r i o d 1 9 5 9 - 1 9 6 2 .

A p r o p o s e d s c h e d u l e of a t t a i n m e n t w a s i n c l u d e d i n t h e p l a n .

P e r s o n n e l P r o b l e m s

T h e S t a n d i n g G r o u p s u b m i t t e d a r e p o r t ( S G M - 4 7 5 - 5 8 ) t o t h e N o r t h

) A t l a n t i c C o u n c i l on 25 J u l y 1958 , s u m m a r i z i n g t h e e x i s t i n g a n d f u t u r e

r e q u i r e m e n t s of C o m m u n i c a t i o n s a n d E l e c t r o n i c s p e r s o n n e l f o r t h e

A l l i e d C o m m a n d s of N A T O d u r i n g t h e f i v e - y e a r p e r i o d 1 9 5 8 - 1 9 6 2 . ^

T h e s e r e q u i r e m e n t s c o v e r e d n o t o n l y t h e c l a s s i c m i l i t a r y c o m m u n i c a t i o n

n e t w o r k s , b u t a l s o t h e m a n n i n g of v a r i o u s m a j o r N A T O p r o j e c t s p l a n n e d

t o o p e r a t e u n d e r t h e d i r e c t c o n t r o l of t h e N A T O m i l i t a r y h e a d q u a r t e r s .

T h e p r o j e c t s i n c l u d e d t h e A C E L o n g R a n g e E a r l y W a r n i n g S y s t e m , t h e

A C E F o r w a r d S c a t t e r S y s t e m a n d t h e A C E E C M P l a n .

T h e SGN r e p o r t w a s i n d i c a t i v e of a n o r d e r of m a g n i t u d e o n l y ,

s i n c e c e r t a i n r e q u i r e m e n t s h a d n o t y e t b e e n w o r k e d o u t i n d e t a i l . I t

w a s n e v e r t h e l e s s c l e a r t h a t t h e s c a l e of t h e o v e r a l l r e q u i r e m e n t s w a s

s u c h a s t o p o s e a m a j o r p r o b l e m of r e c r u i t m e n t a n d t r a i n i n g f o r m a n y

of t h e N A T O n a t i o n s . T h e m o d e r n i z a t i o n of a r m e d f o r c e s a n d t h e

e s t a b l i s h m e n t of m i s s i l e u n i t s r e q u i r e d f o r M C 7 0 h a d a l r e a d y c r e a t e d

a f o r m i d a b l e n a t i o n a l r e q u i r e m e n t f o r t e c h n i c a l l y q u a l i f i e d p e r s o n n e l of

(11) S G M - 4 7 5 - 5 8 , 2 5 J u l 58. S e e a l s o , N o t e C - M ( 5 8 ) 1 3 2 b y t h e A s s i s t a n t S e c r e t a r y G e n e r a l f o r E c o n o m i c s a n d F i n a n c e , 1 O c t 58 .

160

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t h e s a m e t y p e . T h e r e w a s a l s o t h e c i v i l f a c t o r t o b e c o n s i d e r e d -

s t r o n g c o m p e t i t i o n w a s t o b e e x p e c t e d f r o m i n d u s t r y , w h e r e p a r a l l e l n e e d s

w e r e d e v e l o p i n g .

T h e r e c e n t A n n u a l R e v i e w s h a d s h o w n t h a t c e r t a i n n a t i o n s w e r e

a l r e a d y f a c i n g d i f f i c u l t y i n f i n d i n g s u f f i c i e n t t e c h n i c a l p e r s o n n e l f o r

t h e i r n a t i o n a l f o r c e s .

A n o t h e r e q u a l l y i m p o r t a n t a s p e c t t o t h e p r o b l e m w a s t h e p r o v i s i o n

of t h e c o m p l i c a t e d a n d c o s t l y e q u i p m e n t i n v o l v e d a n d t h e c o m p l e t i o n of

t h e n e c e s s a r y i n f r a s t r u c t u r e w o r k s t h a t h a d t o b e r e l a t e d t o t h e

a v a i l a b i l i t y of p e r s o n n e l t o m a n a n d o p e r a t e t h e m . F i r m p l a n s w e r e

s t i l l a w a i t e d f o r t h e i n t r o d u c t i o n of m u c h of t h e e q u i p m e n t , a n d t h e r e f o r e

i t w a s v e r y d i f f i c u l t t o p l a n t h e r e c r u i t m e n t a n d t r a i n i n g of p e r s o n n e l .

T h e N o r t h A t l a n t i c C o u n c i l c o n s i d e r e d t h e SGN r e p o r t o n P r e s e n t

a n d 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 (12)

( S G M - 4 7 5 - 5 8 ) a t a m e e t i n g o n 1 O c t o b e r 1958. v ' T h e C o u n c i l r e q u e s t e d

t h e S G N t o c o m p l e t e t h e f i g u r e s s o t h a t a m o r e u p - t o - d a t e a n d r e a l i s t i c

s t a t e m e n t of t h e r e q u i r e m e n t s c o u l d b e m a d e . In p a r t i c u l a r , t h e C o u n c i l

w a n t e d a f i r m e s t i m a t e f o r t h e r e q u i r e m e n t s f o r t h e 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 P l a n f o r t h e C e n t r a l R e g i o n . T h e C o u n c i l s u g g e s t e d t h a t

f u r t h e r n e c e s s a r y d i s c u s s i o n s h o u l d t a k e p l a c e b e t w e e n t h e m a j o r N A T O

c o m m a n d e r s a n d t h e a p p r o p r i a t e n a t i o n a l a u t h o r i t i e s . T h e C o u n c i l alBO

a g r e e d t o d i s c u s s a t a n e a r l y d a t e t h e s e t t i n g u p of a W o r k i n g P a r t y u n d e r

t h e A n n u a l R e v i e w C o m m i t t e e t o k e e p t h e p r o b l e m u n d e r c o n s t a n t r e v i e w .

P e r s o n n e l f o r L R E W S y s t e m

S H A P E f u r n i s h e d g u i d a n c e t o t h e n a t i o n s o n t h e p e r s o n n e l r e q u i r e m e n t

t r a i n i n g p r o g r a m s a n d t i m e - p h a s i n g f o r t h e p e r s o n n e l t o p r o v i d e f o r t h e

(12) C - M ( 5 8 ) 1 3 2 , 30 O c t 58 .

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o p e r a t i o n of t h e L o n g R a n g e E a r l y W a r n i n g S y s t e m / ' A s a r e s u l t

of t h e S H A P E g u i d a n c e , i t w a s e x p e c t e d t h a t t h e h o s t n a t i o n s w o u l d b e

a b l e t o m a k e t h e i r d e t e r m i n a t i o n of t h e a c t u a l n u m b e r of m i l i t a r y a n d

c i v i l i a n p e r s o n n e l t h e y r e q u i r e d t o o p e r a t e e a c h r a d a r s t a t i o n i n t h e i r

c o u n t r y . T h i s d e t e r m i n a t i o n w o u l d a l s o i n c l u d e t h e s c h e d u l e of t h e

n e c e s s a r y t r a i n i n g f o r t h e i r p e r s o n n e l a n d a l s o a n a g r e e m e n t t h a t t h e y

w o u l d f u r n i s h t h e p e r s o n n e l a t t h e t i m e r e q u i r e d . S u c h a c t i o n b y t h e

n a t i o n s w o u l d e n s u r e t h a t t h e i r p e r s o n n e l w o u l d b e a v a i l a b l e t o o p e r a t e

a n d m a i n t a i n t h e s t a t i o n s a s s o o n a s t h e y b e c a m e o p e r a t i o n a l .

I n o r d e r t h a t a n e v a l u a t i o n of t h e n a t i o n a l c o m m e n t s c o u l d b e m a d e

b y S H A P E , t h e n a t i o n s w e r e r e q u e s t e d t o s u b m i t t h e a c t u a l n u m b e r of

m i l i t a r y a n d c i v i l i a n p e r s o n n e l r e q u i r e d t o o p e r a t e e a c h r a d a r s t a t i o n ;

t o n o t i f y S H A P E of a n y f u r t h e r a s s i s t a n c e n e e d e d f o r t h e t r a i n i n g of

p e r s o n n e l ; a n d a g r e e m e n t t o f u r n i s h w h e n r e q u i r e d o n a n a t i o n a l b a s i s

t h e p e r s o n n e l r e q u i r e d .

T h 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 1 9 5 9 - 1 9 6 3 c o n t a i n e d a

s u m m a r y of t h e p e r s o n n e l r e q u i r e m e n t s f o r t h e A C E L o n g R a n g e E a r l y (14)

W a r n i n g S y s t e m / ' / T h e r e q u i r e m e n t f o r t h e S y s t e m w a s d i v i d e d i n t o

n a t i o n a l a n d i n t e r n a t i o n a l . A l l t h e 18 n e w L R E W s t a t i o n s w e r e t o b e

o p e r a t e d b y n a t i o n a l f o r c e s f u r n i s h e d b y h o s t n a t i o n s . T h e s e p e r s o n n e l

w e r e n o t t o b e . h e l d w i t h i n t h e a u t h o r i z e d i n t e r n a t i o n a l p e r s o n n e l c e i l i n g

f o r A C E . S H A P E u n d e r t o o k , d u r i n g 1958, a d e t a i l e d u p - t o - d a t e

p e r s o n n e l m a n n i n g r e q u i r e m e n t f o r e a c h r a d a r s t a t i o n a n d t h i s w a s

i s s u e d a s a g u i d e t o n a t i o n s i n S e p t e m b e r 1958.

(13) AG 1250 P A N D A , 17 Sep 58.

(14) AG 1250 P A N D A , 17 Sep 58.

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T h e t o t a l n u m b e r of n a t i o n a l p e r s o n n e l r e q u i r e d w a s 2, 504 , a

f i g u r e S H A P E c o n s i d e r e d t h e n u m b e r of i n d i v i d u a l s t o o p e r a t e a n d

m a i n t a i n t h e w h o l e L R E W s y s t e m o n a 2 4 - h o u r b a s i s i n a c c o r d a n c e (15)

w i t h S H A P E s t a n d a r d s . ( T h e f i g u r e a l s o i n c l u d e d t h e p e r s o n n e l

n e e d e d t o p e r f o r m t h e n o r m a l f u n c t i o n s of a d m i n i s t r a t i o n , s u p p l y ,

s e c u r i t y a n d o p e r a t i o n of u t i l i t i e s . )

T h e i n t e r n a t i o n a l r e q u i r e m e n t w a s c o n f i n e d t o t h e t e c h n i c a l

m a i n t e n a n c e of t h e D a t a H a n d l i n g S y s t e m . T h i s w a s f o r t h e r e a r w a r d

l i n k of t h e E W S b e t w e e n c e r t a i n N A T O . H e a d q u a r t e r s . A t o t a l of 35

m i l i t a r y e l e c t r o n i c t e c h n i c i a n s w a s r e q u i r e d .

P e r s o n n e l f o r F o r w a r d S c a t t e r S y s t e m

T h 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 1 9 5 8 - 1 9 6 2 , s u b m i t t e d b y

S H A P E o n 17 O c t o b e r 1957 , i n c l u d e d a s t a t e m e n t of r e q u i r e m e n t s f o r (16)

p e r s o n n e l t o o p e r a t e t h e A C E F o r w a r d S c a t t e r S y s t e m . T h e

S t a n d i n g G r o u p a p p r o v e d a n i n c r e a s e t o t h e A C E I n t e r n a t i o n a l p e r s o n n e l (17)

c e i l i n g t o c o v e r 104 of t h e p o s t s r e q u e s t e d b y S H A P E . v ' T h e s e 104

p o s t s i n c l u d e d t h o s e f o r t h e O p e r a t i n g U n i t s a n d S e c t i o n s t h r o u g h o u t

A C E e x c e p t f o r s i x p o s t s .

A s l i g h t a d j u s t m e n t w a s r e q u e s t e d t o t h e o r i g i n a l 1957 r e q u e s t m a d e

i n t h e 1958 P R P . ^ F o l l o w i n g c o n s t a n t r e v i e w b y S H A P E of t h e

F o r w a r d S c a t t e r S y s t e m , i t w a s f o u n d n e c e s s a r y t o d e l e t e c e r t a i n s t a t i o n s

(15) A G 4 0 3 0 - G 2 P A , 18 O c t 58 . T h i s P R P f o r 1 9 5 9 - 1 9 6 3 c o n t a i n s a u s e f u l s u m m a r y of t h e p e r s o n n e l r e q u i r e m e n t s f o r t h e L R E W s y s t e m .

(16) A G 4 0 3 0 / 4 P A , 17 O c t 57.

(17) S T A N D 2 5 0 6 , 11 J u l 58 .

(18) A G 4 0 3 0 - G 2 P A , 18 O c t 58 , P R P f o r A C E 1 9 5 9 - 1 9 6 3 .

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a n d s u b s t i t u t e o t h e r s . A d j u s t m e n t s w e r e t h e r e f o r e n e c e s s a r y t o t h e

m a n n i n g t a b l e s f o r O p e r a t i n g p e r s o n n e l . T h e e f f e c t of t h e s e c h a n g e s

w a s t h a t S H A P E r e q u e s t e d a n i n c r e a s e of 22 m i l i t a r y o t h e r r a n k s a n d

a d e c r e a s e of 13 c i v i l i a n c o n t r a c t t e c h n i c i a n s .

C o m m u n i c a t i o n s E q u i p m e n t

A n i m p o r t a n t c h a n g e t o o k p l a c e i n M a r c h 1958 i n o n e of t h e

r e s p o n s i b i l i t i e s of t h e C h i e f S i g n a l O f f i c e r a t S H A P E . U n t i l t h i s d a t e ,

h e w a s c h a r g e d w i t h t h e r e s p o n s i b i l i t y of m o n i t o r i n g t h e p r o c u r e m e n t

of c o m m u n i c a t i o n s e q u i p m e n t a n d t h e p r o c u r e m e n t of s e l e c t e d i t e m s of

, e q u i p m e n t w h e n d i r e c t e d b y t h e a p p r o p r i a t e a u t h o r i t y o r r e q u e s t e d b y a

S u b o r d i n a t e C o m m a n d .

S i n c e M a r c h 1958 , h o w e v e r , S i g n a l D i v i s i o n w a s c h a r g e d w i t h t h e

r e s p o n s i b i l i t y f o r t h e p r o c u r e m e n t of a l l t h e 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

e q u i p m e n t c o n t a i n e d i n t h e C - E P r o g r a m . T h e d e c i s i o n t o c e n t r a l l y

p r o c u r e t h i s e q u i p m e n t w a s m a d e f o r f o u r r e a s o n s . F i r s t l y , a n d t h e

p r i m a r y r e a s o n , w a s t o a c c o m p l i s h s o m e d e g r e e of s t a n d a r d i z a t i o n .

T h e r e w e r e s i x o r s e v e n d i f f e r e n t m a k e s of a s i n g l e x p e a n s of

c o m m u n i c a t i o n s . T h i s r e q u i r e d t h e s t o c k a g e of a l a r g e n u m b e r of s p a r e s

a n d c o m p l i c a t e d t h e i n t e r c h a n g e of e q u i p m e n t .

T h r o u g h t h e m e d i u m of c e n t r a l p r o c u r e m e n t , S H A P E h o p e d t o

a c c o m p l i s h s o m e d e g r e e of s t a n d a r d i z a t i o n o n a r e g i o n a l b a s i s . T o

a c c o m p l i s h t h i s , S H A P E h a d c a l l e d f o r a o n e - t i m e r e p o r t on t h e s t a t u s (19)

of a l l e q u i p m e n t u s e d i n A C E . v It w a s h o p e d t h a t t h e i d e a l s t a t e of

s t a n d a r d i z a t i o n w o u l d e v e n t u a l l y b e a c h i e v e d - i . e . , t o h a v e a s e t of

(19) AG 5130 S I G / M A , 14 F e b 58; a n d a l s o t h e S i g n a l O f f i c e r s O r i e n t a t i o n C o u r s e H a n d b o o k , AG 1880 .5 S I G / P T , 1 S e p 58.

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N A T O s p e c i f i c a t i o n s f o r a l l C - E e q u i p m e n t .

C e n t r a l p r o c u r e m e n t w o u l d a l s o e l i m i n a t e t h e c o m p e t i t i o n b e t w e e n

c o m m a n d s f o r s i m i l a r t y p e s of e q u i p m e n t a n d t h u s b i d d i n g a g a i n s t e a c h

o t h e r . F u n d s w o u l d a l s o b e s a v e d a s l a r g e r , b u l k p u r c h a s e s c o u l d b e

m a d e . F i n a l l y , m u c h n e e d e d t e c h n i c a l i n f o r m a t i o n a n d a s s i s t a n c e w o u l d

b e r e a d i l y a v a i l a b l e t o t h e s u b o r d i n a t e c o m m a n d s t h a t i n t h e p a s t h a d

e x p e r i e n c e d m u c h d i f f i c u l t y i n p r e p a r i n g p r o j e c t d e s c r i p t i o n s .

C o m m x t n i c a t i o n s P l a n n i n g f o r t h e N I K E A i r D e f e n s e S y s t e m

S H A P E s e n t t o a l l M S C s g u i d a n c e o n t h e c o m m u n i c a t i o n s p l a n n i n g

f o r a N I K E A i r D e f e n s e C o m p l e x o n 18 S e p t e m b e r 1 9 5 8 . ^ 2 0 ^ T h i s g u i d a n c e

i n c l u d e d 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 f o r a N I K E b a t t e r y , a N I K E

b a t t a l i o n a n d a n A n t i - A i r O p e r a t i o n C e n t e r ( A A O C ) .

T h e p r o v i s i o n of a d e q u a t e c o m m u n i c a t i o n s i n p e a c e t i m e w a s s t a t e d

t o b e a p r e r e q u i s i t e f o r t h e c o m b a t e f f e c t i v e n e s s of N I K E A i r D e f e n s e . i

T h e s e c o m m u n i c a t i o n s p r o v i d e d f o r t h e f o l l o w i n g f u n c t i o n s :

A l e r t of N A T O / N a t i o n a l f o r c e s a n d U S c u s t o d i a n s

A i r D e f e n s e C o m m a n d a n d C o n t r o l

D a t a T r a n s m i s s i o n

A i r D e f e n s e I n t e l l i g e n c e

N a t i o n a l C o n t r o l a n d A d m i n i s t r a t i o n , i n c l u d i n g l o g i s t i c s a n d

s u p p o r t of U S c u s t o d i a l u n i t s

T h e p r o c u r e m e n t of t e c h n i c a l e q u i p m e n t w o u l d b e p r o v i d e d b y t h e

u s e r n a t i o n s .

( 2 0 ) A G 6 4 4 0 S I G / C É P G , 18 Sep 58 . ( T h e a i r d e f e n s e p l a n w h i c h r e q u i r e d t h i s c o m m u n i c a t i o n s s y s t e m w a s AG 6 4 4 0 / E - U 1 / 5 8 L O G , 15 A p r 58 ) .

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S i g n a l s C o n f e r e n c e s 1958

T h e a n n u a l S ta i f S i g n a l O f f i c e r s C o u r s e w a s h e l d a t S H A P E f r o m (21)

16 t o 2 4 J u n e 1 9 5 8 / T h e a i m of t h i s C o u r s e w a s t o a c q u a i n t s i g n a l

o f f i c e r s w i t h t h e s i g n a l n e t w o r k c o n n e c t i n g t h e N A T O m i l i t a r y h e a d -

q u a r t e r s i n E u r o p e . N o t o n l y o f f i c e r s w o r k i n g w i t h i n t h e N A T O

f r a m e w o r k w e r e o r i e n t a t e d , b u t a l s o t h o s e n a t i o n a l o f f i c e r s w h o s e w o r k

b r o u g h t t h e m i n t o c o n t a c t w i t h t h e N A T O c o m m u n i c a t i o n s s y s t e m . T h e

C o u r s e c o v e r e d a l l a s p e c t s of c o m m u n i c a t i o n s w o r k , i n c l u d i n g t h e

A t o m i c S t r i k e P l a n c o m m u n i c a t i o n s s y s t e m , r a d a r o p e r a t i o n s , t h e

f o r w a r d s c a t t e r s y s t e m a n d 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 .

(21) S e e C o u r s e B o o k , A G 1 8 8 0 . 5 S I G / P T , 1 S e p 58. T h i s b o o k c o n t a i n s a l l t h e p r e s e n t a t i o n s m a d e a t t h e C o u r s e a n d i n c l u d e s u s e f u l s u m m a r i e s of p l a n , p r o b l e m s a n d p r o g r e s s .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

C H A P T E R VII I

I N T E L L I G E N C E

I n t r o d u c t i o n

T h e p r o b l e m s f a c i n g S H A P E i n c a r r y i n g o u t t h e i n t e l l i g e n c e m i s s i o n

w h i c h w a s i n h e r e n t i n S A C E U R ' s o v e r a l l r e s p o n s i b i l i t i e s w e r e m o s t

d i f f i c u l t , a s t h e y h a d b e e n s i n c e t h e e s t a b l i s h m e n t of S H A P E . D u r i n g

' 1957 t h e w e a k n e s s e s i n t h e A l l i e d C o m m a n d E u r o p e i n t e l l i g e n c e s y s t e m

c a u s e d g r a v e c o n c e r n on t h e p a r t of S A C E U R , a s w e l l a s of h i s s u p e r i o r s . O

T h e s e w e a k n e s s e s s t e m m e d p r i m a r i l y f r o m t h e f a c t t h a t S A C E U R l a c k e d

f a c i l i t i e s f o r i n t e l l i g e n c e g a t h e r i n g a n d t h a t h e d e p e n d e d e n t i r e l y u p o n

n a t i o n a l s o u r c e s a n d u p o n t h e i n f o r m a t i o n f r o m t h e S t a n d i n g G r o u p f o r

h i s i n t e l l i g e n c e . C e r t a i n m e a s u r e s h a d b e e n t a k e n d u r i n g 1957 t o

s t i m u l a t e a g r e a t e r c o o p e r a t i o n on t h e p a r t of t h e n a t i o n s a n d t o s t r e n g t h e n t h e m e c h a n i s m f o r h a n d l i n g i n t e l l i g e n c e a f f a i r s w i t h i n A l l i e d C o m m a n d

(1)

E u r o p e .

T h e 1958 p e r i o d w a s d e v o t e d t o t h e s e a r c h f o r m e a s u r e s w h i c h

w o u l d p r o d u c e a g r e a t e r e f f i c i e n c y i n i n t e l l i g e n c e o p e r a t i o n s a n d t o t h e

c o r r e c t i o n of o b v i o u s d e f e c t s i n t h e s y s t e m . T h e o f f i c e r d i r e c t l y

r e s p o n s i b l e f o r i n t e l l i g e n c e m a t t e r s w a s t h e A s s i s t a n t C h i e f of S ta f f

. f o r I n t e l l i g e n c e w h o s e D i v i s i o n d u r i n g 1958 w a s r e o r g a n i z e d a n d w h o s e

(1) S e e C h a p t e r IX, S H A P E H i s t o r y 1957, f o r d e t a i l s of i n t e l l i g e n c e a c t i v i t i e s a n d p r o b l e m s d u r i n g t h a t p e r i o d .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

r e s p o n s i b i l i t i e s a n d d u t i e s w e r e m o r e c l e a r l y d e f i n e d i n a c h a n g e t o

t h e p r o p e r S t a f f D i r e c t i v e . C l o s e r c o o p e r a t i o n b e t w e e n i n t e l l i g e n c e

o f f i c e r s of t h e n a t i o n s a n d of t h e c o m m a n d s w a s a c h i e v e d , s e v e r a l

i m p o r t a n t i n t e l l i g e n c e c o n f e r e n c e s w e r e h e l d a t S H A P E a n d f i r m p o l i c y

w i t h i n d i f f i c u l t i n t e l l i g e n c e a r e a s w a s e s t a b l i s h e d . T h e i n t e l l i g e n c e

s y s t e m of A l l i e d C o m m a n d E u r o p e w a s , a t t h e e n d of 1958, m o r e

c o h e s i v e a n d e f f e c t i v e a n d s t r o n g e r t h a n i t h a d b e e n a t t h e b e g i n n i n g

of t h e p e r i o d .

B a s i c I n t e l l i g e n c e G u i d a n c e B a c k g r o u n d

S t a n d i n g G r o u p . D i r e c t i v e s t o S A C E U R l i m i t e d h i s a c t i v i t i e s i n t h e

i n t e l l i g e n c e f i e l d t o a c e r t a i n e x t e n t . T h e S t a n d i n g G r o u p w a s c h a r g e d

w i t h f u r n i s h i n g t h e M a j o r N A T O C o m m a n d e r s w i t h i n t e l l i g e n c e e s t i m a t e s O a f f e c t i n g t h e i r p l a n s a n d p r e p a r a t i o n s f o r w a r . A l l r e q u e s t s b y t h e

M a j o r C o m m a n d e r s f o r e s t i m a t e s of a g e n e r a l n a t u r e of e n e m y

c a p a b i l i t i e s w e r e r e q u i r e d t o b e m a d e t o t h e S t a n d i n g G r o u p . T h e

S t a n d i n g G r o u p w a s a l s o r e s p o n s i b l e f o r f u r n i s h i n g M a j o r C o m m a n d e r s

w i t h p o l i c y d i r e c t i v e s i n t h e f i e l d of i n t e l l i g e n c e a n d w i t h c o o r d i n a t i n g

t h e i r i n t e l l i g e n c e a c t i v i t i e s .

H o w e v e r , S A C E U R w a s a u t h o r i z e d t o c a l l u p o n n a t i o n a l s t a f f s f o r

e s t i m a t e s of t h e t h r e a t p e r t a i n i n g t o h i s t h e a t e r a n d m i s s i o n a n d t o a s k

f o r f a c t u a l , m i l i t a r y a n d t o p o g r a p h i c a l i n t e l l i g e n c e f r o m t h e s e s o u r c e s .

H e w a s a u t h o r i z e d t o d e a l d i r e c t l y w i t h n a t i o n a l s t a f f s b u t w a s r e q u i r e d

t o f o r w a r d t o t h e S t a n d i n g G r o u p a l l s u m m a r i e s of i n t e l l i g e n c e p r o d u c e d

b y S H A P E . W h i l e h i s S u b o r d i n a t e C o m m a n d e r s w o u l d n o r m a l l y r e c e i v e

t h e i r i n t e l l i g e n c e d i r e c t l y f r o m S A C E U R , t h e y c o u l d , i n s p e c i a l c a s e s , (2)

r e c e i v e i n t e l l i g e n c e d i r e c t l y f r o m n a t i o n a l s t a f f s .

(2) B a s i c P e a c e t i m e I n t e l l i g e n c e O r g a n i z a t i o n of N A T O , SG 1 2 8 / 1 ( F i n a l ) 31 M a r 53, a s a m e n d e d . . / 0

MATO S E C R FIT

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T h e b a s i c N A T O i n t e l l i g e n c e d o c u m e n t u p o n w h i c h S H A P E

d e p e n d e d f o r g u i d a n c e a n d e s t i m a t e s w a s t h e SG 161 s e r i e s . U n t i l

1954 t h i s d o c u m e n t h a d b e e n r e v i s e d a n d r e p u b l i s h e d p e r i o d i c a l l y ,

b u t o n n o p a r t i c u l a r t i m e s c h e d u l e . I n 1954, h o w e v e r , t h e C o u n c i l

d e c i d e d t h a t , i n o r d e r t o c o n f o r m w i t h t h e N A T O p l a n n i n g c y c l e s a n d

t o f u r n i s h t h e M a j o r C o m m a n d e r s a n u p - t o - d a t e i n t e l l i g e n c e e s t i m a t e

e a r l y i n e a c h c a l e n d a r y e a r , t h i s d o c u m e n t s h o u l d b e i s s u e d o n a n

o r d e r l y c y c l e a s a n a n n u a l i n t e l l i g e n c e e s t i m a t e . T h i s r e s u l t e d i n t h e

SG 161 e s t i m a t e b e i n g d r a w n u p i n M a r c h a n d A p r i l of e a c h y e a r a n d

b e i n g i s s u e d u n d e r a n e w s e r i e s n u m b e r o n 1 M a y t o M a j o r N A T O

C o m m a n d e r s . I t w a s r e v i s e d o n a s e m i - a n n u a l b a s i s , i n c l u d i n g (3)

N a t i o n a l c o m m e n t s a s of 1 N o v e m b e r e a c h y e a r .

In p r a c t i c e t h e A n n u a l E s t i m a t e w a s d e v e l o p e d a t t h e S t a n d i n g

G r o u p b y a n A d H o c I n t e l l i g e n c e C o m m i t t e e w h i c h b a s e d i t s w o r k o n

i n t e l l i g e n c e e s t i m a t e s a n d i n f o r m a t i o n p r o d u c e d a n d e v a l u a t e d b y t h e

t h r e e S t a n d i n g G r o u p n a t i o n s , s u p p l e m e n t e d i n s o f a r a s p o s s i b l e b y d a t a

f r o m o t h e r s o u r c e s i n N A T O . P a r t i c i p a t i o n i n t h i s e s t i m a t e f r o m o t h e r

m e m b e r n a t i o n s of N A T O w a s p r o v i d e d f o r i n t h e f o r m of n a t i o n a l

o b s e r v e r s w h o g a t h e r e d i n W a s h i n g t o n d u r i n g t h e a p p r o x i m a t e t h r e e -

w e e k p e r i o d i n M a r c h a n d A p r i l w h e n t h e A d H o c G r o u p m e t t o p r e p a r e

t h e n e w e s t i m a t e . In s o m e c a s e s , s h o u l d a m e m b e r n a t i o n n o t c a r e t o

s e n d i t s o w n o f f i c e r s , t h e r e p r e s e n t a t i v e s s e n t b y S H A P E w e r e a s k e d t o

r e p r e s e n t t h a t n a t i o n ' s v i e w s a s w e l l a s i t s o w n a t t h i s c o n f e r e n c e .

S H A P E ' S v i e w s w e r e m a d e k n o w n a t t h e s a m e t i m e . T h u s t h e v i e w s of

t h e n a t i o n s a n d of S H A P E w e r e c o m b i n e d i n i m p r o v i n g t h e v a l u e a n d

u s e f u l n e s s of t h e d o c u m e n t .

(3) T h e M e t h o d of P r o d u c t i o n of P e a c e t i m e N A T O I n t e l l i g e n c e E s t i m a t e s of t h e S o v i e t B l o c S t r e n g t h a n d C a p a b i l i t i e s , SG 1 2 8 / 2 , 24 Sep 54 .

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In M a r c h of 1958 , d u r i n g t h e p r e p a r a t i o n of t h e A n n u a l I n t e l l i g e n c e

E s t i m a t e , S H A P E s p e c i a l r e q u e s t s w e r e a r e q u i r e m e n t f o r r e a p p r a i s a l

of t h e p o l i t i c a l a l i g n m e n t of " n e u t r a l " c o u n t r i e s a n d m i l i t a r y

i m p l i c a t i o n s ; t h e p o l i t i c a l s i t u a t i o n i n t h e U S S R a n d s a t e l l i t e n a t i o n s

a s t h e s e i n f l u e n c e d t h e m i l i t a r y s i t u a t i o n ; a n d i n t e l l i g e n c e o n p o l i t i c a l (4)

a n d e c o n o m i c w e a k n e s s e s of t h e S o v i e t B l o c /

T h e N A T O I n t e l l i g e n c e E s t i m a t e f o r 1958 , SG 161/11, w a s i s s u e d

i n M a y 1958 . D u r i n g t h e c o u r s e of t h e y e a r c e r t a i n r e v i s i o n s w e r e

i n c o r p o r a t e d i n t o t h e d o c u m e n t . In a d d i t i o n t o t h i s b a s i c d o c u m e n t , (5)

S H A P E a l s o w a s a b l e t o u s e c e r t a i n i n t e l l i g e n c e s e c t i o n s f r o m M C 70 . v '

In c e r t a i n r e s p e c t s S H A P E w a s n o t s a t i s f i e d w i t h t h e i n f o r m a t i o n

f u r n i s h e d b y SG 161/11. T h e s e d e f i c i e n c i e s c e n t r e d a r o u n d t h e p r o j e c t i o n

of e s t i m a t e s . A t a m e e t i n g h e l d a t S H A P E on 22 a n d 2 3 O c t o b e r 1958,

i n t e l l i g e n c e a u t h o r i t i e s of A C E d i s c u s s e d t h i s p r o b l e m . R e g i o n a l t h r e a t

e s t i m a t e s w e r e d e f i n e d a s a s t r e n g t h of t h e e n e m y t h a t m i g h t b e e m p l o y e d

a g a i n s t a n y p a r t i c u l a r f r o n t . I t w a s a g r e e d t h a t s o m e m a c h i n e r y s h o u l d

b e s e t u p w i t h i n A C E t o p r o j e c t t h e s e e s t i m a t e s f u r t h e r t h a n t h e y w e r e t h e n

c a r r i e d , a n d t h a t M S C s w o u l d a p p r o a c h t h e i r n a t i o n a l s t a f f s i n t h e i r o w n

a r e a s f o r i n f o r m a t i o n a n d a d v i c e . A n y c h a n g e s t o t h e e s t i m a t e s w h i c h

(4) M e m o r a n d u m A C O S I n t e l t o S H A P E r e p r e s e n t a t i v e s a t SGN M e e t i n g , I D 3 5 0 0 / 1 , 20 F e b 58 .

(5) S H A P E 1 8 8 / 5 8 , 12 D e c 58 ; SG I 6 l / l l ; In a d d i t i o n t o SG 161 s e r i e s , t h e S t a n d i n g G r o u p a l s o i s s u e d I n t e l l i g e n c e G u i d a n c e i n s p e c i f i c a r e a s . E x a m p l e s of t h i s w e r e SG 2 5 2 ; L o g i s t i c a l I n t e l l i g e n c e G u i d e t o S o v i e t A r m e d F o r c e s ; SG 2 5 2 , T h e T h r e a t t o N A T O ' s S o u t h e r n F l a n k A r i s i n g f r o m S o v i e t M i l i t a r y T a r g e t s i n A C E ; 2 5 8 , M e t h o d o l o g y f o r A s s e s s i n g R o a d S u p p l y of E n e m y F o r c e s ; SG 166 /1 , I n d i c a t i o n of A t t a c k ; SG 243 , N A T O P o l i c y o n P . O . W; SG 2 4 7 , W a r t i m e I n t e l l i g e n c e of C o u n t e r I n t e l l i g e n c e B r a n c h ; SG 2 3 3 , C a p t u r e d E n e m y D o c u m e n t s .

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d e v e l o p e d , h o w e v e r , w o u l d h a v e t o b e s e n t t o t h e S t a n d i n g G r o u p .

L o o k i n g t o t h e f u t u r e , t h e o f f i c e r s a t t h e c o n f e r e n c e d e c i d e d t h a t i n

p r e p a r i n g f o r t h e n e x t a n n u a l e s t i m a t e s , w h i c h w o u l d b e SG 161/12, a

c l e a r e r d e f i n i t i o n of t h e t h r e a t s h o u l d b e m a d e . In t h e d o c u m e n t i s s u e d

t h e y e a r b e f o r e , SG I 6 l / l 0 , a ' f a i r e s t i m a t e w a s g i v e n of t h e n u m b e r of

d i v i s i o n s w h i c h m i g h t b e d e p l o y e d a g a i n s t A l l i e d C o m m a n d E u r o p e . In

SG 161/11, t h e i s s u e h a d b e e n a v o i d e d b y s a y i n g t h a t t h e c a p a b i l i t y of l i n e s

of c o m m u n i c a t i o n w e r e s u c h t h a t t h e y c o u l d s u p p o r t a s p e c i f i e d n u m b e r of

d i v i s i o n s . H o w e v e r , S H A P E a g r e e d t h a t i t w a s n e c e s s a r y t o g e t b o t h

l o g i s t i c a n d t a c t i c a l t h r e a t p r o b l e m s s t r a i g h t e n e d o u t b y h a v i n g t h e M S C s

g e t a m o r e r e a l i s t i c p i c t u r e t h r o u g h d i s c u s s i o n s w i t h t h e n a t i o n a l s t a f f s

i n t h e i r a r e a s . F o l l o w i n g t h i s , c o o r d i n a t i o n c o u l d b e c a r r i e d o u t a t

S H A P E t o i r o n o u t a n y m a j o r d i s c r e p a n c i e s . T h e s e e s t i m a t e s w o u l d b e

u s e d a s a b a s i s f o r e x e r c i s e s i n t h e f u t u r e . It w a s o b v i o u s a l s o t h a t a

m o r e r e a l i s t i c a m p h i b i o u s t h r e a t w o u l d h a v e t o b e d e v e l o p e d a n d t h a t a

c l e a r e r d e f i n i t i o n of t h e m i s s i l e t h r e a t b y a r e a s , p a r t i c u l a r l y s u r f a c e - t o -

s u r f a c e m i s s i l e s w a s n e e d e d . M o r e i n f o r m a t i o n o n n e u t r a l c o u n t r i e s w a s

a l s o r e q u i r e d .

I t w a s d e c i d e d f i n a l l y t h a t t h e M S C s , u s i n g a d v i c e w h i c h t h e y c o u l d

g e t f r o m t h e M O D s l w o u l d p r e p a r e r e g i o n a l e s t i m a t e s of t h e t h r e a t .

C o p i e s of t h e s e t h r e a t e s t i m a t e s w o u l d b e s e n t t o S H A P E , if p o s s i b l e b y

A u g u s t I 9 5 9 , a n d w o u l d b e c o o r d i n a t e d a t a c o n f e r e n c e a t S H A P E .

S t a n d i n g G r o u p a p p r o v a l w o u l d b e s o u g h t i n o r d e r t h a t M S C s a n d S H A P E

c o u l d u s e t h e s e e s t i m a t e s b o t h f o r p l a n n i n g a n d f o r e x e r c i s e p u r p o s e s / ^

(6) M e m o r a n d u m M i n u t e s of I n t e l l i g e n c e C o n f e r e n c e , 13 N o v 58 ; L e t t e r , A G 2 0 3 0 / 1 2 I N T E L .

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B r i e f i n g » a n d P u b l i c a t i o n s

D u r i n g t h e f l a r e - u p of t e n s i o n i n t h e M i d d l e E a s t i n m i d - 1 9 5 8 ,

i n t e l l i g e n c e a g e n c i e s of A C E a n d S H A P E i n c r e a s e d t h e i r a c t i v i t i e s t o

c o p e w i t h t h e u r g e n t s i t u a t i o n . P a r t i c u l a r l y , S A C E U R a n d h i s M a j o r

C o m m a n d e r s r e q u i r e d m o r e d e t a i l e d a n d t i m e l y i n f o r m a t i o n , i n v i e w of

t h e g r a v e p o s s i b i l i t y of N A T O i n v o l v e m e n t . T o o , c e r t a i n of t h e m e m b e r

n a t i o n s of N A T O w e r e i n v o l v e d o n a b i - l a t e r a l o r u n i l a t e r a l b a s i s .

T h e p o s s i b i l i t y o f ' w a r b e g i n n i n g t h r o u g h m i s c a l c u l a t i o n i n t h i s p e r i o d

w a s b e l i e v e d t o h a v e i n c r e a s e d a n d t h e k e y t o u l t i m a t e r e a d i n e s s l a y

i n a d e q u a t e w a r n i n g a n d p r i o r p r e p a r a t i o n . T h e w a r n i n g n e c e s s a r y t o

a l l o w t h e p r e p a r a t i o n w a s t h e r e s p o n s i b i l i t y of N A T O i n t e l l i g e n c e a g e n c i e s .

A r r a n g e m e n t s f o r s p e c i a l i n t e l l i g e n c e b r i e f i n g s t h r o u g h o u t e a c h

d a y w e r e m a d e s o t h a t S A C E U R , h i s D e p u t i e s a n d t h e C h i e f of S ta f f c o u l d

b e k e p t a b r e a s t of l a t e s t d e v e l o p m e n t s . T h e s e b r i e f i n g s w e r e h a n d l e d b y

k e y o f f i c e r s of t h e I n t e l l i g e n c e D i v i s i o n a n d w e r e b a s e d on e v e r y i t e m

w h i c h c o u l d b e s e c u r e d t h r o u g h N A T O c h a n n e l s . In a d d i t i o n , d a i l y

i n t e l l i g e n c e c a b l e s , i n c o r p o r a t i n g a l l k n o w n a n d p e r t i n e n t f a c t s w e r e

s e n 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 b y S H A P E . F r o m t h i s d a i l y

c a b l e e v o l v e d a d a i l y s u m m a r y , s e n t a t f i r s t o n l y t o M S C s , b u t l a t e r

e x p a n d e d t o i n c l u d e n a t i o n a l M i n i s t e r s of D e f e n s e .

S H A P E I n t e l l i g e n c e P u b l i c a t i o n s

T h e n o r m a l c h a n n e l f o r d i s s e m i n a t i n g i n t e l l i g e n c e i n f o r m a t i o n b y

S H A P E w a s i n t h e f o r m of a p e r i o d i c c a b l e , t h e S H A P E p e r i o d i c

i n t e l l i g e n c e r e p o r t , E U R P I R , a n d i n t h e f o r m of s p e c i a l s t u d i e s o n

s e l e c t e d t o p i c s .

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T h e C a b l e

O n 2 J u l y 1958 , d u r i n g t h e h e i g h t of t h e M i d d l e E a s t c r i s i s ,

G e n e r a l T a r v e r , A C O S , I n t e l l i g e n c e , d i r e c t e d t h a t t w o c a b l e s b e s e n t

t o M S C s e a c h M o n d a y . T h e f i r s t c a b l e w o u l d b e C o s m i c T o p S e c r e t i n

c l a s s i f i c a t i o n a n d w o u l d s t a t e w h e t h e r o r n o t h o s t i l i t i e s a p p e a r e d i m m i n e n t

b e t w e e n t h e S o v i e t B l o c a n d N A T O n a t i o n s o r n a t i o n s c o n t i g u o u s t o N A T O

n a t i o n s . T h e s e c o n d c a b l e w o u l d i n c l u d e a s h o r t r e s u m e of i n t e l l i g e n c e

h i g h l i g h t s h a v i n g a b e a r i n g o n t h e i m m i n e n c e of h o s t i l i t i e s , p o i n t i n g ou t

p o t e n t i a l d a n g e r a r e a s a n d p r e s e n t i n g a b r i e f e v a l u a t i o n of p e r t i n e n t

i n t e l l i g e n c e . A l l n a t i o n a l a g e n c i e s a g r e e d t o t h i s p r o p o s a l a n d o n

7 A u g u s t t h e c a b l e s w e r e i n i t i a t e d . On 13 A u g u s t t h e S t a n d i n g G r o u p

a s k e d S H A P E if i t i n t e n d e d i n c r e a s i n g d i s t r i b u t i o n b e y o n d t h e M S C s a n d

S H A P E r e p l i e d t h a t f o r t h e m o m e n t n o s u c h p r o c e d u r e w a s c o n t e m p l a t e d .

H o w e v e r , o n 4 S e p t e m b e r i t w a s d e c i d e d i n a g r e e m e n t w i t h t h e S t a n d i n g

G r o u p t o f u r t h e r d i s s e m i n a t e t h e i n f o r m a t i o n c o n t a i n e d i n t h e s e c a b l e s

f r o m S H A P E n o t o n l y t o M S C s b u t t o a l l M O D s a n d t o c o m m a n d e r s d o w n t o

t h e A r m y G r o u p / A T A F l e v e l . T o e n a b l e t h i s t o b e a c c o m p l i s h e d m o r e

r e a d i l y , t h e n a t i o n a l s t a f f s w e r e u r g e d t o s u b m i t f u l l e s t p o s s i b l e i n f o r m a t i o n

t o S H A P E b y T h u r s d a y of e a c h w e e k . D u r i n g t h e y e a r t h e d i s t r i b u t i o n of

t h i s c a b l e w a s e x p a n d e d t o i n c l u d e C I N C H A N , C O M A I R C H A N a n d S A C L A N T . ^

L a t e r i n t h e y e a r t h e UK a u t h o r i t i e s , w h o , a l o n g w i t h o t h e r n a t i o n a l

a u t h o r i t i e s , w e r e r e p o r t i n g on a w e e k l y b a s i s t o S H A P E o n t h e i r n a t i o n a l

j u d g e m e n t of t h e i m m i n e n c e of h o s t i l i t i e s , s t a t e d t h a t t h e y w i s h e d t o

(7) U S d o e s n o t s e n d a b l e c a b l e s i n c o n n e c t i o n w i t h i m m i n e n c e of h o s t i l i t i e s ; I n t e l l i g e n c e D i v i s i o n F i l e I m m i n e n c e of H o s t i l i t i e s R e p o r t s , 3 5 0 0 / 9 , 1958; L e t t e r , P e r i o d i c I n t e l l i g e n c e R e p o r t s a n d W a r n i n g of S o v i e t M i l i t a r y A g g r e s s i o n , AG 3 5 0 0 / 9 ID, 4 J u l 58 ; M e s s a g e , D E F 9 4 6 5 4 2 , 13 A u g 58 ; M e s s a g e , S H A P T O 1707, 19 A u g 58 ; M e s s a g e , S H A P E 2 6 0 2 9 , 4 Sep 58 ; M e s s a g e , S H A P E 2 6 4 0 6 , 2 4 Sep 58 ; M e s s a g e , S H A P E 2 7 7 0 6 , 14 N o v 58.

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d i s c o n t i n u e t h i s c a b l e a n d t o r e p o r t o n l y if h o s t i l i t i e s a p p e a r e d i m m i n e n t .

S H A P E , h o w e v e r , o b j e c t e d t o t h i s p r o c e d u r e , s t a t i n g t h a t it n e e d e d a

p o s i t i v e s t a t e m e n t o t h e r w i s e i t w o u l d n e v e r k n o w w h e t h e r a c a b l e h a d

a c t u a l l y b e e n s e n t a n d h a d f a i l e d t o b e r e c e i v e d o r w h e t h e r t h e U K h a d

d e l i b e r a t e l y n o t s e n t a c a b l e . M o r e i m p o r t a n t , a n a c t i o n of t h i s n a t u r e

o n t h e p a r t of o n e n a t i o n a l a u t h o r i t y w o u l d c e r t a i n l y l e a d t o a g e n e r a l

r e a c t i o n w h e r e b y o t h e r n a t i o n a l i n t e l l i g e n c e s t a f f s w o u l d a l s o w a n t n o t t o (8)

s u b m i t n e g a t i v e r e p o r t s .

T h e E U R P I R

I n a d d i t i o n t o t h e w e e k l y c a b l e , S H A P E i s s u e d t o a l l M S C s a n d o t h e r

S u b o r d i n a t e C o m m a n d e r s , w i t h c o p i e s g o i n g t o t h e SGN a n d t o i n t e r e s t e d

n a t i o n a l a g e n c i e s , a p e r i o d i c r e v i e w of i n t e l l i g e n c e , t h e E U R P I R . T h i s

d i f f e r e d c o n s i d e r a b l y f r o m t h e w e e k l y c a b l e i n t h a t t h e i n f o r m a t i o n

p r e s e n t e d w a s , w h i l e l e s s t i m e l y , m o r e d e t a i l e d a n d r a n g e d o v e r a

g r e a t e r f i e l d of s u b j e c t m a t t e r . T h i s r e v i e w c o n t a i n e d i n f o r m a t i o n

w h i c h w a s t h o r o u g h l y c o l l a t e d a n d e v a l u a t e d a n d w a s n o t r e s t r i c t e d t o

p u r e l y m i l i t a r y i n t e l l i g e n c e m a t t e r s .

O t h e r P u b l i c a t i o n s

I n a d d i t i o n t o t h e t w o p e r i o d i c p u b l i c a t i o n s m e n t i o n e d a b o v e , S H A P E

p r o d u c e d , a n d m a i n t a i n e d i n a c u r r e n t s t a t u s , t w o m a j o r h a n d b o o k s , o n e

o n S o v i e t a n d s a t e l l i t e g r o u n d f o r c e s , t h e o t h e r on S o v i e t a n d s a t e l l i t e a i r

f o r c e s . N o S H A P E h a n d b o o k o n n a v a l f o r c e s w a s m a i n t a i n e d s i n c e t h i s

w a s f e l t t o b e m o r e w i t h i n t h e p r o v i n c e of S A C L A N T . In a d d i t i o n t o t h e s e ,

d e t a i l e d s t u d i e s o n s e l e c t e d s u b j e c t s w e r e p u b l i s h e d f r o m t i m e t o t i m e

d u r i n g 1958 a n d d i s t r i b u t e d t o 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 , a s w e l l

a s o t h e r c o m m a n d e r s i n A l l i e d C o m m a n d E u r o p e .

(8) J I C 801.

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E x p l o i t a t i o n of E a r l y W a r n i n g 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

S e a r c h i n g f o r e v e r y p o s s i b l e m e a n s of d e t e r m i n i n g i n f o r m a t i o n o n

e n e m y c a p a b i l i t i e s a n d , i f p o s s i b l e , i n t e n t i o n s , S H A P E h a d s u g g e s t e d t o

t h e n a t i o n a l a u t h o r i t i e s , a s w e l l a s t o t h e M S C s , t h a t 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 u s i n g l o n g r a n g e r a d a r s , w h i c h 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 i n 1959 , s h o u l d b e u s e d t o g a t h e r s u c h i n f o r m a t i o n . S H A P E

h a d a s k e d t h a t t h e n a t i o n s b e g i n u s i n g s u c h e a r l y w a r n i n g e q u i p m e n t a s

t h e y h a d o n a n a t i o n a l b a s i s e v e n b e f o r e t h e N A T O s y s t e m w a s p u t i n t o

e f f e c t i n 1959

T h e n i n A u g u s t 1958 , C I N C S O U T H s e n t t o S H A P E a d e t a i l e d p r o p o s a l

> fo r t h e e s t a b l i s h m e n t of a N A T O e a r l y w a r n i n g i n t e l l i g e n c e s y s t e m i n t h e

S o u t h e r n r e g i o n . C I N C S O U T H p r o p o s e d t h a t u n t i l t h e N A T O e a r l y w a r n i n g

s y s t e m w a s e f f e c t i v e , t h e n a t i o n s u s e t h e i r e a r l y w a r n i n g s e t s i n h i s

r e g i o n a s b a s i c c o l l e c t i o n d e v i c e s . H e s e t f o r t h i n d e t a i l w h y h e f e l t r a w

i n f o r m a t i o n c o u l d b e c o l l e c t e d b y s u r v e y i n g e n e m y a r e a s w i t h i n r a n g e of

r a d a r s e t s f o r e n e m y f l y i n g a c t i v i t y . T h i s i n f o r m a t i o n , i n o r d e r t o

d e v e l o p b a s i c i n t e l l i g e n c e , w o u l d b e e v a l u a t e d a n d c o r r e l a t e d a t v a r i o u s

l e v e l s w i t h i n h i s c o m m a n d . A q u a l i f i e d i n t e l l i g e n c e o f f i c e r w o u l d b e

s t a t i o n e d a t e a c h s e c t o r o p e r a t i o n s c e n t e r on a n a t i o n a l b a s i s . A l l t r a c k s

o b t a i n e d d u r i n g t h e r a d a r o p e r a t i n g h o u r s w o u l d b e s t u d i e d w i t h i n t h e SOC

a n d c o r r e l a t e d o n a p e r i o d i c b a s i s w i t h c l o s e c o o p e r a t i o n w i t h t h e a i r

d e f e n s e p e r s o n n e l . H e f e l t t h a t f r o m h i s s t a n d p o i n t t h e i n t e l l i g e n c e

p r o d u c e d b y t h e e v a l u a t i o n of t h e S O C s h o u l d b e s e n t t o N A T O s t a f f s o n

a p e r i o d i c b a s i s g o i n g t h r o u g h C O M A I R S O U T H a n d C I N C S O U T H . Ife a s k e d

t h a t S H A P E a p p r o v e t h i s p o l i c y a n d t h a t S H A P E a s k t h e M O D s i n t h e S o u t h e r n

(9) F o r d e t a i l s of t h i s s e e 1957 S H A P E H i s t o r y , C h a p t e r IX , a n d AG 3170 ID, 18 J u l 1957, E x p l o i t a t i o n of E a r l y W a r n i n g 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 .

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r e g i o n t o b e g i n t h e p r o g r a m i n c o o r d i n a t i o n w i t h A F S O U T H a n d A I R S O U T H

s o t h a t a h i g h e r d e g r e e of r e a d i n e s s c o u l d b e b r o u g h t a b o u t i n a l l

i n t e l l i g e n c e e c h e l o n s i n t h e S o u t h e r n r e g i o n . S H A P E a p p r o v e d C I N C S O U T H ' s

p r o p o s a l s a n d o n 21 M a y f o r w a r d e d t h e m t o a l l M i n i s t e r s of D e f e n s e a n d

t o C I N C N O R T H a n d C I N C E N T f o r c o m m e n t a n d p o s s i b l e a d o p t i o n o n a

1 V • ( 1 ° )

g e n e r a l b a s i s . '

C o m m e n t s f r o m t h e n a t i o n s a n d f r o m t h e M S C s w e r e g e n e r a l l y i n

a g r e e m e n t w i t h t h e p r o p o s a l s m a d e b y A F S O U T H f o r e s t a b l i s h m e n t of

t h i s s y s t e m . S e v e r a l d i s s e n t i n g v o i c e s c a m e f r o m t h e N o r t h . M O D

N o r w a y i n a l e t t e r s t a t e d t h a t h e f e l t t h a t N o r w a y c o u l d n o t a d o p t t h e t y p e

of s y s t e m a d o p t e d b y A F S O U T H b e c a u s e t h e m e t h o d of r e p o r t w a s n o t a s

g o o d a s t h a t w h i c h h e e a r l i e r h a d r e c o m m e n d e d t o S H A P E . T h e C o m m a n d

i n t h e N o r t h , C I N C N O R T H , s t a t e d t h a t h e f e l t t h a t s u c h a s y s t e m w o u l d b e

of l i t t l e v a l u e s i n c e t h e R u s s i a n s a l r e a d y k n e w t h e r a n g e of r a d a r s e t s

a l r e a d y s i t u a t e d i n N o r t h e r n E u r o p e a n d t h e y c o u l d a r r a n g e t h e i r f l y i n g

b e t w e e n t o r e f l e c t w h a t e v e r p i c t u r e t h e y d e s i r e d . ^ ^

T h i s p r o b l e m w a s d i s c u s s e d a t S H A P E b e t w e e n r e p r e s e n t a t i v e s of

I n t e l l i g e n c e D i v i s i o n , A i r D e f e n s e a n d A i r O p e r a t i o n s D i v i s i o n s o n

20 A u g u s t . T h e i r m a i n c o n c e r n w a s h o w t o g e t i n f o r m a t i o n f r o m t h e

M S C s a n d h o w t h i s i n f o r m a t i o n c o u l d b e t i e d i n w i t h o t h e r i n t e l l i g e n c e

i n f o r m a t i o n a n d w i t h S A C E U R ' s a l e r t s y s t e m . N o t m u c h p r o g r e s s w a s

m a d e d u r i n g t h e r e m a i n i n g s u m m e r m o n t h s u n t i l , on t h e 5 th S e p t e m b e r

1958 , A F S O U T H w r o t e a s t r o n g l e t t e r t o S A C E U R s t a t i n g t h a t t h e m a t t e r

(10) L e t t e r , C I N C S O U T H t o S H A P E , A D 1220 I D / 9 , 5 M a y 58 ; L e t t e r , S H A P E t o M O D s , AG 3 1 7 0 / l ID, 21 M a y 58 ;

(11) L e t t e r , M O D N o r w a y t o S A C E U R , 23 J u l 58 ; L e t t e r , A F N O R T H t o S A C E U R , Jvily 1958 , b o t h c o n t a i n e d i n I D F i l e s 3170 /1 58 . F o r d e p l o y m e n t d e t a i l e d c o m p i l a t i o n of t h i s s y s t e m , s e e s a m e f i l e .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

of e s t a b l i s h i n g a n e a r l y w a r n i n g i n t e g r a t e d i n t e l l i g e n c e s y s t e m w a s ,

i n h i s o p i n i o n , e x t r e m e l y u r g e n t . It h a d b e e n b r o u g h t o u t i n t h e

r e c e n t M e d i t e r r a n e a u a c r i s i s w h e n R u s s i a n a i r c r a f t h a d b e e n k n o w n t o

m o v e i n t o s a t e l l i t e a n d f o r w a r d R u s s i a n a i r f i e l d s w i t h i n r a n g e of

A l l i e d C o m m a n d r a d a r s t h a t t h e l a c k of t h i s i n t e g r a t e d s y s t e m

p r e v e n t e d a t i m e l y a n d c o m p l e t e a c q u i s i t i o n of i n t e l l i g e n c e b y N A T O

o n S o v i e t a i r d e p l o y m e n t . C I N C S O U T H a s k e d t h a t o n a n u r g e n t b a s i s

S H A P E e i t h e r q u e r y t h e M O D s i n t h e S o u t h o n c e m o r e a s k i n g t h e i r c o -

o p e r a t i o n i n e s t a b l i s h i n g a s y s t e m , o r t h a t S H A P E a u t h o r i z e A F S O U T H

t o c a l l a m e e t i n g of t h e M O D s f o r t h e s a m e p u r p o s e . O n 16 S e p t e m b e r ,

S H A P E r a d i o e d t o A F S O U T H s t a t i n g t h a t t h e y w e r e a u t h o r i z e d t o c a l l a

m e e t i n g of t h e r e p r e s e n t a t i v e s of t h e M O D s . S u c h a m e e t i n g w a s c a l l e d

o n 15 O c t o b e r a t N a p l e s a n d w a s a t t e n d e d b y r e p r e s e n t a t i v e s of T u r k e y ,

G r e e c e a n d I t a l y , of t h e A T A F a n d A r m y C o m m a n d e r s a n d of t h e C I N C S O U T H

I n t e l l i g e n c e D i v i s i o n . A l l p r e s e n t a g r e e d i n p r i n c i p l e t h a t i t w o u l d b e

p o s s i b l e t o e s t a b l i s h a n i n t e g r a t e d e a r l y w a r n i n g i n t e l l i g e n c e s y s t e m b y (12)

1 J a n u a r y 1959 a n d t h a t t h i s s h o u l d b e d o n e o n a n u r g e n t b a s i s . '

S i n c e 1955 S H A P E h a d b e e n d e v e l o p i n g a p l a n w h i c h w o u l d s e t f o r t h

a s c l o s e l y a s p o s s i b l e S A C E U R ' s W a r 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 i s h a d b e e n c o o r d i n a t e d c l o s e l y w i t h a n o t h e r i m p o r t a n t d o c u m e n t ,

" 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 h o r t l y b e f o r e t h e

b e g i n n i n g of t h e p e r i o d , 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 (13) h a d b e e n d e v e l o p e d a n d d i s t r i b u t e d t o a l l t h e M S C s a n d M O D s . v

(12) L e t t e r , C I N C S O U T H t o S A C E U R , AG 1220 I D / 9 , 5 Sep 58 ; M e s s a g e S H A P E 2 6 2 3 9 t o C I N C S O U T H , 16 S e p 58 ; A G 1220 I D / 9 , l e t t e r A F S O U T H t o S H A P E , 14 N o v 58, e n c l o s i n g S tudy d e v e l o p e d a t m e e t i n g .

(13) S H A P E 2 4 2 / 5 7 , 19 D e c 57 .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

D u r i n g 1958 , t h e S H A P E o f f i c e r s , i n c o o r d i n a t i o n w i t h t h e i r c o u n t e r -

p a r t s i n t h e M a j o r C o m m a n d s , a t t e m p t e d t o d e v e l o p a n d d e f i n e a s c l o s e l y

a s p o s s i b l e S A C E U R ' s W a r 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 i s w a s a

s t a t e m e n t of t h e r e q u i r e m e n t s w h i c h w o u l d b e i m p l e m e n t e d a t t h e 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 b y S A C E U R , u p o n w h i c h

M S C s w o u l d b a s e t h e i r w a r t i m e c o l l e c t i o n p l a n s . O n 1 M a y 1958 , t h e

f i n a l d r a f t of S A C E U R ' s p r o p o s e d W a r 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 w a s (14) s e n t t o t h e M S C s a s k i n g t h a t t h e y g i v e t h e i r c o m m e n t s a n d s u g g e s t i o n s .

(14) A G 3 5 0 0 / 1 9 ID , S A C E U R ' s W a r 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 , 1 M a y 58 , w i t h d r a f t e n c l o s u r e .

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C H A P T E R I X 4. — — .

A I R D E F E N S E - 1958

A m o n g t h e m o s t i m p o r t a n t a i r d e f e n s e i s s u e s f a c i n g S H A P E

d u r i n g 1 9 5 8 w a s t h a t of t h e p r o v i s i o n of a n i n t e g r a t e d a i r d e f e n s e f o r

N A T O E u r o p e . G e n e r a l N o r s t a d h a d s u b m i t t e d h i s c o n c e p t of a n

i n t e g r a t e d a i r d e f e n s e t o t h e N o r t h A t l a n t i c C o u n c i l a t t h e M i n i s t e r i a l )

M e e t i n g h e l d i n D e c e m b e r 1957. T h r o u g h o u t t h e f o l l o w i n g t w e l v e m o n t h s

a g r e a t d e a l of d i s c u s s i o n t o o k p l a c e o n t h i s p a r t i c u l a r a s p e c t of a i r

d e f e n s e p l a n n i n g . L i t t l e p r o g r e s s w a s m a d e , h o w e v e r , a n d i t w i l l b e

s e e n t h a t G e n e r a l N o r s t a d w a s f o r c e d t o m a k e a s t r o n g p e r s o n a l a p p e a l

t o t h e C o u n c i l , p o i n t i n g o u t t h a t i t w a s v i t a l t o t h e i n t e r e s t s of t h e

A l l i a n c e t h a t t h e r e w a s i n e x i s t e n c e i n p e a c e t i m e a n a d e q u a t e a i r d e f e n s e

f o r t h e N A T O t e r r i t o r y .

A c l o s e l y r e l a t e d s u b j e c t w a s t h a t of R u l e s f o r E n g a g e m e n t . N o

u n i f o r m m e t h o d of i d e n t i f y i n g a i r c r a f t w a s i n e x i s t e n c e w i t h i n N A T O .

S o m e p r o g r e s s w a s a c h i e v e d d u r i n g 1958 i n t h i s f i e l d .

T h e A C E L o n g R a n g e E a r l y W a r n i n g S y s t e m w a s a v i t a l p a r t of

S A C E U R ' s a i r d e f e n s e s . P r o g r e s s o n t h e c o n s t r u c t i o n of t h e s y s t e m w a s

d e l a y e d c o n s i d e r a b l y d u r i n g t h e y e a r o w i n g t o t e c h n i c a l d i f f i c u l t i e s .

D i f f e r e n c e s of o p i n i o n a r o s e r e g a r d i n g t h e r e q u i r e m e n t s . M u c h t i m e w a s

l o s t i n d i s c u s s i o n , h o w e v e r , a n d b y t h e e n d of 1958 w o r k w a s s t i l l i n

p r o g r e s s o n t h e p r e p a r a t i o n of s p e c i f i c a t i o n r e q u i r e m e n t s .

179

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S H A P E 5 8 / 6 7 N A T O S E C R E T

T h e I n t e g r a t i o n of t h e A i r D e f e n s e of N A T O E u r o p e

G e n e r a l N o r s t a d s u b m i t t e d h i s c o n c e p t of a n i n t e g r a t e d a i r d e f e n s e

of N A T O E u r o p e t o t h e S t a n d i n g G r o u p o n 6 D e c e m b e r 1 9 5 7 . ^ At t h e

18 th S e s s i o n of t h e M i l i t a r y C o m m i t t e e , h e l d i n P a r i s o n 18 D e c e m b e r ,

t h e C o m m i t t e e " d e c l a r e d i t s e l f i n a g r e e m e n t i n p r i n c i p l e w i t h S A C E U R ' s (2)

s t u d y . " * ' T h e S t a n d i n g G r o u p w a s r e q u e s t e d t o s t u d y t h e S H A P E s t u d y

a n d r e p o r t b a c k l a t e r t o t h e M i l i t a r y C o m m i t t e e . S A C E U R w a s a u t h o r i z e d

t o s t u d y t h e m a t t e r w i t h t h e a p p r o p r i a t e n a t i o n a l a u t h o r i t i e s a n d t h e n

d e v e l o p a n o r g a n i z a t i o n a l c o n c e p t t h a t w a s t o i n c l u d e a c o m m a n d a n d

c o n t r o l s y s t e m . A f t e r s u b m i s s i o n t o t h e S t a n d i n g G r o u p , t h e S H A P E

c o n c e p t w o u l d t h e n b e s t u d i e d b y t h e M i l i t a r y C o m m i t t e e .

In v i e w of t h e d e c i s i o n s t a k e n b y t h e M i l i t a r y C o m m i t t e e , S H A P E

n o t i f i e d a l l t h e a p p r o p r i a t e M O D s t h a t a C o n f e r e n c e w o u l d b e h e l d o n

7 J a n u a r y 1 9 5 8 t o o b t a i n n a t i o n a l v i e w s o n i n t e g r a t i o n . T h e s e v i e w s

w o u l d h e l p S H A P E t o p r o p o s e a n o u t l i n e o r g a n i z a t i o n a l c o n c e p t , a n d

a l s o h e l p i n t h e p r e p a r a t i o n of a p h a s e d p l a n g i v i n g s o m e i n d i c a t i o n of

t h e t i m i n g n e c e s s a r y t o i m p l e m e n t s u c h a p l a n .

T h e c o n f e r e n c e w a s h e l d a t S H A P E a n d w a s a t t e n d e d b y r e p r e s e n t a t i v e s

f r o m f o u r t e e n n a t i o n s , t o g e t h e r w i t h r e p r e s e n t a t i v e s f r o m t h e M S C s ,

S A C L A N T , S G N a n d S H A P E . ^ S H A P E d e f i n e d i t s c o n c e p t of t h e

p r i n c i p l e of i n t e g r a t i o n a s " T h e w e l d i n g of t h e e x i s t i n g 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 i n t o o n e u n i f i e d s y s t e m w i t h a n A l l i e d a s o p p o s e d t o

(1) A G 1250 A D , d t d 6 D e c 5 7 : S e e 1957 H i s t o r y f o r d e t a i l s of S A C E U R ' s o r i g i n a l c o n c e p t .

(2 ) SH 20414, d t d 19 D e c 57 . (3 ) A G 2 0 3 0 A D , d t d 2 3 J a n 58 . T h e s e m i n u t e s of t h e C o n f e r e n c e c o n t a i n

a u s e f u l c h a r t s h o w i n g S H A P E ' S p r o p o s a l s f o r a c o m m a n d a n d c o n t r o l o r g a n i z a t i o n .

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S H A P E 5 8 / 6 7 _ . . -N A T O S E C R E T

N a t i o n a l C o m m a n d a n d C o n t r o l o r g a n i z a t i o n e f f e c t i v e i n p e a c e a n d w a r " .

D e f i n i t i o n s w e r e a l s o g i v e n of t h e t e r m s F u l l C o m m a n d , O p e r a t i o n a l

C o m m a n d , a n d O p e r a t i o n a l C o n t r o l . S H A P E ' S p r o p o s a l w a s f o r t h e

i n t e g r a t i o n of t h e c o m m a n d a n d c o n t r o l s y s t e m a n d n o t t h e i n t e g r a t i o n of

t h e n a t i o n a l f i g h t i n g u n i t s w h i c h w e r e o p e r a t e d b y t h e A l l i e d S y s t e m .

N a t i o n a l a i r d e f e n s e u n i t s , w h e t h e r t h e y w e r e s q u a d r o n s of m a n n e d a i r c r a f t

o r of m i s s i l e s , w o u l d s t i l l b e 100% n a t i o n a l e v e n t h o u g h c o m m a n d e d a n d

c o n t r o l l e d t h r o u g h a n a l l i e d o r g a n i z a t i o n . S H A P E w o u l d p r o p o s e f o r c e

l e v e l s a n d i t w o u l d s t i l l b e f o r t h e n a t i o n s t o d e c i d e w h e t h e r t o a c c e p t

t h e s e l e v e l s o r n o t . N a t i o n s w o u l d s t i l l h a v e t h e r i g h t t o c o n t r o l p o l i c y j

o n a i r d e f e n s e .

T h e n a t i o n a l r e p r e s e n t a t i v e s r a i s e d v a r i o u s p r o b l e m s , d e a l i n g w i t h

s u c h i s s u e s a s n a t i o n a l s o v e r e i g n t y , i n t e r n a t i o n a l f u n d i n g , c o m m a n d a n d

c o n t r o l a n d t h e c o m p o s i t i o n of t h e c o m m a n d s t a f f .

In r e s p o n s e t o t h e r e s o l u t i o n m a d e a t t h e 18th S e s s i o n of t h e M i l i t a r y

C o m m i t t e e , S A C E U R s u b m i t t e d h i s r e c o m m e n d a t i o n s o n t h e o r g a n i z a t i o n

a n d c o m m a n d s t r u c t u r e f o r t h e i n t e g r a t i o n of a i r d e f e n s e i n N A T O E u r o p e .

In a l e t t e r t o t h e S t a n d i n g G r o u p h e s t a t e d t h a t t h e s e p r o p o s a l s h a d b e e n

e v o l v e d " l a r g e l y a s t h e r e s u l t of d i s c u s s i o n s w i t h m i l i t a r y r e p r e s e n t a t i v e s

of N a t i o n s a n d m y s u b o r d i n a t e c o m m a n d s . W h i l e t h e v i e w s I p u t f o r w a r d

a r e i n g e n e r a l a c c o r d w i t h t h e c o n s e n s u s e x p r e s s e d a t t h e m e e t i n g s , i t

s h o u l d b e r e m e m b e r e d t h a t t h e r e p r e s e n t a t i v e s w e r e n o t a b l e t o p r e s e n t

f o r m a l n a t i o n a l v i e w p o i n t s , a n d t h a t i n d i v i d u a l v i e w s on s p e c i f i c p o i n t s w e r e

n o t a l w a y s u n a n i m o u s . I b e l i e v e , h o w e v e r , t h a t t h e s e p r o p o s a l s a r e n o w i n (4) a f o r m w h i c h m e r i t s f o r m a l c o n s i d e r a t i o n b y t h e M i l i t a r y C o m m i t t e e . " * '

(4) A G 1250 A D , d t d 27 F e b 58 . I n t e g r a t i o n of a i r d e f e n s e .

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S H A P E 5 8 / 6 7 m

S A C E U R ' s p r o p o s a l t r a c e d t h e h i s t o r i c a l b a c k g r o u n d t o t h e

i n t e g r a t i o n p r o b l e m , d e f i n e d t h e t e r m s u s e d a n d e x p l a i n e d t h e c o n c e p t

of t h e s y s t e m . T h e e s s e n c e of i n t e g r a t i o n a s p r o p o s e d w a s t h e a s s i g n -

m e n t b y n a t i o n s t o S A C E U R i n p e a c e a n d w a r of t h e r e s p o n s i b i l i t y , t h e

n e c e s s a r y f o r c e s , a n d t h e a u t h o r i t y t o d e f e n d t h e n a t i o n s of N A T O E u r o p e

a g a i n s t a i r a t t a c k . " U n d e r t h i s c o n c e p t t h e r e s p o n s i b i l i t y a s s i g n e d t o

S A C E U R m u s t b e c l e a r . T h e r e s h o u l d b e n o d i v i s i o n of c o n t r o l of a i r

d e f e n s e o p e r a t i o n s b e t w e e n n a t i o n a l a n d a l l i e d a u t h o r i t i e s . "

S A C E U R p o i n t e d o u t t h a t if t h e p r o p o s a l w a s a g r e e d , " t h e f o r c e s

a n d f a c i l i t i e s , n o w n a t i o n a l , w i l l h a v e t o b e a s s i g n e d t o S A C E U R i n p e a c e

' a n d w a r . T h e f o r c e s s o a s s i g n e d w i l l i n c l u d e a l l a i r d e f e n s e f i g h t e r

u n i t s , s u r f a c e - t o - a i r m i s s i l e u n i t s a n d a n t i - a i r c r a f t a r t i l l e r y u n i t s u s e d

f o r t h e d e f e n s e of A l l i e d C o m m a n d E u r o p e . In a d d i t i o n , i t s h o u l d i n c l u d e

t h e u n i t s u s e d f o r c o m m a n d a n d c o n t r o l . T h e s e m u s t b e d e s i g n a t e d a s

a s s i g n e d u n i t s a n d i t m u s t b e c l e a r l y s t a t e d t h a t t h e y a r e p l a c e d u n d e r

S A C E U R ' s o p e r a t i o n a l c o m m a n d a n d c o n t r o l , s u b j e c t t o s u c h s p e c i f i c

r e s e r v a t i o n s a n d d i r e c t i o n a s a r e n e c e s s a r y on t h e i r u t i l i z a t i o n i n p e a c e

a n d w a r . T h e o p e r a t i o n a n d e m p l o y m e n t of t h e s e a s s i g n e d f o r c e s b y

S A C E U R s h o u l d b e g o v e r n e d p r i m a r i l y b y t h e r u l e s of e n g a g e m e n t n o w

b e f o r e t h e c o u n c i l f o r a c t i o n w h i c h w i l l b e a m p l i f i e d b y m o r e c o m p r e h e n s i v e

a n d e x p l i c i t r u l e s t o b e p r o p o s e d b y S A C E U R a n d s u b m i t t e d f o r a p p r o v a l a t

a l a t e r d a t e . T h e s e r u l e s s h o u l d I n d i c a t e c l e a r l y t h e d e f e n s i v e a c t i o n s

w h i c h s h o u l d b e t a k e n t o c o u n t e r a n y p e n e t r a t i o n of o u r A l l i e d C o m m a n d

E u r o p e a i r s p a c e b y h o s t i l e o r p o t e n t i a l l y h o s t i l e a i r c r a f t o r m i s s i l e s . "

T h e r e s p o n s i b i l i t i e s a n d s a f e g u a r d s t h a t w e r e n e c e s s a r y t o p r o t e c t

n a t i o n a l i n t e r e s t s a n d t o c l a r i f y A l l i e d t a s k s w e r e t h e n a n a l y z e d . C e r t a i n

p r i n c i p l e s w e r e e s t a b l i s h e d :

182.

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a . N a t i o n a l a i r d e f e n s e u n i t s w o u l d b e a s s i g n e d t o S A C E U R a n d

p l a c e d u n d e r h i s o p e r a t i o n a l c o n t r o l a n d c o m m a n d i n p e a c e a n d w a r , b u t

s u b j e c t t o s u c h g u i d a n c e a n d r e s t r i c t i o n a s m i g h t b e i m p o s e d i n r e s p e c t of

e m p l o y m e n t a n d d e p l o y m e n t of f o r c e s .

b . A s s i g n e d a i r d e f e n s e f o r c e s w o u l d n o t b e u s e d f o r t a s k s o t h e r

t h a n a i r d e f e n s e w i t h o u t n a t i o n a l a p p r o v a l .

c . A s s i g n e d a i r d e f e n s e u n i t s w o u l d , i n g e n e r a l , b e d e p l o y e d i n

n a t i o n a l t e r r i t o r y u n l e s s e x c e p t i o n s t o 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 .

d . T h e c o m p o s i t i o n of A l l i e d a i r d e f e n s e s t a f f s a t e a c h l e v e l w o u l d

jbe b r o a d l y i n p r o p o r t i o n t o t h e n a t i o n a l i t y a n d s e r v i c e of t h e f o r c e s a n d

f a c i l i t i e s c o n t r i b u t e d t o e a c h a l l i e d c o m m a n d .

e . C o n t r o l a n d r e p o r t i n g c e n t e r s a n d s t a t i o n s w o u l d b e m a n n e d

p r i m a r i l y b y t h e n a t i o n i n w h o s e t e r r i t o r y t h e y w e 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 d e m a n d e d o t h e r w i s e .

f . T h e l o g i s t i c a l s u p p o r t of a s s i g n e d u n i t s w o u l d r e m a i n a n a t i o n a l

r e s p o n s i b i l i t y .

g . A d m i n i s t r a t i o n a n d d i s c i p l i n e of p e r s o n n e l a s s i g n e d t o a l l i e d

o r g a n i z a t i o n s w o u l d r e m a i n a r e s p o n s i b i l i t y of t h e n a t i o n c o n c e r n e d .

h . T h e a l l i e d a i r d e f e n s e o r g a n i z a t i o n w o u l d c o n t i n u e t o p r o v i d e

t h e i n f o r m a t i o n n o r m a l l y s u p p l i e d by n a t i o n a l a i r d e f e n s e a u t h o r i t i e s f o r

a l l m a t t e r s w h i c h r e m a i n e d N a t i o n a l i n c h a r a c t e r . T h i s w o u l d i n c l u d e

i n f o r m a t i o n w h i c h w a s n e c e s s a r y f r o m m i l i t a r y a u t h o r i t i e s f o r t h e N a t i o n a l

c o n t r o l of c i v i l a v i a t i o n a n d c i v i l d e f e n s e .

I t w a s c o n s i d e r e d t h a t b e c a u s e of t h e e x t e n t of t h e a r e a t o b e c o v e r e d

( a s l a i d d o w n i n M C 54) , i t w a s d e s i r a b l e t h a t t h e s y s t e m s h o u l d b e

o r g a n i z e d i n t o r e g i o n s . T h e e x i s t i n g r e g i o n a l b o u n d a r i e s w e r e t o a p p l y

183

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u n t i l s u c h t i m e a s a d j u s t m e n t s t o t h e s e b o u n d a r i e s b e c a m e d e s i r a b l e .

T h e r e g i o n a l c o m m a n d o r g a n i z a t i o n s s h o u l d b e b a s e d on e x i s t i n g a l l i e d

a n d n a t i o n a l f a c i l i t i e s , h e a d q u a r t e r s a n d s t a f f s , a s f a r a s p o s s i b l e a n d

s h o u l d c o n f o r m t o t h e f o l l o w i n g r e q u i r e m e n t s :

a . T h e r e s h o u l d c o n t i n u e t o b e o n e r e g i o n a l h e a d q u a r t e r s i n e a c h

r e g i o n . T h e c o m m a n d e r w a s t o b e 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 c o m m a n d

of a l l a s s i g n e d a i r d e f e n s e f o r c e s a n d f a c i l i t i e s i n t h e r e g i o n . B e l o w

r e g i o n a l l e v e l , t h e e x i s t i n g o r g a n i z a t i o n s w e r e t o b e u s e d , b u t t o b e a l l i e d

i n n a t u r e .

b . T h e c o m m a n d e r s a t A T A F , D A T o r e q u i v a l e n t l e v e l b e l o w t h e

r e g i o n a l h e a d q u a r t e r s w e r e t o b e 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 c o n t r o l

of a l l a s s i g n e d u n i t s i n t h e i r a r e a s .

c . A t s e c t o r l e v e l , t h e a i r d e f e n s e c o m m a n d e r ( s e c t o r c o m m a n d e r )

w a s t o b e r e s p o n s i b l e f o r t h e t a c t i c a l c o n t r o l of u n i t s i n h i s a r e a .

I t w a s p o i n t e d o u t t h a t i t w a s h i g h l y d e s i r a b l e t h a t t h e d a t a h a n d l i n g

s y s t e m , n e c e s s a r y f o r c o m m a n d c o n t r o l , s h o u l d a l s o b e u n d e r a l l i e d

c o n t r o l . I t w a s t h e S H A P E v i e w t h a t t h e C o n t r o l a n d R e p o r t i n g S y s t e m

s h o u l d b e a s s i g n e d t o S A C E U R . T h u s i t w a s d e s i r a b l e t h a t n a t i o n a l r a d a r s

a n d o t h e r e q u i p m e n t s w h i c h w e r e t o b e i n t e g r a t e d , s h o u l d b e c o m e a l l i e d on

a n a g r e e d b a s i s . S u b s e q u e n t i m p r o v e m e n t s a n d m o d i f i c a t i o n s w o u l d t h e n

b e a n a l l i e d r e s p o n s i b i l i t y .

F i n a l l y , a p h a s e d t i m e s e q u e n c e t o i n t e g r a t e t h e s y s t e m w a s

s u g g e s t e d . T h e S H A P E v i e w w a s t h a t t h e p a t t e r n of i n t e g r a t i o n s h o u l d

b e e s t a b l i s h e d i n o n e a r e a f i r s t - t h e L a n d C o m b a t A r e a of C e n t r a l E u r o p e .

T h e a r e a c o u l d t h e n b e e x t e n d e d a s r a p i d l y a s c o n d i t i o n s p e r m i t t e d . T h e

p h a s e d b a s i s w a s s u g g e s t e d a s f o l l o w s :

P h a s e IA - F e d e r a l R e p u b l i c of G e r m a n y , B e l g i u m , H o l l a n d a n d

N o . 2 S e c t o r of F r e n c h D A T .

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>

P h a s e I B - R e m a i n d e r of M e t r o p o l i t a n F r a n c e .

P h a s e I C - U K , t h e S o u t h e r n R e g i o n , t h e N o r t h e r n R e g i o n .

T h e SGN w a s a s k e d t o a p p r o v e S A C E U R ' s r e c o m m e n d a t i o n s f o r t h e

i n t e g r a t i o n of a i r d e f e n s e u n d e r h i s c o m m a n d i n p e a c e a n d w a r . S A C E U R

a l s o a s k e d t h a t h e b e d i r e c t e d t o i n i t i a t e a c t i o n t o e f f e c t t h e i n t e g r a t i o n of

a i r d e f e n s e o n t h e a g r e e d b a s i s . N a t i o n s s h o u l d b e r e q u e s t e d t o a s s i g n

t h e i r a i r d e f e n s e f o r c e s t o S A C E U R ' s o p e r a t i o n a l c o m m a n d i n p e a c e a n d

w a r , s u b j e c t t o t h e i r r e s t r i c t i o n s o n t h e d e p l o y m e n t a n d e m p l o y m e n t .

F i n a l l y , S A C E U R a s k e d t h a t a g r e e m e n t i n p r i n c i p l e b e g i v e n t o t h e c o m m o n

f u n d i n g of c h a n g e s a n d i m p r o v e m e n t s i n e q u i p m e n t a n d f a c i l i t i e s i n t h e

c o n t r o l a n d r e p o r t i n g s y s t e m of A C E .

F o l l o w i n g a p p r o v a l b y t h e M i l i t a r y C o m m i t t e e i n A p r i l 1958 of

S A C E U R ' s p r o p o s a l s f o r t h e I n t e g r a t i o n of A i r D e f e n s e s of N A T O E u r o p e ,

M C 5 4 / 1 w a s i s s u e d i n d r a f t b y t h e S t a n d i n g G r o u p . O n 30 A p r i l 1958 ,

S H A P E r e q u e s t e d 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 t o p r o c e e d w i t h

d e t a i l e d p l a n n i n g w i t h t h e o b j e c t i v e of r e d u c i n g t o a m i n i m u m t h e t i m e b e t w e e n C o u n c i l a p p r o v a l , if a n d w h e n t h i s w a s g i v e n , a n d a c t u a l

(5)

i m p l e m e n t a t i o n . S u b s e q u e n t l y , S H A P E h e l d s e v e r a l c o n f e r e n c e s w i t h

t h e r e g i o n a l s t a f f s , a n d t h e r e g i o n s p r e p a r e d p r e l i m i n a r y d r a f t s of t h e i r

s h o r t t e r m o p e r a t i o n a l p l a n s f o r t h e i n t e g r a t e d s y s t e m . S H A P E t h e n

d i r e c t e d t h e M S C s t o f i n a l i z e t h e s e p l a n s a f t e r i n f o r m a l c o n s u l t a t i o n w i t h

n a t i o n a l c o m m a n d s a n d t o s u b m i t t h e m t o S H A P E b y 31 D e c e m b e r 1 9 5 8 . ^

R e g i o n s w e r e a l s o r e q u e s t e d t o p r e p a r e p l a n s f o r t h e p h a s e d i m p r o v e m e n t s

of t h e N A T O A i r D e f e n s e S y s t e m , w h i c h w e r e f o r e s e e n t o b e n e c e s s a r y u p

t o 1963 .

( 5 ) ' A G 1250 AD, d t d 30 A p r 58 . S H A P E t o C I N C N O R T H , C I N C E N T , - C I N C S O U T H a n d C - i n - C F i g h t e r C o m m a n d , e n c l o s i n g d r a f t M C 5 4 / l .

(6) SCO O U T 27421, d t d 31 O c t 58, t o a l l R e g i o n s .

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O n 6 N o v e m b e r 1958 , t h e S t a n d i n g G r o u p w a s i n f o r m e d of t h e

p r o g r e s s i n p l a n n i n g f o r i n t e g r a t i o n i n o r d e r t h a t i t w o u l d b e i n a p o s i t i o n

t o i n f o r m t h e M i l i t a r y C o m m i t t e e of t h e s t a t u s a n d f u t u r e s t e p s e n v i s a g e d (7)

l e a d i n g t o t h e c o m p l e t i o n of S H A P E ' S p l a n . v ' S H A P E s t a t e d t h a t a n

o p e r a t i o n a l A C E O u t l i n e P l a n w a s b e i n g p r e p a r e d i n b r o a d t e r m s . T h i s

w o u l d b e f i n a l i z e d a f t e r r e c e i p t of t h e r e g i o n a l s h o r t t e r m p l a n s .

A m o n g t h e p r o b l e m s w h i c h S H A P E h a d a g r e e d t o s t u d y w a s t h e a i r

d e f e n s e of P o r t u g a l . S A C L A N T h a d r e c o m m e n d e d t h a t S A C E U R s h o u l d

a s s u m e r e s p o n s i b i l i t y f o r t h i s , a n d S H A P 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

w i t h t h e e a r l y w a r n i n g a s p e c t a s p e r t a i n e d t o t h e P o r t u g u e s e s y s t e m .

O t h e r p r o b l e m s i n c l u d e d p o s s i b l e c h a n g e s i n 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 , r e g i o n a l b o u n d a r y a d j u s t m e n t s , m o d i f i c a t i o n of e a r l y

w a r n i n g c o m m u n i c a t i o n s , e t c .

C o n c u r r e n t l y w i t h t h e i m m e d i a t e a c t i o n s r e q u i r e d , S H A P E w a s a l s o

p l a n n i n g f o r p h a s e d i m p r o v e m e n t s of t h e N A T O a i r d e f e n s e s y s t e m u p t o

1963 . T w o a s p e c t s of t h i s l o n g - r a n g e p l a n n i n g w e r e b e i n g c o n s i d e r e d .

T h e f i r s t d e a l t w i t h t h e c h a n g i n g n a t u r e of t h e t h r e a t , t h e c o n s e q u e n t

c h a n g e s i n o p e r a t i o n a l c o n c e p t s a n d o r g a n i z a t i o n a l c h a n g e s t h a t w e r e

l i k e l y t o b e r e q u i r e d . T h e s e c o n d a s p e c t c o n c e r n e d e q u i p m e n t c h a n g e s ,

i n c l u d i n g r e q u i r e m e n t s f o r n e w r a d a r s , d a t a h a n d l i n g e q u i p m e n t

c o m p u t o r 8 , e t c . A s a n i n i t i a l s t e p i n t h e l o n g - r a n g e p l a n n i n g , S H A P E

w o u l d p r o p o s e t h a t I n f r a s t r u c t u r e f u n d i n g ( c o m m o n f u n d i n g ) b e a p p l i e d

t o t h e C o n t r o l a n d R e p o r t i n g S y s t e m , d o w n t o a n d i n c l u d i n g s e c t o r o p e r a t i o n s

c e n t e r s . H o w e v e r , S H A P E c o n s i d e r e d t h a t b e c a u s e of t h e n a t u r e of t h i s

l o n g e r r a n g e p l a n , i t w o u l d n o t n e c e s s a r i l y b e c o m p l e t e d p r i o r t o a c t u a l

i n t e g r a t i o n . T h e p l a n w o u l d b e s u b m i t t e d a t a l a t e r d a t e .

(7) A G 1 2 5 0 / 1 5 A D E F , d t d 6 N o v 58 . P r o g r e s s i n P l a n n i n g f o r I n t e g r a t i o n of A i r D e f e n s e s f o r N A T O E u r o p e . S H A P E t o S G N .

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T h e S t a n d i n g G r o u p w a s i n f o r m e d t h a t S A C E U R c o n s i d e r e d t h e m o s t

i m p o r t a n t s i n g l e p r o b l e m r e q u i r i n g s o l u t i o n p r i o r t o t h e i m p l e m e n t a t i o n

of a n y a p p r o v e d p l a n f o r i n t e g r a t i o n w a s t h a t of a c o m p r e h e n s i v e a n d

a g r e e d s e t of R u l e s of E n g a g e m e n t . T h e r e c e n t a p p r o v a l of M C 66 w a s

a s t e p i n t h e r i g h t d i r e c t i o n . T h e r u l e s s e t ou t i n M C 66 w e r e i n

e s s e n c e a n i n t e r r o g a t i o n p r o c e d u r e , a p p l i c a b l e s o l e l y t o m a n n e d i n t e r -

c e p t o r s d e a l i n g w i t h i n c u r s i o n s b y o n e o r t w o a i r c r a f t u n d e r v i s u a l f l i g h t

c o n d i t i o n s . M C 66 d i d n o t e s t a b l i s h a p a t t e r n f o r o p e r a t i o n a l r e a c t i o n

i n o t h e r c i r c u m s t a n c e s . T h e s e r u l e s h a d t o b e e x p a n d e d i n s u f f i c i e n t

d e t a i l t o p r o v i d e a b a s i s of a u t h o r i t y u n d e r w h i c h S A C E U R c o u l d i s s u e

h i s g u i d a n c e a n d i n s t r u c t i o n s t o s u b o r d i n a t e e l e m e n t s of h i s c o m m a n d on )

t h e s p e c i f i c a c t i o n s h e r e q u i r e d i n r e s p o n s e t o a w i d e r a n g e of t y p e s of

v i o l a t i o n of N A T O a i r s p a c e . S H A P E s t a t e d t h a t t h e R u l e B of E n g a g e m e n t

h a d t o s t a t e e x a c t l y w h a t r e a c t i o n w a s r e q u i r e d i n r e s p o n s e t o d i f f e r e n t

s c a l e s of e n e m y o r u n i d e n t i f i e d a c t i v i t y i n t h e N A T O a i r s p a c e , u n d e r a l l

c o n d i t i o n s of w e a t h e r a n d l i g h t , a n d h a d t o c o v e r a l l a v a i l a b l e w e a p o n s

s y s t e m s i n c l u d i n g s u r f a c e - t o - a i r m i s s i l e s .

S H A P E s t a t e d t h a t t h e r e w e r e d o u b t s a s t o w h e t h e r i t w o u l d b e

p o s s i b l e t o o b t a i n a g r e e m e n t b e t w e e n n a t i o n a l , r e g i o n a l a n d S H A P E v i e w s

b y t h e t i m e t h a t t h e A C E O u t l i n e P l a n w a s s u b m i t t e d t o t h e SGN. A c t i o n

w a s b e i n g t a k e n t o d e t e r m i n e t h e s c o p e a n d n a t u r e of b o t h S A C E U R ' s

R u l e s a n d t h e n e c e s s a r y a m p l i f i c a t i o n of M C 66, b u t i t w a s p r o b a b l e t h a t

> a s o l u t i o n w o u l d n o t b e r e a c h e d b e f o r e S p r i n g 1959.

F i n a l l y , S H A P E i n d i c a t e d t h a t t h e f o l l o w i n g s e q u e n c e of a c t i o n s

. w a s n e c e s s a r y b e f o r e i n t e g r a t i o n c o u l d t a k e p l a c e :

a . O n a p p r o v a l of M C 5 4 / 1 b y t h e C o u n c i l , i s s u a n c e of t h e

d i r e c t i v e b y t h e M i l i t a r y C o m m i t t e e t o S A C E U R .

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S H A P E 5 8 / 6 7 N A T O R E S T R I C T !

N A T O S E C R E T

b . C o m p l e t i o n b y R e g i o n s a n d s u b m i s s i o n t o S H A P E b y 31 D e c e m b e r

1 9 5 8 of t h e r e g i o n a l s h o r t t e r m o p e r a t i o n a l p l a n s f o r i n t e g r a t i o n .

c . C o m p l e t i o n b y S H A P E a n d s u b m i s s i o n of t h e A C E O u t l i n e P l a n

t o S G N .

d . T h e t r a n s f e r f r o m n a t i o n a l t o a l l i e d e s t a b l i s h m e n t s t h o s e

p o s t s w h i c h u n d e r i n t e g r a t i o n w o u l d b e m a n n e d b y a l l i e d p e r s o n n e l .

e . C o m p l e t i o n b y S H A P E a n d s u b m i s s i o n t o t h e S t a n d i n g G r o u p of

p r o p o s a l s f o r t h e b a s i c R u l e s of E n g a g e m e n t .

f . A p p r o v a l of t h e b a s i c R u l e s of E n g a g e m e n t .

g . A p p r o v a l of t h e A C E O u t l i n e P l a n ,

h . I s s u a n c e of S A C E U R ' s i n s t r u c t i o n s t o M S C s .

i . A s s i g n m e n t of f o r c e s a n d f a c i l i t i e s b y t h e N A T O n a t i o n s , t h e

a s s i g n m e n t s t o b e e f f e c t i v e on t h e d e s i g n a t e d i n t e g r a t i o n d a t e .

S H A P E a l s o i n d i c a t e d t o t h e SGN t h o s e a c t i o n s w h i c h c o u l d b e t a k e n

a s s o o n a s p o s s i b l e b u t w h i c h d i d n o t n e e d c o m p l e t i o n b e f o r e t h e

i m p l e m e n t a t i o n of i n t e g r a t i o n . T h e s e i n c l u d e d t h o s e p r o b l e m s d e a l i n g

w i t h b o u n d a r y c h a n g e s , c o m m o n f u n d i n g , e t c .

G e n e r a l S c h u y l e r , s p e a k i n g a t a M e e t i n g w i t h D i v i s i o n C h i e f s o n

2 2 O c t o b e r 1958 , n o t e d t h a t G e n e r a l N o r s t a d w a s c o n c e r n e d o v e r

r e s e r v a t i o n s d e v e l o p i n g w i t h i n c e r t a i n n a t i o n s o n t h e m a t t e r of i n t e g r a t i n g (8)

a i r d e f e n s e . N o r w a y a n d D e n m a r k a p p e a r e d t o h a v e c e r t a i n

c o n s t i t u t i o n a l p r o b l e m s w h i c h w o u l d n o t p e r m i t t h e m t o a s s i g n t h e i r a i r

d e f e n s e f o r c e s t o S A C E U R i n p e a c e t i m e . S A C E U R ' s v i e w w a s t h a t if h e

w a s t o a s s u m e r e s p o n s i b i l i t y f o r t h e a i r d e f e n s e of N A T O ' s t e r r i t o r y , h e

w o u l d h a v e t o h a v e t h e f o r c e s a v a i l a b l e t o h i m i n p e a c e t i m e , a n d h e w o u l d

h a v e t o h a v e t h e a u t h o r i t y t o g i v e t h e m i n s t r u c t i o n s t o r e a c t a s a n d w h e n t h e

(8 ) S E C 2 0 3 0 , d t d 22 O c t 58 .

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S H A P E 5 8 / 6 7

*

»

a c t u a l t h r e a t d e v e l o p e d . H e c o u l d n o t c o m p r o m i s e on t h a t i s s u e .

H t h e n a t i o n s w e r e n o t w i l l i n g t o t a k e t h e n e c e s s a r y s t e p s t o g i v e h i m

t h i s a u t h o r i t y , S A C E U R w o u l d n o t p r e s s f o r t h i s a u t h o r i t y s o l o n g a s

t h e n a t i o n s c l e a r l y u n d e r s t o o d w h a t w a s a t s t a k e a n d t h a t t h e e f f e c t i v e n e s s

of t h e a i r d e f e n s e of t h e i r r e g i o n w o u l d b e p r a c t i c a l l y z e r o w i t h o u t s o m e

c o o r d i n a t e d a p p r o a c h .

A i r D e f e n s e D i v i s i o n a t S H A P E p r e p a r e d a b r i e f f o r S A C E U R i n

o r d e r t h a t h e c o u l d t a k e u p a p o s i t i o n w i t h r e g a r d t o M C 5 4 / 1 . T h e

b r i e f w a s p r e p a r e d j u s t p r i o r t o 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 h e l d

M C 5 4 / 1 w a s a c c e p t a b l e t o S H A P E , s u b j e c t t o o n e m i n o r a m e n d m e n t .

A c c e p t a n c e b y t h e M i l i t a r y C o m m i t t e e , h o w e v e r , h i n g e d o n t w o p o i n t s .

D e n m a r k a n d N o r w a y w e r e u n w i l l i n g t o a s s i g n f o r c e s . A s i n t e g r a t i o n i n

t h e N o r t h e r n R e g i o n , a s e l s e w h e r e , w o u l d b e c o m e e f f e c t i v e o n l y a t a

t i m e w h e n S A C E U R a n d n a t i o n s c o n c e r n e d c o n c u r r e d , i t w a s t h e S H A P E

v i e w t h a t t h e t w o n a t i o n s s h o u l d b e e n c o u r a g e d t o a p p r o v e M C 5 4 / l . S i n c e

t h e d a t e f o r i n t e g r a t i o n i n t h e N o r t h e r n R e g i o n w a s i n t h e i n d e f i n i t e f u t u r e ,

t h e r e a p p e a r e d t o b e n o r e a s o n w h y N o r w a y a n d D e n m a r k c o u l d n o t a p p r o v e

t h e d o c u m e n t .

I t w a s p o s s i b l e t h a t F r a n c e w o u l d n o t a c c e p t t h e f u l l d e g r e e of

i n t e g r a t i o n p r o p o s e d . It w a s b e l i e v e d a d v i s a b l e t o e m p h a s i z e t o t h e

S t a n d i n g G r o u p a n d t h e M i l i t a r y C o m m i t t e e t h a t u n i t s o p e r a t i n g u n d e r t h e

A l l i e d s y s t e m w o u l d r e m a i n n a t i o n a l a n d t h a t t h e r e w a s n o i n t e n t t o m a k e

s u c h f o r c e s i n t e r n a t i o n a l i n c h a r a c t e r .

o n 26 N o v e m b e r 1958. (9)

(9) A D E F 1 2 5 0 / 1 5 , d t d 24 N o v 58 .

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S H A P E 5 8 / 6 7 IN M I f t f O rffifôSîCI

A t i t s 21s t S e s s i o n on 26 N o v e m b e r 1958, t h e M i l i t a r y C o m m i t t e e

a m e n d e d a n d a p p r o v e d M C 5 4 / l . ^ ^ T h r e e n a t i o n s - D e n m a r k , t h e U K

a n d F r a n c e - r e s e r v e d t h e i r p o s i t i o n s .

D e n m a r k a c c e p t e d M C 5 4 / 1 a s i t s t o o d s u b j e c t t o a l a t e r a g r e e m e n t

b e t w e e n S A C E U R a n d t h e D a n i s h a u t h o r i t i e s . T h e D a n i s h c o n s t i t u t i o n

m a d e t h i s a g r e e m e n t n e c e s s a r y . T h e U K a l s o a c c e p t e d t h e g e n e r a l

c o n c e p t of a n i n t e g r a t e d a i r d e f e n s e of N A T O E u r o p e u n d e r t h e d i r e c t i o n

of S A C E U R . T h e r e s e r v a t i o n a r o s e b e c a u s e t h e U K a u t h o r i t i e s w a n t e d

p r e c i s e d e f i n i t i o n s of " o p e r a t i o n a l c o m m a n d " a n d " o p e r a t i o n a l c o n t r o l . "

T h e F r e n c h r e s e r v a t i o n w a s m o r e c o m p l e x . T h e F r e n c h i R e p r e s e n t a t i v e m a d e t h e f o l l o w i n g s t a t e m e n t : " F r a n c e c o n s i d e r s t h a t

t h e d o c u m e n t M C 5 4 / l , T h e I n t e g r a t i o n of A i r D e f e n c e i n N A T O E u r o p e ,

c o n s t i t u t e s a n e x c e l l e n t p r e s e n t a t i o n of m o s t of t h e p r o b l e m s t h a t h a v e

t o b e s o l v e d i n o r d e r t o a c h i e v e , i n c o m m o n , an e f f e c t i v e A i r D e f e n c e

of E u r o p e . H o w e v e r , t h e r e r e m a i n t o o m a n y m a j o r p r o b l e m s , n o t

a p p r o a c h e d h e r e , a n a c c e p t a b l e s o l u t i o n of w h i c h i s e s s e n t i a l t o g i v e

p r a c t i c a l v a l u e t o t h e c o n c e p t of t h e A i r D e f e n c e of N A T O E u r o p e .

" I n t h e s e c i r c u m s t a n c e s , i t a p p e a r s t h a t a p p r o v a l of M C 5 4 / l a t

t h i s s t a g e a n d i t s f o r w a r d i n g t o t h e C o u n c i l w o u l d e n t a i l m o r e

d i f f i c u l t i e s a n d m i s u n d e r s t a n d i n g s t h a n c o n t r i b u t i o n s t o t h e o b j e c t i v e .

" T h e F r e n c h c o m m e n t s r e f e r , i n t e r a l i a , t o t h e p r o b l e m s of t h e

r i g h t t o o p e n f i r e , t h e i n c l u s i o n of s e a a r e a s , t h e d e l i n e a t i o n of i n t e r -

r e g i o n a l b o u n d a r i e s a s w e l l a s t o t h e m e t h o d s f o r p r o v i d i n g t h e e q u i p m e n t

a n d f i n a n c i n g .

(10) M C 5 4 / 1 ( D e c i s i o n ) , d t d 2 6 N o v 58 . See a l s o S E C 2 0 3 0 , C o f S M e e t i n g w i t h D i v i s i o n C h i e f s , 3 D e c 58 - S t a t e m e n t b y AM D u n l a p , D C O S H A P E .

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S H A P E 5 8 / 6 7

" T h e F r e n c h a u t h o r i t i e s h o p e d t h a t t h e M i l i t a r y C o m m i t t e e w o u l d

t a k e n o t e of t h i s d o c u m e n t a n d i n s t r u c t t h e S u p r e m e A l l i e d C o m m a n d e r

E u r o p e t o c o n t i n u e h i s s t u d i e s , h i s p l a n s a n d h i s d i s c u s s i o n s w i t h t h e

n a t i o n s c o n c e r n e d a n d t h a t t h e S t a n d i n g G r o u p m a k e a p r o g r e s s r e p o r t

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 w i t h i n a r e a s o n a b l e p e r i o d of t i m e ,

t h u s e n a b l i n g t h e M i l i t a r y C o m m i t t e e t o h a v e a m o r e c o m p r e h e n s i v e i

v i e w of t h e p o s s i b l e s o l u t i o n s t o t h e r e m a i n i n g p r a c t i c a l d i f f i c u l t i e s t o

b e o v e r c o m e .

" I n v i e w of t h e o p i n i o n e ^ r e s s e d b y t h e o t h e r m e m b e r s of t h e

C o m m i t t e e , F r a n c e w i l l n o t o p p o s e t h e f o r w a r d i n g of t h i s d o c u m e n t

•>to t h e C o u n c i l . H o w e v e r , F r a n c e m u s t e x p r e s s a v e r y d e f i n i t e

r e s e r v a t i o n f o r t h e p r e s e n t c o n c e r n i n g t h e w h o l e d o c u m e n t . F r a n c e

f u r t h e r r e q u e s t s t h a t t h e n a t i o n s a n d t h e S u p r e m e A l l i e d C o m m a n d e r

E u r o p e , w i t h i n t h e f r a m e w o r k of d o c u m e n t s n o w i n e f f e c t a n d g u i d e d b y

t h e a g r e e m e n t i n p r i n c i p l e g i v e n l a s t y e a r , c o n t i n u e t o m a k e p r o g r e s s i n

t h e f i e l d of A i r D e f e n s e . "

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 d t h a t a s t a t e m e n t m a d e a t t h e r e q u e s t

of t h e C h a i r m a n of t h e C o m m i t t e e b y S A C E U R s h o u l d b e c o n t a i n e d i n t h e

d e c i s i o n s h e e t . T h e s t a t e m e n t w a s :

" I t i s s c a r c e l y n e c e s s a r y f o r m e t o t e l l t h i s g r o u p , p a r t i c u l a r l y t h e

E u r o p e a n m e m b e r s , a b o u t t h e i m p o r t a n c e of a i r d e f e n s e . A n d a f t e r t h e

d i s c u s s i o n s t h a t h a v e t a k e n p l a c e i n t h i s v e r y r o o m o v e r a p e r i o d of t h e

l a s t t h r e e o r f o u r y e a r s , I n e e d n o t p o i n t o u t a g a i n t h a t t h e r e i s n o a i r

d e f e n s e i n a n y o n e of y o u r c o u n t r i e s , e x c e p t a s t h e f o r c e s a n d t h e e q u i p m e n t

a n d t h e m e a n s of y o u r c o u n t r i e s c o n t r i b u t e t o t h e o v e r a l l d e f e n s e . I

r e p e a t t h a t : T h e r e i s n o a i r d e f e n s e w h a t s o e v e r i n a n y o n e of y o u r c o u n t r i e s

e x c e p t a s a p a r t of t h e w h o l e .

(11) MC 5 4 / 1 ( D e c i s i o n ) , d t d 26 N o v 58 .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

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 e d t h e C o u n c i l t o g i v e i t s

c o n s i d e r a t i o n t o t h e r e c o m m e n d a t i o n s c o n t a i n e d i n M C 5 4 / l ( D e c i s i o n ) ,

w h i c h i n i t s e l f c o n t a i n e d t h e d o c u m e n t a l r e a d y a p p r o v e d on 9 A p r i l 1958.

F r e n c h O b j e c t i o n s

At a m e e t i n g of t h e N o r t h A t l a n t i c C o u n c i l on 5 D e c e m b e r 1958, t h e

F r e n c h R e p r e s e n t a t i v e e x p l a i n e d t h e r e a s o n s f o r h i s a u t h o r i t i e s '

r e s e r v a t i o n s w i t h r e g a r d t o t h e r e p o r t b y t h e M i l i t a r y C o m m i t t e e (12)

( M C 5 4 / 1 ( D e c i s i o n ) ) . ' H e e m p h a s i z e d t h a t t h e y h a d n e v e r o p p o s e d

t h e c o n c e p t of i n t e g r a t i o n . On t h e c o n t r a r y , t h e y w e r e a n x i o u s t h a t t h e

l a t t e r s h o u l d b e s t u d i e d i n a l l i t s a s p e c t s . T h r o u g h o u t d i s c u s s i o n s i n

t h e SGN a n d M i l i t a r y C o m m i t t e e , h i s a u t h o r i t i e s h a d c o n s t a n t l y u p h e l d

c e r t a i n v i e w s . S i n c e t h e y h a d r e c e i v e d s a t i s f a c t i o n i n n e i t h e r of t h e s e

b o d i e s , t h e y w e r e f i n a l l y o b l i g e d t o e n t e r a r e s e r v a t i o n of a m o r e g e n e r a l

c h a r a c t e r a n d a l t h o u g h t h e y h a d n o t o p p o s e d t r a n s m i s s i o n of t h e r e p o r t t o

t h e C o u n c i l , i t w a s f o r t h i s r e a s o n t h a t t h e y n o w a d v o c a t e d a f u r t h e r s t u d y

of t h e m a t t e r b y t h e M i l i t a r y a u t h o r i t i e s . T h e F r e n c h R e p r e s e n t a t i v e

s t r e s s e d t h a t u n t i l c e r t a i n v i t a l e l e m e n t s , n o t a b l y t h e E a r l y W a r n i n g

S y s t e m a n d SAM u n i t s , h a d b e e n i n s t a l l e d , t h e o r g a n i z a t i o n of a c o m m o n

a i r d e f e n s e w a s m o r e t h e o r e t i c a l t h a n r e a l . T h i s a s p e c t of t h e p r o b l e m

w a s c o n s i d e r a b l y m o r e u r g e n t t h a n t h e c r e a t i o n , f o r e x a m p l e , of a c o m m o n

c o m m a n d o r g a n i z a t i o n on t h e b a s i s of p r e s e n t r e s o u r c e s . S u c h i n s t a l l a t i o n s

w e r e i n d i s p e n s i b l e t o a n y m o d e r n s y s t e m of A i r D e f e n s e a n d t h e r e c o u l d b e

l i t t l e u r g e n c y i n o r g a n i z i n g a c l a s s i c a i r d e f e n s e w i t h r e s o u r c e s w h i c h d i d

n o t m e e t t h e l a t e s t c r i t e r i a . T h e v e r y c r u x of t h e m a t t e r , h o w e v e r , w a s

t h e d o c t r i n e of u s a g e c o n c e r n i n g t h e i n t e r - r e l a t e d r u l e s of a i r c r a f t a n d

(12) C - R ( 5 8 ) 5 8 , d a t e d 10 D e c 58 .

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S T j R I C T E D

S H A P E 5 8 / 6 7

m i s s i l e s . T h i s h a d n e v e r b e e n f u l l y e l a b o r a t e d a n d , u n t i l a g r e e m e n t w a s

r e a c h e d , t h e c o n c e p t of a i r d e f e n s e w a s i m p o s s i b l e t o d e v e l o p . A m o n g

t h e o t h e r r e a s o n s f o r h i s g o v e r n m e n t ' s r e s e r v a t i o n s w a s t h a t t h e y w e r e

u n a b l e t o a g r e e t o t h e p r e c i s e i n t e r - r e g i o n a l d e f e n s e b o u n d a r i e s a s p r o -

p o s e d i n t h e c o u r s e of SGN d i s c u s s i o n s , n o r t o t h e i n c l u s i o n of c e r t a i n

s e a a r e a s w h i c h r a i s e d p o l i t i c a l c o n s i d e r a t i o n s . T h e i r r e s e r v a t i o n s

a l s o e x t e n d e d t o t h e m e t h o d s of e q u i p m e n t a n d f i n a n c i n g of t h e A i r D e f e n s e

S y s t e m .

In c o n c l u s i o n , t h e F r e n c h R e p r e s e n t a t i v e s a i d t h a t h e f u l l y

r e c o g n i z e d t h e d e s i r e of o t h e r c o u n t r i e s f o r i n t e g r a t i o n a n d t h e d i f f i c u l t i e s

w i t h w h i c h t h e y w e r e f a c e d . T h e m a t t e r , h o w e v e r , w a s n o t s u f f i c i e n t l y

a d v a n c e d s i n c e m a n y . p o i n t s of d i s a g r e e m e n t r e m a i n e d t o b e o v e r c o m e a n d

t h e r e w a s n o n e e d f o r h a s t e . T h e r e a l p r o b l e m l a y i n t h e f a c t t h a t c o u n t r i e s

w e r e a s k e d t o e n d o r s e a s y s t e m of A i r D e f e n s e b a s e d o n m i s s i l e s w h i c h

w e r e n o t y e t i n p l a c e , e a r l y w a r n i n g w h i c h w a s n o t y e t i n s t a l l e d , a n d a

d o c t r i n e f o r t h e u s e of a i r c r a f t a n d m i s s i l e s w h i c h h a d n o t y e t b e e n

e l a b o r a t e d . T h e C o u n c i l s h o u l d a c c o r d i n g l y n o t e t h e p a p e r a n d r e m i t i t

t o t h e M i l i t a r y C o m m i t t e e f o r f u r t h e r s t u d y .

S u m m a r y of F r e n c h O b j e c t i o n s

1. A s l o n g a s t h e E a r l y W a r n i n g S y s t e m d i d n o t e x i s t , t h e n e c e s s i t y f o r s p e e d y a c t i o n t o w a r d a p p r o v a l of M C 5 4 / l w a s m o r e t h e o r e t i c a l t h a n r e a l .

2 . C e r t a i n u r g e n t p r o b l e m s n e e d t o b e s o l v e d , e . g . t h e o p e r a t i o n of m i s s i l e s a n d a i r c r a f t i n t h e s a m e a i r s p a c e h a d n o t b e e n t h o r o u g h l y s t u d i e d , t h e r e f o r e i n t e g r a t i o n s h o u l d n o t t a k e p l a c e u n t i l t h e s e p r o b l e m s h a v e b e e n s o l v e d .

3 . F r a n c e d i d n o t a c c e p t t h e r e g i o n a l o r g a n i z a t i o n p r o p o s e d o r c e r t a i n m a r i t i m e z o n e s p r o p o s e d .

»

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S H A P E 5 8 / 6 7 N A a E Q

4 . T h e m e t h o d of f i n a n c i n g i n t e g r a t e d a i r d e f e n s e w a s n o t c o v e r e d i n M C 5 4 / 1 .

5 . F r a n c e h a d s t a t e d t h a t t h e r e w a s n o n e e d f o r h a s t e i n i n t e g r a t i o n of a i r d e f e n s e i n N A T O E u r o p e .

T h e 10 D e c e m b e r 1958 N A C M e e t i n g

A t t h e 10 D e c e m b e r 1958 N A C M e e t i n g , t h e U n i t e d K i n g d o m

R e p r e s e n t a t i v e s t a t e d t h a t t h e p r o b l e m u n d e r d i s c u s s i o n b e t w e e n S A C E U R (13)

a n d h i s a u t h o r i t i e s h a d b e e n r e s o l v e d . H e t h e n r e m i n d e d t h e C o u n c i l

of h i s e a r l i e r s u g g e s t i o n t h a t a n y d e c i s i o n b y t h e C o u n c i l 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 ( M C 5 4 / l ) s h o u l d t a k e t h e f o r m of a c l e a r a n d s u c c i n c t

r e s o l u t i o n w h i c h w o u l d s p e c i f i c a l l y u n d e r l i n e t h e c o m m i t m e n t s i n t o w h i c h

g o v e r n m e n t s h a d e n t e r e d a n d w h i c h w o u l d , a t t h e s a m e t i m e , f a c i l i t a t e

t h e t a s k s of g o v e r n m e n t s i n m a k i n g p u b l i c s t a t e m e n t s o n t h e m a t t e r .

T h e U K R e p r e s e n t a t i v e t h e n c i r c u l a t e d a d r a f t r e s o l u t i o n , e m p h a s i z i n g

t h a t t h e U K c o u l d w i t h d r a w i t s r e s e r v a t i o n s o n M C 5 4 / l o n l y if t h e

r e s o l u t i o n c o u l d b e a c c e p t e d b y t h e C o u n c i l . H e a d d e d t h a t t h e d o c u m e n t

w a s b a s e d e n t i r e l y o n t h e M C 5 4 / l p a p e r , a n d i n n o w a y c o n f l i c t e d w i t h

t h e v i e w s of S A C E U R , w h o h a d , i n f a c t , a l r e a d y i n d i c a t e d h i s a p p r o v a l

of i t .

M o s t of t h e r e p r e s e n t a t i v e s t h o u g h t t h a t t h e r e w o u l d b e n o d i f f i c u l t y

i n o b t a i n i n g the i r^ g o v e r n m e n t ' s a p p r o v a l of t h e U K r e s o l u t i o n , w h i c h t h e y

h o p e d t o d o i n t h e v e r y n e a r f u t u r e . T h e 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

t h a t h e w a s o b l i g e d t o p l a c e a r e s e r v a t i o n o n t h e U K r e s o l u t i o n . H e a s k e d

t h a t c o n s i d e r a t i o n of t h e d o c u m e n t b e d e f e r r e d u n t i l J a n u a r y 1959.

(13) C - R ( 5 8 ) 5 9 . d a t e d 15 D e c 58 .

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T h e C o u n c i l t o o k n o d e c i s i o n o n t h e U K r e s o l u t i o n , b u t a g r e e d t o

r e s u m e d i s c u s s i o n o n t h e i n t e g r a t i o n a t i t s m e e t i n g o n 7 J a n u a r y 1959 .

An a n a l y s i s of t h e o b j e c t i o n s r a i s e d d u r i n g d i s c u s s i o n s of M C 5 4 / l

a t t h e M i l i t a r y C o m m i t t e e a n d N o r t h A t l a n t i c C o u n c i l m e e t i n g s w a s m a d e (14)

b y A i r D e f e n s e s t a f f a t S H A P E . v T h i s a n a l y s i s e x a m i n e d e a c h of

t h e o b j e c t i o n s m a d e b y t h e F r e n c h d e l e g a t e s t o t h e t w o b o d i e s d u r i n g

m e e t i n g s h e l d i n t h e p e r i o d 2 6 N o v e m b e r t o 10 D e c e m b e r 1958.

T h e f i r s t o b j e c t i o n c o n c e r n e d t h e s t a t e m e n t t h a t " a s l o n g a s a n

e a r l y w a r n i n g s y s t e m d id n o t e x i s t , t h e n e c e s s i t y f o r s p e e d y a c t i o n

t o w a r d s a p p r o v a l of M C 5 4 / l w a s m o r e t h e o r e t i c a l t h a n r e a l . " S H A P E ' S

v i e w w a s t h a t t h e l e s s e f f e c t i v e t h e A C E e a r l y w a r n i n g s y s t e m , t h e g r e a t e r w a s t h e n e e d f o r a n a i r d e f e n s e s y s t e m w h i c h w a s r e a d y t o r e a c t e f f e c t i v e l y

w i t h o u t p r i o r w a r n i n g . In t h e e v e n t of n o w a r n i n g , t h e s t r i k e f o r c e s w o u l d

b e l o n g e r on t h e g r o u n d a n d u n d e r a t t a c k , a n d t h e i r s u r v i v a l w o u l d d e p e n d

m o r e a n d n o t l e s s on t h e e f f e c t i v e n e s s of a i r d e f e n s e . T h e r e w a s a g r e a t e r

n e e d a t t h a t t i m e f o r a n e f f e c t i v e a i r d e f e n s e t h a n t h e r e w o u l d b e l a t e r w h e n

N A T O h a d s o m e o f f e n s i v e w e a p o n s s y s t e m s w i t h a b e t t e r i n h e r e n t s u r v i v a l ,

c a p a b i l i t y . A n e a r l y w a r n i n g s y s t e m d i d , i n f a c t e x i s t b o t h w i t h i n A C E a n d

a c r o s s t o t h e P a c i f i c . I m p r o v e m e n t i n t h i s a d m i t t e d l y l i m i t e d p e r f o r m a n c e

s y s t e m w a s e s s e n t i a l , b u t p r o p e r a n d t i m e l y a c t i o n w o u l d r e q u i r e c o m m o n

i n t e r e s t a n d c o m m o n a c t i o n b y t h e m e m b e r n a t i o n s of N A T O . W i t h o u t

a p p r o v a l of M C 5 4 / l , w h i c h w o u l d b e a n i n d i c a t i o n of t h e c o o p e r a t i v e n e s s

of t h e n a t i o n s , A C E w o u l d c o n t i n u e t o b e d e l a y e d i n b u i l d i n g n e c e s s a r y

(14) F r o m a n A n a l y s i s of C e r t a i n O b j e c t i o n s t o A p p r o v a l of M C 5 4 / 1 . T h i s A n a l y s i s w a s p r e p a r e d by A i r V i c e M a r s h a l M c G r e g o r , A C O S , A i r D e f e n s e D i v i s i o n , S H A P E . T h e o r i g i n a l of t h i s u n d a t e d p a p e r w a s i n c l u d e d i n a B r i e f i n g F o l d e r p r e p a r e d f o r t h e D e c e m b e r 1958 M i n i s t e r i a l M e e t i n g of t h e N o r t h A t l a n t i c C o u n c i l f o r t h e u s e of S A C E U R a n d t h e C h i e f of S t a f f . T h e B r i e f i n g F o l d e r w a s h e l d i n t h e S e c r e t a r i a t R e c o r d s a n d A d m i n i s t r a t i o n B r a n c h F i l e s i n O c t o b e r 1958.

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S H A P E 5 8 / 6 7 N A T Q ^ e M ? ®

i m p r o v e m e n t s t o t h e E a r l y W a r n i n g S y s t e m . A n o t h e r c o n s i d e r a t i o n

c o n c e r n i n g t h e n e e d f o r h a s t e w a s t h e p r o b l e m of G e r m a n y . T h e a i r

d e f e n s e of G e r m a n y w a s a t t h a t t i m e t h e r e s p o n s i b i l i t y of t h e f o r m e r

o c c u p y i n g p o w e r s . If t h e r e w a s n o i n t e g r a t i o n of t h e N A T O E u r o p e a n

A i r D e f e n s e , G e r m a n y w o u l d e s t a b l i s h h e r own s y s t e m a s p l a n n e d d u r i n g

I 9 6 O - I 9 6 I . L o g i c a l l y , t h e w e a p o n s of o t h e r n a t i o n s d e p l o y e d u n d e r t h e

f o r w a r d c o n c e p t in G e r m a n y w o u l d e i t h e r h a v e t o b e w i t h d r a w n o r w o u l d

c o m e u n d e r G e r m a n o p e r a t i o n a l c o n t r o l , a s o l u t i o n w h i c h w a s u n l i k e l y

t o b e a c c e p t a b l e p o l i t i c a l l y .

A n o t h e r o b j e c t i o n r a i s e d b y t h e F r e n c h d e l e g a t e w a s t h a t c e r t a i n

u r g e n t p r o b l e m s h a d n o t y e t b e e n s o l v e d . An e x a m p l e w a s t h a t of t h e

o p e r a t i o n of m i s s i l e s a n d a i r c r a f t i n t h e s a m e a i r s p a c e . T h i s h a d n o t

b e e n t h o r o u g h l y s t u d i e d . I n t e g r a t i o n s h o u l d n o t t a k e p l a c e u n t i l t h e s e

p r o b l e m s h a d b e e n s o l v e d . S H A P E ' S v i e w w a s t h a t t h i s o b j e c t i o n i m p l i e d

a l a c k of s t u d y w h i c h m i g h t h a v e b e e n t r u e of n a t i o n s , bu t w a s n o t t r u e of

t h e A l l i e d s t a f f s . A l l i e d r e c o m m e n d a t i o n s h a d b e e n m a d e i n t h e S H A P E

M i n i m u m F o r c e S tudy a n d M C 70 a n d t h e s e w e r e c o n s i d e r e d t o b e t h e b e s t ,

s o l u t i o n t o p r o b l e m s w h i c h w e r e t e c h n i c a l l y a n d m i l i t a r i l y p o s s i b l e a t

t h a t t i m e . T h e a l t e r n a t i v e t o t h e f o r m u l a t i o n of p r o p o s a l s a n d s o l u t i o n s

on a n A l l i e d b a s i s w a s a s e r i e s of w i d e l y d i v e r g e n t s o l u t i o n s b y t h e n a t i o n s .

E v e n an i m p e r f e c t s i n g l e A l l i e d s o l u t i o n w a s f a r m o r e e f f e c t i v e t h a n a

s e r i e s of d i f f e r e n t n a t i o n a l s o l u t i o n s a p p l i e d i n d i v i d u a l l y i n n a t i o n a l

t e r r i t o r i e s . In f a c t , m o s t of t h e p r o b l e m s w h i c h f a c e d a i r d e f e n s e p l a n n e r s

w e r e i m p o s s i b l e of s o l u t i o n on a s i n g l e n a t i o n b a s i s a s i n c o m p a t i b i l i t y of

t h e s o l u t i o n s a d o p t e d b y t h e d i f f e r e n t n a t i o n s , i n c o n s i s t e n c i e s in p r o c e d u r e ,

a n d l a c k of o v e r a l l c o n t r o l w o u l d h a v e p r e v e n t e d t h e c o l l e c t i o n a n d d i s s e m i n a t i o n

of t a c t i c a l i n f o r m a t i o n w h i c h w a s e s s e n t i a l f o r a n y m o d e r n w e a p o n s s y s t e m

196

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S H A P E 5 8 / 6 7

o v e r a n i n t e r n a t i o n a l a r e a . D e t a i l e d m e t h o d s of o p e r a t i o n , p u b l i c a t i o n

of o p e r a t i o n a l d i r e c t i v e s , r u l e s of e n g a g e m e n t , a n d s o f o r t h w o u l d h a v e

t o b e a c c o m p l i s h e d p r i o r t o t h e d a t e w h e n n e w f a c i l i t i e s a n d w e a p o n s

b e c a m e o p e r a t i o n a l . U n l e s s t h i s w a s d o n e u n d e r a g r e e d p r o c e d u r e s a n d

c l e a r l y e s t a b l i s h e d r e s p o n s i b i l i t i e s i t w a s u n l i k e l y t h a t t h e r e q u i r e d

a g r e e m e n t w o u l d b e o b t a i n e d i n t i m e , if i t c o u l d b e o b t a i n e d a t a l l . T h e \

s p e c i f i c p r o b l e m of a i r s p a c e m e n t i o n e d r e q u i r e d d e t a i l e d p l a n n i n g w h i c h

w a s l a c k i n g e v e n a t t h a t t i m e . B o t h t h e o p e r a t i o n of s u r f a c e - t o - a i r

m i s s i l e s a n d a i r d e f e n s e a i r c r a f t i n t h e s a m e a i r s p a c e , a s w e l l a s t h e

o p e r a t i o n of t h e s t r i k e f o r c e s t h r o u g h t h e a i r d e f e n s e s y s t e m w o u l d h a v e

Jto i g n o r e c o m p l e t e l y n a t i o n a l b o u n d a r i e s . T h e o n l y a p p r o p r i a t e a g e n c y

f o r t h e d e t a i l e d t i m e l y p l a n n i n g a n d i m p l e m e n t a t i o n of o p e r a t i o n s of t h i s

t y p e w a s t h e A l l i e d C o m m a n d . W i t h o u t n a t i o n a l a p p r o v a l a n d n a t i o n a l

c o n f i d e n c e i n t h e A l l i e d p l a n n i n g , w h i c h w o u l d b e e v i d e n t b y t h e a p p r o v a l

of M C 5 4 / 1 , i t w a s a g a i n d i f f i c u l t t o s e e h o w S H A P E c o u l d e x p e c t a n y

t i m e l y i m p r o v e m e n t i n c r i t i c a l a i r o p e r a t i o n s .

F r a n c e h a d n e v e r a c c e p t e d t h e p r o p o s e d r e g i o n a l o r g a n i z a t i o n o r

c e r t a i n m a r i t i m e z o n e s . A s t a t e m e n t t o t h i s e f f e c t w a s m a d e a t t h e

5 D e c e m b e r 1958 m e e t i n g of t h e C o u n c i l , b y t h e F r e n 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 . T h e S H A P E a n a l y s i s p o i n t e d ou t t h a t F r a n c e h a d

a p p r o v e d t h e b o u n d a r i e s a n d t h e o r g a n i z a t i o n p r o p o s e d i n M C 54 a n d

o t h e r p a p e r s . T h i s w a s t h e f i r s t i n t i m a t i o n k n o w n t o S H A P E t h a t F r a n c e

o b j e c t e d t o t h e b o u n d a r i e s t h e n a g r e e d u p o n . It w a s , t o s a y t h e l e a s t ,

u n f o r t u n a t e t h a t t h e s e o b j e c t i o n s w e r e v o i c e d f o r t h e f i r s t t i m e a f t e r

d i s c u s s i o n s o v e r a l o n g p e r i o d h a d l e d t o S H A P E p l a n n i n g on t h e a c c e p t e d

b a s i s . U n l e s s F r a n c e p r o p o s e d a r a d i c a l c h a n g e t h a t w a s d e s i g n e d t o m e e t

d e s i r e s a t t h e e x p e n s e of t h e A l l i a n c e a s a w h o l e , c h a n g e s i n t h e b o u n d a r i e s

197

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N A T O R E S T R I C T E D S H A P E 5 8 / 6 7 N A T O S E C R E T

o u t l i n e d i n M C 5 4 / 1 w e r e p o s s i b l e if t h e y w e r e p r o p o s e d i n t h e n o r m a l w a y . (

S H A P E r e c o g n i z e d t h a t c h a n g e s m i g h t h a v e b e e n d e s i r e d b y n a t i o n s a n d

f o r t h i s r e a s o n M C 5 4 / l p r o p o s e d t h a t p l a n n i n g s h o u l d b e b a s e d on t h e

o n l y b o u n d a r i e s w h i c h h a d a n y o f f i c i a l s t a t u s , i . e . , t h o s e t h a t w e r e i n

f o r c e a t t h a t t i m e , b u t t h a t t h e y m i g h t b e c h a n g e d i n t h e l i g h t of A l l i e d

o r n a t i o n a l r e p r e s e n t a t i o n s w h i c h w e r e s u b s e q u e n t l y e n d o r s e d b y t h e

N A T O a u t h o r i t i e s a t t h e r e q u i r e d l e v e l .

T u r n i n g t o t h e q u e s t i o n of f i n a n c e , S H A P E p o i n t e d o u t t h a t M C 5 4 / 1

c l e a r l y s t a t e d t h a t t h e m e t h o d of f i n a n c i n g i n t e g r a t i o n w o u l d b e t h e s u b j e c t

of a s e p a r a t e s t u d y b y t h e C o u n c i l . F r a n c e h a d s t a t e d t h a t i t w a s n o t

• m e n t i o n e d i n t h e d o c u m e n t . S A C E U R p r e v i o u s l y h a d r e c o m m e n d e d t h a t

i m p r o v e m e n t s i n t h e C o n t r o l a n d R e p o r t i n g S y s t e m b e c o m m o n l y f u n d e d .

M C 5 4 / l f u r t h e r s t a t e d t h a t " p e n d i n g s u c h a n a g r e e m e n t on A l l i e d

r e s p o n s i b i l i t i e s p r o v i s i o n of r a d a r s , o p e r a t i o n c e n t r e s , m i l i t a r y

c o m m u n i c a t i o n s , a n d s i m i l a r c o n t r o l f a c i l i t i e s , a n d t h e m a n n i n g of t h e s e ,

s h o u l d r e m a i n a n a t i o n a l r e s p o n s i b i l i t y t o t h e s a m e e x t e n t a s t h e y a r e a t

p r e s e n t , b u t t h e u n i t s of t h e c o n t r o l a n d r e p o r t i n g c e n t e r s s h o u l d b e a s s i g n e d

t o S A C E U R . " S H A P E c o n s i d e r e d t h a t t h e r e w a s c o n s i d e r a b l e m e r i t i n

i n t e g r a t i o n e v e n if n o c h a n g e w a s c o n t e m p l a t e d in t h e m e t h o d of f i n a n c i n g

a n d n a t i o n a l r e s p o n s i b i l i t i e s r e m a i n e d a s t h e y w e r e . I t w a s c o n s i d e r e d

t h a t p o s s i b l e i m p r o v e m e n t s i n m e t h o d s of f i n a n c i n g w e r e n o j u s t i f i c a t i o n

f o r d e f e r r i n g t h e s e b e n e f i t s w h i c h t h e p r e s e n t p r o p o s a l w o u l d g i v e .

T h e f i n a l o b j e c t i o n w a s t h e s t a t e m e n t t h a t t h e r e w a s n o n e e d f o r

h a s t e i n i n t e g r a t i o n of t h e a i r d e f e n s e of N A T O E u r o p e . T h e S H A P E v i e w

w a s t h a t N A T O d e f e n s e p l a n s w e r e b a s e d on t h e a s s u m p t i o n t h a t p r o c e d u r e s

a n d e q u i p m e n t w h i c h h a d b e e n s a t i s f a c t o r y i n t h e p a s t w e r e n o l o n g e r u s a b l e .

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S H A P E 5 8 / 6 7

T h i s w a s b r o u g h t a b o u t b y t h e n a t u r e of n u c l e a r w a r f a r e , t h e i n t r o d u c t i o n

b y b o t h t h e e n e m y a n d N A T O of a i r c r a f t o p e r a t i n g a t s u p e r s o n i c s p e e d s ,

t h e i n t r o d u c t i o n of m i s s i l e s , a n d i m p r o v e d r a d a r a n d o t h e r t e c h n i q u e s .

In c o n c l u s i o n , t h e S H A P E a n a l y s i s s t a t e d : " A c h a n g e of c o m m a n d

a n d c o n t r o l w o u l d i n e v i t a b l y r e s u l t i n c h a o s , c o n f u s i o n a n d g r e a t i n -

e f f i c i e n c y if i t w e r e m a d e a t t h e o u t b r e a k of w a r - t h e t i m e w h e n t h e n e e d

f o r a i r d e f e n s e i s a t i t s a b s o l u t e m a x i m u m . It i s i n c o n c e i v a b l e t h a t

n a t i o n s w o u l d d e s i r e t o m a k e a c h a n g e a t t h a t t i m e b u t i t i s a l s o c l e a r

t h a t n a t i o n a l c o n t r o l i n s u c h c i r c u m s t a n c e s w o u l d b e i n e f f e c t i v e . I t i s

o b v i o u s t h a t t h e c h a n g e f r o m N a t i o n a l t o A l l i e d c o n t r o l m u s t b e m a d e i n

p e a c e b e f o r e an a t t a c k o c c u r s . A s t h e t i m e w h e n t h i s m i g h t h a p p e n

c a n n o t b e a c c u r a t e l y f o r e s e e n a n d a s a n e f f e c t i v e s y s t e m m u s t b e w e l l

p r a c t i s e d i n p e a c e t o b e e f f i c i e n t , t h e o n l y t i m e s a f e l y t o m a k e s u c h a

c h a n g e i s n o w a n d n o t i n t h e i n d e f i n i t e f u t u r e . "

T h e B e l g i a n P r o p o s a l

D u r i n g t h e N o r t h A t l a n t i c C o u n c i l m e e t i n g on 5 D e c e m b e r 1958,

t h e B e l g i a n r e p r e s e n t a t i v e s p o k e o n t h e s u b j e c t of t h e r e s e r v a t i o n s (15)

m a d e b y c e r t a i n n a t i o n s r e g a r d i n g t h e i n t e g r a t i o n of a i r d e f e n s e .

H e q u e s t i o n e d w h e t h e r i t w o u l d b e p o s s i b l e f o r t h o s e n a t i o n s w h i c h

a c c e p t e d i n t e g r a t i o n t o p r o c e e d w i t h t h e m e a s u r e s r e c o m m e n d e d f o r

i m p l e m e n t a t i o n . T h e S t a n d i n g G r o u p a n d S A C E U R w e r e a s k e d t o e x p r e s s

t h e i r v i e w s o n t h e m e r i t s of t h e B e l g i a n p r o p o s a l .

S A C E U R c o n s i d e r e d t h a t i n t e g r a t i o n w a s p r a c t i c a b l e i n a l i m i t e d

a r e a o r a r e a s , a n d w o u l d r e s u l t i n a m o r e e f f e c t i v e d e f e n s e s y s t e m

t h a n w a s p o s s i b l e u n d e r t h e e x i s t i n g s y s t e m . T h e p r o p o s a l s i n M C 5 4 / 1

(15) S e e L O S T A N 2 7 2 2 , d a t e d 6 D e c 58 : M e s s a g e S G R E P t o SGN, a n d A D E F 1 2 5 0 / 1 5 - B r i e f 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 , S H A P E , f o r N A C M e e t i n g s , D e c e m b e r 1958, u n d a t e d . C o p y h e l d i n S e c r e t a r i a t R e c o r d R o o m a t O c t 59.

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N A T O S E C R E T

a n d t h e o u t l i n e of t h e a c t i o n s w h i c h w e r e r e q u i r e d t o b e t a k e n , a l r e a d y

i n d i c a t e d b y S A C E U R , w o u l d r e m a i n a s t h e y w e r e a n d d i d n o t r e q u i r e

a l t e r a t i o n b e c a u s e o n e o r m o r e n a t i o n s m i g h t i n d e f i n i t e l y d e f e r t h e i r

a g r e e m e n t t o p a r t i c i p a t e . S o m e d e t a i l s of p l a n s f o r n o n - i n t e g r a t i o n

a r e a s w o u l d h a v e t o b e e l i m i n a t e d b u t , o t h e r t h a n t h i s , t h e a c t i o n f o r

t h e d e v e l o p m e n t of p l a n s , r u l e s of e n g a g e m e n t a n d a l l o t h e r a c t i o n s

l e a d i n g t o i m p l e m e n t a t i o n w o u l d r e m a i n a s o u t l i n e d .

It w a s m a d e c l e a r , h o w e v e r , t h a t t h e p a r t i a l i n t e g r a t i o n p r o p o s e d

b y B e l g i u m w o u l d h a v e c e r t a i n d i s a d v a n t a g e s if s o m e n a t i o n a l a r e a s

w e r e e x c l u d e d . T h e h i g h e r a i r c r a f t s p e e d s a n d t h e g r o w i n g s u r f a c e - t o -

s u r f a c e m i s s i l e t h r e a t w o u l d m a k e n e c e s s a r y a d e p l o y m e n t of m a n n e d

a i r c r a f t f u r t h e r t o t h e r e a r t h a n h a d b e e n n e c e s s a r y . I n t e g r a t i o n on a

l i m i t e d b a s i s m i g h t n o t h a v e t h e d e f e n s i v e d e p t h t o o b t a i n m a x i m u m

e f f e c t i v e n e s s , a n d t h i s l a c k of d e p t h w o u l d b e c o m e m o r e s i g n i f i c a n t a s

t i m e w e n t b y .

L i m i t e d i n t e g r a t i o n m i g h t a l s o r e s u l t i n a w i t h d r a w a l of t h e n o n -

p a r t i c i p a t i n g n a t i o n s f r o m t h e i n t e g r a t e d a r e a a n d r e s u l t i n a m i l i t a r i l y

u n s o u n d p a t t e r n of d e p l o y m e n t , a c o n s e q u e n t w e a k e n i n g of d e f e n c e s a n d

a n u n n e c e s s a r y r e d u c t i o n i n t h e f o r c e s t h a t m i g h t s u r v i v e a n i n i t i a l a t t a c k .

O t h e r p o i n t s m a d e b y S H A P E d e a l t w i t h t h e n e c e s s a r y a d o p t i o n of

t w o s t a n d a r d s f o r R u l e s of E n g a g e m e n t , D a t a H a n d l i n g e q u i p m e n t a n d

s i m i l a r e q u i p m e n t s . T h e a c c e p t a n c e of t w o d i f f e r e n t s t a n d a r d s i n t w o

d i f f e r e n t a r e a s , w h i l e c l e a r l y m o s t u n d e s i r a b l e , w a s i n e v i t a b l e if n a t i o n s

n o t p a r t i c i p a t i n g i n i n t e g r a t i o n w e r e n o t t o b e i n a p o s i t i o n t o d i c t a t e t h e

p a t t e r n i n t h e i n t e g r a t e d a r e a b y w i t h h o l d i n g o r d e f e r r i n g t h e i r a g r e e m e n t

t o Buch p r o p o s a l s a s w e r e m a d e f o r t h a t a r e a . In a d d i t i o n , a d d i t i o n a l c o s t

w o u l d i n e v i t a b l y r e s u l t , s h o u l d t h e n o n - p a r t i c i p a t i n g n a t i o n s e v e n t u a l l y

d e c i d e t o b e i n c l u d e d i n t h e i n t e g r a t e d a r e a .

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S H A P E 5 8 / 6 7

S A C E U R ' s P r e s e n t a t i o n t o t h e C o u n c i l

T h e N o r t h A t l a n t i c C o u n c i l m e t i n m i n i s t e r i a l s e s s i o n f r o m 16-18

D e c e m b e r 1958 a t t h e P a l a i s d e C h a i l l o t . T h e s e c o n d d a y w a s d e v o t e d t o

a n e x a m i n a t i o n of t h e e x i s t i n g s t a t u s of t h e N A T O d e f e n s e e f f o r t .

G e n e r a l N o r s t a d e x p l a i n e d t h e i m p a c t of M C 7 0 o n s t r a t e g i c p l a n s a n d

p o l i c i e s i n A C E . ^1 6^

D u r i n g h i s p r e s e n t a t i o n , h o w e v e r , S A C E U R r e f e r r e d t o a i r d e f e n s e .

H e r e c a l l e d t h a t t h e C o u n c i l a g r e e d i n 1954 t h a t t h e r e m u s t b e a c o o r d i n a t e d

a i r d e f e n s e i n A l l i e d C o m m a n d E u r o p e , a n d t h a t t h i s c o o r d i n a t i o n w o u l d b e

a c c o m p l i s h e d o n l y b y t h e c l o s e i n t e g r a t i o n of f o r c e s a n d f a c i l i t i e s .

T h e t w o m a j o r p r o j e c t s s e t u p t o f a c i l i t a t e a i r d e f e n s e , t h e e a r l y

w a r n i n g s y s t e m a n d t h e b a s i c c o m m u n i c a t i o n s s y s t e m , h a d b o t h b e e n

s u b j e c t e d t o d e l a y s a n d d i f f i c u l t i e s .

T u r n i n g t o t h e i n t e g r a t i o n p r o b l e m , S A C E U R s a i d : " I t i s a n a l m o s t

i m p o s s i b l e t a s k f o r i n d i v i d u a l c o u n t r i e s i n N A T O E u r o p e t o m e e t t h e

r e q u i r e m e n t s a n d t h e m o s t t h a t I c a n s a y f o r a l l i e d i n t e g r a t i o n of a i r

d e f e n s e i s t h a t b y t h a t m e a n s w e c a n g e t t h e m a x i m u m e f f e c t i v e n e s s o u t

of t h e f a c i l i t i e s , o u t of t h e f o r c e s , o u t of e q u i p m e n t , o u t of t h e t a l e n t t h a t

y o u r c o u n t r i e s c a n m a k e a v a i l a b l e , b u t I t h i n k i t i s c l e a r l y a c c e p t e d b y

a l l m i l i t a r y p e o p l e , of a l l c o u n t r i e s , t h a t t h e o n l y r e a l c o n t r i b u t i o n t h a t

c a n b e m a d e t o a i r d e f e n s e w i l l b e m a d e t h r o u g h am i n t e g r a t e d a i r d e f e n s e .

H e r e a g a i n w e a r e m a k i n g p r o g r e s s a n d I c a n o n l y , a t t h i s t i m e , t o t h i s

g r o u p , e x p r e s s t h e h o p e t h a t o n y o u r l e v e l y o u w i l l g i v e c o n s i d e r a t i o n t o

t h i s m a t t e r w i t h a v i e w t o m o v i n g i t f o r w a r d p r o m p t l y s o t h a t w e c a n m a k e

t h i s a d d i t i o n a l c o n t r i b u t i o n t o o u r a l l i e d s t r e n g t h . "

(16) C - V R ( 5 8 ) 6 3 , d a t e d 17 D e c 58 .

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S H A P E 5 8 / 6 7 N A T O S E C R E T

R e s u l t of t h e M i l i t a r y C o m m i t t e e a n d N o r t h A t l a n t i c C o u n c i l M e e t i n g s

M C 5 4 / I w a s n o t a p p r o v e d b y t h e N o r t h A t l a n t i c C o u n c i l a t t h e

D e c e m b e r m e e t i n g s . T h e F r e n c h a n d D a n i s h r e s e r v a t i o n s s t i l l s t o o d ,

a n d t h e C o u n c i l h a d n o t y e t d i s c u s s e d t h e U n i t e d K i n g d o m r e s o l u t i o n ,

w h i c h if a p p r o v e d , w o u l d h a v e r e m o v e d t h e U K r e s e r v a t i o n . A s a r e s u l t ,

h o w e v e r , of t h e d i s c u s s i o n s t h a t h a d t a k e n p l a c e on i n t e g r a t i o n b o t h d u r i n g

M i l i t a r y C o m m i t t e e a n d C o u n c i l m e e t i n g s , a n d a l s o a s a r e s u l t of t h e

i n t e r e s t s h o w n b y m o s t of t h e i n t e r e s t e d n a t i o n s , S A C E U R w r o t e t o t h e s e (17)

n a t i o n s on 31 D e c e m b e r 1958 .

In h i s l e t t e r t o n i n e of t h e t e n i n t e r e s t e d E u r o p e a n n a t i o n s , F r a n c e

^ b e i n g t h e e x c e p t i o n , S A C E U R s t a t e d : " R e f e r e n c e i s m a d e t o t h e r e c e n t

d i s c u s s i o n s o n a i r d e f e n s e a n d t h e i n t e r e s t e x p r e s s e d b y y o u r G o v e r n m e n t

i n m o v i n g f o r w a r d w i t h t h i s i n t e g r a t i o n a s r a p i d l y a s p o s s i b l e . I a m o n l y

t o o w i l l i n g t o w o r k w i t h y o u i n o r d e r t o a c h i e v e a l l p o s s i b l e p r o g r e s s

p e n d i n g f inci l a p p r o v a l of M C 5 4 / L w h i c h I h o p e , w i l l n o t b e d e l a y e d u n d u l y .

I t w o u l d a p p e a r t h a t w e c o u l d m o v e f o r w a r d g r a d u a l l y b y t a k i n g a n u m b e r

of p r e p a r a t o r y s t e p s i n t h e m i l i t a r y f i e l d w h i c h m u s t b e c o m p l e t e d i n a n y •

e v e n t p r i o r t o m y a s s u m p t i o n of f u l l r e s p o n s i b i l i t y f o r t h e i n t e g r a t e d a i r

d e f e n s e . T h a t l a s t s t e p m u s t , of c o u r s e , a w a i t f i n a l C o u n c i l d e t e r m i n a t i o n .

" T h e r e , d e s p i t e t h e l a c k of f o r m a l C o u n c i l a c t i o n a t t h i s t i m e , I a m

s u r e i t w o u l d b e t h e d e s i r e of t h a t b o d y t o p r o c e e d w i t h t h e d e v e l o p m e n t of

t h e d e t a i l e d a c t i o n s w h i c h c a n b e a c c o m p l i s h e d u n d e r e x i s t i n g c o n d i t i o n s ,

a n d I a m p r e p a r e d t o w o r k w i t h y o u t o t h i s e n d . A c c o r d i n g l y , I a m

d i r e c t i n g m y 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 t o p r o c e e d , i n c o n s u l t a t i o n

(17) A G 1250 A D E F , d a t e d 31 D e c 5 8 : I n t e g r a t i o n of A i r D e f e n s e . S A C E U R t o M O D s of B e l g i u m , D e n m a r k , G e r m a n y , G r e e c e , I t a l y , t h e N e t h e r l a n d s , N o r w a y , T u r k e y a n d t h e U K .

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S H A P E 5 8 / 6 7

w i t h t h e a p p r o p r i a t e N a t i o n a l A u t h o r i t i e s , w i t h t h e p r e p a r a t i o n of

r e g i o n a l a i r d e f e n s e p l a n s a n d s u c h o t h e r a c t i o n s a s w i l l s e r v e t o f o r e -

s h o r t e n t h e t i m e b e t w e e n f i n a l a p p r o v a l a n d i m p l e m e n t a t i o n of i n t e g r a t i o n . "

M C 70 a n d A i r D e f e n s e

E a r l y W a r n i n g

M C 7 0 d r e w a t t e n t i o n t o t h e p r o b l e m of p r o v i d i n g A l l i e d C o m m a n d (18)

E u r o p e w i t h a n 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 . A f t e r s t a t i n g t h a t t h e

p r o b l e m w a s p a r t i c u l a r l y a c u t e i n t h e a r e a d u e t o t h e p r o x i m i t y of S o v i e t

w e a p o n s b a s e s , t h e b a s i c r e q u i r e m e n t w a s s e t o u t . I t w a s e s s e n t i a l t h a t

' t h e r e s h o u l d b e a d e t e c t i o n s y s t e m e f f e c t i v e a g a i n s t a t t a c k a t a l l a l t i t u d e s .

A c o m p l e m e n t a r y c o m m u n i c a t i o n s s y s t e m h a d t o b e p r o v i d e d t o a f f o r d t h e

f u l l e s t e x p l o i t a t i o n of t h e d e t e c t i o n s y s t e m . T h e e x i s t i n g e a r l y w a r n i n g

s y s t e m w o u l d , w h e n c o m p l e t e d , p r o v i d e e f f e c t i v e e a r l y w a r n i n g a g a i n s t

o n l y h i g h a l t i t u d e m a n n e d a i r c r a f t . I n t e r m s of l o w a l t i t u d e a t t a c k s a n d

t h e m i s s i l e t h r e a t , e a r l y w a r n i n g a s i t w a s c o n c e i v e d a t t h a t t i m e w a s n o t

s u f f i c i e n t .

T h e l o g i c a l e x t e n s i o n of e a r l y w a r n i n g i n t h e m i s s i l e p e r i o d l a y i n

t h e a c q u i s i t i o n of a c c u r a t e a n d t i m e l y i n t e l l i g e n c e f r o m o t h e r s o u r c e s

f o r w a r n i n g p u r p o s e s . T h e p o s s i b i l i t y of l o n g - t e r m c o n c e a l m e n t of

a g g r e s s i v e i n t e n t i o n s a n d t h e d a n g e r t h a t a n a t t a c k m i g h t d e v e l o p f r o m

" i n c i d e n t s , " t h e n a t u r e a n d s c o p e of w h i c h w o u l d i n i t i a l l y b e u n k n o w n ,

r e q u i r e d c o n t i n u o u s e f f o r t s f o r t h e i n t e n s i f i c a t i o n of t h e e x c h a n g e of

i n t e l l i g e n c e r e p o r t s a n d s i t u a t i o n a s s e s s m e n t s a s w e l l a s f o r t h e i m p r o v e -

m e n t of e a r l y w a r n i n g p o s s i b i l i t i e s t h r o u g h t h e i n t e l l i g e n c e s e r v i c e s .

(18) M C 7 0 , d a t e d 9 M a y 58 . S e e S e c t i o n VI , p a r a g r a p h s 14 a n d 16, a n d S e c t i o n V H .

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S H A P E 5 8 / 6 7 N Ä T O i £ * S É C R E T w

R e a d i n e s s a n d A c t i v e A i r D e f e n s e

M e a s u r e s t o b e t a k e n a g a i n s t t h e m a n n e d b o m b e r a n d m i s s i l e s w e r e

d i s c u s s e d i n M C 7 0 . A h i g h d e g r e e of r e a d i n e s s w a s v i t a l i n o r d e r t o

p e r m i t l a u n c h i n g t h e r e t a l i a t i o n b e f o r e a r r i v a l of t h e e n e m y a t t a c k .

T h e i m p r o v e m e n t of a l l a l e r t s y s t e m s w a s c o n s i d e r e d t o b e a m a t t e r of

u r g e n c y . T h e e x i s t i n g s y s t e m s w o u l d h a v e t o b e r e v i e w e d a n d c o o r d i n a t e d

w i t h a v i e w t o s i m p l i f i c a t i o n a n d u n i f i c a t i o n s . B y m e a n s of s u c h a

s i m p l i f i e d a n d u n i f i e d s y s t e m , t h e A l l i e d C o m m a n d e r s w o u l d h a v e t o t a k e

m e a s u r e s t o e n s u r e t h e r e a d i n e s s a n d t h e s u r v i v a l of t h e i r f o r c e s , t h e m -

s e l v e s b a s e d on m i l i t a r y d e c i s i o n s a d a p t e d t o t h e s i t u a t i o n .

S A C E U R ' s T a s k s

I n p e a c e t i m e , S A C E U R , i n a c c o r d a n c e w i t h t h e a p p r o v e d c o n c e p t of

a n i n t e g r a t e d a i r d e f e n s e , h a d t o b e p r e p a r e d t o a s s u m e r e s p o n s i b i l i t y f o r

s u c h a n i n t e g r a t e d s y s t e m a s s o o n a s p l a n s w e r e a p p r o v e d . T h u s M C 70

u n d e r l i n e d t h e n e c e s s i t y f o r a n 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 . S A C E U R ' s

w a r t i m e t a s k w a s " t o d e f e n d h i s a r e a a s f a r f o r w a r d a s p o s s i b l e , w i t h n o

i n t e n t i o n of m a j o r w i t h d r a w a l s a n d w i t h p a r t i c u l a r a t t e n t i o n t o t h e

p r o t e c t i o n of t h e o f f e n s i v e s t r i k i n g p o w e r i n h i s a r e a , t h e w e a p o n s , t h e

i n s t a l l a t i o n s , a n d t h e g u i d a n c e s y s t e m s . "

I n o r d e r t o a c h i e v e h i s t a s k s , S A C E U R h a d a r e q u i r e m e n t f o r a i r

d e f e n s e t o c o v e r t h e S t r i k e a n d S h i e l d f o r c e s a n d s a f e g u a r d t h e i r a b i l i t y

t o a c c o m p l i s h t h e i r a s s i g n e d t a s k s . In a d d i t i o n , t h e r e w a s t h e o b l i g a t i o n

t o p r o t e c t N A T O c o u n t r i e s .

T h e a i r d e f e n s e f o r c e s s h o w n i n t h e f o r c e t a b l e s i n M C 70 w e r e

b a s e d o n t h e a s s u m p t i o n t h a t , i r r e s p e c t i v e of t h e r a t e of S o v i e t m i s s i l e

d e v e l o p m e n t , a t h r e a t a g a i n s t E u r o p e f r o m e n e m y m a n n e d a i r c r a f t w o u l d

c o n t i n u e t o e x i s t t h r o u g h o u t t h e p e r i o d c o v e r e d b y t h e s t u d y . T h e t a b l e s

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S H A P E 5 8 / 6 7 B

s h o w i n g f o r c e r e q u i r e m e n t s p r o v i d e d f o r t h e e a r l i e s t p o s s i b l e i n t r o d u c t i o n

of a n t i - a i r c r a f t m i s s i l e s . A l t h o u g h t h e n e e d f o r a c t i v e a n t i - m i s s i l e

d e f e n s e s w a s r e c o g n i z e d , n o p r o v i s i o n w a s m a d e f o r s u c h d e f e n s e s i n

M C 7 0 , s i n c e a t t h a t t i m e i t w a s n o t e x p e c t e d t h a t a n t i - m i s s i l e w e a p o n s

w o u l d h a v e b e c o m e o p e r a t i o n a l l y a v a i l a b l e b y 1963.

T h e D e p l o y m e n t of M i s s i l e s f o r A i r D e f e n s e

I n t h e 1 9 5 8 - 1 9 6 3 M i n i m u m F o r c e S t u d y , S H A P E p r o p o s e d a f o r w a r d

s u r f a c e - t o - a i r m i s s i l e c o n c e p t f o r a i r d e f e n s e . At t h e e n d of 1957 ,

G e n e r a l N o r s t a d r e v i e w e d t h i s c o n c e p t i n o r d e r t h a t h e c o u l d m a k e (19)

d e t a i l e d r e c o m m e n d a t i o n s on t h e d e p l o y m e n t of t h e s e m i s s i l e s . ' T o

a s s i s t h i m i n r e a c h i n g a f i r m d e c i s i o n , S A C E U R r e q u e s t e d c e r t a i n

n a t i o n a l a u t h o r i t i e s t o m a k e a v a i l a b l e t o h i m t h e m o s t s u i t a b l e t o p l e v e l

s c i e n t i s t s a n d a i r d e f e n s e e x p e r t s . H e s u g g e s t e d t h a t t h e s e e x p e r t s

s h o u l d c o m e t o S H A P E f o r a m e e t i n g " t o r e v i e w t h e p r o p o s e d c o n c e p t f o r

t h e d e p l o y m e n t of s u r f a c e - t o - a i r m i s s i l e s i n C e n t r a l E u r o p e i n t h e 1 9 5 8 -

1963 p e r i o d a n d t o m a k e r e c o m m e n d a t i o n s a s t h e y s e e f i t on t h e u s e of

t h e s e w e a p o n s s y s t e m s a n d t h e i r d e p l o y m e n t . " T h e A i r D e f e n s e D i v i s i o n

s t a f f a t S H A P E w a s d i r e c t e d t o w o r k c l o s e l y w i t h t h e g r o u p .

T h e g r o u p of e x p e r t s m e t a t S H A P E f r o m 21 t o 2 3 J a n u a r y 1958^ 2 °^

A f t e r c o n s i d e r i n g v a r i o u s s o l u t i o n s f o r t h e d e p l o y m e n t of t h e SAM u n i t s ,

a r e c o m m e n d a t i o n w a s m a d e t h a t t h e u n i t s b e d e p l o y e d i n a t h i n f o r w a r d

b e l t c o m b i n e d w i t h t h e c l o s e d e f e n s e of s e l e c t e d t a r g e t s i n t h e r e a r .

T h e l i m i t e d f o r w a r d b e l t w o u l d g i v e w a r n i n g of p o s i t i v e a t t a c k a n d s o

f a c i l i t a t e t h e t i m e l y l a u n c h i n g of s t r i k e f o r c e s . It w o u l d a l s o p r o v i d e a

(19) SH 2 0 2 4 2 , d a t e d 10 D e c 5 7 : S A C E U R t o M O D s of B e l g i u m , C a n a d a , F r a n c e , G e r m a n y , t h e N e t h e r l a n d s , U n i t e d K i n g d o m a n d U n i t e d S t a t e s .

( 20 ) F r o m a n u n d a t e d a n d u n c o n t r o l l e d p a p e r e n t i t l e d " " D e p l o y m e n t of SAM i n C e n t r a l E u r o p e 1 9 5 8 - 6 3 . R e c o m m e n d a t i o n s of A i r D e f e n s e C o n s u l t a n t

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N A T O S H A P E 5 8 / 6 7 N A T O S E C R E T

k i l l c a p a c i t y i n t h e f o r w a r d a r e a s w h e r e t h e f i g h t e r s c o u l d n o t r e a c t i n

t i m e . T h e f o r w a r d l i n e s of t h i s z o n e w o u l d h a v e t o b e a s c l o s e t o t h e

I r o n C u r t a i n a s o p e r a t i o n a l l i m i t a t i o n s p e r m i t t e d . In t h i s z o n e , t h e

p r o b l e m s of i d e n t i f i c a t i o n a n d c o n t r o l w e r e l e s s f o r m i d a b l e i n t h e v i t a l

o p e n i n g p h a s e of w a r , a n d t h e w e a p o n s w o u l d t h e r e f o r e b e o p e r a t e d w i t h

m i n i m u m l i m i t a t i o n s .

T h e a i m of t h e r e a r w a r d d e p l o y m e n t of m i s s i l e s w a s t o p r o v i d e t h e

m a x i m u m s e c u r i t y t o s t r i k e f o r c e b a s e s a n d t o o t h e r i m p o r t a n t t a r g e t s . is

T h e g r o u p a l s o r e c o m m e n d e d c h a n g e s i n b a l a n c e b e t w e e n t h e f o r w a r d a n d

r e a r m i s s i l e z o n e s a s c o m p a r e d w i t h t h e c o n c e p t p u t f o r w a r d b y S H A P E . I t w a s s u g g e s t e d t h a t t h e d i v i s i o n of e f f o r t b e t w e e n f o r w a r d a n d r e a r w a r d

z o n e s w o u l d d e p e n d o n t h e s i z e of t h e f o r c e s e v e n t u a l l y a v a i l a b l e , b u t a n

a p p r o x i m a t e i n d i c a t i o n d i s t r i b u t i o n w o u l d b e :

a . 25% i n t h e f o r w a r d b e l t ;

b . 75% i n t h e r e a r z o n e i n d e f e n s e of s t r i k e f o r c e s a n d i m p o r t a n t

t a r g e t s .

T h e m e e t i n g a l s o s h o w e d t h a t t h e e x p e r t s f a v o u r e d t h e c o n t i n u e d

u s e of t h e m a n n e d f i g h t e r .

T h e F o r w a r d M i s s i l e B e l t

F o l l o w i n g t h e b r i e f i n g h e l d a t F o n t a i n e b l e a u o n 2 5 N o v e m b e r 1957 a t

w h i c h S H A P E p r e s e n t e d i t s v i e w s on t h e d e p l o y m e n t of t h e s u r f a c e - t o - a i r

m i s s i l e s i n t h e C e n t r a l R e g i o n , C I N C E N T w r o t e t o S H A P E c o n c u r r i n g w i t h (21)

t h e S H A P E v i e w p o i n t / ' G e n e r a l V a l l u y , h o w e v e r , a d d e d a c o m m e n t t o

t h e e f f e c t t h a t h e c o n s i d e r e d t h a t d e p l o y m e n t n e a r t h e I r o n C u r t a i n w o u l d

b e p o s s i b l e o n l y w h e n t h e f o r w a r d s t r a t e g y m a d e i t p o s s i b l e t o p r o t e c t

t h e s i t e s . H e c o n s i d e r e d t h a t a n i n t e r i m p e r i o d w o u l d b e n e c e s s a r y d u r i n g

w h i c h t h e l a u n c h i n g s i t e s w o u l d b e i n s t a l l e d w e s t of t h e r i v e r W e s e r .

(21) A F C E / 2 3 8 / 5 7 d a t e d 2 8 N o v 57 .

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s h a p e 5 8 / 6 7 ^ m î - 6 r » m m ^ i t »

O n 13 F e b r u a r y 1958 , S H A P E r e p l i e d t o t h i s l e t t e r f r o m C I N C E N T . ^ 2 2 ^

It w a s s t a t e d t h a t i n f o r m a t i o n i n S H A P E ' S p o s s e s s i o n a t t h a t t i m e

i n d i c a t e d t h a t t h e f i r s t s u r f a c e - t o - a i r m i s s i l e u n i t s w o u l d n o t b e a v a i l a b l e

u n t i l s o m e t i m e i n 1959 . B y t h e n , i t w a s e x p e c t e d t h a t t h e s e t t i n g u p of

t h e G e r m a n f o r c e s s h o u l d m a k e p o s s i b l e , i f n o t t h e f u l l i m p l e m e n t a t i o n

of t h e f o r w a r d s t r a t e g y , a t a n y r a t e a d e q u a t e p r o t e c t i o n of t h e i n s t a l l a t i o n s

e a s t of t h e W e s e r .

T h e r e w e r e o t h e r c o n s i d e r a t i o n s w h i c h S H A P E c o n s i d e r e d d i d n o t

f a v o r t h e t e m p o r a r y d e p l o y m e n t w e s t of t h e W e s e r , T h e s e w e r e :

a . T h e d e s i r a b i l i t y of i n s t a l l i n g e a c h m i s s i l e b a t t e r y a t i t s f i n a l

' p o s i t i o n , o w i n g t o t h e e x t e n s i v e n e s s a n d r e l a t i v e l y h i g h c o s t of t h e

n e c e s s a r y i n f r a s t r u c t u r e w o r k s .

b . T h e i m p e r a t i v e n e e d t o b e a b l e t o m a k e s i m u l t a n e o u s u s e ,

i m m e d i a t e l y o n t h e b e g i n n i n g of h o s t i l i t i e s , of a l l t h e a v a i l a b l e a i r

d e f e n s e f a c i l i t i e s . T h e d e p l o y m e n t of m i s s i l e s i n a r e a r a r e a a l o n g w a y

f r o m t h e I r o n C u r t a i n w o u l d i n v o l v e t h e o v e r l a p p i n g of t h e i r o p e r a t i o n a l

a r e a s a n d t h o s e of t h e p i l o t e d a i r c r a f t , a n d c o n s e q u e n t l y t h e n o n -

s i m u l t a n e o u s u s e of t h e s e t w o f a c i l i t i e s .

c . I t w a s i m p o r t a n t t h a t a n y h o s t i l e a i r t h r e a t s h o u l d m e e t a d e n s e

a n d c o n t i n u o u s d e f e n s e , a s f a r e a s t a s p o s s i b l e . T h e d e f e n s e of t h e

C e n t r a l E u r o p e a n a r e a c o u l d b e e f f e c t i v e o n l y if i t f o r m e d a c o o r d i n a t e d

u n b r o k e n w h o l e t o g e t h e r w i t h t h e d e f e n s e s i n E a s t e r n D e n m a r k a n d

S o u t h e r n N o r w a y .

d . T a r g e t s i n t h e C e n t r a l E u r o p e a n a r e a h a d t o b e p r o t e c t e d

a g a i n s t a i r - t o - s u r f a c e m i s s i l e s l a u n c h e d b y e n e m y s t a n d - o f f b o m b e r s

b y d e f e n s e s w h i c h w e r e a s n e a r t h e I r o n C u r t a i n a s p o s s i b l e . T h e s e

b o m b e r s c o u l d o p e r a t e f a r t o t h e e a s t of t h e I r o n C u r t a i n .

(22) S H A P E / l / 5 8 d a t e d 13 F e b 58 .

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S H A P E 5 8 / 6 7 Ö

S H A P E p o i n t e d o u t t h a t a t t h e S H A P E A i r D e f e n s e C o n f e r e n c e h e l d

o n 2 1 - 2 3 J a n u a r y 1 9 5 8 a l l p a r t i c i p a n t s h a d a g r e e d t h a t a i r d e f e n s e s h o u l d

n e c e s s a r i l y i n c l u d e a n a d v a n c e d d e p l o y m e n t z o n e s i t u a t e d a s f a r e a s t a s

p o s s i b l e . D e p t h i n d e f e n s e w o u l d b e e n s u r e d b y s u c c e s s i v e d e p l o y m e n t

z o n e s t o w a r d s t h e w e s t .

M i s s i l e D e p l o y m e n t

A s a r e s u l t of t h e r e c o m m e n d a t i o n s m a d e b y t h e w o r k i n g g r o u p of

s c i e n t i s t s a n d a i r d e f e n s e e x p e r t s , a n d of t h e b r i e f i n g m a d e b y t h e A i r

D e f e n s e D i v i s i o n s t a f f t o S A C E U R , G e n e r a l N o r s t a d d e c i d e d t h a t t h e

S H A P E A i r D e f e n s e c o n c e p t c o n t a i n e d i n t h e M i n i m u m F o r c e S t u d y n e e d (23 )

^not b e c h a n g e d . ' T h e c o n c e p t w o u l d h o l d g o o d e v e n if s o m e r e a d j u s t m e n t

i n t h e n u m b e r of m i s s i l e s i n t h e f o r w a r d z o n e a n d a r o u n d c r i t i c a l a r e a s

b e c a m e d e s i r a b l e i n t h e f u t u r e . S A C E U R d i r e c t e d t h e S H A P E s t a f f , w i t h

a s s i s t a n c e f r o m C I N C E N T r e p r e s e n t a t i v e s , t o d e v e l o p r e c o m m e n d a t i o n s

o n t h e m a n n i n g a n d d e p l o y m e n t of t h e N I K E B a t t a l i o n s p l a n n e d f o r t h e

N e t h e r l a n d s , B e l g i u m , F r a n c e a n d G e r m a n y . T h e F u n d i n g of M i s s i l e S i t e s

T h e c a s e f o r t h e N A T O 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 w a s (24)

p r e s e n t e d t o t h e S t a n d i n g G r o u p b y S H A P E i n 1957 . ' D e s p i t e t h e

i n c r e a s i n g u r g e n c y f o r a d e c i s i o n on t h e f u n d i n g p r o b l e m , n o d e c i s i o n

w a s r e a c h e d b y t h e e n d of t h a t y e a r . P e r s o n n e l t o m a n a n d o p e r a t e t h e

m i s s i l e s w e r e e x p e c t e d t o f i n i s h t h e i r t r a i n i n g i n t h e U n i t e d S t a t e s d u r i n g

1958 , a n d i t w a s c o n s i d e r e d v i t a l t h a t t h e n e c e s s a r y 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 b e s t a r t e d a s s o o n a s p o s s i b l e . F o l l o w i n g t h e 1957 H e a d s

of G o v e r n m e n t m e e t i n g , t h e N o r t h A t l a n t i c C o u n c i l i n s t r u c t e d 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 o s t u d y t h e c o m m o n f u n d i n g p r o b l e m .

(23 ) S e e C h i e f of S t a f f ' s r e m a r k s a t t h e D i v i s i o n C h i e f s m e e t i n g h e l d on 6 F e b 58 , S E C 2 0 3 0 .

( 2 4 ) S e e S H A P E H i s t o r y 1957 - A i r D e f e n s e C h a p t e r .

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S H A P E 5 8 / 6 7

In F e b r u a r y 1958 , h o w e v e r , t h e S t a n d i n g G r o u p r e q u e s t e d t h a t

t h e s t u d y b e i n g u n d e r t a k e n b y 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 b e p o s t p o n e d (25 )

t o a f u t u r e d a t e . ' T h e r e a s o n f o r t h i s r e q u e s t w a s , a c c o r d i n g t o t h e

S G N , t h a t d i v e r g e n t v i e w s e x i s t e d b e t w e e n S A C E U R a n d c e r t a i n n a t i o n s

o n t h e q u e s t i o n of a n 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 A l l i e d C o m m a n d

E u r o p e . T h e SGN t h o u g h t t h a t t h e l a t t e r p r o b l e m s h o u l d b e r e s o l v e d b e f o r e

a n y d e c i s i o n c o u l d b e t a k e 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 .

T h e i n c r e a s i n g u r g e n c y of t h e p r o b l e m f o r c e d S H A P E t o r a i s e t h e

m a t t e r w i t h t h e SGN o n e m o n t h l a t e r . ^ 2 ^ T h e S H A P E v i e w w a s t h a t

a n y a p p r o v a l b y h i g h e r a u t h o r i t y on t h e c o m m o n f u n d i n g n e e d n o t w a i t

u n t i l a g r e e m e n t on i n t e g r a t i o n .

I t w a s p o i n t e d ou t t h a t S A C E U R h a d r e c e n t l y a p p r o v e d C l N C E N T ' s

p l a n f o r t h e d e p l o y m e n t of t h e e x p e c t e d m i s s i l e s , a n d h a d s u b s e q u e n t l y

d i r e c t e d C I N C E N T t o p r o c e e d w i t h c o o r d i n a t e d p l a n n i n g w i t h t h e n a t i o n s

c o n c e r n e d i n t h e p l a n i n o r d e r t h a t s i t e s u r v e y s a n d l a n d a c q u i s i t i o n c o u l d

p r o c e e d w i t h o u t d e l a y . S H A P E c o n s i d e r e d t h a t t h i s f a c t t a k e n i n

c o n j u n c t i o n w i t h A n n e x D of t h e M i n i m u m F o r c e S t u d y w a s e n o u g h

j u s t i f i c a t i o n t o o b t a i n a p p r o v a l f o r c o m m o n f u n d i n g a s s o o n a s p o s s i b l e .

O n 2 8 A p r i l 1958 t h e S t a n d i n g G r o u p r e m o v e d t h e r e s e r v a t i o n on

t h e p r o b l e m a n d d e c i d e d t h a t a d e c i s i o n c o u l d b e r e a c h e d b e f o r e t h e (27 ) w i d e r q u e s t i o n of i n t e g r a t i o n w a s r e s o l v e d /

T h e A C E L o n g - R a n g e E a r l y W a r n i n g S y s t e m - P r o g r e s s i n 1958

F o l l o w i n g t h e a g r e e m e n t on t h e S H A P 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

t h e l o n g r a n g e e a r l y w a r n i n g s y s t e m i n S e p t e m b e r 1957 , p r o p o s a l s w e r e

(25) S C O IN 14715, d a t e d 27 F e b 58 . (26) S H 2 2 5 2 2 , d a t e d 27 M a r 58 . (27) S C O I N 17911 ( D E F 9 4 0 8 6 ) d a t e d 28 A p r 58 .

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S H A P E 5 8 / 6 7 r Ä T O " S E C R E T

m a d e r e g a r d i n g s e l e c t i o n of r a d a r e q u i p m e n t s . A s a r e s u l t of t h e s e

p r o p o s a l s S H A P E w a s m a d e r e s p o n s i b l e f o r t h e s e l e c t i o n of r a d a r

e q u i p m e n t s f o l l o w i n g s u b m i s s i o n s m a d e b y h o s t n a t i o n s . I t w a s a g r e e d

t h a t t h e n a t i o n s w o u l d c a l l f o r b i d s on e q u i p m e n t f r o m v a r i o u s

m a n u f a c t u r e r s a n d s u b m i t t h e m f o r a s s e s s m e n t t o S H A P E . T w e n t y

p r o p o s a l s f o r t h e s u p p l y of r a d a r e q u i p m e n t w e r e r e c e i v e d a t S H A P E .

A f t e r a c o m p r e h e n s i v e a n d d e t a i l e d s t u d y b y S H A P E , w i t h t h e a s s i s t a n c e

of S A D T C , t h r e e w e r e s e l e c t e d a s b e i n g s u p e r i o r i n a l l r e s p e c t s of t h e

o t h e r s . A p a r t f r o m s a t i s f y i n g o p e r a t i o n a l r e q u i r e m e n t s , t h e m a n u f a c t u r e r s

of t h e s e l e c t e d e q u i p m e n t s w e r e a b l e t o s u p p l y t h e m w i t h i n t h e t i m e s c h e d u l e .

' T h e m a n u f a c t u r e r s c o n c e r n e d w e r e e x p e r i e n c e d i n t h e c o n d u c t a n d r e s e a r c h

of p r o d u c t i o n p r o g r a m s o n a m u l t i - n a t i o n a l b a s i s a n d h a d l a r g e p r o d u c t i o n '

c a p a c i t i e s . D e t a i l s of t h e t h r e e s e l e c t e d p r o p o s a l s w e r e s e n t t o t h e N A T O (29)

I n f r a s t r u c t u r e C o m m i t t e e d u r i n g M a r c h 1958. ' T h e C o m m i t t e e

a p p r o v e d t h e S H A P E p r o p o s a l s t w o m o n t h s l a t e r .

I m p r o v e m e n t s t o t h e G r o u n d E n v i r o n m e n t of t h e A C E A i r D e f e n s e S y s t e m

T w o a d d i t i o n a l r e a s o n s f o r a n e a r l y d e c i s i o n b y t h e C o u n c i l on t h e

e l i g i b i l i t y of n e w t y p e s of i n f r a s t r u c t u r e f o r c o m m o n f u n d i n g w e r e o u t l i n e d

i n a l e t t e r f r o m S H A P E t o t h e SGN o n 14 M a y 1 9 5 8 . ^ T h e f i r s t r e a s o n

c o n c e r n e d t h e m o d e r n i s a t i o n of t h e c o n t r o l a n d r e p o r t i n g s y s t e m s of t h e

A C E A i r D e f e n s e S y s t e m . T h e p l a n f o r a n 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 A C E , s u b m i t t e d b y S A C E U R t o t h e SGN o n 27 F e b r u a r y 1958 , i n c l u d e d

(28 ) S e e C o m m u n i c a t i o n s C h a p t e r , S H A P E H i s t o r y 1957 . S e e a l s o S H A P E 1 7 1 / 5 7 d a t e d 15 O c t 57.

(29 ) A G 3170 A D d a t e d 2 5 M a r 58. ( 3 0 ) A G 3170.9 S I C / E L d a t e d 11 J u l 58 . S e e S i g n a l D i v i s i o n r e p o r t

S I G / P T 3 3 0 0 d a t e d 3 J u n 59 . (31) A G 6 1 0 0 / I P - 5 0 / 5 8 P R O G , d a t e d 14 M a y 58 .

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s h a p e 5 9 / 6 7 m m ^ s ä S I R I C T t

a r e c o m m e n d a t i o n t h a t t h e c o n t r o l a n d r e p o r t i n g f a c i l i t i e s h e c o m m o n l y

f i n a n c e d . I n a n t i c i p a t i o n of t h e a p p r o v a l of i n t e g r a t i o n , S H A P E h a d

r e c o m m e n d e d t h a t L.20 m i l l i o n b e s p e n t o n t h e m o d e r n i z a t i o n of t h e

e x i s t i n g c o n t r o l a n d r e p o r t i n g s y s t e m s . T h e M i l i t a r y C o m m i t t e e h a d

i n c l u d e d t h i s S H A P E r e c o m m e n d a t i o n i n M C 32 /11 w h i c h o u t l i n e d

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 t h e p e r i o d 1 9 5 8 - 1 9 6 3 .

S H A P E b e l i e v e d i t w a s n e c e s s a r y t o r e a c h a d e c i s i o n o n t h e p r i n c i p l e

of c o m m o n f u n d i n g f o r t h i s m o d e r n i z a t i o n b e f o r e f i n a l a p p r o v a l of S A C E U R '

p l a n f o r a n 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 . I t w a s n e c e s s a r y b e c a u s e

a p p r o v a l w o u l d i m m e d i a t e l y p r o d u c e a p r i o r i t y r e q u i r e m e n t f o r t h e

« m o d e r n i z a t i o n of t h e c o n t r o l a n d r e p o r t i n g s y s t e m s .

T h e s e c o n d r e a s o n f o r a n e a r l y d e c i s i o n b y t h e C o u n c i l o n c o m m o n

f u n d i n g w a s t h e n e e d f o r a n a n t i - b a l l i s t i c m i s s i l e w a r n i n g s y s t e m .

A l t h o u g h n o d e t a i l e d r e c o m m e n d a t i o n h a d b e e n m a d e b y S H A P E on s u c h a

s y s t e m , M C 32 /11 i n c l u d e d a n e s t i m a t e f o r L 3 0 m i l l i o n f o r s u c h a s y s t e m .

I t w a s b e l i e v e d t h a t t h e e x i s t i n g b a l l i s t i c m i s s i l e t h r e a t w a r r a n t e d t h e

e s t a b l i s h m e n t a s s o o n a s p o s s i b l e of a n a n t i - m i s s i l e s y s t e m .

S H A P E f u r t h e r c o n s i d e r e d t h a t t h e s e t w o r e q u i r e m e n t s w e r e , i n

f a c t , t w o a s p e c t s of t h e s a m e o v e r a l l r e q u i r e m e n t . T h e m o d e r n i z a t i o n

of t h e c o n t r o l a n d r e p o r t i n g s y s t e m s w o u l d h a v e t o t a k e i n t o a c c o u n t t h e

n e e d f o r a n a n t i - b a l l i s t i c m i s s i l e w a r n i n g s y s t e m a n d t h e n e c e s s a r y

d e v e l o p m e n t a n d r e f i n e m e n t s n e e d e d w o u l d h a v e t o b e p l a n n e d f o r a n d

s p e c i a l i z e d f e a t u r e s i n c o r p o r a t e d , s u c h a s d i g i t a l i n t e r c e p t i o n c o m p u t e r s

a n d c o m m u n i c a t i o n s .

I t w a s c o n s i d e r e d t h a t b o t h t h e s e r e q u i r e m e n t s f e l l u n d e r t h e C o u n c i l

c r i t e r i a f o r N A T O c o m m o n i n f r a s t r u c t u r e .

211

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S H A P E 5 8 / 6 7 S E C R E T

D a t a H a n d l i n g S y s t e m

T h e 9 t h S l i c e 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 L 5 m i l l i o n t o b e

e x p e n d e d u p o n p a r t of t h e r a d a r d a t a h a n d l i n g s y s t e m f o r t h e e a r i y

w a r n i n g s y s t e m . O w i n g t o t h e d e l a y i n a p p r o v a l of t h e 9 t h S l i c e

p r o g r a m b y t h e C o u n c i l , l i t t l e p r o g r e s s w a s m a d e o n p r o v i s i o n of t h e ( 3 2 )

d a t a h a n d l i n g s y s t e m .

F u r t h e r d e l a y w a s e n c o u n t e r e d d u r i n g 1958, m a i n l y d u e t o t h e

i n a b i l i t y of t h e v a r i o u s i n t e r e s t e d a g e n c i e s t o a g r e e on 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 f o r t h e s y s t e m .

R u l e s f o r E n g a g e m e n t of U n i d e n t i f i e d A i r c r a f t .

S i n c e 1953 a n e e d h a d e x i s t e d w i t h i n N A T O f o r s t a n d a r d i z e d r u l e s

t o g o v e r n t h e e n g a g e m e n t of u n i d e n t i f i e d a i r c r a f t o v e r A l l i e d a i r s p a c e .

I n o r d e r t o m e e t t h i s n e e d S A C E U R , i n 1953 , h a d p r o p o s e d t o t h e

S t a n d i n g G r o u p a s e t of r u l e s w h i c h w o u l d p l a c e NATO, a s a w h o l e , a n d

i n d i v i d u a l n a t i o n s , i n a b e t t e r p o s i t i o n t o c o u n t e r e f f e c t i v e l y a n y s u r p r i s e

a t t a c k . ^ 3 3

B e c a u s e of p o l i t i c a l i m p l i c a t i o n s , h o w e v e r , a s e t of r u l e s w a s n o t

a d o p t e d u n t i l 23 J a n u a r y 1957, w h e n t h e N o r t h A t l a n t i c C o u n c i l a p p r o v e d

M C 66 , F i n a l .

T h e n e w r u l e s s t i l l d i d n o t b e c o m e i m m e d i a t e l y o p e r a t i v e . At

t h e i r m e e t i n g o n 30 J a n u a r y 1957, t h e C o u n c i l a g r e e d t h a t t h e e f f e c t i v e (35 )

d a t e s b e a l t e r e d f o r t h e d i s s e m i n a t i o n of t h e R u l e s of E n g a g e m e n t . '

T h e d a t e of i s s u e w a s . c h a n g e d f r o m 15 F e b r u a r y t o 1 M a r c h a n d t h e d a t e

of i m p l e m e n t a t i o n f r o m 1 M a r c h t o 1 A p r i l .

T h e C o u n c i l h e l d a f u r t h e r m e e t i n g o n 6 F e b r u a r y 1 9 5 7 . ^ 3 ^ T h e

U n i t e d S t a t e s r e p r e s e n t a t i v e d r e w a t t e n t i o n t o t h e f a c t t h a t a s e t of

( 3 2 ) A G 2 0 3 0 S I C / F S , d a t e d 19 J u n 58 ; S e e a l s o AG 3170/3171.1, d a t e d 4 A u g 58, 18 D e c 58 a n d 23 D e c 58 .

( 3 3 ) S e e S H A P E H i s t o r y 1 9 5 3 - 5 6 f o r b a c k g r o u n d a n d d e v e l o p m e n t of t h e s e R u l e s .

( 34 ) S C O I N 17612, 2 6 J a n 57 , a n d R D C / 3 3 / 5 7 , 25 J a n 57 . ( 3 5 ) L O S T A N 1924 , d a t e d 30 J a n 57 . ( 3 6 ) S C O I N 1 8 0 8 6 , d a t e d 6 F e b 57 ( L O S T A N 1933)

A T O j b > s : ^ T O \ r r i s n

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S H A P E 5 8 / 6 7 S E G R B 1

d i f f e r e n t r u l e s w a s i n o p e r a t i o n i n G e r m a n y a n d p a r t i c u l a r l y i n t h e B e r l i n

c o r r i d o r . In t h e l a t t e r c a s e , t h e U S S R w a s a p a r t y t o a s p e c i a l q u a d r i -

p a r t i t e a g r e e m e n t . H e a l s o s t a t e d t h a t t h e r u l e s p r o p o s e d w e r e d i f f e r e n t

t o t h o s e i n u s e i n t h e U n i t e d S t a t e s a n d C a n a d a . It w a s c o n s i d e r e d ,

t h e r e f o r e , b y t h e U S r e p r e s e n t a t i v e , t h a t t h e p r o m u l g a t i o n a n d d i s s e m i n a t i o n

of t h e M C 66 r u l e s s h o u l d b e o n a g o v e r n m e n t t o g o v e r n m e n t b a s i s .

A s a r e s u l t of t h i s m e e t i n g , t h e C o u n c i l s u s p e n d e d a p p r o v a l of M C 66 .

T h e S G N w a s i n v i t e d t o c l a r i f y t h e p o i n t s r a i s e d b y t h e U S r e p r e s e n t a t i v e .

T h e o b j e c t i o n s r a i s e d b y t h e U n i t e d S t a t e s r e p r e s e n t a t i v e w e r e

e x a m i n e d a t S H A P E , a n d t h e r e s u l t s of t h e e x a m i n a t i o n w e r e s e n t t o (37 )

t h e S G N . • I n v e s t i g a t i o n « of t h e p o i n t s a t S H A P E s u g g e s t e d t h a t n o

f o r m a l a g r e e m e n t e x i s t e d b e t w e e n t h e f o u r f o r m e r o c c u p y i n g p o w e r s c o n c e r n i n g v i s u a l i d e n t i f i c a t i o n s i g n a l s i n f o r c e i n t h e v i c i n i t y of t h e

B e r l i n c o r r i d o r s , o r e l s e w h e r e i n G e r m a n y . T h e M C 66 s i g n a l s w e r e

b a s e d o n a c c e p t e d p r o c e d u r e s i n u s e b y t h e f o u r p o w e r s i n G e r m a n y , b u t

MC 6 6 i n c l u d e d t h e a d d e d v i s u a l s i g n a l " c i r c l e f o r i d e n t i f i c a t i o n . " It w a s

t h o u g h t a t S H A P E t h a t t h e U n i t e d S t a t e s ' o b j e c t i o n t o t h e p u b l i c a t i o n of t h e

M C 66 v i s u a l s i g n a l s s t e m m e d f r o m a c o n c e r n t h a t t h e S o v i e t s m i g h t h a v e

r e a c t e d u n f a v o r a b l y b e c a u s e of t h e u n i l a t e r a l a d d i t i o n of t h i s o n e s i g n a l ,

a n d t h a t t h e M C 66 s i g n a l s d i f f e r e d f r o m t h o s e i n u s e i n C a n a d a a n d t h e

U n i t e d S t a t e s .

S H A P E s t a t e d t h a t t h e r e w a s , d o u b t l e s s , s e m e p o s s i b i l i t y t h a t t h e

S o v i e t s w o u l d o b j e c t t o t h e a d o p t i o n of t h i s s i g n a l , a n d t h e y c o u l d h a v e ,

of c o u r s e , s e r i o u s l y d i s r u p t e d t r a f f i c i n t h e B e r l i n c o r r i d o r , if t h e y s o

d e s i r e d . H o w e v e r , t h e s e s i g n a l s a p p l i e d o n l y t o t h e u n i d e n t i f i e d t r a f f i c

a n d t h e y w o u l d o b t a i n o n l y w e s t of t h e I r o n C u r t a i n . T h e y w o u l d h a v e n o

e f f e c t o n t h e p r o c e d u r e s i n t h e B e r l i n c o r r i d o r u n l e s s t h e S o v i e t s w i s h e d

t o a d o p t t h e m i n t h e E a s t e r n Z o n e a n d e v e n t h e n t h e r e w o u l d b e n o

(37) S H 3 4 5 8 4 , d a t e d 14 M a r 57 .

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S H A P E 5 8 / 6 7

r a t i o n a l j u s t i f i c a t i o n f o r i n t e r f e r e n c e w i t h s c h e d u l e d t r a f f i c . S H A P E

c o n s i d e r e d t h a t t h i s " c i r c l e f o r i d e n t i f i c a t i o n " s i g n a l w a s a n o n - a g g r e s s i v e

p r o c e d u r e a n d w e l l w i t h i n t h e l e g a l a n d e t h i c a l r i g h t s of t h e W e s t e r n

A l l i e s t o i m p o s e w i t h i n t h e i r o w n t e r r i t o r y .

T h e M C 66 s i g n a l s w e r e d e s i g n e d f o r a i r d e f e n s e p u r p o s e s a n d t h e

o r d e r " c i r c l e f o r i d e n t i f i c a t i o n " w a s i n c l u d e d t o m e e t a s p e c i f i c

m i l i t a r y r e q u i r e m e n t . S H A P E c o n s i d e r e d t h a t t h e o m i s s i o n of t h i s

a d d i t i o n a l s i g n a l w o u l d s i g n i f i c a n t l y w e a k e n t h e M C 66 p r o c e d u r e s .

C o n c e r n i n g t h e s e c o n d U S o b j e c t i o n , S H A P E q u e s t i o n e d t h e n e e d f o r

c o m p l e t e u n i f o r m i t y b e t w e e n E u r o p e a n d N o r t h A m e r i c a . T h e c l o s e

c o n t a c t w i t h t h e S o v i e t B l o c a n d t h e c o n c e n t r a t i o n of s e n s i t i v e a r e a s i n

A C E r e q u i r e d s p e c i a l m e a s u r e s t o d e a l w i t h v i o l a t i o n s of a i r s p a c e .

O n t h e o n e h a n d , a c c i d e n t a l v i o l a t i o n s w e r e l i k e l y t o b e m o r e f r e q u e n t i n

E u r o p e , a n d o n t h e ' o t h e r h a n d , if t h e i n t e n t w a s h o s t i l e , t h e t i m e a n d

d i s t a n c e f a c t o r s w e r e m o r e c r i t i c a l t h a n i n N o r t h A m e r i c a . T h e M C 66

r u l e s w e r e d e s i g n e d t o m e e t t h i s o p e r a t i o n a l r e q i d r e m e n t .

O n 1 M a y 1957 , t h e SGN s t a t e d t h a t i t w a s of t h e o p i n i o n t h a t c e r t a i n (38)

r u l e s s h o u l d b e s u b s t i t u t e d . T h e p r o p o s e d M C 6 6 r u l e s s h o u l d b e w i t h -

d r a w n a n d t h e r u l e s t a k e n f r o m t h e S u p p l e m e n t a r y F l i g h t I n f o r m a t i o n

d o c u m e n t d a t e d 1 J a n u a r y 1957 ( U S A F - U S N ) b e s u b s t i t u t e d . T h e s e n e w

R u l e s w e r e t o a p p l y t o N A T O E u r o p e , i n c l u d i n g T u r k e y .

A i r V i c e M a r s h a l M c G r e g o r , A COS, A i r D e f e n s e , S H A P E , i n a

b r i e f p r e p a r e d t o S A C E U R , s t a t e d t h a t t h e o n l y p o i n t of d i f f e r e n c e ( a p a r t

f r o m c e r t a i n e m e r g e n c y p r o c e d u r e s ) b e t w e e n M C 6 6 a n d S G N ' s p r é p o s a i s (39 ) w a s t h a t t h e l a t t e r o m i t t e d t h e i n i t i a l c h a l l e n g e " c i r c l e f o r i d e n t i f i c a t i o n . " * '

( 3 8 ) S T A N D 1931, d a t e d 1 M a y 57. T h e p r o p o s e d n e w r u l e s w e r e i n c l u d e d i n t h i s m e s s a g e .

(39 ) A D 1 2 5 0 / 2 , d a t e d 13 M a y 57 .

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S H A P E 5 8 / 6 7 B g g E R l

W h i l s t t h i s o m i s s i o n w e a k e n e d t h e p r o c e d u r e s , A V M M c G r e g o r b e l i e v e d

t h a t t h e i m p o r t a n t t h i n g w a s t o g e t a n a g r e e d s e t of R u l e s i n t r o d u c e d ,

e v e n if t h e y w e r e n o t a s s t r o n g a s S H A P E w o u l d l i k e . A c c o r d i n g l y , t h e

T h e S t a n d i n g G r o u p e x p l a i n e d , i n a r e p l y t o S H A P E on 6 J u n e 1958 ,

t h a t t h e m o d i f i c a t i o n s t h e y h a d p r o p o s e d w h i c h h a d b e e n a c c e p t e d b y

S H A P E , b r o u g h t t h e p r o p o s e d v i s u a l i d e n t i f i c a t i o n p r o c e d u r e s i n t o l i n e

w i t h t h o s e e s t a b l i s h e d b y F r a n c e , t h e U n i t e d K i n g d o m , t h e U n i t e d S t a t e s (41)

a n d U S S R f o r B e r l i n , a n d t h e p r e v i o u s l y o c c u p i e d z o n e s of G e r m a n y .

A t i t s m e e t i n g of 2 J u l y 1958, t h e C o u n c i l a p p r o v e d M C 66 ( F i n a l )

and a g r e e d t h a t a l l E u r o p e a n N A T O G o v e r n m e n t s a n d T u r k e y s h o u l d on

1 1 A u g u s t 1958 p r o m u l g a t e a N O T A M ( N o t i c e t o A i r m e n ) t o t h e e f f e c t t h a t ,

a s f r o m 15th S e p t e m b e r 1958, t h e v i s u a l i d e n t i f i c a t i o n s i g n a l s s e t ou t i n

M C 6 6 w o u l d b e u s e d o v e r t h e i r t e r r i t o r y a n d t e r r i t o r i a l w a t e r s i n a r e a s (42)

t o b e d e f i n e d i n t h e N O T A M . ' ( C o p i e s of M C 66 w e r e d e s p a t c h e d t o

all M S C s a n d i n t e r e s t e d a g e n c i e s o n 2 8 A u g u s t 1 9 5 8 . )

A n u n f o r e s e e n d i f f i c u l t y a r o s e f o l l o w i n g t h e p r o m u l g a t i o n of t h e

n e w p r o c e d u r e s b y t h e I t a l i a n a n d U n i t e d K i n g d o m a u t h o r i t i e s . T h e

E x e c u t i v e S e c r e t a r y of N A T O , L o r d C o l e r i d g e , r e c e i v e d a l e t t e r f r o m

t h e C h a i r m a n of C E A C ( C o m m i t t e e f o r E u r o p e a n A i r - S p a c e C o o r d i n a t i o n )

a n d a l s o a t e l e g r a m f r o m I A T A ( I n t e r n a t i o n a l A i r T r a n s p o r t A s s o c i a t i o n )

r e g a r d i n g t h e n e w N O T A M s p r o m u l g a t e d b y t h e t w o n a t i o n a l a u t h o r i t i e s .

I t w a s p o i n t e d out t h a t " v e r y g r a v e c o n s e q u e n c e s t o c i v i l a i r c r a f t " c o u l d

a r i s e o u t of t h e a p p l i c a t i o n of t h e n e w a i r i n t e r c e p t i o n r u l e s . I A T A

r e q u e s t e d a n o f f i c i a l a s s u r a n c e t h a t t h e s e p r o p o s e d p r o c e d u r e s w o u l d n o t

S G N w a s i n f o r m e d t h a t S H A P E a g r e e d t o t h e r e v i s e d s e t of R u l e s . ( 40 )

(40) S H A P T O 1470, d a t e d 21 M a y 57. (41) S T A N D 2 4 6 6 , d a t e d 6 J u n 58 . (42) C - R ( 5 8 ) 4 1 , d a t e d 2 J u l 58, w h i c h a p p r o v e d M C 66 ( F i n a l ) .

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S H A P E 5 8 / 6 7 SfeCR tE4T"

b e a p p l i e d t o i n t e r n a t i o n a l s c h e d u l e d a i r c r a f t b e l o n g i n g t o m e m b e r a i r l i n e s

of t h e a s s o c i a t i o n . T h e a s s o c i a t i o n d r e w a t t e n t i o n t o t h e f a c t t h a t t h e

p r o c e d u r e s h a d n o t b e e n c o o r d i n a t e d n o r w e r e t h e y i n t e r n a t i o n a l l y a g r e e d

s i n c e n e i t h e r I C A O ( I n t e r n a t i o n a l C i v i l A i r c r a f t O r g a n i z a t i o n ) n o r I A T A

h a d b e e n c o n s u l t e d . T h e n e w p r o c e d u r e s w e r e a l s o i n c o n f l i c t w i t h t h e

p r e v i o u s l y a g r e e d p r o c e d u r e s f o r N A T O e x e r c i s e s .

T h e S t a n d i n g G r o u p , i n f o r m e d of t h e p r o b l e m , c o n s i d e r e d t h a t t h e

p r o b l e m of c o o r d i n a t i o n of t h e R u l e s of E n g a g e m e n t a s r e f l e c t e d i n

M C 66 w i t h t h e a p p r o p r i a t e i n t e r n a t i o n a l o r g a n i z a t i o n s s u c h a s I C A O a n d

I A T A w a s a r e s p o n s i b i l i t y of N A T O a g e n c i e s s u c h a s C E A C a n d t h e N A T O (43)

n a t i o n s c o n c e r n e d .

I n a d d i t i o n , t h e S t a n d i n g G r o u p c o n s i d e r e d t h a t t h e M C 6 6 R u l e s

s u p e r s e d e d t h e e x i s t i n g r u l e s of p r o c e d u r e s f o r c i v i l i a n a i r c r a f t a s

p r o m u l g a t e d b y C E A C . S H A P E , h o w e v e r , c o n s i d e r e d t h a t t h e t w o s e t s (44)

o f Rvi les w e r e c o m p l e m e n t a r y . T h e C E A C r u l e s d e f i n e d p r o c e d u r e s

a c c e p t e d b y t h e c i v i l a i r l i n e s a s r e a s o n a b l y s a f e . W h e n u n d e r t h e s e r u l e s

a c i v i l i a n a i r c r a f t h a d b e e n a p p r o a c h e d a n d i d e n t i f i e d , t h e i n t e r c e p t i o n

w a s b r o k e n cff b e f o r e t h e M C 66 R u l e s b e c a m e a p p l i c a b l e . O n l y i n t h e .

c a s e of a n a i r c r a f t n o t be ing p r o p e r l y m a r k e d o r o t h e r w i s e s u s p e c t - a n d

t h i s s h o u l d n o t h a v e o c c u r r e d i n t h e c a s e of a c i v i l a i r l i n e r - w o u l d

M C 66 b e c o m e a p p l i c a b l e . I t f o l l o w e d t h a t t h e c i v i l a i r l i n e s ' s a f e t y

w a s e n s u r e d b y t h e C E A C R u l e s of I n t e r c e p t i o n .

T h e C h a i r m a m o f C E A C s t a t e d t h a t t h e S t a n d i n g G r o u p ' s d e c i s i o n

m e a n t t h a t t h e a p p r o p r i a t e I n t e r n a t i o n a l a g e n c i e s s h o u l d b e i n f o r m e d t h a t

M C 66 s u p e r s e d e d t h e o r i g i n a l C E A C p r o c e d u r e s . H o w e v e r , t h e SGN

h a d n o o b j e c t i o n t o C E A C c o n s i d e r i n g p o s s i b l e a m e n d m e n t s t o M C 66 ( F i n a l )

p r o v i d e d t h a t t h e s e a m e n d m e n t s w e r e s u b m i t t e d b y t h e c i v i l - m i l i t a r y

( 4 3 ) L O S T A N 2 5 9 5 , d a t e d 5 Sep 58, a n d S T A N D 2 6 0 8 , d a t e d 17 Sep 58 . ( 4 4 ) S H A P T O 1752, d a t e d 20 O c t 58.

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a u t h o r i t i e s of m e m b e r n a t i o n s , a n d t h a t a n y s u c h a m e n d m e n t s , a s a g r e e d

b y C E A C , w e r e s u b m i t t e d t o S G n / 4 5 ^

A m e e t i n g w a s h e l d of C E A C o n 1 a n d 4 D e c e m b e r 1 9 5 8 on t h e s u b j e c t

of R u l e s f o r E n g a g e m e n t of U n i d e n t i f i e d A i r c r a f t b y N A T O f i g h t e r s i n

P e a c e t i m e . ^ 4 ^ It w a s u n a n i m o u s l y d e c i d e d t h a t M C 66 s h o u l d no t b e

a m e n d e d . It w a s d e c i d e d t h a t a l l N A T O n a t i o n s w o u l d i s s u e o n 15 J a n u a r y

1959 a S t a n d a r d N o t i c e t o A i r m e n ( N O T A M ) , w h i c h h a d b e e n p r e p a r e d b y

t h e C o m m i t t e e , i n s u p e r s e s s i o n of i n d i v i d u a l N O T A M s i s s u e d b y n a t i o n s

o n M C 66 s i g n a l s . In t h i s s t a n d a r d N O T A M t h e s i g n a l s t h e m s e l v e s w o u l d

b e p r e c e d e d b y a p r e a m b l e d e s i g n e d t o r e a s s u r e c i v i l i a n o p e r a t o r s .

T h e C h a i r m a n of I A T A w a s s a t i s f i e d t h a t t h e s a f e t y of c i v i l i a n a i r l i n e

o p e r a t o r s w a s s a f e g u a r d e d p r o v i d e d s t r i c t d i s c i p l i n e w a s o b s e r v e d .

M e a n w h i l e , S H A P E h a d i n f o r m e d 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 i n

J u n e 1958 t h a t a l t h o u g h M C 66 w a s a v a l u a b l e s t e p f o r w a r d i n t h a t i t e s t a b l i s h e d

a s e t of R u l e s of E n g a g e m e n t f o r d i s t r i b u t i o n a n d u s e b y t h e N A T O E u r o p e a n ( 4 7 )

n a t i o n s , f u r t h e r d e v e l o p m e n t w a s n e c e s s a r y . I t w a s t h e S H A P E v i e w

t h a t t h e R u l e s r e q u i r e d c o n s i d e r a b l e a m p l i f i c a t i o n i f t h e y w e r e t o p r o v i d e

t h e n e c e s s a r y g u i d a n c e t o N A T O C o m m a n d e r s a n d t h o s e r e s p o n s i b l e f o r

o r d e r i n g t h e a p p r o p r i a t e a c t i v e d e f e n s e r e a c t i o n t o a n y e n e m y p e n e t r a t i o n

o r a t t a c k . F u r t h e r m o r e , if t h e i n t e g r a t i o n of t h e a i r d e f e n s e of A C E w a s

a p p r o v e d , s u c h R u l e s of E n g a g e m e n t w o u l d f o r m t h e b a s i s f o r t h e i n i t i a l

o p e r a t i o n of t h e a i r d e f e n s e f o r c e s i n t h e c a s e of a t t a c k .

S H A P 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 w i t h t h e p r o b l e m of a r a i d of

c r i t i c a l s i z e , w h i c h if p e r m i t t e d t o p e n e t r a t e , c o u l d d e s t r o y a s i g n i f i c a n t

p r o p o r t i o n of t h e r e t a l i a t o r y f o r c e s a n d / o r t h e N A T O d e f e n s i v e c a p a b i l i t y .

( 45 ) A C / 9 2 - D / 9 0 , d a t e d 9 O c t 58 . (46 ) L O S T A N 2715, d a t e d 5 D e c 58 . (47) A G 1 2 5 0 / 2 A D E F , d a t e d 16 J u n 58.

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S H A P E 5 8 / 6 ? W

T h e n e w R u l e s of E n g a g e m e n t f o r d e f e n s i v e a c t i o n , w h i l s t t a k i n g

i n t o a c c o u n t t h e p o s s i b i l i t y of a m i s s i l e a t t a c k , w e r e t o b e d e s i g n e d t o

d e f i n e t h e a p p r o p r i a t e a c t i o n s w h i c h s h o u l d b e t a k e n a g a i n s t t h e m a n n e d

o r w i n g e d m i s s i l e t h r e a t . I t w a s c o n s i d e r e d t h a t t h e r e v i s e d R u l e s s h o u l d

b e b a s e d o n t h e u s e of c o n v e n t i o n a l w a r h e a d s , t h o u g h i t w a s a p p r e c i a t e d

t h a t a d d i t i o n a l R u l e s w o u l d h a v e t o b e f r a m e d a t a l a t e r d a t e t o p r e s c r i b e

t h e c o n d i t i o n s u n d e r w h i c h n u c l e a r w a r h e a d s c o u l d a n d w o u l d b e u s e d f o r

d e f e n s i v e p u r p o s e s i n a n i n i t i a l a t t a c k .

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