Posted By Stephen M. Walt Share

Outgoing SecDef Robert Gates delivered a blunt message to America's NATO allies last week.  If they don't start pulling their weight, he warned, the alliance "faces a dim, if not dismal future." In particular, he said that public opinion in the United States will not support our continuing to subsidize European defense in an era where Asia merits greater attention and when the U.S. economy is performing poorly and our fiscal situation is especially parlous. Money quote:

I am the latest in a string of U.S. defense secretaries who have urged allies privately and publicly, often with exasperation, to meet agreed-upon NATO benchmarks for defense spending. However, fiscal, political and demographic realities make this unlikely to happen anytime soon, as even military stalwarts like the U.K have been forced to ratchet back with major cuts to force structure. Today, just five of 28 allies -- the U.S., U.K., France, Greece, along with Albania -- exceed the agreed 2 percent of GDP spending on defense. 

Regrettably, but realistically, this situation is highly unlikely to change."

Well, duh. NATO has been on borrowed time ever since the Soviet Union collapsed, because military alliances form primarily to deal with external threats and they are hard to hold together once the threat is gone. In a sense it is remarkable that NATO has persisted as long as it has, but that was mostly because the United States could afford to subsidize European security and because Washington saw NATO as a useful tool for maximizing U.S. influence in Europe.

The problems the alliance faces today have little to do with European fecklessness, American militarism, or the particular errors of individual leaders. The central problem here is structural: there's just not much of a case for a tightly integrated military alliance anymore, and not much reason for Europe to be armed to the teeth. Although both European and American defense intellectuals have worked tirelessly to invent new rationales for the alliance, none of them have been especially convincing.

Americans want Europe to spend more on defense, so that they can contribute more to our far-flung global projects. But why should they? Europe is peaceful, stable, democratic, and faces no serious external military threats. Its combined GNP exceeds ours, and the European members of NATO spend almost eight times more on defense than Russia does.   So where's the threat? The plain truth is that Europe has little reason to invest a lot of money on defense these days, no matter how much Americans implore them to, and so they turn a deaf ear to American entreaties.

To give U.S. interventions a veneer of legitimacy and to give itself something to do, in recent years NATO has tried to transform itself into some sort  of global expeditionary force.  Unfortunately, not only is a multilateral alliance with twenty-eight members a very ungainly structure for conducting this sort of operation, the campaigns in Iraq and Afghanistan have exposed the folly of this sort of global policeman role. Iraq was not a NATO operation, of course, but a lot of NATO countries participated in the debacle and all of them came away with a dim view of occupation and little desire to do more nation-building. Similarly, the repeated difficulties encountered in Afghanistan -- where NATO has had an official mission -- have reinforced the conclusion that occupying failed states is costly, difficult, and probably unnecessary. If this sort of activity has become NATO's main raison d'etre, you can understand why the alliance is in some trouble.

In other words, the central problem is that U.S. and European leaders have failed to invent a convincing reason for Europeans to spend more on defense than they already do. And when you marry that reality with the normal incentives for free-riding (as explained by the theory of collective action), then it is easy to understand why NATO is slowly fading into irrelevance. As I wrote over ten years ago:

The Atlantic Alliance is beginning to resemble Oscar Wilde's Dorian Gray, appearing youthful and robust as it grows older-but becoming ever more infirm. The Washington treaty may remain in force, the various ministerial meetings may continue to issue earnest and upbeat communiqués, and the Brussels bureaucracy may keep NATO webpage up and running -- all these superficial routines will go one, provided the alliances isn't asked to actually do anything else.  he danger is that NATO will be dead before anyone notices and we will only discover the corpse the moment we want it to rise and respond."

It's actually worse than I anticipated: We probably hastened NATO's demise by saddling it with a series of missions that it was never expected to perform and that were badly handled from the start.  Secretary Gates deserves credit for some plain talk about the current situation, but his sober words won't be nearly enough to overcome the deep structural forces at work.

Jason Reed-Pool/Getty Images

 

ELLERVEIRA

6:24 PM ET

June 13, 2011

Yes indeed

Yes indeed. I think Gates' speech was rather silly. He appears "stuck in the mud." NATO doesn't serve as a bulwark vs the USSR any longer since the USSR has ceased to exist. As Walt says the US "warmongers" have managed to use NATO to get support for their imperial war in Afghanistan, with some success. But as that war seems increasingly hopeless our NATO allies are less and less willing to spend money on it. The US just now is trying to use NATO to get the Ukraine involved with NATO, mainly to fly in Russia's face, but I doubt that will work either. In fact, Germany appears to be moving away from NATO and into closer ties with Russia as the construction of the Nordstream gas pipeline direct from Russia to Germany suggests. As Germany phases out its nuclear power industry, it will become even more dependent upon Russian gas for its energy.

 

TOIVOS

7:18 PM ET

June 13, 2011

Gates is a talented bureaucrat

I doubt that his intention was to pressure Nato countries to contribute more -- surely that should be a nonstarter. I think he does, at some level, realize Nato should be abolished. However, Nato is a huge bureaucracy and as such will work to preserve itself.

Dismantling this dinosaur will likely require many many years. Gates is sending a strong signal that maybe this process should begin now. Certainly, the finance ministers in every EU nation heard what he said.

I think Europe must at some level realize Nato could be worse than irrelevant but very dangerous. Let us imagine the US succeeded in extending membership to the Ukraine and Georgia. Would that have committed Europe to go to war against Russia in 2008? This would not have been in anybodies self interest. One would think that the foreign ministries in those countries would like to see that danger removed.

 

SCOTTINDALLAS

8:29 AM ET

June 14, 2011

Georgia was funny

Putin pulled our pants down there. Extend NATO? He nipped that fool notion in bud. We need to appreciate the vast strategic and financial difference between defense and offense. The Georgia example is a case of strategic overreach. It becomes far more untenable, and more costly to project protection beyond one's borders. However, as Iraq and Afghanistan show, it doesn't cost much to defend one's borders.

This is the worst taught fact in American history. What American invasion has born any fruit. Go down the line. Our many machinations in South America have born little fruit. We've been discredited and are widely resented by independent states. We've tried to destroy that continent and it appears that those who steered wide and clear of the US are doing well. In Vietnam, we had vastly superior forces, yet, couldn't dictate matters there. The same is true in Iraq after being bombed into the stone age under "Desert Storm" after being bombed, garrisoned and starved for a dozen years under the no fly zone, and after "shock and awe" we still were powerless to affect change there. We gained no contracts for our intervention, we just built resentment and hostility.

The best thing for American dominance would be for us to forgo our military dominance and focus on being as efficient and equitable a force in the world as possible. Military actions are murky, messy affairs. We can't afford these boondoggles any longer. But, who can sell the American people on that? Certainly no one in our current political hierarchy.

 

ELLERVEIRA

8:01 PM ET

June 13, 2011

Toivos

Certainly Gates is not stupid. But even bright people can get locked into positions that force them to seem "stupid" due to the demands of the job. He was simply mouthing what US policy (that is way past its "sell date") demands that he say. US foreign policy is amazingly frozen in the past. Not only re NATO, but in Asia, and also the Middle East. And the US apparently can't manage to stop wanting to annoy and harass Russia, quite unnecessarily. And present politics in
Washington show no sign of the US doing a complete "re-think" of its foreign policy to bring it up to date. I doubt a GOP President would be any better and might well be worse.

 

SCOTTINDALLAS

8:19 AM ET

June 14, 2011

an irrelevant caveat ellervieira

If Gates is bound to stick with the Status quo for reasons of job pressure, then it is irrelevant whether he is stupid or not. He's wedded to a stupid, anachronistic policy, which is stupid. Our defense budget is idiotic and a greater threat than any external threats we face.

We really need technocrats to explain and lead this country into better policies. Sadly, technocrats don't advance in our political system. Venal, spineless sycophants lobby and govern, in a pernicious revolving door of money larded payoffs and kickbacks. These have become more important than the policies themself. In fact, the greatest threat to this country is the fact that no where in the process is the most eloquent, efficient and equitable policy sought. That, can only portend doom, and the political leaders won't know what is earnest truth, what our guide star should be, or where to turn for advice and feedback.

 

MARKOB

11:52 AM ET

June 14, 2011

We cab take this free rider problem further

Gee, I don't know about this one Stephen. You're right in what you say but I think that you can take this a little bit further. I think that we see some of the limitations of realism here. I tend to think that what we see here is the classic free rider problem, which has always been the major problem in US-European relations with respect to NATO. The US performs a vital function; it largely maintains a system of global order which exists underneath an umbrella of power, including but not limited to military power, that is most favourable to US and West European interests. The Europeans have been pretty comfortable with that and would like to free ride some more. Perfectly rational. The US, despite the huffing and puffing, I think has largely gone along with this as the sort of inevitable price to be paid for being the primary power within "the affluent alliance." But the aftershocks of the financial crisis, BRICS and Global Trends 2025 and all that makes free riding more of problem. Again, perfectly rational. That, I suppose, would be a kinda realist way of seeing things. I think that as *relative* US decline starts to bite free riding by Europe becomes more of a hassle and a bug for Washington. So, yes, it is *structural* and it is kinda *realist* although it's the type of realism that is prepared to be super cynical. Realists don't take their cynicism far enough, especially when talking about their own states in my opinion.

 

NICOLAS19

8:07 AM ET

June 15, 2011

the "US system of global order" failed

Since the end of Cold War the US have belligerently toured the globe, looking for other enemies. Along the way they have alienated and outright violated a great many countries. The wave of violence in 1990-2010 is the direct consequence of this irresponsible gunslinging.
- Would we have an Iran problem if the US didn't help Iraq invade them?
- Would we have an Iraq problem if the US didn't arm Saddam in that same war? (well, it's a rhetorical question as the US provoked more violence without cause in 2003)
- Would we have a Pakistani problem if the US didn't call for a crusade against all Muslims?
- Would we have a radical Muslim problem if they weren't hunted everywhere even before 9/11?
- Would we have a China problem if the US treated them as equals? (colonialism, my ass)
- Would we have an Arab Spring, uprisings in a dozen countries if there weren't any US-buddy propped up dictators like Mubarak?

Point is, US interference has not made the world any safer, quite the opposite, so I don't see in what sense could Europeans free ride US "achievements". There are Europeans dying in US wars. There are Europeans dying because of US-induced terrorism. The US "power of umbrella" means a world of violence, where countries launch wars at will. Nobody thanks you for that.

 

ELLERVEIRA

4:39 PM ET

June 14, 2011

Military budgeting around the world

http://economix.blogs.nytimes.com/2011/06/14/can-we-afford-the-military-budget/

Interesting information bearing on the matter.

 

BANDOLERO

4:59 PM ET

June 14, 2011

How NATO looks like from a German perspective

From my point of a German view, the reality is even more different to the perception of Mr. Gates.

First, we understand history now better than some decades ago. When NATO was founded, most Germans believed the story of a communist threat. Now we learn that the communist threat was grossly and intentionaly exaggerated to make Germans accept remilitarization. Further we learned that NATO ran programs like Gladio behind and democratic control and under that program committed false flag terror attacks in western Europe to prevent the democratic processes playing out when people wanted leftist governments. So NATO is an organisation witha track record to prevent true democracy in Western Europe.

Second, NATO and especially the US pose a threat to our Russian friends. t's not in the interest to have trouble with our Russian friends. The Russians offer a good and large market for German products and they deliver cheap and clean energy to Germany. But the U.S. still insists on having nuclear weapons in Germany to threaten our Russian friends. And, of course, they also endanger Germans because nobody knows if there will be a nuclear accident once with these nuclear weapons.

Third, to the overall level of defense spending, most Germans are eager to cut it a lot. Many Germans ask, what the defense spending is good for it all. People in Iceland live fine, too, and they have no army. If the Americans can afford 700 bln Dollars defense budget a year, because their economy is fine and they can't find any better way to spend their wealthy budget on, Germans will not oppose to that - at least as long as the U.S. doesn't come along Germany to threaten our friends like Russia or our new friend China. But Gemany is a country indebted with almost 70 percent of GDP, so the federal German budget is restricted, and most Germans can think of millions of better things to spend our money on than military.

Of course, these changes are playing out only slowly, knowledge about history only slowly grows as does trade with Russia or reducing military budget. But the tendency is very clear.

 

ELLERVEIRA

7:33 PM ET

June 14, 2011

Germany turns toward Russia

Yes, quite the case. Germany, the kingpin in Europe and NATO, is in fact turning away from NATO and toward Russia. A good piece of evidence for this is the Nordstream gas pipeline that will bring Russian gas to Germany directly without going through Belarus or the Ukraine. And since Germany is going to phase out its nuclear power it will be even more dependent upon Russian gas. I don't think all this has quite dawned on the US consciousness yet. Europe doesn't really need the US that much anymore and NATO is a tired old involvement that will shortly die of old age.

 

Stephen M. Walt is the Robert and Renée Belfer professor of international relations at Harvard University.

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