740.5/12–950

Report by the North Atlantic Council of Deputies on Military Committee Document MC 30

top secret

D–D/196 (Final)1

Political Aspects of the Contribution of Germany to the Defense of Western Europe*

introductory

1. The Deputies have considered and concurred in the report of the Military Committee (MC [30]).2

[Page 532]

2. The Deputies have considered the political aspects of the question and their views and recommendations on the entire problem are set out below.

general principles

3. The Council has already decided that the defence of Western Europe will require the establishment of an integrated force, under centralised command and control, composed of forces made available by participating governments and also the full utilisation of manpower and productive resources available from all sources. In view of the pressing need to organise and develop the collective defence of Western Europe without delay the Deputies agreed that the appointment of the Supreme Commander at the earliest possible date was a matter of the greatest importance. The Deputies also agreed on the great importance of resolving as soon as possible all other questions involving the early establishment of the integrated force and the forces allocated to it.

4. From a political point of view, the Deputies particularly endorse the statements made in paragraphs 1 through 8 of M.C. 30, that the defence of the North Atlantic area required that Western Europe be defended as far to the East as possible; that the considerable potential of Western Germany must be denied to the enemy and secured for the North Atlantic nations; that an acceptable and realistic defence of Western Europe and the adoption of a forward strategy cannot be contemplated without active and willing German participation, and that the process of building up the total forces required must be initiated in the immediate future. Due regard must, of course, be paid to the morale of the forces of other countries participating in the integrated force.

5. In considering the political aspects of German participation in the defence of the North Atlantic area, the Deputies have agreed that the following principles are applicable:

(a)
Any system of German participation must be within the NATO structure;
(b)
Any system must be militarily acceptable and the units formed thereunder must be effective;
(c)
In so far as possible, a European, rather than a narrow national spirit, should be instilled in the German contingents;
(d)
Subject to limitations set out in the Military Committee report German units should be treated on a basis of full equality with other participating countries with which they are integrated;
(e)
Recognising that in any system adopted some controls such as those set out in the Military Committee report will be required, the system should provide for the diminution of such controls only to the extent that permanent institutions into which Germany is integrated have been developed, or, failing the development of such institutions, [Page 533] after account has been taken of the extent to which effective, positive safeguards have been established. In either event account should be taken of the extent to which the German Federal Government is cooperating in the general defence effort;
(f)
Any system adopted should provide for the rapid formation and training of German units in accordance with the provisions of the Military Committee report;
(g)
To make rapid progress, existing organisations and agencies should be utilized as far as possible in the initial phases, without prejudice to the development of effective permanent institutions which can assume the necessary responsibilities;
(h)
Any system adopted should be subject to modification in the light of events.

6. After reviewing the military and political aspects of the problem the Deputies concluded that all the questions presented could not be solved at the same time. While work proceeds toward the solution of the political aspects of the problem, certain steps, upon which there already exists a large measure of agreement, can and must be taken immediately. This necessitates the use of provisional measures during a transitional period. The purpose of such a transitional period would be to permit;

(a)
The essential preliminary work on the military organisation to be initiated immediately;
(b)
The recruitment of German manpower, the formation of combat-worthy German units and the production of material under provisional arrangements pending development of a more permanent system; and
(c)
The consideration of the broader political problems to be undertaken concurrently but free from the pressure attendant upon the initiation of military measures.

These provisional arrangements would be progressively superseded or modified as and to the extent that permanent mechanisms, either military or political, were developed which could effectively discharge the various responsibilities.

political aspects of military question

7. The Deputies have agreed on the following recommendations on the political aspects of the questions in the Military Committee report:

(a) Size of German formations:

The size of German formations to be constituted should not under present conditions exceed that of regimental combat-teams or brigade groups. However, when these regimental combat-teams or brigade groups are formed and trained, the question of the manner in which they should be used must be determined in the light of conditions at the time, due weight being given to the views of the Supreme Commander.

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(b) Air units:

The Deputies considered this matter in the light of the recommendations contained in the report of the Military Committee and agreed that, to the extent that military considerations require, the German contribution should be limited to appropriate air units for defence of Western Germany and support of German ground units. Such air units would be a part of the integrated air forces under the Supreme Commander.

(c) Conscription or voluntary enlistment:

In view of the possible dangers of a voluntary system as applied to German recruitment, several of the Deputies expressed a preference for conscription or some similar system. The Deputies considered that this problem should be determined by the Occupying Powers after consultation with the German authorities.

(d) Contribution of German production:

Subject to the safeguards set forth in the Military Committee report, the Deputies consider that German production should contribute to the greatest extent possible to the support of the German contribution in manpower, and to such other phases of the common defence as may be reasonable and within her capabilities. The nature and size of the contribution to be made by the German armament industry should be recommended by the appropriate agencies of NATO. Until other arrangements are adopted the safeguards on production will continue to be exercised by the occupying authorities. There must, of course, be close cooperation between them and the Defence Production Board of the NATO.

(e) Plan for raising and preliminary training of German forces:

The Deputies agree that the detailed plans for the raising and preliminary training of German forces should be made by the occupying authorities in concert with the Supreme Commander and appropriate German authorities.

(f) Administration of Defence in Germany:

The Deputies have discussed various aspects of the defence administration in Germany and agree that it should be of a civilian character and should remain subject to some system of allied control, even should the regime of occupation, be modified. During the initial period control will, of course, continue to be exercised by the Occupying Powers. The Deputies recognize that a final determination of the form and functions of the German administration must be made in conjunction with the German authorities. The permanent German administration and the form of the allied control over it will also [Page 535] depend to some extent on the nature of any political defence structure which evolves in Europe and in NATO. The Deputies consider that an inter-allied administrative agency is not an acceptable substitute for a German organisation. Whether or not there should be one or more German agencies should be determined after discussions with the German authorities.

It is generally agreed that:

(i)
any administration established should be capable of fulfilling its functions effectively and rapidly;
(ii)
the functions to be entrusted to such administration should not be such as to permit the development of a Defence Ministry;
(iii)
to ensure against the possible re-birth of a German General Staff, the functions appropriate to the plans, operations and intelligence sections of military staffs, above the level of authorised tactical units, should only be discharged by international staffs under the Supreme Commander and should not be permitted in any German agency.

The Deputies consider that the enforcement of the safeguards, as set forth in the Military Committee report, should be the responsibility of the Occupying Powers. The enforcement of those safeguards could be progressively transferred to the appropriate European or NATO agency if and to the extent that this should later be considered advisable.

political questions

8. The Deputies recalled that the Council in its resolution of 26th September, 1950 (C5–D/11—Final)3 stipulated that the integrated force should be organised under the North Atlantic Treaty Organisation and be subject to political and strategic guidance exercised by the appropriate agencies of the North Atlantic Treaty.

9. The Deputies considered a Netherlands’ suggestion for the appointment of a NATO High Commissioner in Germany, who would have certain responsibilities with regard to all the armed forces stationed in Germany and to German participation in particular.

In the course of the ensuing exchange of views various suggestions were made as to the nature and functions of such an authority, for example:

(a)
The building up of an integrated force will lead to the stationing in Western Europe of army and Air Force units contributed by several nations jointly placed under S.H.A.P.E. The presence of these forces, diverse as to nationality, often in countries not their own, would make it desirable for practical reasons to set up a NATO authority with power to advise the national authorities and coordinate their [Page 536] action in certain administrative and supply questions of common interest which will not be part of the responsibility of S.H.A.P.E.
(b)
This authority might be called the NATO Commissioner for the Defence of Western Europe. The Commissioner would be a civilian and would be appointed by, and responsible to, the Atlantic Council, from whom he would receive the necessary directives.
(c)
The Commissioner would also act in an advisory capacity to the Allied High Commission in Germany in their supervision of the German Agency or Agencies entrusted with the administration of the German defence effort. When the time came for the Allied High Commission to relinquish these supervisory powers, the latter could, under arrangements to be agreed with the German Federal authorities, be transferred to the NATO High Commissioner or Representative, thus ensuring unbroken supervision over the German defence contribution.

The Deputies reached no conclusions with respect to these suggestions but agreed that they were a valuable contribution to the examination of the political aspects of a German contribution to the defence of Western Europe and that further study should be given to the nature and functions of such an authority.

10. The Deputies also considered the French proposals that there be included within the NATO framework a European Army subject to European as well as NATO political guidance. Subject to a reservation by the Portuguese Deputy, they agreed that any such institutions, if and when created, must:

(a)
strengthen the North Atlantic Community and the integrated defence of the North Atlantic area;
(b)
be integrated into the NATO framework;
(c)
promote the closer association of the countries of Western Europe and tie Western Germany more firmly to the West.

11. It was felt that the creation of a European Army and attendant political institutions raised problems which required profound and mature consideration, and which could not be adequately solved in haste. If fully adequate and lasting solutions were to be found, such problems should be considered on their merits and free from the pressure of initiating military measures. Furthermore, it could not realistically be expected that these solutions, even if agreement upon them Were quickly reached, could attain adequate development in time to serve as a framework for the rapid initiation of effective military strength.

12. The Deputies took note of the French Government’s intention to call a conference of the countries (including the German Federal Republic) which wish to participate in a European Army. The Deputies felt that they should keep themselves informed as fully as possible of the progress of the conference and should in due time consider the recommendations made there from a NATO point of [Page 537] view. It was felt that to the extent that agreement was reached by the European Powers upon such arrangements, and they were developed to the point where they could create and support effectively military forces of a European rather than a national character, suitable for integration into NATO, these arrangements should be placed progressively into operation and could then supersede the transitional arrangements. The final test of all such arrangements must be whether, in the judgment of NATO, they were militarily effective and served to strengthen the North Atlantic Community. The transitional arrangements should continue in effect until replaced either by the arrangements so agreed upon or by other arrangements adopted by the NATO in the light of experience.

13. In the view of the Deputies, consideration of these political problems must not delay the prompt initiation of those military measures upon which agreement has been reached by the Military Committee and which can be initiated forthwith. The Deputies consider that the Occupying Powers should be invited by the parties to the North Atlantic Treaty to discuss with the German Federal Government the question of German participation in Western European defence along the lines set forth in the Military Committee’s report. The principles and safeguards enunciated therein and in this document should guide the Occupation Authorities. The object of these discussions should be to secure the earliest possible recruitment and training of German formations for the integrated defence force. The Deputies further considered that the Occupying Powers should be invited to keep the other parties to the North Atlantic Treaty informed as fully as possible of the course of the discussions with the German authorities.

14. It was believed that definitive solutions of the various segments of the problem raised by German participation would be facilitated by actual experience in working under provisional agreements for a period after the Supreme Commander had been appointed and in dealing with the practical problems involved in developing an integrated force for the defence of Western Europe, including German formations. The Deputies considered this a matter of primary importance for the rapid solution of both the short-term and long-term problems.

recommendations

15. Since in their opinion, the report of the Military Committee together with this present document, constitutes an acceptable basis, from the political aspect, for German participation in the defence of Western Europe the Deputies therefore recommend that:

(1)
The Occupying Powers be invited by the parties to the North Atlantic Treaty to discuss with the German Federal Government the [Page 538] question of German participation in the defence’of Western Europe along the lines set forth in the Military Committee’s report and in the present document.
(2)
The Occupying Powers be invited to keep the other parties to the North Atlantic Treaty informed as fully as possible of the course of the discussions with the German authorities and the steps taken to initiate German participation.
(3)
The Council take note of the French Government’s intention to call a conference of the countries (including the German Federal Republic) which may wish to participate in a European Army, and, in view of the importance of the French Government’s proposals, the Council request the Deputies to keep themselves informed as fully as possible of the progress of the conference and in due course to consider the recommendations made at this conference from the point of view of NATO requirements. (Portuguese Reserve)
(4)
The Deputies be authorised to continue their study of the suggestions made in paragraph 9 of this Report.

  1. D–D/196 (Final) is a revision of D/MC–D/1, also dated December 9, not printed, which contains only a few minor textual differences.
  2. See para. 1 of D/MC–D/2. [Footnote in the source text. For text of D/MC–D/2, see p. 538.]
  3. Not printed. For a summary of this report, see memorandum of December 5, p. 517. MC 30 was the report from which D/MC–D/2 originated.
  4. For text, see Secto 55, September 26, p. 350.