Foreign Relations of the United States, 1950, Western Europe, Volume III

Conference Files: Lot 59 D 95: CF 44

Report by the North Atlantic Military Committee to the North Atlantic Defense Committee¹

top secret   cosmic

London, December 12, 1950.

D.C. 24/3

The Creation of an Integrated European Defense Force, the Establishment of a Supreme Headquarters in Europe, and the Reorganization of the NATO Military Structure

1. Since the inception of NATO considerable military planning has been done, but the means of converting these plans into an effective and efficient defense of the NAT area have been lacking. Existing forces are not fitted to resist a Russian offensive. They are inadequate; they are not organized, equipped, or trained for the battle they may have to fight, they are not supported by the necessary infrastructure; and they are not adequately backed by reserve formations. No means exist for welding even such national units as are now in being into a force which would provide the maximum defense capability, or for exercising unified command over any forces which might be available.

2. In order to defend Western Europe to the maximum extent practicable, national forces which are to be contributed for this purpose must be formed into a unified whole, deployed to the best possible advantage in peace consistent with “cold war” strategy and organized, trained and commanded as necessary to effectively meet a Soviet attack without warning.

3. These and similar factors led the North Atlantic Council at its meeting on 26 September 1950, to conclude—

“that the defense of Western Europe will require:

• (a) the establishment at the earliest possible date of an integrated force under centralized command and control composed of forces made available by Governments for the defense of Western Europe;
• (b) the full utilization of manpower and productive resources available from all sources;”

and to approve:

“the concept of an integrated force adequate to deter aggression and ensure the defense of Western Europe, including Western Germany”.

4. The Council agreed that the composition, organization and command of the integrated force should be based on certain principles which they set forth in Council Document C5–D/11 Final, dated 26 September 1950 (D.C. 21).² Concurrently the Council requested:

“That the Defense Committee consider and recommend to the Council as a matter of urgency:

a. The detailed steps necessary to establish the integrated force in accordance with the foregoing principles.

b. The powers to be exercised by the Supreme Commander in peacetime and the geographic limits within which he should exercise them.

c. The method and timing of contributions by Governments of national units in being to the integrated force.

d. The further authority, if any, which the Standing Group would require so as to ensure effective discharge of its responsibilities and also what adjustments in its organization and its present relations with the Accredited Representatives may be required to assure and improve the necessary close working relationship between the Standing Group and the member governments not represented on it.

e. The consequent changes and simplifications required in the existing military structure of the North Atlantic Treaty Organization and related military organizations.

f. The channel by which the higher direction of the integrated force as regards political considerations upon which strategic decisions should be based, can most effectively be conveyed by the Council to the military agencies of the NATO.”

5. The existing structure of Regional Planning Groups no longer meets NATO defense needs in the best manner from the operational point of view, nor does it provide the most economic organization for co-ordination in the non-operational sphere. The objections to the present organization may be summarized as follows:

a. The existing partition of the North Atlantic Treaty area into Regions does not provide in every case a satisfactory division from the military operational point of view.

b. NATO has no command organization charged with the preparation of operational plans, the training and welding together of existing forces, or for controlling operations should the necessity arise.

c. Such command organizations as exist in the North Atlantic Treaty area have no direct link with NATO nor have they been given responsibility for the organization and training of such national forces as might be placed under NATO command in war.

d. The United States is not a full member of the European Planning Groups. As NATO’s most powerful member, the United States should participate fully in European military organizations of the North Atlantic Treaty.

e. There is duplication of planning effort in the work at present undertaken by Regional Planning Groups.

f. The liaison links between the military, the production and supply, and the finance and economic bodies are not sufficiently effective.

6. For NATO defense planning there are now two distinct though related needs.

a. Inter-Allied command organizations to weld national forces into effective integrated allied commands, to make operational plans for the defense of territories and to put these plans into effect in case of emergency.

b. A strong and efficient central organization for combining and coordinating NATO military efforts in all spheres, including defense policy and strategy, the standardization of arms, the harmonization of procedure, the integration of training methods; in short, the pooling of military brains and resources.

object

7. The object of this paper is to determine what immediate re-organization of the NATO military structure is desirable:

a. To improve and expedite NATO peacetime military planning and the implementation of necessary forces;

b. To simplify the command and planning organization so that the peacetime organization is immediately adaptable to war time requirements.

8. The re-organization of the North Atlantic Treaty military structure is considered in the subsequent paragraphs under the following parts:

Part I	Military Higher Direction.
Part II	Command and Operational Planning.
Part III	Non-operational Planning and Equipping of Forces.
Part IV	The detailed steps necessary to establish the integrated force in Europe and the method and timing of national contributions.
Part V	The Powers to be exercised by the Supreme Commander Allied Powers in Europe in peacetime.
Part VI	Other Commands.
Part VII	Brussels Treaty Defence Organization.

part i

Military Higher Direction

9. With the establishment of a Supreme Allied Commander for Europe and a NATO Command Organisation, there will be a need for a paramount body capable of giving rapid decisions on military matters. Many questions which have previously been resolved at Regional level will have to be referred to higher authority, and rapid decisions must be given in order to produce positive action. It is considered that the existing machinery of the Standing Group and the Military Committee is too unwieldy to accomplish that action satisfactorily. The North Atlantic Council has recognised this fact and agreed that:

“the Standing Group shall be responsible for higher strategic direction in areas in which combined North Atlantic Treaty forces are operating. As such, it will be the superior military body to which the Supreme Commander, and pending his appointment the Chief of Staff, will be responsible. It will also determine the military requirements of the integrated force”.

10. It is considered that the most satisfactory way of establishing a military authority capable of providing rapid decisions in military strategic matters would be for the Military Committee to establish a permanent Military Representatives Committee composed of one national representative of each member of the Military Committee and to delegate more authority to the Standing Group.

11. The Military Representatives Committee should be a permanent body and should be located in Washington, D.C. The Standing Group should act as a steering and executive agency for the Military Representatives Committee. The chairman of the Standing Group should be nature requiring, therefore, the agreement of, or action by, the Military Representatives should be endowed by their National Chiefs of Staff with the necessary delegated authority to deal with matters which would in the past have come before the Military Committee, except those which because of their nature must continue to receive full Military Committee approval.

12. Matters which are not related to the higher strategic direction (COMMAND) of the NATO forces, but are of a policy and planning nature requiring, therefore, the agreement of, or action by, the Military Representatives Committee as a whole or the interested member Nations should be the subject of consultation by the Standing Group with the member nations or nation concerned. This will be accomplished by the Military Representatives Committee meeting regularly in Washington for the purpose of considering these subjects while studies are still in the preliminary stages. In this way National Chiefs of Staff can be informed of these matters and will be in a position to forward if they so wish, through their Military Representatives, any national views before reports are finalized. Close relations between the staffs of the Military Representatives and the Working Teams of the Standing Group will be necessary. To this end the Working Teams of the Standing Group will call upon the staffs of the Military Representatives as appropriate for assistance or advice during the preparation of papers which are of concern to them.

13. To enable the Standing Group to perform the command functions indicated by the Council it must be authorized to issue instructions, guidance and directions on military matters direct to the Supreme Allied Commander Europe, and to other major NATO commands which may be established later, and to exercise the necessary command functions except insofar as these are retained by the nations contributing forces to NATO integrated defense forces. The Standing Group will give consideration, if time allows, to the views of the nations concerned and in any case will keep them fully and immediately informed of the action proposed or taken.

14. The satisfactory accomplishment of the work of the military agencies of NATO requires that these agencies be kept fully informed and up-to-date on all political considerations upon which strategic decisions should be based. Normally political guidance will emanate from the Council, amplified as necessary by the Defense Committee. Neither of these agencies are, however, in continuous session and the change in political view of any of the twelve NATO nations may not become immediately available to military agencies.

15. The Military Committee therefore considers that the Council Deputies, being the only higher NATO political body which is in continuous session, should be the channel through which expeditious flow of political guidance to the military agencies is funneled. As such the Council Deputies should furnish political guidance to the Standing Group, and through them to the Military Representatives Committee, as appropriate during the time when the Defense and Military Committees are not in session.

16. It is considered that the Standing Group, upon receipt of such political guidance, should ensure its reflection in strategic direction to lower military agencies. In the event the political guidance appears militarily unacceptable, or in conflict with strategic concepts previously approved by higher NATO agencies, the Standing Group, in consultation with the Military Representatives Committee or the Military Representatives of the individual nations as appropriate, should so inform the Council Deputies and if agreement is not reached immediately report to the Military and/or Defense Committees.

17. The Council Deputies also require advice on defense matters, which should be provided on the military side by the Standing Group, in consultation with the Military, Representatives Committee or the Military Representatives of individual nations as appropriate. If a military advisory group, other than the Standing Group, were to be established to provide this advice to the Council Deputies, the two views might well not be in accord. The introduction of military advisers between the Council Deputies and the Standing Group is, therefore, clearly undesirable. It is considered that the channeling of political guidance to the Supreme Commander can only be through the Standing Group.

part ii

Command Organizations and Operational Planning

18. The North Atlantic Council has agreed that an integrated force under centralized command should be established for the defense of Europe. Since the existing Regional organization no longer meets the needs of peacetime planning, nor provides an organization adaptable to wartime requirements, it is appropriate to consider now what command structures are required in the North Atlantic Treaty area as a whole.

European Command

19. With the establishment of a Supreme Allied Commander Europe it is necessary to define the extent of responsibility of the Command and the subordinate Commands which should be set up. Initially, the Military Committee delineates the extent of responsibility as follows:

a. The European Command shall cover the area of the three European Regional Planning Groups of NATO and shall include command responsibility over all such Army, Navy and Air Forces as may be allocated to it for the defense of Western Europe.

b. The control and the defense of the zones of the interior, including French North Africa, is the direct responsibility of the National Authorities concerned, who will grant the Allied Commanders under SHAPE all facilities necessary for the efficient conduct of operations. The Supreme Commander will have authority to conduct such combat operations in these zones, including French North Africa, as he deems necessary for the defense of Western Europe.

The Supreme Commander is authorized to propose to the Military Committee through the Standing Group such modifications to the above as he may deem desirable.

20. In respect of the subordinate commands the Military Committee considers it desirable that the Supreme Commander should have an opportunity to study the problem and submit his recommendations. The preliminary views of the Military Committee are given in the succeeding paragraphs.

21. Western Europe and Southern Europe. The Western European Front and the Italian Front, although they together constitute the “couverture” from the Baltic to the Adriatic and very close coordination of the two is essential, will require separate command organizations to control their operations and for the preparation of detailed operational plans. Subordinate headquarters will, therefore, be required for each of these Fronts.

22. Northern Europe. The defense of Northern Europe is based on two separate land campaigns, in Denmark and in Norway. It is considered, however, that there would be considerable advantages in having a higher headquarters subordinate to SHAPE to coordinate operations and planning between these Danish and Norwegian Commands. An additional advantage to the setting up of this headquarters in peacetime is that it could provide the nucleus for a wartime Scandinavian command, which would be necessary in the event of Sweden joining the Allies.

23. Recommendation on Boundaries. Recommendations regarding the boundaries between zones of operations and the boundaries between the combat zones, the communication zones, and the zones of the interior will be submitted by the Supreme Commander for consideration by the Standing Group and further submission to the Military Committee when appropriate. Consideration should be given to agreements already reached and work done within the Regional framework.

24. The support of the Supreme Allied Commander Europe shall be one of the first responsibilities of the Naval forces of the Eastern Atlantic and of the Mediterranean.

Allied Naval Forces, Mediterranean

25. The Command for this zone is affected by the fact that the LOC’s which pass through it are required to support the Western European and Italian fronts and the Middle East. A practical solution is to make a separate overall Naval Command directly responsible to the Standing Group, which is the authority responsible for coordinating the requirements of all Fronts. A system of command in the Mediterranean should be established as soon as the necessary organization has been worked out.

26. Commanders of the Zones of the Interior would be responsible for the security of ports and bases in their zones, and for the provision of the facilities as determined by the Standing Group as previously agreed to by the Governments concerned.

Atlantic Command

27. The North Atlantic Ocean Region constitutes one natural Zone of Operations. The relationship of the U.K. home station and of the Southern-North Sea and its Channel approaches in the NAT Command Structure will be determined by the Military Committee in the near future. A Supreme Allied Commander Atlantic should be appointed as soon as possible after the appointment of a Supreme Allied Commander Europe.

Canada–U.S.

28. No changes are considered necessary in the organization of the Canada–U.S. Regional Planning Group at this time.

Zones of the Interior

29. Behind each theatre of operations, the Command of which would be vested in war in the operational commanders, there will be “Zones of the Interior.”

30. National governments will wish to retain direct responsibility for the home defense of their metropolitan territories. It is right that they should do so except insofar as it may be necessary to put specific areas under the operational control of Allied Commanders to insure the efficient conduct of operations.

31. The division of responsibilities between Supreme Commanders and their Subordinate Commanders on the one hand, and the National Authorities on the other hand, will be dealt with after receipt of recommendations from principal commanders concerned.

Regional Planning Groups

32. With the establishment of the above Command Organisations, there will no longer be a need for operational planning to be carried out by Regional Planning Groups, except in the Canada–U.S. Group. It is considered that the new Command Headquarters, as they are established, should take over from the appropriate Regional Planning Groups all operational planning functions. This transfer of functions should be executed as rapidly as staff and other considerations permit, in a manner which will cause minimum disruption and will ensure that the new organizations make maximum use of the work already done by the Regional Planning Groups.

part iii

Non-Operational Planning

33. If the recommendations in the preceding section of this paper are agreed, there will, it is considered, no longer be a justifiable need for Regional Planning Groups, except the Canada–U.S. Group, if some redistribution of their nonoperational planning functions and responsibilities is made. Planning of a non-operational nature, since it concerns national contributions to the integrated forces rather than the force as a whole, is not entirely within the prerogative of the Command Organization. In the main this work is already directed and coordinated by the Standing Group, and it is considered the Standing Group could with advantage assume responsibility for all planning which is not appropriate to an operational headquarters.

34. For this purpose the Standing Group will have to expand its sub-structure of Advisory and Technical Committees, many of which should now be enlarged to include representatives of all the signatory powers directly concerned. Such reorganization as is necessary presents no difficulty as the Standing Group Committees, which already exist to deal with such subjects, can readily be expanded to give wider national representation. This will eliminate the duplication which at present exists in the studies made by Regional Planning Groups and should provide the strong central organization required for the coordination of NATO military effort in all spheres.

35. Facilities for Standing Group and Military Representatives Committee liaison with the Council Deputies, the Military Production and Supply Board and the defense Financial and Economic Committee could with advantage be improved. The Council Deputies and the permanent working staffs of the Military Production and Supply Board and the Defense Financial and Economic Committee are located in London. It is considered, therefore, that a Standing Group Liaison Secretariat in London should be established to provide a channel through which military considerations could be presented to these permanent bodies, and other working Committees as appropriate, and through which they could pass requests for military decisions or advice to the Standing Group. The Liaison Secretariat would have no power of decision but their role would be to present approved advice to the appropriate body and to pass to the Standing Group requests from other permanent bodies for military guidance.

part iv

The Detailed Steps Necessary to Establish the Integrated Force in Europe and the Method and Timing of National Contributions

Establishment of the Integrated Force

36. The creation of an integrated force in Europe falls into three phases:

a. Phase I

The Agreement by the Military Committee, Defense Committee, and where necessary the Council, on the details of organization, command, and changes in the authority of affected NATO organizations. The Military Committee considers that agreement must now be reached on:

(1) The organization of a Supreme Headquarters Atlantic Powers in Europe (SHAPE) and after the receipt of the recommendations of the Supreme Commander, the subordinate Headquarters under SHAPE.

(2) The broad area of command, and general Nature of the responsibilities, of the Supreme Commander (SHAPE), and his relationship with National and NATO authorities.

(3) The changes in the North Atlantic Treaty Organization which must be made as a result of the creation of SHAPE, and the consequent changes in authority and responsibility of other NATO agencies, and the existing military structure which thus become desirable or necessary.

b. Phase II

When the direction of the Military and Defence Committees, on Phase I issues, have been received the Standing Group can, with the assistance of national military staffs, proceed with the physical establishment of SHAPE and its subordinate headquarters.

c. Phase III

As soon as SHAPE is organized sufficiently to assume the responsibility, the Standing Group, will invite the Governments concerned to nominate the forces they propose allocating to the integrated defense force. Upon receipt of information concerning these national contributions the Standing Group will arrange for the transfer to SHAPE of the control of the national forces nominated.

37. The Military Committee considers that a Supreme Headquarters Atlantic Powers in Europe (SHAPE) and an integrated planning staff, drawn from all nations which will have forces in the combat areas of Europe, should now be established under a Supreme Commander to provide centralized direction and coordination in this vital area.

38. In order that the organization may function efficiently and smoothly, it must from the start be kept fully in the picture as to the views of the national staffs providing the forces, and these views must always be given full consideration when decisions on operational matters are made. The channel for this co-ordination should be through liaison officers, accredited to SHAPE as representatives of their national staffs. These representatives would be attached to the headquarters, but would not be part of the integrated working staff sections.

39. The necessary major operational commands subordinate to SHAPE should also be created as soon as possible, with forces and commanders assigned. These commands will be created within the framework of Defense Committee guidance and in accordance with Military Committee instructions and will be an integral part of NATO, under the control of SHAPE. Upon the establishment of SHAPE, and as an interim arrangement until subordinate command headquarters are agreed and set up, the planning staff and other appropriate agencies of the European Regional Planning Groups should be subordinated to SHAPE.

40. The Military Committee, therefore, considers that:

a. A Supreme Headquarters Atlantic Powers in Europe (SHAPE) should be established in Europe immediately. The Supreme Commander should be a U.S. Officer and should be appointed forthwith. He should be provided with an international integrated staff drawn from the nations that have forces assigned to SHAPE.

b. The new organization “SHAPE” should receive its directives straight from the Standing Group and not through any intermediate bodies.

c. As soon as SHAPE is set up, national liaison officers should be attached to the headquarters to act as the links between the Supreme Commander and the Chiefs of Staff of the nations which will have forces earmarked for or allocated to SHAPE.

d. The main objective of SHAPE will be to ensure that an adequate integrated NATO force is organized, equipped, trained and ready to meet effectively any Soviet attack. SHAPE’S functions are further discussed in Part V.

National Contributions

41. The Military Committee considers that NATO countries should make firm commitments for national units to operate immediately under control of the Supreme Commander, and for the additional forces to be placed under his command in the event of war, in accordance with the following principles:

a. Existing national forces, not required for control and defense of the zones of the interior, and which are already declared or forecast by nations as contributions to the defense of Western Europe, should come under control of SHAPE, or in the case of reserve units be earmarked as soon as the Supreme Commander has indicated to the Standing Group that he is ready to assume control.

b. As additional forces become available in accordance with the agreed phased build-up of forces, these additional forces, when built up by each nation, should similarly be transferred to the control of SHAPE (or reserve units earmarked). The ultimate objective should be to have allocated to SHAPE all forces agreed as required for the initial defense of Western Europe.

c. National authorities retain the right, subject to consultation with the Supreme Commander, to change over units and formations stationed in Europe, and under the command of the Supreme Commander, provided that the size, composition and quality of the national contribution to the total force immediately available to the Supreme Commander remains basically unchanged.

d. Those forces not specifically allotted to the Supreme Commander, but earmarked to come under his command in war, may be changed over, provided that their strength, composition and quality remain basically unchanged.

42. The process, timing and detailed conditions, of the transfer of control for national units to operate immediately under control of the Supreme Commander, and the earmarking of additional forces to be placed under his command in the event of war, should be subject to negotiations between the Standing Group and the Supreme Commander and/or the appropriate National Authorities.

part v

The Powers to he Exercised by the Supreme Commander Allied Powers in Europe in Peacetime

43. The Military Committee considers that the main function in peacetime of the Supreme Commander should be to ensure that, if an emergency comes, the NATO forces made available by nations for the defense of Western Europe will be organized, equipped, trained and ready to implement agreed war plans. Since a Supreme Commander’s peacetime functions are in effect only a prelude to his full wartime responsibility for the defense of his area of command, his peacetime responsibilities will in brief include:

a. The organization and training of national units allocated to his command into an effective integrated force.

b. The preparation of plans for the execution of his assigned missions, and their coordination with other NATO or national plans.

c. Recommendation to the Standing Group and to National Commanders, on deployment of forces infrastructure, training standards, adequacy of forces, etc., and such other military matters as will affect his ability to discharge his war, or peacetime, mission.

d. Proposing to the Standing Group any increase, elimination or reorganization of subordinate planning and command organizations which he considers necessary.

e. The establishment of an efficient organization which will be the nucleus for expansion in war for the control of the battle for the defense of Europe.

44. To execute the peacetime functions detailed above, the Supreme Commander should be given:

a. Direct control over the higher training of all national forces allocated to SHAPE in peacetime. Furthermore, he should be given facilities by nations to inspect the training of those cadre and other forces earmarked for SHAPE on the outbreak of war but which are not under his control in peace. The details of such inspections of training will be worked out by the Military Liaison Officers referred to in paragraph 37 above after consultation with the Supreme Commander.

b. Such authority as is necessary to ensure that National forces allocated to SHAPE are properly organised and trained into one effective force. To this end he should be authorized direct access to the National Chiefs of Staff. Should there be any shortcomings in the efficiency or training of National forces earmarked for, but not under SHAPE, they should be represented by him to the National Chiefs of Staff with information to the Standing Group.

c. Authority to communicate with National Chiefs of Staff, and with their respective Defense Ministers, and the heads of government, directly as necessary to facilitate the accomplishment of his mission.

d. Authority to make recommendations direct to National Chiefs of Staff on the peacetime deployment of National forces placed, or to be placed, under his control, and on logistic and administrative matters affecting the efficiency or readiness of these forces.

It is recognized that National Authorities, when considering recommendations from the Supreme Commander, will act in accordance with their respective constitutions and established parliamentary procedures. It is further recognized that the Supreme Commander may delegate to his major subordinate commanders, such authority as may be necessary for the discharge of his responsibilities.

45. Recommended Terms of Reference for The Supreme Commander are given at Appendix.

part vi

Other Commands

46. Action in consonance with that outlined in Parts IV and V above should be taken when the Atlantic Command is established, and when a command system has been worked out for the Mediterranean and this Command established.

part vii

Brussels Treaty Defense Organization

47. With the establishment of a NATO Command Organization in Europe and the dissolution of the existing European Regional Planning Groups, with their Regional Chiefs of Staff and Principal Staff Officers’ Committees, it is suggested the Brussels Treaty Powers should consider whether it is necessary for them to retain their own defense organization. It is apparent that when the NATO command organization is established it will be unnecessary and undesirable to have a parallel Western Union Command. In forming his staff, it is suggested that the Supreme Commander, when appointed, should discuss with Brussels Treaty Powers arrangements for use of personnel now in organizations under Western Union.

48. If the Brussels Treaty Powers agree that the Western Union Defense Organization should cease to exist as such, this will not prevent Chiefs of Staff or Defense Ministers meeting should they wish to do so to consider matters of mutual interest. It is considered, however, that the new headquarters suggested for Western Europe should be directly under SHAPE and should not be responsible to the Western Union Defense Committee.

Conclusions

49. The proposals in this report can be summarized as follows:

a. The existing Northern, Western and Southern European, and North Atlantic Ocean Regional Planning Organizations should cease to exist, when their functions have been absorbed by commands established now or at a later date, and by the Standing Group acting in consultation with the Military Representatives Committee.

b. The following Integrated Allied Commands should be established:

• (1) Supreme Allied Commander Europe (now) with subordinate commands to be determined after receipt of his recommendations.
• (2) A system of command in the Mediterranean as soon as the necessary organization has been worked out.
• (3) Supreme Allied Commander Atlantic as soon as possible after the appointment of the Supreme Allied Commander Europe.

c. The several commands, or planning headquarters, as they become established, should be charged with the development of operational plans and the training and organization of the forces allocated by nations to the integrated Allied Forces for the common defense of the areas.

d. These commands should be directly under the Standing Group.

e. As agreed by the North Atlantic Council the Standing Group shall be responsible for higher strategic direction (command) in areas in which combined North Atlantic Treaty forces are Operating. As such, it will be the superior military body to which Supreme Allied Commander, Europe, and other major NATO Commanders who may be appointed later will be responsible. It will also determine the military requirements of the integrated forces.

f. The Military Committee should establish a Military Representatives Committee. This Committee should be a permanent body and should be located in Washington, D.C. The Standing Group should act as a steering and executive agency for the Military Representatives Committee. The Chairman of the Standing Group should be the Chairman of the Military Representatives Committee. The Military Representatives should be endowed by their national Chiefs of Staff with the necessary delegated authority to deal with matters which would in the past have come before the Military Committee, except these which because of their nature must continue to receive full Military Committee approval.

g. The Standing Group, and through them the Military Representatives Committee, should receive from the North Atlantic Council Deputies guidance as regards political considerations upon which strategic decisions should be based.

h. The Standing Group, acting in consultation with the Military Representatives Committee, should undertake at appropriate times those functions which are at present carried out by Regional Planning Groups and which are not appropriate to the commands to be established. For this purpose the existing Standing Group sub-structure of Advisory and Technical Committees should be expanded and certain of them will have to permit a representation by all signatory powers.

i. A small Standing Group Liaison Secretariat should be established in London for liaison with the Council Deputies, the MPSB, and the DFEC, and other working Committees as appropriate.

j. The Defence Committee should suggest to the Western Union Defence Organisation that it review, as soon as possible, its status in the light of the establishment of overall North Atlantic Treaty Command Organisation.

Recommendations

50. It is recommended that the Defence Committee:

a. Approve this report.

b. Forward this report to the North Atlantic Council in reply to their request contained in Council Document C5–D/11 (Final) (D.C.21).

c. Direct the Standing Group to promulgate the Terms of Reference at Appendix when the Supreme Commander Atlantic Powers in Europe is designated.

Appendix

Terms of Reference of the Supreme Commander Atlantic Powers in Europe

Commander.

1. A Supreme Commander Atlantic Powers Europe is hereby designated. His command will be established in a Supreme Headquarters (SHAPE). The Supreme Commander shall have an integrated staff composed of appropriate officers drawn from all nations contributing to the forces in his area of command.

Area.

2. The command area of SHAPE, and his major subordinate commanders, will be defined from time to time by responsible authority. Initially the area of SHAPE is delineated as follows:

a. The European Command shall cover the area of the three European Regional Planning Groups of NATO and shall include Command responsibility over all such Army, Navy and Air Forces as may be allocated to it for the defence of Western Europe.

b. The control and the defence of the zones of the interior, including French North Africa, is the direct responsibility of the National Authorities concerned, who will grant the Allied Commanders under SHAPE all facilities necessary for the efficient conduct of operations. The Supreme Commander shall have authority to conduct such combat operations in these zones, including French North Africa, as he deems necessary for the defence of Western Europe.

The Supreme Commander is authorised to propose to the Standing Group such modifications to the above as he may deem desirable.

Powers in War.

3. The powers of the Supreme Commander in war will be as agreed by the Atlantic Council Resolution, C5–D/11 (Final), “He will exercise the full powers of a Supreme Commander in the event of war.” It is contemplated that these powers will be confined to operations and training. These powers will later be defined in greater detail by the Defence Committee after consulting the Military Committee.

Powers in Peace.

4. The main function in peacetime of the Supreme Commander is to ensure that, if an emergency comes, the NATO forces made available by nations for the defence of Western Europe will be organised, equipped, trained and ready to implement agreed war plans. Since a Supreme Commander’s peacetime functions are in effect only a prelude to his wartime responsibility for the defence of his area of command, the Standing Group has set forth (for Military Committee approval) the necessary overall statement of his directive and responsibilities in M.C. 22/2.³ Based thereon, the Supreme Commander’s peacetime responsibilities in brief include:—

a. The organisation and training of national units allocated to his command into an effective integrated force.

b. The preparation of plans for the execution of his assigned missions, and their coordination with other NATO or national plans.

c. Recommendations, to the Standing Group, and to National Commanders on deployment of forces, infrastructure, training standards, adequacy of forces, etc., and such other military matters as will affect his ability to discharge his war, or peacetime, mission.

d. Proposing to the Standing Group any increase, elimination or reorganisation of subordinate planning and command organisations which he considers necessary.

e. The establishment of an efficient organisation which will be the nucleus for expansion in war for the control of the battle for the defence of Europe.

5. To execute the peacetime functions detailed above, the Supreme Commander will have:—

a. Direct control over the higher training of all national forces allocated to SHAPE in peacetime. Furthermore, he should be given facilities by Nations to inspect the training of these cadre and other forces earmarked for his command on the outbreak of war but which are not under his control in peace.

b. Such authority as is necessary to ensure that National forces allocated to SHAPE are properly organised and trained into one effective force. To this end he is authorised direct access to National Chiefs of Staff. Should there be any shortcomings in the efficiency or training of National forces earmarked for, but not under his command, they should be represented by him to the National Authorities with information to the Standing Group.

c. Authority to communicate with National Chiefs of Staff, and with their respective Defence Ministers, and Heads of Government, directly as necessary to facilitate the accomplishment of his mission.

d. Authority to make recommendations direct to National Chiefs of Staff on the peacetime deployment of National forces placed, or to be placed, under his control, and on logistic and administrative matters affecting the efficiency or readiness of these forces.

It is recognised that the Supreme Commander may delegate to his major subordinate commanders, such authority as may be necessary for the discharge of his responsibilities.

6. The responsibility for logistic support to national component forces will, in general, remain with the responsible authorities of the nations concerted. The responsibility for co-ordination will, however, rest with the Supreme Commander, and with his major subordinate Commanders at the appropriate levels.

7. The Supreme Commander is empowered to propose to the Standing Group, for its review and further submission to the Military Committee and Defence Committee, such modification of these terms of reference as he may deem desirable.

1. The source text was an enclosure to a note by C. R. Donnelly, the Senior Secretary of the Military Committee, not printed, which explained its genesis. The report was considered and approved by the Defense and Foreign Ministers at their meeting on December 18 at Brussels and was given the Council designation C6–D/2. For the United States Delegation minutes of the meeting, see USDel Min–1, p. 585.
2. Transmitted in Secto 55, September 26, p. 350.
3. Not found in Department of State files.