USD(P) FLOURNOY'S FEBRUARY 17 MEETING WITH NATO

C O N F I D E N T I A L SECTION 01 OF 02 USNATO 000084 SIPDIS E.O. 12958: DECL: 02/16/2017 TAGS: MARR MCAP NATO PARM PREL SUBJECT: USD(P) FLOURNOY'S FEBRUARY 17 MEETING WITH NATO SYG RASMUSSEN Classified By: Charge d'Affaires John Heffern for reasons 1.4(b),(d) ¶1. (C) Summary. Under Secretary of Defense (Policy) Michele Flournoy discussed NATO reform, nuclear posture, NATO's Strategic Concept, Missile Defense, Afghanistan and export controls with NATO Secretary General Rasmussen in a February 17 meeting that followed USD(P) Flournoy's briefing to the NAC on the Quadrennial Defense Review (QDR). End summary. REFORM TO STAY RELEVANT -------------- ¶2. (C) Secretary General Rasmussen stressed to U/S Flournoy that his main ambition is to reform NATO in a way that strengthens the Alliance's flexibility and vitality. He shared Secretary Gates' passion for reform, he said, and agreed that reform is essential to enable Allies to spend NATO resources wisely. Defense Ministers' tasking at the February 4-5 Istanbul ministerial gave him a solid political platform for presenting far-reaching reform proposals, including on NATO command structure. Rasmussen said he planned to ask NATO military authorities to lay out their ideal command structure, which he would then present to Defense Ministers in June for discussion, not decisions. ¶3. (C) Civilian headquarters reform proposals, including extensive committee reform, are also under consideration, Rasmussen said. His staff had abolished over 80 dormant committees since he took office and hoped to whittle down the remaining 300 committees to 100. Reform would be tough -- he had already met with resistance from several countries, including "some parts of the USG." Strong support from the US would be essential for reform efforts to succeed, he emphasized. Flournoy cautioned that focusing too heavily on command structure reforms first might exhaust the political capital needed for reforms essential to bolstering NATO capabilities; starting with less contentious issues might produce more results, more quickly. EUR PDAS Nancy McEldowney added that Foreign Ministers need to be engaged on reform proposals as well. ¶4. (C) Resource reform would also be instrumental in strengthening NATO, Rasmussen said, adding the NAC must move ahead firmly to implement the Defense Ministers' decision at Istanbul. He intends for Allies to make clear resource decisions in March and report back to Defense Ministers, who approved a four-point package at Istanbul. Some costs would �0A;have to be pushed over to 2011, and NATO would improve efficiencies where possible. But Rasmussen made clear that the Alliance remains underfinanced; he applauded a Defense Ministers' agreement to infuse new funds. NPR IN THE NATO CONTEXT -------------- ¶5. (C) Rasmussen also raised the Nuclear Posture Review (NPR),noting this would be an important topic in the Strategic Concept process and one likely to generate heated debate. Flournoy cited the President's 2009 Prague speech as the framework for US nuclear weapons policy, with a focus on preventing proliferation and terrorism. She noted that the US is taking steps to reduce the role of and reliance on nuclear weapons, as well as their numbers, but added that the President recognizes nuclear weapons will continue to play a role in the near to mid-term. Given that reality, the US also needs to invest in the nuclear infrastructure to ensure a safe and effective nuclear arsenal, she said. ¶6. (C) On non-strategic nuclear forces (NSNF),Flournoy stressed the US intends to stay in step with NATO and to work within an Alliance context; the indivisibility of the Alliance would remain at the forefront in deciding on a way forward. The NPR, expected to be completed by March 1, would not get ahead of the Alliance or Strategic Concept process on NSNF in Europe. She also noted that several Allies' current aircraft procurement plans appear headed toward de facto divestment, as they do not include Dual Capable Aircraft variants; NATO would need to consider national investment programs in making decisions on the Alliance's approach. Rasmussen suggested that the US may end up playing the honest broker between the two extremes in Europe, with Germany on one side and France on the other. STRATEGIC CONCEPT PROCESS -------------- ¶7. (C) Rasmussen intends to strike the right balance in drafting NATO's Strategic Concept between the "one pen USNATO 00000084 002 OF 002 principle" to ensure coherency and buy-in from other stakeholders. In keeping with the Strausbourg-Kehl tasking that the process include consultations, he and PermReps would discuss the Group of Expert report at an "away day" in May that would be followed by three or four Ambassador-level discussions on selected topics over the summer. In September, Rasmussen would embark on the final drafting process. He expects to call a Defense Ministerial in September and Foreign Ministerial in October to give guidance. While the Strategic Concept would be relatively short, Rasmussen said a more comprehensive implementation document might be necessary to translate the principles in the text into clear policies, actions and operations. MISSILE DEFENSE GOALS -------------- ¶8. (C) Flournoy reaffirmed that the US wants the Alliance to adopt territorial missile defense as a NATO mission at the November Lisbon Summit. Approval of funding for the MD options paper is a positive step forward in making missile defense a NATO project, which is essential for countries such as Turkey. The US views NATO's continued investment in ALTBMD and endorsement of territorial defense as a NATO mission as key Lisbon Summit outcomes. Rasmussen acknowledged achieving these goals would require extensive engagement, noting that some Allies would use the financial costs and Russia's response to missile defense to resist supporting a NATO initiative. It would be important to keep the offer of cooperation with Russia on the table. Flournoy said upcoming ministerials would provide opportunities to reassure Allies, address their concerns and clarify what the MD mission will require. McEldowney noted it would be particularly useful for Foreign Ministers to discuss missile defense at the April Tallinn meeting because they have not yet had a substantive exchange on the issue. MORE TRAINERS -------------- ¶9. (C) Flournoy thanked Rasmussen for his efforts to generate ISAF contributions. Despite a positive response to meet troop requirements, critical shortfalls in trainers remain that will have a direct impact on ISAF's ability to grow the Afghan security forces. Rasmussen agreed to ramp up his efforts, which include sending letters to NATO/ISAF Defense Ministers and calls to key Ministers. Using a SHAPE assessment of contributions for each Partner and Ally, he had focused on the top ten potential contributors with calls and meetings. Allies stepped up to meet force needs in December; Rasmussen was optimistic about filling current needs, once clearly identified, as well. EXPORT CONTROL REVIEW -------------- ¶10. (C) Rasmussen concluded the meeting by noting an upcoming review of US export control laws. He urged the US to consider a regime that promotes rather than impedes cooperation. Two new European Union directives on technology transfer and cooperation might offer an opportunity to harmonize the US and EU approaches. Flournoy said Secretary Gates is very engaged on the issue, viewing it as both a national security and an competitiveness issue. The review is an opportunity to define more carefully the unique technologies that deserve protection, improve controls on those and adjust restrictions on others, many of which are available on the open market. This approach would enhance US competitiveness and improve Allied cooperation on defense capabilities. ¶11. (U) USD(P) Flournoy has cleared on this cable. HEFFERN