Re: Washington Post’s ‘Fake News’ Guilt, by Robert Parry
Posted: Sat Sep 08, 2018 2:58 am
Did NATO Promise Not to Enlarge? Gorbachev Says “No”
by Steven Pifer
Brookings
Thursday, November 6, 2014
NOTICE: THIS WORK MAY BE PROTECTED BY COPYRIGHT
It is abundantly evident that Russian President Vladimir Putin is no fan of NATO. Indeed, he displays a pronounced—almost obsessive—antipathy toward the Alliance. He claims that NATO took advantage of Russian weakness after the collapse of the Soviet Union to enlarge to its east, in violation of promises allegedly made to Moscow by Western leaders. But no such promises were made—a point now confirmed by someone who was definitely in a position to know: Mikhail Gorbachev, then president of the Soviet Union.
PRESIDENT PUTIN’S NATO NARRATIVE
The West’s supposed violation of a pledge not to enlarge NATO has long figured as a key element in Putin’s narrative about (and against) the Alliance. In his bombastic February 2007 speech to the Munich Security Conference, he said:
The Russian president returned to the subject in his March 18, 2014, Kremlin speech justifying Russia’s illegal annexation of Crimea: “… they [Western leaders] have lied to us many times, made decisions behind our backs, placed before us an accomplished fact. This happened with NATO’s expansion to the east, as well as the deployment of military infrastructure at our borders.” Although it has been clear for several years that the Alliance has no appetite for putting Ukraine on a membership track, Putin went on to express horror at the prospect of NATO forces in Crimea: Russian inaction “would have meant that NATO’s navy would be right there in this city of Russia’s military glory [Sevastopol], and this would create not an illusory but a perfectly real threat to the whole of southern Russia.”
Western leaders never pledged not to enlarge NATO, a point that several analysts have demonstrated. Mark Kramer explored the question in detail in a 2009 article in The Washington Quarterly. He drew on declassified American, German and Soviet records to make his case and noted that, in discussions on German reunification in the two-plus-four format (the two Germanys plus the United States, Soviet Union, Britain and France), the Soviets never raised the question of NATO enlargement other than how it might apply in the former German Democratic Republic (GDR).
THE WEST’S NATO COMMITMENT
What the Germans, Americans, British and French did agree to in 1990 was that there would be no deployment of non-German NATO forces on the territory of the former GDR. I was a deputy director on the State Department’s Soviet desk at the time, and that was certainly the point of Secretary James Baker’s discussions with Gorbachev and his foreign minister, Eduard Shevardnadze. In 1990, few gave the possibility of a broader NATO enlargement to the east any serious thought.
The agreement on not deploying foreign troops on the territory of the former GDR was incorporated in Article 5 of the Treaty on the Final Settlement with Respect to Germany, which was signed on September 12, 1990 by the foreign ministers of the two Germanys, the United States, Soviet Union, Britain and France. Article 5 had three provisions:
1. Until Soviet forces had completed their withdrawal from the former GDR, only German territorial defense units not integrated into NATO would be deployed in that territory.
2. There would be no increase in the numbers of troops or equipment of U.S., British and French forces stationed in Berlin.
3. Once Soviet forces had withdrawn, German forces assigned to NATO could be deployed in the former GDR, but foreign forces and nuclear weapons systems would not be deployed there.
When one reads the full text of the Woerner speech cited by Putin, it is clear that the secretary general’s comments referred to NATO forces in eastern Germany, not a broader commitment not to enlarge the Alliance.
FORMER SOVIET PRESIDENT GORBACHEV’S VIEW
We now have a very authoritative voice from Moscow confirming this understanding. Russia behind the Headlines has published an interview with Gorbachev, who was Soviet president during the discussions and treaty negotiations concerning German reunification. The interviewer asked why Gorbachev did not “insist that the promises made to you [Gorbachev]—particularly U.S. Secretary of State James Baker’s promise that NATO would not expand into the East—be legally encoded?” Gorbachev replied: “The topic of ‘NATO expansion’ was not discussed at all, and it wasn’t brought up in those years. … Another issue we brought up was discussed: making sure that NATO’s military structures would not advance and that additional armed forces would not be deployed on the territory of the then-GDR after German reunification. Baker’s statement was made in that context… Everything that could have been and needed to be done to solidify that political obligation was done. And fulfilled.”
Gorbachev continued that “The agreement on a final settlement with Germany said that no new military structures would be created in the eastern part of the country; no additional troops would be deployed; no weapons of mass destruction would be placed there. It has been obeyed all these years.” To be sure, the former Soviet president criticized NATO enlargement and called it a violation of the spirit of the assurances given Moscow in 1990, but he made clear there was no promise regarding broader enlargement.
Several years after German reunification, in 1997, NATO said that in the “current and foreseeable security environment” there would be no permanent stationing of substantial combat forces on the territory of new NATO members. Up until the Russian military occupation of Crimea in March, there was virtually no stationing of any NATO combat forces on the territory of new members. Since March, NATO has increased the presence of its military forces in the Baltic region and Central Europe.
Putin is not stupid, and his aides surely have access to the former Soviet records from the time and understand the history of the commitments made by Western leaders and NATO. But the West’s alleged promise not to enlarge the Alliance will undoubtedly remain a standard element of his anti-NATO spin. That is because it fits so well with the picture that the Russian leader seeks to paint of an aggrieved Russia, taken advantage of by others and increasingly isolated—not due to its own actions, but because of the machinations of a deceitful West.
Steven Pifer: Nonresident Senior Fellow - Foreign Policy, Center for 21st Century Security and Intelligence, Center on the United States and Europe, Arms Control and Non-Proliferation Initiative
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by Steven Pifer
Brookings
Thursday, November 6, 2014
NOTICE: THIS WORK MAY BE PROTECTED BY COPYRIGHT
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The documents show that multiple national leaders were considering and rejecting Central and Eastern European membership in NATO as of early 1990 and through 1991, that discussions of NATO in the context of German unification negotiations in 1990 were not at all narrowly limited to the status of East German territory, and that subsequent Soviet and Russian complaints about being misled about NATO expansion were founded in written contemporaneous memcons and telcons at the highest levels.
-- NATO Expansion: What Gorbachev Heard, Briefing Book #613, by Svetlana Savranskaya and Tom Blanton
It is abundantly evident that Russian President Vladimir Putin is no fan of NATO. Indeed, he displays a pronounced—almost obsessive—antipathy toward the Alliance. He claims that NATO took advantage of Russian weakness after the collapse of the Soviet Union to enlarge to its east, in violation of promises allegedly made to Moscow by Western leaders. But no such promises were made—a point now confirmed by someone who was definitely in a position to know: Mikhail Gorbachev, then president of the Soviet Union.
“The documents show that multiple national leaders were considering and rejecting Central and Eastern European membership in NATO as of early 1990 and through 1991,” George Washington University National Security Archives researchers Svetlana Savranskaya and Tom Blanton wrote. “That discussions of NATO in the context of German unification negotiations in 1990 were not at all narrowly limited to the status of East German territory, and that subsequent Soviet and Russian complaints about being misled about NATO expansion were founded in written contemporaneous memcons and telcons at the highest levels.”
Indeed, Russian Presidents Boris Yeltsin and Vladimir Putin have complained bitterly about the expansion of NATO towards their borders despite what they had believed were assurances to the contrary. “What happened to the assurances our western partners made after the dissolution of the Warsaw Pact? Where are those declarations today?” Putin said at the Munich Conference on Security Policy in 2007.“No one even remembers them. But I will allow myself to remind this audience what was said. I would like to quote the speech of NATO General Secretary Mr. Woerner in Brussels on 17 May 1990. He said at the time that: ‘the fact that we are ready not to place a NATO army outside of German territory gives the Soviet Union a firm security guarantee.’ Where are these guarantees?”
As the newly declassified documents show, the Russians might have had a point. While it was previously understood that Secretary of State James Baker’s assurance to Gorbachev that NATO would not expand “not one inch eastward” during a February 9, 1990, meeting was only in the context of German reunification....Baker: And the last point. NATO is the mechanism for securing the U.S. presence in Europe. If NATO is liquidated, there will be no such mechanism in Europe. We understand that not only for the Soviet Union but for other European countries as well it is important to have guarantees that if the United States keeps its presence in Germany within the framework of NATO, not an inch of NATO's present military jurisdiction will spread in an eastern direction.
We believe that consultations and discussions within the framework of the "two + four" mechanism should guarantee that Germany's unification will not lead to NATO's military organization spreading to the east.
***
Baker: I want to ask you a question, and you need not answer it right now. Supposing unification takes place, what would you prefer: a united Germany outside of NATO, absolutely independent and without American troops; or a united Germany keeping its connections with NATO, but with the guarantee that NATO's jurisprudence or troops will not spread east of the present boundary?
Gorbachev: We will think everything over. We intend to discuss all these questions in depth at the leadership level. It goes without saying that a broadening of the NATO zone is not acceptable.
Baker: We agree with that.
-- Record of Conversation between Mikhail Gorbachev and James Baker, The National Security Archive, Source: Archive of the Gorbachev Foundation, Fond 1, Opis 1. Translated by Anna Melyakova, February 9, 1990
the new documents show that this was not the case.
Gorbachev only accepted German reunification—over which the Soviet Union had a legal right to veto under treaty—because he received assurances that NATO would not expand after he withdrew his forces from Eastern Europe from James Baker, President George H.W. Bush, West German foreign minister Hans-Dietrich Genscher, West German Chancellor Helmut Kohl, the CIA Director Robert Gates, French President Francois Mitterrand, British Prime Minister Margaret Thatcher, British foreign minister Douglas Hurd, British Prime Minister John Major, and NATO secretary-general Manfred Woerner.
Indeed, as late as March 1991, the British were reassuring Gorbachev that they could not foresee circumstances under which NATO might expand into Eastern and Central Europe. As former British Ambassador to the Soviet Union recounted in March 5, 1991, Rodric Braithwaite, both British foreign minister Douglas Hurd and British Prime Minister John Major told the Soviet that NATO would not expand eastwards.
“I believe that your thoughts about the role of NATO in the current situation are the result of misunderstanding,” Major had told Gorbachev. We are not talking about strengthening of NATO. We are talking about the coordination of efforts that is already happening in Europe between NATO and the West European Union, which, as it is envisioned, would allow all members of the European Community to contribute to enhance [our] security.”
Of course, later, in 1994, Bill Clinton decided to expand NATO eastward despite the various assurances that the previous administration had offered Gorbachev—and despite legendary diplomat George F. Kennan’s repeated warnings.
-- Newly Declassified Documents: Gorbachev Told NATO Wouldn't Move Past East German Border. So what happened?, by Dave Majumdar
PRESIDENT PUTIN’S NATO NARRATIVE
The West’s supposed violation of a pledge not to enlarge NATO has long figured as a key element in Putin’s narrative about (and against) the Alliance. In his bombastic February 2007 speech to the Munich Security Conference, he said:
And we have the right to ask: against whom is this [NATO] expansion intended? And what happened to the assurances our Western partners made after the dissolution of the Warsaw Pact? … I would like to quote the speech of NATO General Secretary Mr. Woerner in Brussels on 17 May 1990. He said at the time that: ‘the fact that we are ready not to place a NATO army outside of German territory gives the Soviet Union a firm security guarantee.” Where are these guarantees?
The Russian president returned to the subject in his March 18, 2014, Kremlin speech justifying Russia’s illegal annexation of Crimea: “… they [Western leaders] have lied to us many times, made decisions behind our backs, placed before us an accomplished fact. This happened with NATO’s expansion to the east, as well as the deployment of military infrastructure at our borders.” Although it has been clear for several years that the Alliance has no appetite for putting Ukraine on a membership track, Putin went on to express horror at the prospect of NATO forces in Crimea: Russian inaction “would have meant that NATO’s navy would be right there in this city of Russia’s military glory [Sevastopol], and this would create not an illusory but a perfectly real threat to the whole of southern Russia.”
Western leaders never pledged not to enlarge NATO, a point that several analysts have demonstrated. Mark Kramer explored the question in detail in a 2009 article in The Washington Quarterly. He drew on declassified American, German and Soviet records to make his case and noted that, in discussions on German reunification in the two-plus-four format (the two Germanys plus the United States, Soviet Union, Britain and France), the Soviets never raised the question of NATO enlargement other than how it might apply in the former German Democratic Republic (GDR).
THE WEST’S NATO COMMITMENT
What the Germans, Americans, British and French did agree to in 1990 was that there would be no deployment of non-German NATO forces on the territory of the former GDR. I was a deputy director on the State Department’s Soviet desk at the time, and that was certainly the point of Secretary James Baker’s discussions with Gorbachev and his foreign minister, Eduard Shevardnadze. In 1990, few gave the possibility of a broader NATO enlargement to the east any serious thought.
The agreement on not deploying foreign troops on the territory of the former GDR was incorporated in Article 5 of the Treaty on the Final Settlement with Respect to Germany, which was signed on September 12, 1990 by the foreign ministers of the two Germanys, the United States, Soviet Union, Britain and France. Article 5 had three provisions:
1. Until Soviet forces had completed their withdrawal from the former GDR, only German territorial defense units not integrated into NATO would be deployed in that territory.
2. There would be no increase in the numbers of troops or equipment of U.S., British and French forces stationed in Berlin.
3. Once Soviet forces had withdrawn, German forces assigned to NATO could be deployed in the former GDR, but foreign forces and nuclear weapons systems would not be deployed there.
When one reads the full text of the Woerner speech cited by Putin, it is clear that the secretary general’s comments referred to NATO forces in eastern Germany, not a broader commitment not to enlarge the Alliance.
FORMER SOVIET PRESIDENT GORBACHEV’S VIEW
We now have a very authoritative voice from Moscow confirming this understanding. Russia behind the Headlines has published an interview with Gorbachev, who was Soviet president during the discussions and treaty negotiations concerning German reunification. The interviewer asked why Gorbachev did not “insist that the promises made to you [Gorbachev]—particularly U.S. Secretary of State James Baker’s promise that NATO would not expand into the East—be legally encoded?” Gorbachev replied: “The topic of ‘NATO expansion’ was not discussed at all, and it wasn’t brought up in those years. … Another issue we brought up was discussed: making sure that NATO’s military structures would not advance and that additional armed forces would not be deployed on the territory of the then-GDR after German reunification. Baker’s statement was made in that context… Everything that could have been and needed to be done to solidify that political obligation was done. And fulfilled.”
Gorbachev continued that “The agreement on a final settlement with Germany said that no new military structures would be created in the eastern part of the country; no additional troops would be deployed; no weapons of mass destruction would be placed there. It has been obeyed all these years.” To be sure, the former Soviet president criticized NATO enlargement and called it a violation of the spirit of the assurances given Moscow in 1990, but he made clear there was no promise regarding broader enlargement.
Several years after German reunification, in 1997, NATO said that in the “current and foreseeable security environment” there would be no permanent stationing of substantial combat forces on the territory of new NATO members. Up until the Russian military occupation of Crimea in March, there was virtually no stationing of any NATO combat forces on the territory of new members. Since March, NATO has increased the presence of its military forces in the Baltic region and Central Europe.
Putin is not stupid, and his aides surely have access to the former Soviet records from the time and understand the history of the commitments made by Western leaders and NATO. But the West’s alleged promise not to enlarge the Alliance will undoubtedly remain a standard element of his anti-NATO spin. That is because it fits so well with the picture that the Russian leader seeks to paint of an aggrieved Russia, taken advantage of by others and increasingly isolated—not due to its own actions, but because of the machinations of a deceitful West.
Gates said he would like to pursue that issue further, but knew that Kryuchkov was busy, and would like to move on to two other subjects. First, the German question. Events are moving faster than anticipated. We might see some GDR initiative after the 18 March elections. Under these circumstances, we support the Kohl-Genscher idea of a united Germany belonging to NATO but with no expansion of military presence to the GDR. This would be in the context of continuing force reductions in Europe. What did Kryuchkov think of the Kohl/Genscher proposal under which a united Germany would be associated with NATO, but in which NATO troops would move no further east than they now were? It seems to us to be a sound proposal. There are in any case only three options for a unified Germany: either it would be a member of NATO, neutral, or a member of the Warsaw Pact.
Gates said that alignment with the Warsaw Pact clearly was not possible in terms of present realities. A neutral Germany would suffer from the same insecurities and uncertainties regarding its security that Germany had experienced before World War I. In an effort to assure its security it would be tempted to develop nuclear weapons and turn in different directions, seeking reassurance. A large, economically powerful Germany just could not be neutral. The third option, membership in NATO, would provide for a secure Germany integrated in Western Europe which the Soviet Union would have no reason to fear. It would anchor Germany in a way that would leave it secure, able to exercise a positive economic influence (including in the East), and without being a security problem for the USSR.
Kryuchkov replied that as Gates should know, the events in the GDR concern the Soviet people. The other countries are different. But the USSR had paid a terrible price in World War II - 20 million killed. "We can't exclude that a reborn, united Germany might become a threat to Europe. We would hate to see the US and USSR have to become allies again against a resurgent Germany."
"Germany's technical possibilities and intellectual potential are well known. It is difficult to predict what directions its military and technology might take." That is no idle question, for "influential forces in the FRG do not wish to recognize the results of the War or to accept the post-World War II borders." The Poles are also concerned. We never said that Germany could never reunite -- but the basis on which reunification took place was always important to us. Trust between the US and USSR is growing, true, but that trust still had to be "materialized." The Soviet Union, under present circumstances, could have "no enthusiasm" about a united Germany in NATO. We should look for other options. You, Great Britain, and France would develop a common view, and we in the Warsaw Pact would do so, and we would discuss them. We need not hurry so much. Kohl and Genscher had interesting ideas -- but even those points in their proposals with which we agree would have to have guarantees. We learned from the Americans in arms control negotiations the importance of verification, and we would have to be sure.
The U.S. had to participate in World War II even though it had been protected by oceans. Now the oceans were meaningless. An interdependent world would not allow any great power to escape involvement in a new war. "People here say that we have had peace for forty-five years because Germany is divided." And of course Japan did not become a military superpower. But the question of German unity is a very serious one, and requires far-reaching, frank exchanges of opinions between the US and USSR.
-- Memorandum of conversation between Robert Gates and Vladimir Kryuchkov in Moscow.
Steven Pifer: Nonresident Senior Fellow - Foreign Policy, Center for 21st Century Security and Intelligence, Center on the United States and Europe, Arms Control and Non-Proliferation Initiative
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