What is Nato good for?

The military alliance is seeing its members' values diverge, but in security matters maybe values aren't everything

Britain's Prime Minister Boris Johnson (left), US President Donald Trump (centre), German Chancellor Angela Merkel (second right), Turkey's President Recep Tayyip Erdogan (right) and other Nato leaders leave the stage after the family photo to head to the plenary session at the NATO summit at the Grove hotel in Watford. AFP

Emmanuel Macron, France's president, gestures while speaking during a news conference. Bloomberg

Britain's Princess Anne, right, talks to Nato delegates from left, Canadian Prime Minister Justin Trudeau and Britain's Prime Minister Boris Johnson. AP

US President Donald Trump speaks during a bilateral meeting with Italy's Prime Minister Giuseppe Conte (unseen) at the Nato summit at the Grove hotel in Watford. AFP

Donald Trump and Italian Prime Minister Giuseppe Conte meet on the sidelines of the Nato summit in Watford. Reuters

France's President Emmanuel Macron (right) greets Poland's President Andrzej Duda (left) during a meeting at the Nato summit at the Grove hotel in Watford. AFP

France's President Emmanuel Macron gives a press conference. AFP

US President Donald Trump speaks during a bilateral meeting with Italy's Prime Minister Giuseppe Conte. AFP

if Nato didn’t already exist, would it be necessary to invent it today?

Several factors make this a timely question. The first, involving as it does Donald Trump, has provoked fits of the vapours in the usual quarters. According to a new book, the US President's former chief of staff, retired marine general John Kelly, said that "one of the most difficult tasks he faced with Trump was trying to stop him from pulling out of Nato". Even if Mr Trump doesn't officially do so – either before the presidential election or after, if he wins – there is speculation that he could effectively destroy Nato by reinterpreting Article 5 of Nato's founding treaty.

This has always been deemed to mean that an attack on one member would be followed by collective, armed self-defence. But the wording is not strict. In such circumstances, each member is bound to take "such action as it deems necessary, including the use of armed force". But as Thomas Wright of the Brookings Institution told The New York Times: "He could just reinterpret it as, 'I could just send a strongly worded letter'."

This may have partisans of the Atlantic alliance wringing their hands, but in a period when Nato members Turkey and Greece have exchanged threats of war over disputed gas resources in the Mediterranean – and may escalate further – instant invocation of armed collective action would be impossible. Nato could not come to the defence of both sides, after all.

Greek warships take part in military exercises in Eastern Mediterranean sea, as tensions rise with Turkey over the waters. Greek Defense Ministry/AP

The Greek air force joined the exercises. Greek Defense Ministry/AP

The Tonnerre is escorted by Greek and French military vessels. Greek National Defence/AP)

The French Tonnerre helicopter carrier, rear left, is escorted by Greek and French military vessels during a maritime exercise in the Eastern Mediterranean, where Greek and Turkish warships are also closely shadowing each other. (Greek National Defence/AP)

The Turkish seismic research vessel 'Oruc Reis' heading west of Antalya in the Mediterranean Sea. Turkish Defence Ministry/AFP

Tension are high between Greece and Turkey, over the 'Oruc-Reis' and its mission in the eastern Mediterranean. IHA via AP

Turkey’s claims to the waters, which it says are on its continental shelf, have repeatedly been dismissed as illegal by Greece and its allies. Turkish Defence Ministry/AFP

Turkish ships accompany the 'Oruc Reis,' a seismic research vessel. Turkish Defence Ministry/AFP

Turkish President Recep Tayyip Erdogan has called for dialogue while still pushing ahead with a Mediterranean gas development plan that has outraged Greece. AFP

Greek Prime Minister Kyriakos Mitsotakis warned of the potential for a mishap with Greek and Turkish navies both in the area.. EPA

France will strengthen its military presence in the eastern Mediterranean. Reuters

Further, Nato has expanded so egregiously in recent decades that there is uncertainty that Article 5 is the same cast-iron guarantee that it was during the Cold War. Would all parties go to war for North Macedonia, or over an "accidental" Russian border incursion into Estonia?

Mr Trump is not alone in asking what Nato is for these days. He is echoed by French President Emmanuel Macron, who last November declared that the organisation was "brain dead". Mr Macron also queried whether Article 5 would still trigger a collective response.

This not only a matter for the 30 members of the alliance. For Nato has long been looking east. It established Global Partnerships with South Korea, New Zealand, Mongolia, Australia and Japan in the first half of the last decade, and is now focusing increasingly on China. Other voices are urging the “Quad” of the US, Japan, Australia and India to become the basis of an “Indo-Pacific Nato”, as the US Deputy Secretary of State Stephen Biegun put it at the end of last month.

If Nato is to have a larger presence and an enhanced role in East Asia, or is to be joined by a regional version, the question still remains: what is its purpose?

One answer to that is that it is an alliance of democracies. Mr Biegun alluded to that in his remarks, saying that the Trump administration’s “Indo-Pacific strategy is focused around democracies”. Nato’s London Declaration issued last December also states in the second sentence that the organisation “guarantees… the values we share, including democracy, individual liberty, human rights, and the rule of law”.

As a core raison d'etre of the alliance this is problematic, however. Firstly because one of Nato's current challenges is that a number of members – including Hungary, Poland and Turkey – remain democracies but are deemed to have taken a markedly illiberal or even authoritarian turn. Secondly, as the US academics James Goldgeier and Garret Martin pointed out in a recent article, being a democracy during the Cold War was not a pre-condition of membership: "Portugal did not become a democracy until 1974. As for Greece and Turkey, the former was governed by a military dictatorship from 1967 to 1974, while the latter was the subject of multiple military-led coups."

President Macron’s pointed questions remain the key ones. “Who is our common enemy?” he said. “This question deserves to be clarified. Is our enemy today, as I hear sometimes, Russia? Is it China? Is it the Atlantic alliance’s purpose to designate them as enemies? I don’t think so.”

It is worth asking whether Nato today should consider Vladimir Putin's Russia or Xi Jinping's China as enemies or as partners against a common threat. AP Photo

I agree with Mr Macron, but there are plenty of Nato boosters who don’t. For instance Ian Brzezinski, a senior defence official under former US president George W Bush, proposes setting up a Nato-China Council, which sounds promising. He then writes, though, that “its establishment would underscore that this dimension of great power competition is not between China and the United States but between China and the transatlantic community".

The London Declaration similarly oscillates between sounding conciliatory – “Nato is a defensive Alliance and poses no threat to any country” – and more bellicose, declaring that “Russia’s aggressive actions constitute a threat to Euro-Atlantic security” and that “China’s growing influence and international policies present both opportunities and challenges that we need to address together as an alliance".

Nato leaders at the highest level have agreed to assemble the 19-nation armada during the Covid-19 outbreak. AFP

The truth is that for all the airy talk of “the values we share”, what bound Nato together during the Cold War was standing up to the Soviet Union. It is a security alliance; it is not and cannot be an alliance of liberal democracies (otherwise several members would have to be expelled and others in Asia would not want to join). For it to be strong, perhaps it does need a common enemy; but that is not an argument for choosing one that makes confrontation more likely.

Better, perhaps, for Nato to expand to become a global security umbrella and agree with Mr Macron when he said that our common enemy is “terrorism, which has hit all of our countries".

This would be a much scaled-down, less ambitious Nato. It would be a shadow of the military alliance that once kept the West safe – no disadvantage in the Covid-19-straitened present. But with Russia and China inside it, or at least as strong partners, it would be a better one for our times. And it would be a Nato that could adequately answer the question: “what is it for?”

Sholto Byrnes is an East Asian affairs columnist for The National