NATO Enlargement: Senate Advice and Consent

^Pr^ep^ar^{ed f}^o^r^M^e^m^b^ers^an^d^Com^mⁱ^t^t^ees^of^C^ong^r^e^ss

On July 21, 1949, the Senate gave its advice and consent to ratification of the North Atlantic
Treaty. That treaty bound twelve states—the United States, Belgium, Canada, Denmark, France,
Iceland, Italy, Luxembourg, the Netherlands, Norway, Portugal, and Great Britain—in a pact of
mutual defense and created the North Atlantic Treaty Organization (NATO). NATO now has a
membership of twenty-six states. This enlargement has occurred gradually—Greece and Turkey
joined in 1952; the Federal Republic of Germany in 1955; Spain in 1982; Poland, Hungary, and
the Czech Republic in 1998; and Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia, and
Slovenia in 2004. At the April 2008 NATO summit in Bucharest, members agreed to extend
invitations to Albania and Croatia to join the organization. In July 2008, accession Protocols
amending the North Atlantic Treaty were signed to permit Albania and Croatia to become NATO
members. In order for the accession Protocols to take effect, they must first be ratified by each of
the 26 current NATO allies, and then by Albania and Croatia. The U.S. Senate gave its advice and
consent to Protocol ratification on September 25, 2008, and the Protocols were signed by
President Bush on October 24, 2008.
Each enlargement of NATO has raised the question of whether Senate advice and consent is
necessary. The North Atlantic Treaty itself simply provides that any enlargement must be
approved by all of the member states “in accordance with their respective constitutional
processes.” In giving its advice and consent to the treaty in 1949, the Senate did not impose a
formal condition regarding its participation in future enlargements of NATO. But it did obtain an
explicit commitment from the Truman Administration that all proposed enlargements of NATO
would be submitted to the Senate for its advice and consent. That commitment has been honored.
All proposals to enlarge NATO have been submitted to the Senate; and the Senate has invariably
given its assent (although in recent times subject to a number of conditions).
This report describes the provisions of the North Atlantic Treaty and of the original Senate debate
in 1949 pertinent to enlargement and the procedures that have been followed for each subsequent
enlargement proposal. It also discusses what the Senate did with respect to the reunification of
Germany in 1990 and the implications of that event for Germany’s membership in NATO. The
report will be updated as needed.

Introduc tion ..................................................................................................................................... 1
The North Atlantic Treaty................................................................................................................1
Greece and Turkey (1952)...............................................................................................................3
Federal Republic of Germany (1955)..............................................................................................4
Spain (1982)....................................................................................................................................4
Reunification of Germany (1991)...................................................................................................5
Poland, Hungary, and the Czech Republic (1998)...........................................................................6
Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia, and Slovenia (2004)............................8
Albania and Croatia (2008-2009)....................................................................................................9
Conclusion ..................................................................................................................................... 10
Author Contact Information..........................................................................................................10

On July 21, 1949, the Senate gave its advice and consent to ratification of the North Atlantic ¹
Treaty. That treaty bound twelve states—the United States, Belgium, Canada, Denmark, France,
Iceland, Italy, Luxembourg, the Netherlands, Norway, Portugal, and Great Britain—in a pact of
mutual defense and created the North Atlantic Treaty Organization (NATO). NATO now has a
membership of twenty-six states. This enlargement has occurred gradually—Greece and Turkey
joined in 1952; the Federal Republic of Germany in 1955; Spain in 1982; Poland, Hungary, and
the Czech Republic in 1998; and Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia, and
Slovenia in 2004. In July 2008, accession Protocols amending the North Atlantic Treaty were
signed to permit Albania and Croatia to become NATO members. In order for the accession
Protocols to take effect, they must first be ratified by each of the 26 current NATO allies, and then
by Albania and Croatia. The U.S. Senate gave its advice and consent to Protocol ratification on
September 25, 2008, and the Protocols were signed by President Bush on October 24, 2008.
Each enlargement of NATO has raised the question of whether Senate advice and consent is
necessary. The North Atlantic Treaty itself simply provides that any enlargement must be
approved by all of the member states “in accordance with their respective constitutional
processes.” But in giving its advice and consent to the treaty in 1949, the Senate obtained an
explicit commitment from the Truman Administration that all proposed enlargements of NATO
would be submitted to the Senate for its advice and consent. That commitment has been honored.
All proposals to enlarge NATO have been submitted to the Senate; and the Senate has invariably
given its assent (although in recent times subject to a number of conditions).
This report describes the provisions of the North Atlantic Treaty and of the original Senate debate
in 1949 pertinent to the future enlargement of NATO and the procedures that have been followed
for subsequent enlargement proposals. It also discusses what the Senate did with respect to the
reunification of Germany in 1990 and the implications of that event for Germany’s membership
in NATO. The report will be updated as needed.

The North Atlantic Treaty entered into force in 1949.² As noted above, the treaty originally
included twelve states as parties—the United States, Belgium, Canada, Denmark, France, Iceland,
Italy, Luxembourg, the Netherlands, Norway, Portugal, and Great Britain. But it contemplated the
possibility of future enlargement. Article 10 of the Treaty provides that
^T^h^e^P^a^r^tⁱ^e^s^m^a^y^,^b^y^uⁿ^aⁿⁱ^m^o^u^s^a^g^r^e^e^m^eⁿ^t^,ⁱⁿ^vⁱ^t^e^aⁿ^y^o^t^h^e^r^E^u^r^o^p^ean^stateⁱⁿ^a^p^o^s^itioⁿ^to^f^u^r^t^h^e^r
^th^{e p}^rⁱⁿ^cⁱ^p^l^{es o}^f^t^h^is^T^r^eaty^aⁿ^d^to^coⁿ^t^rⁱ^b^u^te^to^th^e^sec^u^rⁱ^t^y^o^f^t^h^{e No}^r^t^h^A^t^lan^tic^ar^{ea to}^acc^ed^e
^to^th^{is T}^r^eaty^.
Article 10 further provides that “[a]ny state so invited may become a party to the Treaty by
depositing its instrument of accession with the Government of the United States of America.” The

¹^T^h^{is re}^{port w}^a^{s orig}^ina^lly^pre^p^a^r^e^d^by^Da^vⁱ^{d M. A}^c^k^e^r^m^aⁿ^{, Le}^gⁱ^s^l^a^tiv^e^A^ttorne^y^{, CRS.}
²⁶³^Sta^t^.²²⁴¹⁽¹⁹⁴⁹⁾^{; T}^I^A^S¹⁹⁶⁴^;^{4 B}^e^v^a^ns⁸^28.

Treaty does not specifically mandate the procedures that each member state should follow with
respect to such accessions, but Article 11 does provide that “[t]his Treaty shall be ratified and its
provisions carried out by the Parties in accordance with their respective constitutional processes.”
The Senate gave its advice and consent to the North Atlantic Treaty on July 21, 1949, by a vote of ³
82-13. It did not include a formal condition regarding the Senate’s role in any future enlargement
of NATO in its resolution of ratification. But the issue was a matter of concern. During the
hearings held by the Senate Committee on Foreign Relations on the treaty, Senator Vandenberg,
the ranking member, posed a specific question on the matter to Secretary of State Dean Acheson
and received the following carefully prepared response:
^Sen^a^to^r^,^I^a^m^au^t^h^o^r^ized^b^y^t^h^{e P}^r^esid^en^{t o}^f^th^{e U}ⁿ^ited^Sta^t^{es to}^sa^y^t^h^{at in}^hⁱ^{s j}^u^d^g^m^eⁿ^t^th^e
^acces^sⁱ^on^ofⁿ^e^w^m^e^m^b^ers^{to th}^is^treat^y^create^sⁱⁿ^reg^a^{rd to e}^achⁿ^e^w^m^e^m^b^{er co}^mⁱⁿ^gⁱⁿ^effect^a
ⁿ^e^w^treat^y^bet^w^eeⁿ^t^h^{e Un}^ite^{d States}^an^{d th}^a^tⁿ^a^tioⁿ^,^an^{d t}^h^{at th}^ere^f^{ore th}^{e P}^r^es^iden^t^wou^l^d
^con^s^{ider it}ⁿ^eces^s^a^r^y^{to as}^k^f^o^{r th}^{e adv}ⁱ^ce^an^{d c}^ons^{ent of}^t^h^e^Sen^a^{te be}^f^o^{re h}ⁱ^m^s^{elf ag}^reei^ng^to⁴
^th^{e ad}^mⁱ^s^sⁱ^oⁿ^of^{a n}^e^w^m^e^m^b^er.

³^{95 C}^O^N^G^{. R}^E^C^.⁹⁹^{16 (}^J^uly^21,¹⁹⁴⁹⁾^.
⁴^He^arings^on^the^N^o^rth^Atla^ntic^T^r^e^a^ty^Be^fore^the^Se^nate^C^o^mmitte^e^{on F}^o^re^ig^{n Re}^la^tio^ns^{, 8}¹^st^Co^ng^{., 1}^st^S^e^ss.^(A^p^r^il
^27,²⁸^{, 2}⁹^,^Ma^y^{2 a}^{nd 3}^,¹⁹⁴⁹⁾^,^a^t^26.^Se^na^t^o^r^Va^nde^nbe^r^g^{, C}^h^aⁱ^r^m^aⁿ^T^o^m^C^onna^lly^{, a}^{nd Se}^c^r^e^t^a^r^y^A^c^he^s^on
^s^ubs^e^que^ntly⁽^id.^a^t⁴⁸^-⁴⁹⁾^dis^c^us^s^e^{d w}^h^e^t^he^r^P^r^e^s^ideⁿ^{t T}^r^um^aⁿ^’^s^com^m^it^m^e^nt^w^ould^be^bi^ndi^ng^oⁿ^s^ubs^e^que^nt
^P^r^e^s^ideⁿ^ts:
^Sen^a^to^r^V^A^NDENBER^G^.^{Mr. Se}^cretar^y^,^...[^y^]^o^u^{recall th}^{at y}^o^u^q^u^o^t^ed^t^h^e^P^r^esid^en^{t as say}ⁱⁿ^g^th^{at, if}^h^e
^w^e^r^e^coⁿ^f^roⁿ^t^ed^w^ith^th^e^p^r^o^b^{lem o}^f^d^ecidⁱⁿ^g^w^h^eth^e^{r o}^rⁿ^o^{t to}^acced^{e to}^t^h^{e ad}^d^itioⁿ^o^f^o^t^h^e^{r m}^e^m^b^ers
^{to t}^h^e^pa^c^t^,^he^w^{ould c}^o^nside^r^tha^t^{this i}ⁿ^v^o^lv^e^d^t^h^e^e^q^uⁱ^v^a^le^{nt of}^w^r^iting^a^ne^w^tre^a^t^y^{; a}^{nd, so f}^a^{r a}^s^he
^is^c^onc^e^r^ne^d,^he^w^oul^{d s}^e^e^k^the^a^d^vⁱ^c^e^a^{nd c}^ons^eⁿ^{t of}^the^Se^na^te^.
^S^ecret^ar^y^A^C^HE^S^ON.^Yes,^si^r.
^Se^na^tor^V^A^NDENBER^G^.^T^h^a^t^prote^c^t^{s us u}^p^t^o¹⁹⁵²^.^{I d}^oⁿ^o^{t m}^e^aⁿ^to^p^u^{t a}^lim^ita^tion^a^t^tha^t^po^int^.^.^..
^{But a}^f^te^{r a}^{ll, this tre}^a^t^y^{runs f}^o^{r 2}⁰^y^e^a^r^{s. W}^h^a^t^pr^ote^c^t^{s us if}^{, a}^s^{, a}^{nd w}^h^eⁿ^t^h^is^P^r^e^s^ideⁿ^{t c}^o^nc^lu^de^{s to}
^re^tire^,^v^o^lun^t^a^r^ily^{or othe}^rw^ise^?
^S^ecret^ar^y^A^C^HE^S^ON.^{I t}^hⁱⁿ^{k t}^h^e^r^{e i}^s^p^r^eced^en^t^,^S^eⁿ^a^t^o^r.
^T^h^{e CH}^A^I^RM^A^N^.^W^o^u^l^d^t^hⁱ^s^not^b^e^{a p}^r^eced^en^t^?^W^o^ul^dⁿ^o^t^t^h^{e st}^at^e^m^en^t^o^f^t^h^e^P^r^esi^d^en^t^,ⁱⁿ^t^h^{e even}^t
ⁱ^t^t^r^an^spⁱ^r^e^d^wⁱ^t^hⁱⁿ^t^h^at^p^e^ri^od^—an^d^t^h^{e cu}^st^o^m^an^d^t^h^e^p^r^actⁱ^ce,^wo^u^l^d^t^h^at^no^t^m^a^{ke a p}^r^eced^en^t^t^h^at
^the^ot^he^r^s^w^{ould r}^e^s^p^e^c^t^?
^S^ecret^ar^y^A^C^HE^S^ON.^Yes,^si^r.^T^hⁱ^s^m^e^{re st}^at^e^m^en^t^w^o^u^l^d^b^e^a^p^r^eced^en^t^.^Bu^t^I^w^a^{s go}ⁱⁿ^{g t}^o^say^t^h^at
^th^{ere is a p}^r^eced^en^{t f}^o^{r t}^h^{e f}^{act th}^{at a state}^m^en^{t mad}^e^b^y^{a sittin}^g^Presid^en^{t in}^reg^a^rd^to^Presid^en^tial
ⁱⁿ^t^e^rp^ret^a^tⁱ^oⁿ^o^f^t^h^{e t}^r^eat^y^,^an^d^wh^at^sh^ou^l^d^b^e^d^oⁿ^e^un^d^e^{r i}^t^,ⁱ^s^accep^t^e^d^b^y^hⁱ^{s su}^ccesso^{rs as a}
^st^at^e^m^en^t^co^mⁱⁿ^g^f^r^o^m^t^h^{e P}^r^esi^d^en^tⁱ^a^l^o^f^fⁱ^ce.
^Se^na^tor^VA^N^D^E^N^B^ER^G^.^Y^{ou y}^our^s^e^lf^e^v^ideⁿ^tly^c^ons^ide^r^e^d^{it t}^o^be^a^s^o^m^e^w^h^a^tⁱ^m^por^ta^nt^poi^{nt, I}
^judg^e^,^f^r^om^the^de^g^r^e^e^of^a^tte^{ntion w}^h^ic^{h y}^{ou g}^a^v^e^{to a}^r^mⁱ^ng^y^our^s^e^lf^w^{ith a}^thor^o^u^g^h^ly^a^d^e^qua^te
^an^sw^er.
^....
^T^h^e^CH^A^I^RM^A^N^{. A}^l^ong^the^line^of^the^inte^rr^og^a^tion,^the^Pre^s^ideⁿ^tia^{l a}^c^tion^{in sa}^yⁱ^ng^tha^t^this^{is a}
^m^a^tte^r^f^o^r^C^ong^r^e^s^s^a^{nd the}^Ex^e^c^u^tiv^e^w^{ould c}^e^r^ta^inly^ha^v^e^s^o^m^e^inf^l^ue^nc^e^a^t^le^a^s^{t, I}^ho^pe^,^{on a}
^su^ccesso^r?
^Se^c^r^e^t^a^r^y^A^C^H^E^SO^N^.^I^s^houl^{d th}^ink^{it w}^ould^m^a^ke^{it c}^l^e^a^r^tha^t^the^ba^sⁱ^s^of^the^t^h^ing^is^w^h^a^t^the
^P^r^e^s^ideⁿ^{t sa}^id:^tha^t^{it is i}ⁿ^e^f^f^e^c^t^a^ne^w^tre^a^t^y^w^{ith a}^ne^w^sta^t^e^.
^T^h^{e CH}^A^I^RM^A^N^.^E^x^act^l^y^.^It^ei^t^h^{er h}^a^{s t}^o^b^e^aⁿ^e^w^t^r^eat^y^o^r^a^m^o^dⁱ^fⁱ^catⁱ^oⁿ^o^f^an^exi^s^tⁱⁿ^{g t}^r^eat^y^,^an^d
^t^h^{e co}ⁿ^s^en^t^o^f^t^h^{e C}^oⁿ^g^{ress i}^s^requⁱ^r^edⁱⁿ^an^y^even^{t. I thi}ⁿ^k^the^P^r^e^s^ideⁿ^{t w}^a^{s e}^x^a^c^tl^y^rig^h^{t in t}^h^a^t
^attitu^d^e^,^b^ecau^{se if}^h^e^co^u^l^d^m^a^k^e^{a treat}^y^w^it^{hout r}^e^f^e^r^rⁱ^ng^{it to t}^h^e^Se^na^te^a^t^a^{ll he}^w^oul^{d a}^b^r^o^g^a^te^,
^al^m^o^st^,^t^h^{e ad}^vi^{ce an}^d^coⁿ^s^en^t^cl^au^{se o}^f^t^h^{e Co}ⁿ^s^tⁱ^t^u^tⁱ^oⁿ^.
⁽^c^onti^nue^d.^..)

Building on this commitment, the report of the Senate Committee on Foreign Relations on the
treaty commented specifically on the Senate’s role with respect to the admission of new members
to NATO, as follows:
^In^as^m^u^c^h^as^t^h^{e ad}^mⁱ^s^s^ion^ofⁿ^e^w^m^e^m^b^ers^mⁱ^g^h^{t radicall}^y^{alter ou}^{r oblig}^ation^s^un^{der th}^e^pact,
^th^{e co}^mm^{ittee e}^x^a^mⁱⁿ^{ed articl}^e^{10 v}^e^r^y^carefu^l^l^y^{. T}^h^{e qu}^e^s^ti^on^aros^e^w^h^et^h^e^{r a}ⁿ^y^Uⁿ^{ited S}^t^ates
^deci^sⁱ^on^res^p^ectⁱⁿ^gⁿ^e^w^m^e^m^b^ers^w^o^u^l^{d be bas}^e^{d s}^o^l^e^l^y^on^Presⁱ^d^en^tⁱ^a^l^actⁱ^oⁿ^or^w^oul^{d req}^uⁱ^re
^Sen^a^te^approv^{al. C}^ons^equ^eⁿ^t^l^y^{, t}^h^{e co}^m^mⁱ^ttee^w^a^s^fu^ll^y^s^a^tis^{fied b}^y^th^e^co^m^mⁱ^t^m^eⁿ^{t o}^f^th^e
^P^r^es^iden^{t, deliv}^{ered by}^t^h^{e Se}^cretary^o^f^State,^t^h^{at h}^e^w^o^u^l^{d con}^s^{ider th}^{e ad}^mⁱ^s^sⁱ^on^o^f^{a n}^e^w
^m^e^m^b^{er to th}^{e pact as}^th^{e con}^c^lu^sⁱ^oⁿ^of^{a n}^e^w^treat^y^wⁱ^t^h^th^a^t^m^e^m^b^{er an}^d^w^o^u^l^d^s^e^ek^t^h^e^a^d^vⁱ^c^e
^an^d^coⁿ^s^eⁿ^{t o}^f^t^h^{e Se}ⁿ^a^{te to}^each^s^u^ch^ad^mⁱ^s^s^ioⁿ^.^T^h^{e co}^m^m^{ittee co}ⁿ^s^id^{ers t}^h^{is a}ⁿ^o^b^lig^a^tioⁿ⁵
^bⁱⁿ^dⁱⁿ^g^u^p^oⁿ^t^h^{e P}^r^esid^en^tial^o^f^fⁱ^ce.
As noted above, this commitment has been honored in all five of the subsequent enlargements of
NATO. In each instance a Protocol providing for the inclusion of an additional state or states in
NATO has been negotiated, and the Protocol has been submitted to the Senate for its advice and
consent.

In 1951 the twelve members of NATO negotiated a “Protocol to the North Atlantic Treaty on the
Accession of Greece and Turkey.” Article I of the Protocol stated:
^Upon^th^{e en}^tr^yⁱⁿ^{to f}^o^{rce of}^thⁱ^s^P^r^otoc^{ol, th}^{e Gov}^e^rnm^eⁿ^t^of^th^{e Un}ⁱ^t^{ed States}^of^Am^{erica s}^h^all^,
^on^beh^a^l^f^o^f^al^{l t}^h^{e P}^a^rties^,^co^mm^un^icate^{to t}^h^{e Go}^v^e^rnm^eⁿ^t^of^t^h^e^Kiⁿ^g^d^o^m^{of Greece a}^{nd th}^e
^Gov^e^rnm^e^{nt of t}^h^e^R^e^pu^{blic o}^f^T^u^rk^e^y^aⁿⁱⁿ^v^ita^tioⁿ^{to acced}^{e to th}^e^North^A^tlaⁿ^{tic T}^r^eat^y^,^as^it
^m^a^y^be^m^odi^fⁱ^{ed by}^A^r^{ticle II of}^th^{e pres}^en^{t P}^r^otocol.^T^h^erea^f^t^{er th}^{e Ki}ⁿ^g^d^o^m^o^f^{Greece and th}^e
^R^e^pu^{blic of}^T^u^rk^e^y^s^h^a^{ll each}^beco^m^e^{a P}^a^rty^on^t^h^{e date}^w^h^en^{it depos}^its^it^s^ins^t^r^u^m^eⁿ^t^o^f
^acces^sⁱ^on^wⁱ^t^h^th^e^Gov^e^rnm^e^{nt of}^th^e^Unⁱ^t^{ed States}ⁱⁿ^accordan^ce^wⁱ^t^h^A^r^{ticle 10 of}^t^h^{e T}^r^eat^y^.
President Truman submitted the Protocol to the Senate for its advice and consent on January 10, ⁶

1952; and the Senate approved the Protocol without conditions on February 7, 1952, by a vote of ⁷

73-2.

The report of the Senate Committee on Foreign Relations, which unanimously recommended
approval of the Protocol, recalled and reiterated President Truman’s commitment to seek Senate
advice and consent to any enlargement of NATO, as follows:
^B^e^f^o^r^e^th^{e Se}ⁿ^a^{te g}^a^v^e^it^{s ad}^vⁱ^{ce an}^d^coⁿ^s^eⁿ^{t to}^t^h^{e r}^a^tif^icati^oⁿ^o^f^t^h^{e No}^r^t^h^A^tlaⁿ^{tic T}^r^eaty^oⁿ
^J^u^l^y^{21, 19}^49,^{it receiv}^e^{d th}^{e Pres}^iden^t^’^s^as^s^u^raⁿ^{ce deliv}^{ered by}^t^h^{e Secretar}^y^of^{State du}^ri^ng^t^h^e
^h^earing^s^oⁿ^th^{e treat}^y^th^a^t^—

^(...c^on^tin^ue^d)
^S^ecret^ar^y^A^C^HE^S^ON.^{I t}^hⁱⁿ^{k t}^h^e^st^at^e^m^en^t^t^h^at^w^a^s^m^a^d^e^oⁿ^b^e^h^a^l^f^o^f^t^h^{e P}^r^esi^d^ent^real^l^y^p^u^t^{s t}^h^e
^que^stio^{n t}^o^re^{st. I}^doⁿ^o^{t t}^h^ink^t^h^a^t^aⁿ^y^f^u^ture^P^r^e^s^ideⁿ^t^,ⁱⁿ^the^lig^ht^of^tha^t^sta^t^e^m^eⁿ^{t, w}^{ould u}^nde^rta^k^e
^{to v}^o^te^f^o^{r the}^a^d^mⁱ^{ssion of}^a^ne^{w m}^e^m^b^e^r^{, a}^{nd a}ⁿ^y^ne^w^m^e^m^b^e^r^woul^{d be}^v^e^ry^{ill a}^d^vⁱ^se^{d to le}^t^the
^m^a^tte^{r re}^{st a}^t^tha^t^p^o^int^.
⁵^{S. Ex}^e^c^.^Re^{pt. N}^o^.^8,⁸¹^st^C^ong^.,¹^st^Se^s^s^.⁽^J^une^{6, 19}⁴⁹⁾^,^a^t¹⁸^.
⁶^{S. Ex}^e^c^.^E,⁸²^{d C}^ong^.,^2d^Se^s^s^.⁽¹⁹⁵²⁾^.
⁷^{98 C}^O^N^G^{. R}^E^C^.⁹³^{0 (}^F^e^b^r^u^a^r^y^{7, 1}⁹⁵²⁾^.

^{... in}^hⁱ^s^j^u^dgm^eⁿ^{t t}^h^{e acces}^sⁱ^oⁿ^ofⁿ^e^w^m^e^m^b^ers^{to t}^h^is^treat^y^createsⁱⁿ^re^g^a^{rd to each}
ⁿ^e^w^m^e^m^b^{er co}^mⁱ^ngⁱⁿ^eff^{ect a n}^e^w^treat^y^bet^w^eeⁿ^th^{e U}ⁿ^it^{ed States}^an^{d th}^{at n}^a^tioⁿ^,
^an^{d th}^{at t}^h^eref^{ore th}^{e P}^r^es^iden^t^w^o^u^l^{d con}^s^{ider it n}^eces^s^a^r^y^{to as}^k^f^o^{r th}^{e adv}ⁱ^{ce a}ⁿ^d⁸
^con^s^{ent of}^th^e^Sen^a^{te be}^f^o^{re hi}^m^s^e^l^f^a^g^reeing^{to th}^{e ad}^mⁱ^s^sⁱ^oⁿ^of^{a n}^e^w^m^e^m^b^er.
The Protocol entered into force on February 15, 1952.⁹

On October 23, 1954, the fourteen member states of NATO concluded a “Protocol to the North
Atlantic Treaty on the Accession of the Federal Republic of Germany.” In words virtually
identical to those used in the Protocol regarding Greece and Turkey, Article I of the Protocol
provided as follows:
^Up^oⁿ^th^{e en}^tr^yⁱⁿ^to^f^o^r^{ce o}^f^th^{e p}^r^esen^{t P}^r^o^t^o^c^o^l^{, th}^{e Go}^v^e^rⁿ^m^eⁿ^t^o^f^th^{e U}ⁿ^ited^State^s^o^f
^Am^erica^s^h^al^{l on}^be^h^a^l^f^{of a}^{ll th}^e^P^a^rties^co^m^m^{unicate t}^o^th^{e Go}^v^e^rnm^e^{nt of th}^e^Fe^deral
^R^e^pu^{blic of}^Ger^m^aⁿ^y^aⁿ^inv^ita^tioⁿ^{to accede to}^th^{e North}^A^tlaⁿ^{tic T}^r^eaty^.^T^h^ereaf^{ter th}^{e Fede}^r^a^l
^Rep^u^b^{lic o}^f^Ger^m^aⁿ^y^s^h^{all b}^eco^m^e^{a P}^a^r^t^y^to^t^h^{at T}^r^eaty^oⁿ^th^e^d^a^te^w^h^eⁿⁱ^t^d^e^p^o^s^its^its
ⁱⁿ^s^t^r^u^m^eⁿ^t^s^of^acce^s^sⁱ^oⁿ^wⁱ^t^h^th^{e Gov}^e^rⁿ^m^eⁿ^t^of^t^h^{e U}ⁿ^ited^States^o^f^Am^{erica i}ⁿ^accordan^ce
^wⁱ^t^h^A^r^{ticle 1}⁰^o^f^th^a^t^T^r^eaty^.
President Eisenhower submitted this Protocol to the Senate for its advice and consent on
November 15, 1954, together with another Protocol terminating the occupation regime in West ¹⁰
Germany. In unanimously recommending Senate consent to ratification of both Protocols, the
report of the Senate Foreign Relations Committee made no reference to President Truman’s 1949 ¹¹
commitment regarding Senate involvement in any enlargement of NATO. The Senate gave its ¹²
consent to the ratification of the Protocol without conditions on April 1, 1955, by a vote of 76-2. ¹³
The Protocol entered into force on May 5, 1955.

On December 10, 1981, the fifteen member states of NATO concluded a “Protocol to the North
Atlantic Treaty on the Accession of Spain.” In words slightly different from those of the two
foregoing Protocols, Article I of this Protocol provided as follows:
^Up^oⁿ^th^e^eⁿ^tr^yⁱⁿ^to^f^o^r^{ce o}^f^t^h^is^P^r^o^t^o^c^o^l^{, th}^{e Secr}^etar^y^Geⁿ^e^r^a^{l o}^f^t^h^{e No}^r^t^h^A^tlaⁿ^tic^T^r^eat^y
^Org^aⁿⁱ^za^tion^s^h^al^{l, on}^beh^a^l^f^o^f^{all t}^h^{e P}^a^rties^,^co^m^m^{unicate t}^o^th^{e Gov}^e^rⁿ^m^eⁿ^t^o^f^t^h^{e Ki}ⁿ^g^d^om
^of^Spaiⁿ^aⁿⁱⁿ^v^itatioⁿ^{to acced}^{e to th}^e^North^A^tlaⁿ^{tic T}^r^eat^y^.^In^accordan^ce^wⁱ^t^h^artic^{le 10 of}^t^h^e
^treat^y^,^th^e^King^do^m^o^f^Spain^s^h^{all beco}^m^e^{a P}^a^rt^y^on^t^h^{e dat}^e^w^h^en^{it depos}^its^it^s^ins^t^rum^eⁿ^t^of
^acces^sⁱ^on^wⁱ^th^t^h^{e Gov}^e^rⁿ^m^eⁿ^t^of^t^h^{e United States}^o^f^Am^e^r^ica.

⁸^{S. Ex}^e^c^.^R^e^{pt. N}^o^.^1,⁸²^{d C}^o^ng^.,^2d^Se^s^s^.⁽^J^a^nua^r^y^{21, 1}⁹⁵²⁾^.
⁹^{3 U}^S^T⁴³⁽¹⁹⁵²⁾^{; T}^I^A^S²³⁹^0.
¹⁰^{S. Ex}^s^.^L^a^nd^M,⁸³^{d C}^o^ng^.,^2d^Se^s^s^.⁽^N^ov^em^be^r^15,¹⁹⁵⁴⁾^.
¹¹^{S. Ex}^e^c^.^Re^{pt. N}^o^.^6,⁸⁴^th^Co^ng^.,¹^st^S^e^ss.^(M^arch³¹^,¹⁹⁵⁵^).
¹²¹⁰^{1 C}^O^N^G^{. R}^E^C^.⁴²³³⁽^A^pr^{il 1}^,¹⁹⁵⁵⁾^.
¹³^{6 U}^S^T⁵⁷⁰⁷⁽¹⁹⁵⁵⁾^{; T}^I^A^S³⁴²^8.

President Reagan transmitted this Protocol to the Senate for its advice and consent on January 26, ¹⁴
1982. In its report unanimously recommending approval of the Protocol, the Senate Foreign
Relations Committee made no mention of the 1949 commitment regarding the Senate’s role in
consenting to any enlargement of NATO or to any controversy about whether the Senate should ¹⁵
be involved. The Senate consented to the ratification of the Protocol without conditions on a ¹⁶¹⁷
division vote on March 16, 1982; and the Protocol entered into force on May 29, 1982.

The reunification of Germany in 1991 did not lead to a Protocol regarding the accession of the
reunified state to NATO. As described above, the Federal Republic of Germany (West Germany)
had become part of NATO in 1955, while the German Democratic Republic (East Germany) had
been part of the Warsaw Pact. The NATO aspect of the reunification process, as a consequence,
was dealt with by treating the reunified Germany as a continuation of the Federal Republic of
Germany (FRG) and the FRG’s treaty commitments—including its participation in NATO—as
continuing in effect. These affirmations were part of both the Treaty between the FRG and the ¹⁸
German Democratic Republic on the Establishment of German Unity and the Treaty on the
Final Settlement With Respect to Germany between the four occupying powers and the FRG and ¹⁹
German Democratic Republic (GDR).
Article I of the treaty between the FRG and the GDR regarding the process of unification
provided for the accession of the districts of the GDR to the territory of the FRG on October 3, ²⁰
1990. On that date the GDR ceased to exist as a state while the FRG continued in existence with
an expanded territory. Article 11 of the agreement provided that the treaties of the FRG would
continue in force, as follows:
^T^h^{e C}^oⁿ^t^racting^P^a^rties^procee^{d on}^th^{e u}ⁿ^d^e^r^s^t^an^dⁱⁿ^g^t^h^a^tⁱⁿ^te^rⁿ^a^tⁱ^oⁿ^a^l^t^r^e^a^tⁱ^e^s^an^d^a^g^r^e^em^en^t^s^t^o
^w^h^ic^h^t^h^{e Fed}^e^r^a^{l Rep}^u^b^{lic o}^f^Ger^m^an^yⁱ^s^{a co}ⁿ^t^r^actiⁿ^g^p^a^r^t^y^,ⁱⁿ^cl^u^dⁱⁿ^g^tr^{eaties e}^s^tab^lis^hⁱⁿ^g
^m^e^m^b^er^s^h^ip^o^fⁱⁿ^terⁿ^atioⁿ^a^{l o}^r^g^aⁿⁱ^zat^ioⁿ^s^o^rⁱⁿ^s^tit^u^tioⁿ^s^{, sh}^{all r}^e^tain^th^eir^v^a^lid^it^y^aⁿ^d^th^a^t^th^e
^rig^h^t^s^an^{d oblig}^ations^arisⁱⁿ^g^t^h^eref^ro^m^{... s}^h^al^{l als}^o^{relate to}^th^{e territory}^s^p^e^cⁱ^fⁱ^e^dⁱⁿ^A^r^tⁱ^c^le³^o^f
^th^{is T}^r^eat^y^.
In contrast, Article 12 of the agreement provided that the treaties of the GDR would not
automatically continue in force but were subject to negotiation with the parties affected.
Similarly, the Treaty on the Final Settlement With Respect to Germany concluded by the FRG, the
GDR, the United States, France, the Soviet Union, and the United Kingdom affirmed the
continuing right of the united Germany to participate in alliances such as NATO. Article 6 of the
treaty provided as follows:

¹⁴^T^r^e^a^t^y^D^o^c^.^N^o^{. 97-}^22,⁹⁷^th^C^oⁿ^g^{., 2d}^Se^s^s^.⁽^J^a^nua^r^y^26,¹⁹⁸²⁾^.
¹⁵^{S. Ex}^e^c^.^Re^{pt. N}^o^.^97-⁵¹^{, 9}⁷^th^C^ong^{., 2d Se}^s^s^.⁽^M^a^r^c^h^{9, 19}⁸²⁾^.
¹⁶¹²^{8 C}^O^N^G^{. R}^E^C^.⁴³⁰¹⁽^M^a^r^c^h^16,¹⁹⁸²⁾^.
¹⁷^{34 U}^S^T³⁵^{08 (}¹⁹⁸²⁾^;^T^I^A^S¹⁰⁵⁶^4.
¹⁸³⁰^I^L^{M 45}^{7 (}¹⁹⁹¹⁾^.^T^h^e^pe^r^tineⁿ^{t pr}^ov^isⁱ^ons^of^this^tr^e^a^t^y^a^r^e^a^l^s^o^r^e^pr^od^uc^e^d^a^t^D^e^pa^r^t^m^e^{nt of}^Sta^t^e^,^T^R^E^A^T^I^ES
^I^N^F^O^R^C^E²⁰⁰²^,^at¹⁰⁵^.
¹⁹^T^I^A^S^___⁽¹⁹⁹¹⁾^;¹⁶⁹^{6 U}^N^T^{S 1}^15.
²⁰³⁰^I^L^{M 45}^7,⁴⁶^{4, A}^r^tic^le^1.

^T^h^{e r}ⁱ^g^h^t^o^f^t^h^{e u}ⁿ^ited^Ger^m^aⁿ^y^to^b^e^loⁿ^g^to^allian^ces,^wⁱ^th^{all th}^{e r}ⁱ^g^h^{ts a}ⁿ^d^r^e^sp^oⁿ^sib^ili^ties
^aris^ing^th^ere^f^ro^m^,^s^h^allⁿ^o^{t be af}^f^e^c^t^{ed by}^t^h^{e pres}^{ent T}^r^eaty^.
President Bush submitted the latter treaty to the Senate for its advice and consent on September ²¹²²
26, 1990; and the Senate gave its consent by a vote of 90-0 on October 10, 1990. In a hearing
by the Senate Foreign Relations Committee on the treaty, the State Department representative ²³
stated that “Article 6 permits full German membership in NATO.” Similarly, the report of the
Committee recommending that the Senate consent to ratification of the treaty stated that Article ²⁴
VI meant “[a] united Germany retains the right to be a member of NATO.... ” A hearing held by
the Senate Armed Services Committee on the implications of the treaty for NATO strategy ²⁵
adduced a number of similar statements from Administration witnesses. The treaty entered into
force on March 15, 1991.

On December 16, 1997, the sixteen member states of NATO concluded three Protocols providing
for the accession of Poland, Hungary, and the Czech Republic, respectively. Article I of each
Protocol stated as follows:
^Up^oⁿ^th^e^eⁿ^tr^yⁱⁿ^to^f^o^r^{ce o}^f^t^h^is^P^r^o^t^o^c^o^l^{, th}^{e Secr}^etar^y^Geⁿ^e^r^a^{l o}^f^t^h^{e No}^r^t^h^A^tlaⁿ^tic^T^r^eat^y
^Org^aⁿⁱ^za^tion^s^h^{all, o}ⁿ^beh^a^l^f^of^{all t}^h^{e P}^a^rties^,^co^m^m^uⁿⁱ^cat^{e to th}^{e Gov}^e^rⁿ^m^eⁿ^t^o^f^[n^a^m^{e of}
^{State] an}ⁱⁿ^v^itatioⁿ^{to accede to}^th^{e North}^A^tlaⁿ^{tic T}^r^eat^y^.^{In accordan}^ce^wⁱ^t^h^A^r^{ticle 10 of th}^e
^T^r^eaty^,^[n^a^m^{e of}^{State] s}^h^all^becom^e^{a P}^a^rt^y^oⁿ^t^h^{e date}^w^h^eⁿ^{it depos}^its^itsⁱⁿ^s^t^rum^eⁿ^t^of
^acces^sⁱ^on^wⁱ^th^t^h^{e Gov}^e^rⁿ^m^eⁿ^t^of^t^h^{e United States}^o^f^Am^e^r^ica.
President Clinton submitted the three Protocols to the Senate for its advice and consent on ²⁶
February 11, 1998. The Senate Foreign Relations Committee had in prior years held a number
of hearings on the subject of enlarging NATO; and after an additional hearing on February 24, ²⁷

1998, on the three Protocols, the committee on March 6, 1998, unanimously recommended ²⁸

approval of the Protocols. In contrast to its resolutions of ratification on prior enlargements of
NATO, however, the committee proposed that seven declarations and three conditions be included
in the resolution of ratification of the Protocols. Most concerned the strategic rationale for NATO
and the implications of its enlargement for relations with Russia and for European integration.
But one declaration reiterated the necessity for Senate advice and consent, as follows:

²¹^{S. T}^r^e^a^t^y^D^o^c^.¹⁰^1-²⁰^,¹⁰¹^st^C^oⁿ^g^{., 2d}^Se^s^s^.^(Se^p^te^m^b^e^r^26,¹⁹⁹⁰⁾^.
²²¹³^{6 C}^O^N^G^{. R}^E^C^.²⁸²^08-^{09 (}^O^c^t^obe^r¹⁰^,¹⁹⁹⁰⁾^.
²³^He^aring^on^the^Tre^a^ty^oⁿ^t^h^e^Fin^a^{l Se}^tt^le^me^{nt W}^ith^Re^spe^c^t^{to Ge}^r^m^any^Be^fore^t^h^e^Seⁿ^a^te^C^o^mmitte^e^{on F}^o^re^igⁿ
^Re^latio^ns^{, 10}¹^st^Co^ng^{., 2}^d^Se^{ss. (}^S^e^p^te^m^b^e^r^{28, 1}⁹⁹⁰^{), a}^t^{5 (sta}^te^m^e^{nt of}^Robe^rt^Zoe^llic^k⁾^.
²⁴^{S. Ex}^e^c^.^R^e^pt.¹⁰^1-³³^,¹⁰¹^st^C^oⁿ^g^{., 2d}^Se^s^s^.⁽^O^c^t^obe^r^5,¹⁹⁹⁰⁾^.
²⁵^Se^e^He^aring^oⁿ^t^h^e^Implic^a^tio^ns^{of Tre}^a^ty^on^Fin^a^l^Ge^rman^Se^ttle^me^{nt for NA}^{TO Str}^a^te^gy^aⁿ^d^U.S^.^M^ilitary
^Pre^s^eⁿ^c^e^{in Euro}^pe^Be^fore^t^h^e^Se^nate^Arme^d^Se^rv^ic^e^s^Committe^e^{, 101}^st^C^ong^.,²^d^Se^s^s^.⁽^O^c^t^o^b^e^r^4,¹⁹⁹⁰⁾^,^a^t^{6 a}^nd^25-
^{26 (}^s^ta^te^m^e^nts^of^Ste^phe^{n J}^.^H^a^dl^ey^{, A}^s^sⁱ^s^t^aⁿ^{t Se}^c^r^e^t^a^r^y^o^f^D^e^f^e^nse^f^o^r^Iⁿ^te^rⁿ^a^tio^na^{l Se}^c^u^r^ity^Polic^y⁾^a^nd^{7 (}^s^ta^te^m^e^nt
^of^J^a^m^e^s^{F. D}^o^b^b^ins^,^J^r^.,^Pr^incⁱ^pa^{l D}^e^puty^A^s^sⁱ^s^t^aⁿ^{t Se}^c^r^e^t^a^r^y^of^De^f^e^ns^e^f^o^r^Eur^ope^aⁿ^a^{nd C}^a^na^diaⁿ^A^f^f^a^ir^s⁾^.
²⁶^{S. T}^r^e^a^t^y^D^o^c^.¹⁰^5-³⁶^,¹⁰⁵^th^C^oⁿ^g^{., 2d}^Se^s^s^.⁽^F^e^b^r^u^a^r^y^{11, 1}⁹⁹⁸⁾^.
²⁷^H^e^ar^ing^on^Admⁱ^nis^t^r^a^tio^{n Vie}^w^s^{on t}^h^e^Pr^o^t^oc^ols^to^the^N^o^r^t^{h A}^t^lantic^Tr^e^a^ty^oⁿ^t^h^e^Ac^c^e^s^sⁱ^on^of^Pola^nd^,
^H^ung^ar^y^,^aⁿ^d^the^C^z^e^c^h^Re^pu^blic^be^for^e^t^h^e^Seⁿ^a^te^Committe^e^on^Fore^ign^Re^lati^ons^{, 1}⁰⁵^th^Co^ng^{., 2}^d^Se^s^s^.^(Fe^b^r^u^a^r^y
^{24, 19}⁹⁸⁾^.
²⁸^{S. Ex}^e^c^.^R^e^pt.¹⁰^5-¹⁴^,¹⁰⁵^th^C^oⁿ^g^{., 2d}^Se^s^s^.⁽^M^a^r^c^h^6,¹⁹⁹⁸⁾^.

^(A^{) SEN}^A^T^E^{FINDINGS ....}
^(iv⁾^{... [T}^]h^{e Un}^{ited S}^t^ate^s^wⁱ^l^lⁿ^o^t^s^u^{pport th}^{e acce}^s^sⁱ^oⁿ^{to t}^h^{e North}^A^tlaⁿ^{tic T}^r^eat^y^o^f^{, or th}^e
ⁱⁿ^vitation^{to begin}^acces^sⁱ^on^t^a^lk^s^wⁱ^th^{, a}ⁿ^y^E^u^rop^ean^s^t^{ate (}^o^th^{er th}^aⁿ^P^o^lan^d^{, Hu}^ng^ar^y^,^o^r^th^e
^C^zech^R^e^pu^blic)^un^les^s^—
^{(I) t}^h^{e P}^r^esⁱ^d^en^t^con^s^u^l^t^s^wⁱ^t^h^t^h^{e S}^eⁿ^a^t^e^consⁱ^s^t^eⁿ^t^wⁱ^t^h^A^r^tⁱ^c^l^e^I^I^,^s^e^c^tⁱ^oⁿ²^,^c^l^a^u^s^e²^o^f
^th^{e C}^oⁿ^s^ti^tu^tⁱ^on^of^t^h^{e U}ⁿ^ited^States^(relatiⁿ^g^{to t}^h^{e adv}ⁱ^{ce a}ⁿ^{d con}^s^eⁿ^{t of}^t^h^{e Se}ⁿ^a^{te to}
^th^e^m^a^kⁱ^ng^of^treaties⁾^{; a}ⁿ^{d (II) ....}
⁽^B⁾^RE^Q^U^I^RE^M^E^N^T^FO^R^CO^N^S^E^N^SU^S^A^N^D^RA^T^I^F^I^CA^T^I^O^N^.^—^T^h^e^S^eⁿ^a^t^e^de^c^l^a^r^e^s^t^h^a^tⁿ^o
^action^{or ag}^ree^m^en^{t oth}^e^{r t}^h^an^{a con}^s^en^s^u^s^decisⁱ^oⁿ^b^y^t^h^e^fu^l^l^m^e^m^b^e^r^s^hⁱ^p^o^f^N^A^T^O^,^a^p^pr^ove^d
^by^t^h^{e n}^a^tioⁿ^a^{l procedu}^r^es^of^each^N^A^T^O^m^e^m^b^{er, in}^cl^u^d^{ing, in}^th^e^c^a^s^e^o^f^t^h^e^Unⁱ^t^e^d^S^t^a^t^es^,^t^h^e
^r^e^q^u^ir^e^m^en^{ts o}^f^A^r^tic^{le I}^I^{, sect}^ioⁿ²^,^cla^u^{se 2}^o^f^t^h^e^Coⁿ^s^tit^u^tⁱ^oⁿ^o^f^th^e^Uⁿ^ited^Sta^t^{es (}^r^e^latiⁿ^g^to
^th^{e ad}^vⁱ^{ce an}^d^coⁿ^s^eⁿ^{t o}^f^th^{e Sen}^a^{te to}^th^e^m^a^kⁱⁿ^g^o^f^tr^eaties)^,^w^{ill co}ⁿ^s^tit^u^t^{e a secu}^rⁱ^t^y²⁹
^co^m^mⁱ^t^m^eⁿ^{t p}^u^r^s^u^aⁿ^t^to^th^{e N}^o^r^t^h^A^t^lan^t^{ic T}^r^eaty^.
One of the conditions in the proposed resolution of ratification also required the President to
submit reports to the appropriate congressional committees on states being considered for NATO
membership prior to any invitation to such states to begin accession talks and prior to the ³⁰
conclusion of any Protocols providing for such accession.

²⁹^Id^.^a^t⁴⁰^.
³⁰^Con^d^iti^on^2(E)^of^the^pr^op^ose^d^r^e^solutioⁿ^of^ra^tif^ic^a^{tion sta}^t^e^d^a^s^follow^s^:

^{(E) RE}^P^O^RT^{S ON FUT}^U^{RE ENLA}^R^G^EMENT^{OF N}^A^T^O^.—
^{(i) RE}^P^O^RT^S^P^R^{IOR T}^O^COMMENCEMENT^{OF A}^{CCESSION TAL}^K^S.—P^ri^o^r^t^o^an^y^d^ecisioⁿ^b^y
^the^N^o^r^t^{h A}^tla^ntic^C^o^uⁿ^c^{il t}^oⁱⁿ^v^ite^aⁿ^y^c^ountr^y⁽^o^the^r^thaⁿ^Pola^nd,^H^ung^a^r^y^,^or^the^C^zech^Rep^u^b^lⁱ^c⁾^t^o
^b^e^giⁿ^accessi^oⁿ^t^a^l^k^{s w}ⁱ^t^h^NAT^O^,^t^h^e^P^r^esi^d^en^t^s^h^al^l^sub^mⁱ^t^t^o^t^h^e^ap^p^r^op^ri^at^{e co}ⁿ^g^ressi^oⁿ^a^l
^co^mm^itte^{es a d}^e^tailed^rep^o^r^{t reg}^a^rdⁱⁿ^g^each^co^uⁿ^try^b^eⁱⁿ^g^activ^el^y^coⁿ^s^id^ered^f^o^{r NA}^T^O^me^m^b^ersh^ip^,
^inc^l^u^d^ing
^{(I) a}ⁿ^e^v^a^l^u^a^tioⁿ^o^f^h^o^w^th^a^t^c^o^uⁿ^try^w^{ill f}^u^rth^e^{r th}^e^p^rⁱⁿ^cⁱ^p^l^e^s^o^f^t^h^e^No^rth^A^tlaⁿ^tic^T^r^e^a^t^y^aⁿ^d
^coⁿ^t^ri^b^u^t^{e t}^o^t^h^{e secu}^ri^t^y^o^f^t^h^{e No}^rt^h^A^t^l^aⁿ^tⁱ^c^area;
^{(II) a}ⁿ^e^v^a^l^u^a^tioⁿ^o^f^th^e^e^lig^ibⁱ^lity^o^f^th^a^t^c^o^uⁿ^try^f^o^r^m^e^m^b^e^r^sh^ip^b^a^se^d^oⁿ^t^h^e^p^rⁱⁿ^cⁱ^p^l^e^s^aⁿ^d
^c^r^ite^ria^ideⁿ^tif^ie^{d by}^NAT^{O a}^{nd the}^Unite^d^Sta^t^e^s^{, i}ⁿ^c^l^ud^ing^the^m^ilita^ry^re^a^d^ine^{ss of}^tha^t^c^o^uⁿ^try^;
^{(III) an}^ex^p^l^an^atioⁿ^o^f^h^o^w^anⁱⁿ^v^itatioⁿ^to^th^{at co}^uⁿ^try^w^o^u^l^d^af^f^e^c^t^th^eⁿ^a^tioⁿ^a^{l secu}^rityⁱⁿ^terests
^of^the^Unite^d^Sta^t^e^s^;
^(IV^{) a}ⁿ^u^p^-to-^da^te^Uⁿ^ite^d^Sta^t^e^s^G^o^v^e^rn^m^e^{nt a}ⁿ^a^l^y^s^is^o^f^the^c^o^m^m^on-f^unde^{d m}^ilita^r^y^re^quire^m^e^nts
^an^d^co^st^{s asso}^ci^at^ed^wⁱ^t^hⁱⁿ^t^e^gratⁱⁿ^{g t}^h^at^couⁿ^t^r^yⁱⁿ^t^o^NA^T^O^,^an^d^an^an^al^y^sⁱ^s^o^f^t^h^{e sh}^{ares o}^f^t^h^o^s^e
^co^st^{s t}^o^b^e^bo^rn^e^b^y^N^A^T^O^m^e^m^b^ers,ⁱⁿ^cl^u^dⁱⁿ^g^t^h^{e Uni}^t^e^d^S^t^at^es;^an^d
⁽^V⁾^a^pr^e^lim^ina^r^y^aⁿ^a^l^y^s^is^of^the^im^plic^a^tions^f^o^r^the^Uⁿ^ite^{d Sta}^t^e^s^de^f^e^ns^e^budg^e^t^a^nd^othe^r^Uⁿ^ite^d
^Sta^t^e^s^bu^dg^e^t^s^of^inte^g^r^a^ting^tha^t^c^ountr^y^into^N^A^TO^.
^{(ii) U}^P^DA^T^E^{D REP}^O^RT^S^P^R^IO^{R T}^O^S^I^GNIN^G^P^R^OT^OCO^L^S^OF^A^CCES^S^I^ON.^—P^ri^o^r^t^o^t^h^e
^si^gnⁱⁿ^{g o}^f^an^y^p^r^o^t^o^c^o^l^t^o^t^h^{e No}^r^t^h^A^t^l^aⁿ^tⁱ^c^T^r^eat^y^oⁿ^t^h^{e accessi}^oⁿ^o^f^an^y^c^ountr^y^{, the}^P^r^e^s^ideⁿ^t^s^h^a^ll
^subm^{it to t}^h^e^a^ppr^opria^te^c^o^ng^re^ssiona^{l c}^o^m^m^itte^e^s^a^re^{port, i}ⁿ^c^l^a^ssifⁱ^e^d^a^{nd unc}^la^ssifⁱ^e^d^f^o^rm^s—
^{(I) u}^p^d^a^tin^g^t^h^{e in}^f^o^rm^atioⁿ^coⁿ^t^ain^e^dⁱⁿ^t^h^{e rep}^o^r^{t req}^u^ired^uⁿ^d^e^r^clau^{se (i) w}^ith^resp^{ect to}^t^h^{at co}^uⁿ^try^;
^a^nd
^{(II) in}^c^l^u^dⁱⁿ^g^aⁿ^aⁿ^a^l^y^s^{is o}^f^th^a^t^c^o^uⁿ^try^’^{s a}^b^ility^to^m^e^e^t^th^e^f^u^{ll ra}ⁿ^g^e^o^f^th^e^fⁱⁿ^aⁿ^c^ia^{l b}^u^r^d^eⁿ^s^o^f
^N^A^T^O^m^e^m^b^e^r^s^h^{ip, a}ⁿ^d^the^lⁱ^k^e^lyⁱ^m^pac^t^upo^{n t}^h^e^m^ilita^r^y^eff^e^c^tⁱ^v^eⁿ^e^s^s^of^N^A^T^O^of^the^c^ountry
ⁱⁿ^vi^t^e^d^f^o^{r accessi}^oⁿ^t^a^l^k^s,ⁱ^f^t^h^{e c}^ountry^w^e^r^e^{to be}^a^d^m^itte^{d to}^N^A^T^O^.

The committee report also noted that the Secretary of State had, in response to a written question
from the committee, made the following commitment:
^W^e^uⁿ^d^er^staⁿ^d^f^u^ll^y^t^h^{e Se}ⁿ^a^te’^s^coⁿ^s^tit^u^tioⁿ^a^l^r^e^sp^oⁿ^sⁱ^b^ilit^y^to^ad^vⁱ^{se a}ⁿ^d^coⁿ^s^en^t^to^th^e
^r^a^tif^icatioⁿ^o^f^an^y^T^r^eat^yⁱⁿ^to^w^h^ic^h^th^{e U}ⁿ^ited^{States e}ⁿ^ter^s^.^A^s^w^e^h^a^v^e^d^oⁿ^eⁱⁿ^th^e^p^a^s^t^,^a^s^w^e^ll
^{as o}ⁿ^thⁱ^s^o^ccasioⁿ^,^w^e^w^ill^k^eep^th^{e Sen}^a^te^f^u^ll^yⁱⁿ^f^o^r^m^ed^o^f^sigⁿⁱ^f^icaⁿ^{t d}^e^v^e^lo^p^m^eⁿ^t^s^wⁱ^t^h
^reg^a^{rd to p}^o^s^sⁱ^{ble f}^u^t^u^{re rou}ⁿ^d^s^of^N^A^T^O^en^larg^e^m^eⁿ^{t a}ⁿ^{d s}^eek^its^advⁱ^{ce on}ⁱ^m^portan^t
^deci^sⁱ^on^s^.^We^w^oul^{d of}^cou^r^s^e^{be requ}ⁱ^r^{ed t}^o^o^b^t^aⁱⁿ^t^h^{e S}^eⁿ^a^t^e^’^s^ad^vⁱ^c^e^an^d^c^oⁿ^s^eⁿ^t^t^o^aⁿ^y^f^u^t^u^r^e³¹
^a^m^en^d^m^eⁿ^ts^{to t}^h^{e W}^a^s^hⁱⁿ^g^t^on^T^r^eaty^t^h^{at en}^lar^g^{e N}^A^T^O^.
During seven days of floor debate, the Senate made a number of modifications in the declarations
and conditions recommended by the committee but it made no changes in the ones noted above. ³²
On April 30, 1998, the Senate approved the resolution of ratification, 80-19. All three Protocols ³³
entered into force on December 4, 1998.

On March 26, 2003, the nineteen members of NATO concluded seven Protocols providing for the
accession to the North Atlantic Treaty of Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia,
and Slovenia. The Protocols reflected the decision of the NATO summit in Prague in the fall of

2002 that these seven states had met the standards articulated for prospective members in NATO’s ³⁴

1999 Membership Action Plan. Article I of each Protocol provided as follows:

^Up^oⁿ^th^e^eⁿ^tr^yⁱⁿ^to^f^o^r^{ce o}^f^t^h^is^P^r^o^t^o^c^o^l^{, th}^{e Secr}^etar^y^Geⁿ^e^r^a^{l o}^f^t^h^{e No}^r^t^h^A^tlaⁿ^tic^T^r^eat^y
^Org^aⁿⁱ^za^tion^s^h^{all, o}ⁿ^beh^a^l^f^of^{all t}^h^{e P}^a^rties^,^co^m^m^uⁿⁱ^cat^{e to th}^{e Gov}^e^rⁿ^m^eⁿ^t^o^f^[n^a^m^{e of}
^{State] an}ⁱⁿ^v^itatioⁿ^{to accede to}^th^{e North}^A^tlaⁿ^{tic T}^r^eat^y^.^{In accordan}^ce^wⁱ^t^h^A^r^{ticle 10 of th}^e
^T^r^eaty^,^[n^a^m^{e of}^{State] s}^h^all^becom^e^{a P}^a^rt^y^oⁿ^t^h^{e date}^w^h^eⁿ^{it depos}^its^itsⁱⁿ^s^t^rum^eⁿ^t^of
^acces^sⁱ^on^wⁱ^th^t^h^{e Gov}^e^rⁿ^m^eⁿ^t^of^t^h^{e United States}^o^f^Am^e^r^ica.
On April 10, 2003, President Bush submitted the seven Protocols to the Senate for its advice and ³⁵
consent. After holding several hearings, the Senate Committee on Foreign Relations on April ³⁶

30, 2003, unanimously recommended that the Senate give its advice and consent to ratification.

The committee’s proposed resolution of ratification included nine declarations and three
conditions. One of the declarations reiterated in virtually identical language the statement that had
been included in the resolution of ratification for Poland, Hungary, and the Czech Republic in

1998 regarding the necessity for Senate advice and consent to the accession of any new members ³⁷

to the North Atlantic Treaty. Similarly, one of the conditions reiterated in virtually identical
language the requirement in the resolution of ratification for Poland, Hungary, and the Czech

³¹^{S. Ex}^e^c^.^Re^pt.¹⁰^5-1⁴^,^s^upr^a^{, a}^t^8.
³²¹⁴^{4 C}^O^N^G^{. R}^E^C^.^S³⁹⁰^{7 (}^d^a^ily^{ed. A}^p^r^{il 3}⁰^,¹⁹⁹⁸⁾^.
³³^T^I^A^S^___⁽¹⁹⁹⁸⁾^.
³⁴^Se^e^C^R^S^R^e^por^{t R}^S²¹⁰⁵^5,^NA^T^O^Eⁿ^l^a^r^g^emen^t^,^by^P^a^{ul G}^a^llis.
³⁵^{S. T}^r^{. D}^o^c^.¹⁰^8-4^,¹⁰⁸^th^Co^ng^{., 1}^st^Se^s^s^.⁽^A^pr^{il 1}⁰^,²⁰⁰³⁾^.
³⁶^{S. Ex}^e^c^R^e^pt.¹⁰^8-^6,¹⁰⁸^th^Co^ng^{, 1}^st^Se^s^s^.⁽^A^pr^{il 3}⁰^,²⁰⁰³⁾^.
³⁷^Se^c^tion^5(A^)(v^{i) of}^the^pro^pose^d^re^soluti^on^of^ra^tif^ic^a^tion,^r^e^pr^inte^{d at}¹^{49 CO}^N^G^{. REC. H}^.^R.⁴¹^(d^a^ily^e^d^{. A}^p^{ril 30}^,
²⁰⁰³⁾^.

Republic that reports be submitted to the appropriate congressional committees on countries
being considered for membership prior to the beginning of accession talks and prior to signing ³⁸
any Protocols of accession.
The Senate debated the proposed resolution of ratification on May 7-8, 2003, and added one
declaration to those recommended by the committee concerning NATO’s decision-making ³⁹
procedures. But it made no other changes. On May 8, 2003, the Senate approved the resolution ⁴⁰
of ratification on the seven Protocols by a vote of 96-0. All seven Protocols entered into force
on February 27, 2004.

At the NATO summit held in Bucharest, Romania on April 2-4, 2008, the twenty-six members of
NATO agreed to issue invitations to Albania and Croatia to join the alliance. On July 9, 2008,
members of the alliance signed accession Protocols to amend the North Atlantic Treaty so as to
permit Albania and Croatia to join NATO. Article I of each Protocol provided as follows:
^Upon^th^{e en}^tr^yⁱⁿ^{to f}^o^{rce of}^thⁱ^s^P^r^otoc^{ol, th}^{e Secretary}^Gen^e^r^a^{l of}^th^{e North}^A^t^l^aⁿ^tⁱ^c^Tr^e^a^t^y
^Or^g^aⁿⁱ^za^tioⁿ^s^h^{all, o}ⁿ^b^e^h^a^l^f^o^f^{all th}^{e P}^a^r^{ties, co}^m^m^uⁿⁱ^{cate t}^o^th^{e Go}^v^e^rⁿ^m^eⁿ^t^o^f^[ⁿ^a^m^e^o^f
^{State] an}ⁱⁿ^v^itatioⁿ^{to accede t}^o^th^{e North}^Atla^{ntic T}^r^eaty^.^Iⁿ^accordan^ce^wⁱ^t^h^A^r^tic^{le 10 of}
^th^{e T}^r^eaty^,^[ⁿ^a^m^{e o}^f^State]^s^h^a^{ll b}^eco^m^e^{a P}^a^r^t^y^oⁿ^th^{e d}^a^{te w}^h^eⁿ^{it d}^e^p^o^s^{its its in}^str^u^m^eⁿ^t
^of^acces^sⁱ^oⁿ^wⁱ^t^h^th^{e Go}^v^e^rnm^e^{nt of}^t^h^{e Un}ⁱ^t^{ed States}^of^Am^erica.
On July 23, 2008, President Bush submitted the Protocols to the Senate for its advice and ⁴¹
consent. The Senate Committee on Foreign Relations held a hearing on the Protocols on
September 10, 2008. On September 23, 2008, the Committee unanimously recommended that the
Senate give its advice and consent to ratification, subject to one declaration and one condition for ⁴²
each Protocol. The conditions would require the President to certify, prior to the deposit of the
Protocols’ instruments of ratification, that the inclusion of Albania and Croatia in NATO shall not
have the effect of increasing the overall share of the United States in the common budget of
NATO, and that the inclusion of the two new members will not detract from the ability of the ⁴³
United States to fulfill its military requirements outside the North Atlantic area. These
conditions are similar to those that were found in the resolution of ratification for Bulgaria,
Estonia, Latvia, Lithuania, and Romania.
The Senate considered the resolutions of ratification for Albania and Croatia on September 25, ⁴⁴

2008, and adopted the committee’s resolutions of ratification without amendment. Both ⁴⁵

Protocols were signed by President Bush on October 24, 2008. Albania and Croatia may join the
NATO alliance following the Protocols’ ratification by the remaining members of NATO.

³⁸^Id^.^§³⁽¹⁾⁽^C⁾^of^the^pr^op^os^e^d^r^e^s^o^luti^on^of^r^a^tif^ic^a^tion.
³⁹¹⁴^{9 C}^O^N^G^{. R}^E^C^.^S⁵⁸⁰^5-^S⁵⁸²⁸⁽^d^a^ily^e^d^{. Ma}^y^{7, 200}³⁾^aⁿ^{d S}⁵⁸⁸¹^-^S⁵⁸⁸^{8 (}^d^a^ily^e^d^{. Ma}^y^{8, 200}³⁾^.
⁴⁰^Id^.^a^t^S⁵⁸⁸^5.
⁴¹^S^.^T^r^eat^y^Do^c.¹¹⁰^-²⁰^,²^nd^sess.^,¹¹⁰^th^Co^ng^.
⁴²^{S. Ex}^e^c^.^R^e^p.¹¹^0-²⁷^,²^nd^sess.^,¹¹⁰^th^C^ong^.
⁴³¹⁵^{4 C}^O^N^G^{. R}^E^C^.^S⁹⁵^54-^S⁹⁵⁵⁷⁽^d^a^ily^e^d^{. Se}^pte^m^be^r^25,²⁰⁰⁸⁾^.
⁴⁴^Id^.⁽^b^y^divⁱ^sⁱ^{on v}^o^te⁾^.
⁴⁵^W^hⁱ^t^e^Ho^u^s^e,^Of^fⁱ^{ce o}^f^t^h^{e P}^r^{ess S}^ecret^ar^y^,^“P^resi^d^eⁿ^t^B^u^sh^P^a^rtⁱ^cⁱ^p^at^{es i}ⁿ^Sⁱ^gniⁿ^g^Cerem^oⁿ^y^wⁱ^t^h^NAT^O
⁽^c^onti^nue^d.^..)

The North Atlantic Treaty requires the unanimous agreement of its members to invite additional
European states to join and mandates that the members evidence their approval “in accordance
with their respective constitutional procedures.” In approving the Treaty in 1949, Congress
elicited a commitment from President Truman that all proposed enlargements of NATO would be
submitted for Senate advice and consent. That procedure has in fact been followed with respect to
every enlargement to date.
^Mich^{ael J}^o^hⁿ^Garcia
^L^e^gⁱ^s^l^at^iv^{e A}^t^torn^e^y
^m^g^arci^a^@^crs^.^l^o^c.g^o^v^,^7-³⁸⁷³

^(...c^on^tin^ue^d)
^Se^c^r^e^t^a^r^y^G^e^ne^r^a^{l D}^e^H^{oop Sc}^he^f^f^e^r^f^o^r^NA^TO^A^c^c^e^s^sⁱ^on^P^r^otoc^o^l^s^f^o^r^A^l^ba^nia^a^{nd C}^r^oa^tia^,”^pr^e^s^s^r^e^le^a^s^e^,^O^c^tobe^r
^{24, 20}⁰⁸^.