NATO and the anticipatory use of force

Only since the end of the Cold War, and particularly since September 2001, have questions of anticipatory action arisen in alliance deliberations concerning the use of force. In initiating their Balkan operations, it should be recalled, the allies did not face direct threats, but intervened toterminate conflicts and human rights abuses and to shape their security environment. It has been difficult for the alliance to get to grips with the new security challenges presented by terrorism and the proliferation of weapons of mass destruction because of its history, its intrinsic character, and the nature of the new security challenges. Its history includes a strictly reactive posture during the Cold War and its interventions from a position of overwhelming superiority in the Balkan conflicts. The new security challenges place under stress the alliance's intrinsic character as a permanent coalition of sovereign independent states committed to collective defence because these challenges may endanger specific allies to differing degrees (in contrast with the overarching Soviet threat during the Cold War) and revealdiff erences in interests, capabilities and strategic cultures among the allies. The allies have not yet resolved questions concerning the legality and legitimacy of the antici patory use of force, nor have they fully explored the implications of concepts such as 'constructive abstention' and 'NATO in support' with regard to preemptive or preventive operations undertaken by a group of allies.