Broader Definition of ‘Armed Attack’
The language used in the NATO treaty is very specific, saying “an armed attack” on any member will be considered an attack on all members, and that members would then would “assist the Party or Parties so attacked by taking forthwith, individually and in concert with the other Parties, such action as it deems necessary, including the use of armed force, to restore and maintain the security of the North Atlantic area.” Although Article 6 goes on to describe the sort of targets of an armed attack that would require a response, the definition of armed attack itself is treated as self-evident.
In the contemporary world, however, non-violent attacks can be devastating in their own ways. Cyber attacks, for example, are non-violent and therefore not an “armed attack,” yet could paralyze a country’s infrastructure. This could embolden rogue actors who know that this is a tool they can utilize without necessarily triggering an Article 5 response. While NATO holds annual cyber defense exercises and is clearly taking cyber threats seriously on an operational level, the alliance should pay more attention to the political and strategic implications of cyber warfare.
For example, in 2007 Estonia was hit by a ruthless cyber attack from Russia in response to the removal of a Soviet-era war monument. For three weeks, state and commercial websites ranging from defense ministries to banks and media outlets were targeted, rendering them inaccessible to the public. Estonia was even forced to close its digital borders and block all international web traffic.
At the time, this did not provoke an Article 5 response. However, the alliance has since recognized in today’s world this could be enough for an invocation. And yet, when Iran committed a cyber attack against Albania in September 2022, nothing happened despite Prime Minister Edi Rama being very open to seeing the cyber attack as a threat to collective security.
Part of the reason for NATO’s reluctance to treat cyber attacks as Article 5 matters could be that it isn’t clear what an Article 5 response to a cyber attack would look like. Policymakers struggle with the question, “and then what?” Within traditional warfare, a nation’s attack and defense posture are fairly well understood—sending tanks and missiles in support. The same cannot be said in response to cyberspace operations. Would it merit returning cyber-attacks in kind? Or a stronger, kinetic response?
This lack of clarity in the treaty will continue to create ambiguity within NATO unless it is addressed. A lot of energy is focused on improving interoperability with thirty-two allies, but making Article 5 fit for the next seventy-five years is equally important.
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