	Introduction1

On April 2-4, 2008, NATO held a summit in Bucharest, Romania. A principal issue was consideration of the candidacies for membership of Albania, Croatia, and the Former Yugoslav Republic of Macedonia (FYROM). Greece blocked an invitation to Macedonia because of a dispute over Macedonia's name. Albania and Croatia are small countries, with correspondingly small militaries. The two countries had aspirations to join both the European Union and NATO. Process

The Washington Treaty of 1949, NATO's founding instrument, does not describe detailed qualifications for membership. Each country's MAP is classified, as is its evaluation by the allies. After issuing official invitations to Albania and Croatia at the April Bucharest summit, on July 9, 2008, the allies signed accession protocols for their entry into NATO. The protocols outlined NATO's expectations of the two prospective members. On April 1, 2009, in a ceremony at the Department of State, the Ambassadors of Albania and Croatia deposited the ratified documents with the United States and officially became the 27 th and 28 th members of the Alliance. In a ceremony at the NATO summit in Strasbourg, France on April 4, the two newest members took their seats at the NATO table. The United States Senate has the constitutional authority to give its advice and consent by a two-thirds majority to the amendment of any treaty. In the case of NATO enlargement, it must decide whether to amend the Washington Treaty to commit the United States to defend additional geographic territory. On September 10, 2008, the Senate Foreign Relations Committee held a hearing on the accession of Albania and Croatia to NATO. On September 25, 2008 the Senate, by division vote (Treaty Number 110-20), ratified the accession protocols. Future Candidates for Future Rounds? 439 (sponsored by Senator Lugar), which urged NATO to award a MAP to Georgia and Ukraine as soon as possible. Some observers in Georgia and the west have argued that NATO's failure to offer Georgia a Membership Action Plan at the April 2008 NATO summit emboldened Russia's aggressiveness toward Georgia and may have been an enabling factor in Russia's August 2008 invasion of Georgia. However, Ukraine's future MAP candidacy faces several challenges. In unprecedented language, the alliance pledged that Georgia and Ukraine would eventually become members of NATO without specifying when that might happen. Conclusion

Most allies seem to believe that although Albania's and Croatia's militaries and resources are modest, both countries' membership in the alliance could lead to greater stability in southeastern Europe, especially given the independence of Kosovo and the enduring hostility to NATO of important political factions in Serbia. Specifically, these reports are to include an evaluation of how a country being actively considered for NATO membership will further the principles of NATO and contribute to the security of the North Atlantic area; an evaluation of the country's eligibility for membership, including military readiness; an explanation of how an invitation to the country would affect the national security interests of the United States; a U.S. government analysis of common-funded military requirements and costs associated with integrating the country into NATO and an analysis of the shares of those costs to be borne by NATO members; and a preliminary analysis of the budgetary implications for the United States of integrating that country into NATO. President Bush signed it into law ( P.L. 110 - 17 ) April 9, 2007. The NATO Freedom Consolidation Act of 2007 reaffirmed the United States' "commitment to further enlargement of the North Atlantic Treaty Organization to include European democracies that are able and willing to meet the responsibilities of membership..." The act called for the "timely admission" of Albania, Croatia, Georgia, the "Republic of Macedonia (FYROM)," and Ukraine to NATO, recognizes progress made by Albania, Croatia, and Macedonia on their Membership Action Plans (MAPs), and applauds political and military advances made by Georgia and Ukraine while signaling regret that the alliance has not entered into a MAP with either country. Both the Senate and House expressed further support for a strengthening of Allied relations with Georgia and Ukraine, passing companion resolutions expressing strong support "for [NATO] to enter into a Membership Action Plan with Georgia and Ukraine."
At the April 2-4, 2008 NATO summit in Bucharest, Romania, a principal issue was consideration of the candidacies for membership of Albania, Croatia, and Macedonia. The allies agreed to extend invitations to Albania and Croatia. Although the alliance determined that Macedonia met the qualifications for NATO membership, Greece blocked the invitation due to an enduring dispute over Macedonia's name. After formal accession talks, on July 9, 2008, the foreign ministers of Albania and Croatia and the permanent representatives of the 26 NATO allies signed accession protocols amending the North Atlantic Treaty to permit Albania and Croatia's membership in NATO. To take effect, the protocols had to be ratified, first by current NATO members, then by Albania and Croatia. On April 1, 2009, the two countries formally became the 27th and 28th members of the Alliance when the Ambassadors of the two nations deposited the ratified instruments of accession at the State Department. On April 4, 2009, Albania and Croatia were welcomed to the NATO table at a ceremony held at the NATO summit in Strasbourg, France. Both nations are small states with correspondingly small militaries, and their inclusion in NATO cannot be considered militarily strategic. However, it is possible that their membership could play a political role in helping to stabilize southeastern Europe.
Over the past 15 years, Congress has passed legislation indicating its support for NATO enlargement, as long as candidate states meet qualifications for alliance membership. On April 9, 2007, former President Bush signed into law the NATO Freedom Consolidation Act of 2007 (P.L. 110-17), expressing support for further NATO enlargement. On September 10, 2008, the Senate Foreign Relations Committee held a hearing on the accession of Albania and Croatia as a prelude to Senate ratification. For states to be admitted, the Senate must pass a resolution of ratification by a two-thirds majority to amend NATO's founding treaty and commit the United States to defend new geographic space. On September 25, 2008, the Senate by division vote (Treaty Number 110-20) ratified the accession protocols. The potential cost of enlargement had been a factor in the debate over NATO enlargement in the mid-and late-1990s. However, the costs of the current round were expected to be minimal.
Another issue debated at the Bucharest summit was NATO's future enlargement and the question of offering Membership Action Plans (MAP) to Georgia and Ukraine. The MAP is generally viewed by allies and aspiring alliance members as a way station to membership. However, it is not an invitation to join NATO, and it does not formally guarantee future membership. The former Bush Administration supported granting MAPs to Georgia and Ukraine. Both the Senate and House passed resolutions in the 110th Congress urging NATO to enter into MAPs with Georgia and Ukraine (S.Res. 439 and H.Res. 997, respectively). However, despite strong U.S. support, the allies decided after much debate not to offer MAPs to Georgia and Ukraine at Bucharest. Opponents cited internal separatist conflicts in Georgia, public opposition to membership in Ukraine, and Russia's strong objection to the two countries' membership as factors influencing their opposition. The allies pledged that Georgia and Ukraine would eventually become NATO members but did not specify when this might happen. The August 2008 conflict between Georgia and Russia seemed to place the membership prospects of Georgia and Ukraine aside for the immediate future.
This report will be updated as needed. See also CRS Report RL31915, NATO Enlargement: Senate Advice and Consent, by [author name scrubbed].