The French White Paper on defence and national security
5 STRATEGIC FUNCTIONS
Five basic strategic functions will, in combination, allow us to achieve our overall
national security :
- knowledge and anticipation
- prevention
- deterrence
- protection
- intervention
The connection and relative weighting of these functions is subject to changing circumstances and will therefore need to be regularly reviewed. The White Paper will thus be subject to reappraisal every four years.
1. Knowledge and anticipation
If the pivot of the 1972 White Paper was deterrence, that of the 1994 White Paper was force projection (called “intervention” in the new White Paper, for greater clarity). In the 2008 Defence and National Security White Paper, “knowledge and anticipation” – or what can be called “knowledge-based security” – is not only recognized as a stand-alone strategic function ; it is also at the heart of the new dispensation. This is the logical consequence of the uncertainties and instabilities of the global strategic situation in the foreseeable future. Citizens are entitled to expect the state to have a strong understanding of international changes and challenges, guiding defence and national security preparations. The capabilities of knowledgebased security underpin all the other strategic functions. Knowledge and anticipation cover five major areas : intelligence ; the knowledge of areas of operation ; diplomatic action ; analysis of future trends (horizon-scanning) ; information management.
A number of measures will be undertaken as a consequence. In organisational terms : the establishment of a National Intelligence Council, chaired by the President ; the designation of a National Intelligence Coordinator reporting to the President ; the drafting of a bill concerning intelligence-related activities ; the protection of defence and security-related secrecy and of intelligence personnel ; the optimization of the diplomatic network in order to improve the sharing of information between all agencies ; the coordination of horizon-scanning activities within the state on an interagency basis. In terms of human resources, career paths in intelligence will be improved, and an intelligence academy will be established ; additional specialists (notably engineers, computer specialists, imagery analysts, language specialists) will be recruited ; the acquisition of area expertise will be promoted. In technical terms, a major boost will be given to space-based applications, with a doubling of the corresponding budget. The technical capabilities of intelligence agencies will be enhanced, keeping pace with information and communication technologies ; airborne imagery and eavesdropping capabilities will be developed, with a special emphasis on UAVs.
2. Prevention
The aim of prevention is to avoid the emergence or the aggravation of threats to our national security. An effective preventive strategy will rely on a broad range of tools : diplomatic, economic, military, legal, cultural, combined and coordinated at the national and international levels. In the age of globalisation, such a collective and integrated approach is a sine qua non.
French policy in this area will involve :
- the development of an interagency monitoring and early-warning system, vis-àvis both serious local tensions and potential unintentional disasters;
- the improved allocation of effort in our areas of strategic concern ; the updating of our approach to defence agreements with foreign partners, with Parliament being involved in the information loop ; a comprehensive approach to defence and security cooperation ; increased cooperation in favour of the prospective African peacekeeping capabilities, under the aegis of the African Union;
- the reconfiguration of our staging points, with two bases in Africa, one on each of Africa’s Atlantic and Indian Ocean seaboards. In the Gulf, our presence will be enhanced, notably in Abu Dhabi;
- the fight against criminal trafficking outside of national and European territory, using both civilian and military means ; new technical instruments will be used to track such flows within, and at the outer borders, of the European Union;
- arms control and the fight against proliferation, by strengthening the relevant civilian and military capabilities, including detection and neutralization tools ; these capabilities will be part of our forces “operational contracts”;
- the prevention of unintentional crisis, inter alia through the promotion of a European Emergency Sanitary Security Agency and the implementation of the Treaty’s solidarity clause in case of a natural disaster;
- the preventive deployment of civilian and military assets;
3. Nuclear deterrence
Our nuclear deterrent will continue to be fully independent, with the relevant capabilities at the disposal of the President. The nuclear forces will have two clearly separate and complementary components, including the support environment enabling their independent and secure operations. France will continue to sustain these capabilities over time.
As a consequence :
- the nuclear ballistic submarine fleet will be equipped from 2010 onwards with the M51 intercontinental ballistic missile, deployed on our new-generation SSBNs;
- the airborne component will be equipped from 2009 onwards with the ASMP A cruise missile, deployed on Mirage 2000 NK3 and Rafale aircraft, stationed in France and carrier-based. The number of nuclear-capable land-based aircraft will be reduced from 60 to 40;
- the simulation programme, based notably on the corresponding facilities in the field of lasers (LMJ), X-ray analysis and supercalculators will ensure the reliability of our nuclear warheads;
- the preservation of our national missile and submarine competencies, and the improvement on a 2025 horizon, of the range and accuracy of our missiles;
- the overall modernisation of the support environment for our nuclear capabilities, notably in terms of communications.
Our nuclear policy will remain one of strict sufficiency. France has proposed a nuclear disarmament action plan.
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NUCLEAR DISARMAMENT : FRANCE’S ACTION PLAN NATIONAL SECURITY STRATEGY GOALS
- The universal ratification of the Comprehensive Test Ban Treaty (CTBT). China and the US signed the Treaty in 1996, but have not yet ratified it. - The commitment of all nuclear powers to dismantle the nuclear test sites in a transparent manner, open to the international community. France has dismantled its facility at Mururoa ; the test sites of other nuclear powers have not been shut down. - The immediate opening of the negotiations for a Fissile Materials Cut-off Treaty (FMCT). - An immediate moratorium on the production of fissile materials. France has ceased the production of such materials. - The adoption of transparency measures by the five nuclear powers recognized by the NPT. - The opening of negotiations for a treaty banning all short and intermediary ground-to-ground missiles. - The adherence of all States to the The Hague Code of Conduct (HCOC) against the proliferation of ballistic missiles, along with the commitment to implement it. |
4. Protection
In view of the evolving threat situation, the protection of our population and territory calls for a major overhaul. This implies the following priorities as part of an allhazards approach :
- the in-depth surveillance and control of our country and of its approaches as a permanent mission. This will naturally involve sea, land and air capabilities but also space-surveillance assets;
- the integration of overall resilience as a key objective;
- the reduction of our current weaknesses or capabilities-gaps against unconventional threats. This will involve a significant effort in terms of detection, analysis and response to CBRN threats;
- the development of the rapid reaction capability of the state vis-à-vis a major threat, involving new approaches in terms of coordination and management of civilian and military capabilities. A top level political crisis management centre will be set up ;
- in-depth cyber-defence, including the intrinsic protection of systems, the permanent monitoring of critical networks and rapid response in case of attacks. A cyber-defence agency will be set up;
- the development and deployment by 2020 of a ballistic missile detection and early-warning capability involving both surface-based over-the-horizon radar and space based assets. Proof-of-concept and interim systems will be deployed towards the middle of the next decade;
- the modernisation of the public information and warning system;
- the systematic preparation of public communication as an integral part of crisis planning and management;
- the modernisation of the operational crisis planning and management system at the national (Ministry of Interior) and regional levels, with strong interfaces with our European neighbours.
- The systematic exercising at all levels of the various respondents involved in major crises.
- The setting of an “operational contract” of some 10 000 soldiers as the military contribution in support of the civil authorities crisis management efforts in case of a major disaster.
5. Intervention
Intervention abroad is recognised as the key determinant for our armed forces structure. Furthermore, civilian assets play a growing role in foreign operations which also need to be factored in. France will commit its forces within an overarching strategic vision, encompassing both civilian and military considerations.
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GUIDELINES GOVERNING THE COMMITMENT OF ARMED FORCES ABROAD
- The substantial and serious character of the threat to our national security or to international peace and security; - The consideration, prior to the use of armed force, of other possible measures, without prejudice to emergency situations involving legitimate defence or the responsibility to protect (R2P); - Compliance with the international rule of Law; - The sovereign political assessment by France, freedom of action, and the capability to evaluate the situation on a permanent basis; - Democratic legitimacy, entailing the transparency of the goals pursued and the support of the nation’s body-politic, expressed in particular by its parliamentary representatives; - France’s capability to sustain an adequate level of commitment, the national control of our forces, and a political strategy seeking the lasting resolution of the crisis; - Definition of the commitment’s scope in time and space, with a precise assessment of costs. |
In the foreseeable future, operations will fall under one of the following types:
• civilian operations, such as humanitarian relief or civil reconstruction. On French territory, apart from the unlikely prospect of declared war, all operations will be civilian in nature and executed under civilian authority. French military forces and assets will be involved as necessary, in support of civilian authorities;
• civil-military operations, presumably on foreign soil, in the context of stabilisation or reconstruction. Generally speaking, military forces provide for a safe and secure environment allowing civilian agencies to support local authorities;
• military operations proper, generally conducive to a new political situation on the ground enabling civilian objectives to be pursued. Such is the case, for example, of peace-enforcement operations.
What is new is that the generic concept of “operations” is applied to all components of the French contribution, be it as part of a military alliance or coalition, as well as within a civilian operation, such as those led by the European Union. This overarching concept allows for an extension of “force generation”, in military terms, to providing for the national contribution to a civilian operation, specifically civilian personel and assets which are more difficult to muster.
Our aim is to be able to prosecute the following military operations :
• “special” operations on a national basis or in a narrow multilateral framework, in order, for instance, to free hostages or to pursue terrorists;
• “middle” scale operations, undertaken in a national framework, such as the evacuation of our nationals in a non-permissive environment, or targeted, selective, retaliatory operations in response of a direct action against our interests, without omitting the admittedly unlikely possibility of operations for the defence of our metropolitan or overseas territory;
• “significant” operations, in a bilateral or a multinational framework, for peacekeeping or peace-restoring purposes;
• “major” operations, necessarily undertaken in alliance or coalition, at a substantial distance from our national territory.
In terms of military capabilities, France will be in a position to simultaneously field :
• A major operation of some 30,000 soldiers deployable within 6 months for a period of one year;
• A 5,000-strong reserve on permanent operational alert.
• Up to 10,000 soldiers available on our territory in case of a national emergency, in support of civilian agencies.
Air capabilities will allow for the deployment of 70 combat aircraft (5 squadrons) capable of sustained high intensity operations, with attendant air and logistics support.
Naval capabilities will include the naval air group including its full complement of aircraft and its escort frigates and nuclear attack submarines. France will field 18 firstline frigates along with 4 Force Projection and Command vessels (BPC), versus 2 today. The latter will substantially increase our ability to conduct amphibious operations and to command joint operations, whether national or multinational.
In terms of civilian capabilities, France will develop a “civilian force generation” concept leading to a more responsive contribution to civilian and civil-military operations.
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