Towards a European Defence Union: What Would a White Paper Contribute?

By Javier Solana, Ángel Saz-Carranza, María García Casas and José F. Estébanez Gómez

The European Union currently faces a number of unprecedented security challenges. Conflicts at every border of the Union, failed states and the growing presence of transnational terrorism are just a few examples. Recent events in various European capitals show that it is not possible to distinguish between internal and external security, and that international borders do not deter threats. Despite this, Europe’s response to these events has mainly taken place at the national level. Moreover, the European Union’s budget for defence and security is significantly smaller than its budget for other policies, and the collaboration of the Member States is very limited, resulting in inefficiencies and duplications.

In order to address these common threats, it is necessary, first of all, to have a strategy that addresses all current challenges and describes the capacities that are necessary to achieve security. Although each Member State has a national strategy document, no such document exists at the European level. In light of these needs and the urgency of responding to them in a harmonious manner, the European Council asked the High Representative of the Union for Foreign Affairs and Security Policy to draft a Global Strategy.

This study proposes a process to draft a white paper, at the European level, that would implement the objectives established in the recently published Global Strategy in the area of defence using the instruments and mechanisms envisaged in the Treaty of Lisbon. This document would establish who is responsible for assessing needs and how this process should proceed, as well as the capabilities that are necessary in order to address those needs; it would also prioritise the proposed actions for achieving the strategic objectives.

We propose that the Member States be fully engaged in the drafting process – which would be initiated by the European Council and led by the High Representative – through a high-level group comprising the defence ministers of each state. The EU Military Committee would also participate by contributing a military perspective.

The European Defence Agency would play a fundamental role with regard to capacities. On the basis of previous experience with capacity-development plans, this agency could, in collaboration with the Deputy Secretary-General of the European External Action Service and the EU Military Staff, identify shortcomings and design appropriate programmes and measures to correct them. Throughout the process, it would be crucial to remain in continuous contact with the European Parliament, which is responsible for budget issues and coordination, and with NATO, in order to coordinate strategies.

The measures developed in the white paper would include the design of shared standards and training materials, the funding of research and development programmes for dual-use technologies, the establishment of a common defence market and the development of a permanent structured cooperation mechanism.

In short, a white paper would allow the Member States to engage in greater coordination and integration and help to reduce the limitations of a policy that has traditionally been restricted to the jurisdiction of the respective states.