In December 2003 the European Council adopted the European Security Strategy which is a lead document for the Common Security and Defence Policy of the European Union. This document was completed in December 2008.

This document identifies common threats and advocates a modus operandi (the ‘effective multilateralism’) but it can in no way be compared to the White Books adopted by certainMember States, like the French one. The latter does not only highlight the threats and the challenges France is going to face in the years and decades to come but it is also an operational document as it spells out the capabilities and equipment needed for the country’s own security and foreign policy.

But the French White Book also invites the European Union to prepare its own White Book, which could lead finally to the emergence of a more coherent and decisive foreign policy and a more efficient and cost-effective security and defence policy.

Concerning the method, the French White Book was based on a broad consultation of many actors, included trade unions and churches.

If we do not want a European White Book to become a technocratic or just an intergovernmental exercise, we have to get some inspiration from the method used by the French government which set up a Group of Personalities in charge of drafting the French White Book. This means that the European White Book, which should be drafted under the responsibility of the High Representative, should be based not only on the concerns of the Member States but also reflect the concerns of our citizens.

A European White Book on Security and Defence should start by asserting the common interests of the European Union.

The second step is to identify the threats against our common interests and indicate how we could face them. This would be an affirmation of our will to face the threats together and to reinforce our common security and defence policy.

The final step would be to commit ourselves to buy the equipment necessary to protect our citizens, our interests and values against the threats identified. This means that we would have to fill the loopholes, to pool our assets and to go for some form of specialisation between the Member States. The basic challenge is to spend better by spending together.

Today’s world is characterised by the still predominant position of the US, the comeback of Russia, the rise of China, India and Brazil, and the challenges posed by climate change, poverty, religious fanatism, etc.

A European White Book on Security and Defence has to address the issue of capabilities in relation with the role the EU wants to play in the world. In the short term our ambitions are limited by our capabilities. There is no point to play along the lines of the US if we cannot deliver.

In December last year the Heads of State and of Government have taken the following decision:

In order to rise to current security challenges and respond to new threats, Europe should actually be capable inter alia :

• of deploying 60 000 troops within 60 days for a major operation
• of planning and conducting simultaneously a series of operations and missions, of varying scope:
• two major stabilisation and reconstruction operations, with a suitable civilian component,
• two rapid-response operations of limited duration
• an emergency operation for the evacuation of European nationals;
• a maritime or air surveillance/interdiction mission;
• a civilian-military humanitarian assistance operation
• and around a dozen ESDP civilian missions”

This ambitious Declaration could become a milestone if implemented. But the structures of command and the capabilities have to be adapted to this ambition.

But the EU can deliver more than just military power. The EU comprehensive approach based on a mix of instruments underpins our ESDP. This comprehensive approach becomes visible by the fact that 17 operations under ESDP have been civilian and only 6 military missions

A White Book must address other critical issues:

1. Should the EU have at its disposal a permanent force? For the time being, we have the Battle Groups which until now have never been used.
2. Concerning the troops we deployed in an operation under the EU flag, shouldn’t we develop a common status for our soldiers? They should benefit from similar social conditions and protection when they are involved in an EU operation.
3. After the new attitude shown by the new US administration towards nuclear non proliferation and disarmament, a European White Book on Security should examine its consequences for the security of the European Union and its Member States.

All these examples demonstrate the benefit the EU can draw from a White Book on Security and Defence. On the one hand it would contribute to reinforce its CFSP and ESDP but on the other hand it would trigger a public debate which is badly needed when certain circles put into question the ‘raison d’être’ of the EU.

The EU is there to protect our citizens, our way of life and our cultural identity. Through its collective strength it can do much better than any individual country.

The White Book exercise would make this very clear to our citizens. And there is no time to loose because the world is going forward: the EU as a major economic power cannot allow itself to stay behind.

Karl von Wogau,