BASIC Getting to Zero Papers, No. 3
Analysis of the French White Paper
on Defence and National Security
15 July 2008
Stephen Herzog, BASIC
This Paper is also available in pdf
format.
Introduction
On June 17, French President Nicolas Sarkozy unveiled the
French
White Paper on Defence and National Security. The White
Paper is the product of nearly a year of deliberation by a
special commission created by the president to analyze France's
national security strategy. The first such document since
France's 1994 post-Cold War military restructuring, the paper
follows Sarkozy's March
21 address in Cherbourg and remarks
to the Geneva-based Conference on Disarmament on March 27.
The White Paper outlines a new framework for French security
in the twenty-first century. Included in this framework are
discussions of transatlantic security, further French military
integration into the EU and NATO, and a host of policy prescriptions
designed to aid France in adapting to the changing global
security environment. This document will focus on the aspects
of the White Paper which pertain to BASIC's
Getting to Zero project.
Summary
- Reaffirmation of the role of nuclear deterrence in French
security policy
- Modernization of Strategic Oceanic Forces and Strategic
Air Forces
- Continued independence of French strategic nuclear forces
- France's action plan for nuclear disarmament
Continued importance of nuclear deterrence
One of the key findings at the beginning of the document
is that "[n]uclear deterrence remains an essential concept
of national security." To provide support for this statement,
the White Paper points to transnational terrorism, proliferation
of weapons of mass destruction, the development of new weapons
systems, and the potential weaponization of space as threats
to French security. The paper paints a grim picture of the
international system, noting that these threats increase the
risk that the international norm against using nuclear weapons
will be broken. As a result, the commission contends that
the maintenance of long-range ballistic missiles (LRBMs) must
continue to be an integral component of French strategic doctrine.
Despite the commission's endorsement of a strong nuclear
deterrent, the White Paper makes some interesting recommendations
regarding the current state of France's arsenal. The country's
nuclear policy is to "remain one of strict sufficiency." This
complements Sarkozy's May 21 announcement of reductions in
France's operational warheads. The president noted that these
cuts will decrease the size of France's arsenal to less than
300 warheads. Though the exact number of French warheads is
not made public, the Federation of American Scientists observes
that - prior to the cuts - the country's armed forces possessed
around 348 operational warheads. The Strategic Air Forces
(FAS) account for 60 of these, while the Strategic Oceanic
Forces (FOST) comprise the other 288. In 1996, President Jacques
Chirac ordered the destruction of the country's land-based
ballistic missiles.
Modernization of strategic nuclear forces (SNF)
Though the White Paper is very explicit in noting France's
intention to continue observing a policy of strategic sufficiency,
it also announces plans for nuclear modernization. The document
explains that a credible deterrent depends upon the president's
ability to choose between a variety of effective nuclear options,
thus necessitating the modernization of France's SNFs.
The commission's report also highlights the importance of
nuclear attack submarines equipped with cruise missiles, noting
that their furtiveness and ease of mobility makes them effective
in both escort and intelligence-gathering capacities. The
paper sets forth a goal of the production of six of these
submarines. This is a reference to the planned replacement
of the Rubis
class nuclear attack submarines (SNAs) with the
next-generation Barracuda
class SNAs.
Additionally, the White Paper codifies the replacement of
the M45
submarine-launched ballistic missiles (SLBMs) on France's
ballistic missile submarines (SSBNs) with the new M51
missile by 2010. This process began with Sarkozy's March
21 inauguration of Le
Terrible, a new Triomphant class SSBN equipped
with the M51 SLBM.
Though the document announces the reduction of France's "nuclear-capable
land-based aircraft" from 60 to 40, it also provides details
of a program of modernization for the Strategic Air Forces.
Beginning in 2009, land and carrier-based Mirage-2000
NK3 and Rafale
F3 aircraft will be armed with the new ASMP-A
cruise missile.
Other key elements on the nuclear weapons modernization agenda
include the preservation of the simulation program, improvements
to the country's nuclear support environment - particularly
in the communications realm, and a plan to increase the range
and accuracy of all French nuclear missiles by 2025.
Strategic autonomy
The White Paper lays out a framework for French reintegration
into NATO's command structure, which might lead to debate
over France's strategic autonomy. Further, the commission
advocates the strengthening of the European defense industry,
noting that the EU provides a vehicle for beneficial joint
procurement projects and technological resource-sharing. The
paper also expresses the interest of the French government
in pursuing a European detection and early warning system,
including long-range radar and geostationary satellites.
In spite of all the NATO and EU integrationist rhetoric in
the document, the White Paper is very specific in emphasizing
the independent status of France's nuclear deterrent. All
technological developments relating to nuclear weapons will
remain projects at the national level and the president will
continue to maintain command over the decision to use nuclear
weapons.
France's action plan for nuclear disarmament
One of the opening sections of the White Paper states that
France is committed to preventing the proliferation of nuclear,
biological, and chemical weapons and will continue to pursue
nuclear disarmament. The paper introduces France's action
plan for nuclear disarmament which draws upon Sarkozy's March
27 remarks to the Conference on Disarmament. Included in the
plan are the universal ratification of the Comprehensive Test
Ban Treaty (CTBT), safe and transparent dismantlement of nuclear
testing sites, the beginning of negotiations to create a Fissile
Material Cut-off Treaty (FMCT), and the cessation of fissile
materials production. The plan also calls for the implementation
of transparency measures among the five nuclear weapons states
recognized by the Nuclear Non-Proliferation Treaty (NPT),
the opening of international negotiations to ban land-based
short and intermediate-range ballistic missiles (SRBMs and
IRBMs), and the implementation and adherence of all states
to the Hague Code of Conduct (HCOC) against ballistic missile
proliferation.
Conclusions
The French White Paper on Defence and National Security offers
some good first steps to realizing the goal of a world free
of nuclear weapons. France's unilateral arsenal reductions
and action plan for nuclear disarmament set an example for
other nuclear weapons states to follow. However, the White
Paper also calls for significant modernization projects aimed
at improving the destructive capabilities of France's strategic
nuclear forces. These projects, combined with the rhetoric
of the document, emphasize the continued status of nuclear
deterrence as a hallmark of French security policy. If the
French government truly desires to demonstrate its expressed
commitment to global disarmament, it should pursue further
cuts to its arsenal while resisting the urge to develop new
nuclear weapons delivery systems and warheads.
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