Foreword by the Minister The evolution of the strategic balances has strongly accelerated in Asia as well as in the Indo-Pacific. The “threats related to power” and the “risks of weakness” highlighted in the French White Paper on Defence and National Security, issued in April 2013, are fully observable and their transnational consequences combine to intensify the challenges confronting us. Asia and Oceania were not spared by terrorism, which struck in the very heart of France and Europe, in 2015 and 2016. The terrorist jihadist movements also spread their ideology full of hatred in this part of the world and recruit combatants who threaten the security of States of that region. North Korea challenges the international community by conducting nuclear and ballistic missile tests, in violation of United Nations Security Council Resolutions. Responding to tensions in the South China Sea, France, as a first-rank maritime and naval Power, will continue to uphold freedom of navigation, to contribute to the security of maritime areas and to promote a homogeneous implementation of the United Nations Convention on the Law of the Sea. The effects of climate change are particularly obvious in the Indo-Pacific. The rise of sea levels, the more frequent and more violent extreme weather events as well as the disturbance of marine ecosystems already hinder the social and economic development of some States. In a nutshell, the geopolitical entity comprising Asia and the Indo-Pacific, which is a seat of economic dynamism, demographic growth and technological innovation, represents a source of overall prosperity, exposed to vulnerabilities. Securing this area is thus essential, within the framework of a rules-based order based on dialogue and the respect of multilaterally set rules. France, as a permanent member of the Security Council, holds a specific place in this part of the world. As a State of the Indian and of the Pacific Oceans, owing to its territories and its population, France permanently maintains sovereignty and presence forces there in order to defend its interests and to contribute to the stability of the region alongside its partners, primarily Australia, India, Japan and the United States. The long-existing links with the latter are tightening and France will continue to be commited in all aspects of regional security. The historic choice made by Australia in favour of France for building its future 12 submarines marks a decisive progress in the strategic partnership of our two countries. Through the updating of its 2015 Military Programming Law, France reasserted its will to invest in its defence capabilities and to adjust to evolving challenges. These make international cooperation even more indispensable than before. The present document updates the previous issue published in spring 2014 and presents France’s policy on defence and security in Asia-Pacific. This continuity demonstrates our country’s long-term and unremitting commitment to developing useful links and joint actions in favour of our shared security. Jean-Yves Le Drian
France and security in the Asia-Pacific “Like its European partners, France is not directly threatened by potential conflicts between Asian powers, but it is nevertheless very directly concerned, for several reasons: it is a permanent member of the UN Security Council and of UNCMAC (United Nations Command Military Armistice Commission, Korea) and a power with a presence in the Indian Ocean and the Pacific. It is also a US ally that plays a key role in the security of this strategic part of the world. Its companies and its citizens are present in increasing numbers in the region and its prosperity is now inseparable from that of the Asia-Pacific region.” 2013 French White Paper on Defence and National Security
Globalization accelerated after the year 2000 and has led to the creation of a security continuum in the Asia-Pacific where zones of trafficking and areas of crisis overlap. Such zones are exposed to imported extremist ideologies and suffer from the effects of climate change.
unhampered use of all oceans and their above airspaces, in accordance with the United Nations Convention on the Law of the Sea. Such behaviour likewise shows the firm opposition of France to the use of measures of intimidation, of coercion or force.
International terrorism threatens France, Europe and most of our Asia-Pacific partners. South and Southeast Asia henceforth represent areas of radicalization for some movements such as Al Qaeda or Da’esh. Increased coordination between terrorist groups and the transnational dimension of some of these pose a widespread threat. France is engaged on the front line of the international fight against terrorism, alongside countries of the Asia-Pacific, in theatres of operations located in Africa, in the Levant and in the Middle East.
The threat multiplier effect of climate change directly concerns the Asia-Pacific. The most vulnerable countries will see their economic growth prospects highly reduced, whereas the most resilient ones, owing to their size or their power, will gain a geostrategic advantage. The “risks of weakness” (strengthening of extremisms, climate migrations or humanitarian crises due to natural disasters) may merge with the “threats related to power” (blackmail for access to water and agricultural products, takeover of strategic maritime areas).
The ballistic missiles launches and the nuclear tests conducted by North Korea remove any foreseeable prospect for a peaceful reunification of the peninsula and create new risks of proliferation. Stability in Northeast Asia, where power rivalries and military build-up intertwine with vivid historic tensions, remains precarious, notwithstanding the key commitment of the United States. France will continue to bring all its weight to bear for peace, global and regional security at the United Nations Security Council.
France has started to rebalance its strategic centre of gravity towards the Indo-Pacific, where it is a neighbouring power. Rooted in the southern part of the Indian Ocean with the islands of Mayotte and La Réunion, the Scattered Islands and the French Southern and Antarctic Territories, France is also anchored in the Pacific Ocean with its territories in New Caledonia, Wallis and Futuna, French Polynesia, and Clipperton Island. Our armed forces stationed overseas and our permanent military basing in the Indian and the Pacific oceans confer to France a presence which is unique among European countries.
In the South China Sea, the large-scale land reclamation works and the militarization of contested archipelagos has changed the status quo and increased tensions. Unilateral initiatives of this nature challenge the principles of the international order and are likely to threaten the security of navigation and overflight. France regularly exercises its right of maritime and air navigation in the area. The behaviour of its naval and air assets reflects its commitment to the lawful, free and
2
The reinforcement of defence relations between France and Australia is built on increasingly converging interests and shared democratic values. It will translate into strategic, operational and industrial terms.
130,000 French expatriates in the Asia-Pacific
FRANCE IN ASIA-PACIFIC
fewer than 3,000
from 3,000 to 10,000
more than 10,000
ASIA-PACIFIC FDI STOCKS IN FRANCE (2012) $18bn
ia As
l era ov he of t
goo ds (ex cep t
arm am en t)
FRANCE FDI STOCKS IN THE ASIA-PACIFIC (2012) $75bn
A
e m olu lv
si a
of French imports 5% , t 7 f o he overall volume of =1
of go od s
=
13 %
(ex cep ta
of Fre nch export rm a m s e n t)
Clipperton
Wallis & Futuna
e
nc
Mayotte
Marquesas Islands Fr
h Po
Society Islands
Crozet Islands
Kerguelen Islands
a
Amsterdam and Saint-Paul Islands
esi
New Caledonia
Scattered Islands
lyn
Réunion
Austral Islands
French Economic Exclusive Zone (EEZ) 1,500,000 French citizens (total)
A fast-evolving strategic context marked by rearmament “However, the intensity of the arms race in Asia is primarily a reflection of the antagonisms that divide the continent. In that respect, one cannot entirely exclude the hypothesis that the combination of persistent sovereignty conflicts, the sharp increase in military expenditure and the rise of nationalism could pose a risk of instability in Asia; a risk which could be exacerbated if economic growth, which has made the region a driver of the world economy, were to slow dramatically.” 2013 French White Paper on Defence and National Security
Asia’s assertiveness is reflected, inter alia, by an accelerated modernization of its defence and security apparatus. The persistence of inter-state tensions and the increase of global risks and threats explain this momentum. In particular, the legacy of the 20th century wars lingers in the Korean peninsula, between Russia and Japan, or in the Taiwan Strait, and many territorial disputes in South and East Asia create tensions that could lead to open conflicts. With Asia now the European Union’s (EU) largest trading partner, any crisis or conflict in the Asia-Pacific is likely to adversely affect the interests of Europe as well as France, the latter being the world’s 6th largest exporter and 5th global investor. Globalization has increased digital streams and the flow of goods, in volume and in value, along submarine (cables), maritime and land routes, whose control is of strategic importance. The expansion of information networks and the multiplication of free trade agreements have broadened competition areas, whereas the armed forces of European, Asian and Indo-Pacific States henceforth mingle with one another and the United States’ armed forces, within a vast region stretching from Africa to the Far East. Some of these forces contribute, within various frameworks of engagement, to fighting against terrorism, to combating proliferation of weapons of mass destruction (WMD) and their means of delivery, to securing maritime areas and to conducting humanitarian assistance and disaster relief (HADR) operations. Meanwhile, tensions in the China Seas and the increase of naval deployments in the north of the Indian Ocean create an environment of heightened mistrust among the stakeholders concerned, undermining maritime security. France welcomes the unity within the EU and the G7 around a strong message related to the freedom of navigation.
parallel, of anti-access / area denial capabilities, likewise the centrality of cyberspace and satellite equipment, are going to exacerbate interstate rivalries in the Asia-Pacific. To control these risks and tensions, new multilateral cooperation frameworks have been created - such as the Association of Southeast Asian Nations Regional Forum - which have to be developed in order to provide the region with proven mechanisms for prevention and peaceful conflict resolution, as well as tools for acting against common risks and threats. The annual meeting of ASEAN Defence Ministers (ADMM), its extended format* (ADMM+) and the setting up, in December 2015, of the “ASEAN Community”, based on three pillars – economic; socio-cultural; political and security –, all contribute to the creation of a regional security architecture that France supports and to which France wishes to be able to contribute. By getting closer to the ADMM+, France would bring to the IndoPacific its experience as a permanent member of the United Nations Security Council, its operational know-how and a major contribution to the establishment of an area of peace and stability, based on full respect of international law. France will sustain its strong commitment to the security of the region, as highlighted by the strategic and longterm formative choice of a partnership of excellence with Australia in the field of submarines.
Scientific and technological breakthroughs are bringing in new opportunities, but also new risks. There is little doubt that accessibility to deep underwater resources, the expansion of power projection and, in
* Opened up to Australia, China, India, Japan, New-Zealand, Republic of Korea, Russia and the United States (2016).
4
MAJOR DEFENCE ISSUES IN ASIA RUSSIA
Defence budgets in Asia-Pacific - 2015 (billion current U.S. dollars)
700 600 KAZAKHSTAN
MONGOLIA
500 South Kuril Islands/Northern Territories
UZBEKISTAN
CAMBODIA
PHILIPPINES
7.6 INDONESIA
BRUNEI PALAOS
SINGAPORE
NAURU
INDONESIA Diego Garcia
Source: Military Balance IISS 2016
MARSHALL ISLANDS MICRONESIA
SRI LANKA MALAYSIA
33
0 Guam
Spratley Islands
41
U.S. 7th fleet
LAOS VIETNAM THAILAND Paracel Islands
9.7
Taiwan
BURMA
SINGAPORE
INDIA
100
23
Senkaku/ Diaoyu
BANGLADESH
AUSTRALIA
BHUTAN
SOUTH KOREA
PAKISTAN
JAPAN
200
Arunachal Pradesh
NEPAL
47
300
FRANCE
CHINA
Kashmir
Dokdo/ Takeshima
145
NORTH KOREA
48
2
3
INDIA
AFGHANISTAN
1
CHINA
TAJIKISTAN
400 JAPAN
597
NORTH KOREA
UNITED STATES
KYRGYZSTAN TURKMENISTAN
EAST TIMOR
PAPUA NEW GUINEA
KIRIBATI TUVALU
SOLOMON ISLANDS VANUATU
Wallis & Futuna
Tokelau (NZ)
SAMOA Cook Islands (NZ)
FIJI New Caledonia
Niue (NZ)
TONGA
French Polyne sia
Disputes Nuclear weapons States States that are not parties to the NPT with nuclear weapons
AUSTRALIA
Country that unilaterally withdrew from the NPT Borders challenged by a neighbouring State 1 – Kashmir under Pakistani control, claimed by India 2 – Kashmir under Indian control, claimed by Pakistan 3 – Kashmir under Chinese control, claimed by India
NEW ZEALAND
Closed border U.S. military presence
France and its security and defence interests “Asia therefore plays a vital role in globalization. Today it is the main driver of growth worldwide, but also a region where the risks of tension and conflict are among the highest in the world. The security of the Indian Ocean, a maritime access to Asia, is a priority for France and for Europe from this point of view. As a transit region for international trade, the Indian Ocean is at the heart of world strategic challenges, as illustrated by the permanent presence of the US, Asian and European navies. The fact that the European Union’s first large-scale naval operation was the Atalanta operation against piracy clearly illustrates the importance of the Indian Ocean, not only for France but for Europe as a whole.” 2013 French White Paper on Defence and National Security
France is present in all of the world’s oceans, owing to its overseas territories – which are increasingly integrated in their regional environment – and thanks to its blue-water navy, which is one of the first-ranked in the world. France’s primary obligation is to protect its territories and population (500,000 in the Pacific and over one million in the Indian Ocean). It also has a duty to protect its citizens in the countries of the Asia-Pacific whose number has increased by 220% over the last twenty years, to exceed 130,000 in 2014 – almost as large as the French population in sub-Saharan Africa. France has the second largest exclusive economic zone in the world (11 million km2) after the United States, located mainly in the Pacific (62%) and Indian Oceans (24%), and, as such, it is responsible for protecting the fragile maritime environment and its extensive fishing, mineral and energy resources. France performs its protective mission thanks to its defence and security forces stationed in the region, as illustrated by the many HADR missions following frequent natural disasters. An example of this was France’s contribution in December 2012 of locally stationed military assets to emergency relief operations, after Cyclone Evan severely hit Wallis and Futuna, Samoa and Fiji. More recently, France has provided a civilian and military assistance to the population of the Philippines, Vanuatu and Fiji in the aftermath of typhoon Haiyan in November 2013, as well as of cyclones Pam in March 2015 and Winston in February 2016. France’s foreign and security policy goes well beyond the immediate scope of the defence of its sole national interests. As a permanent member of the UN Security Council, it assumes its global responsibility for the international security. France is one of the few nations of the world having the capacities for an independent situational assessment and for autonomously taking action worldwide. Being a space, naval and air power, possessing autonomous intelligence capabilities that are among the best in the world and significant force projection platforms, France is able to contribute in all aspects to
6
international security alongside its allies and partners. Covering the whole spectrum of operations, France is able to anticipate, to plan and to conduct operations of all types, which include combatting proliferation, international terrorism, piracy, organized crime, and illegal trafficking of drugs, weapons and other contraband. France has taken its share of responsibility in these areas via active and responsible actions under UN mandate (e.g. Cambodia, 19931994; United Nations Command Military Armistice Commission since 1953…), with its European partners (e.g. Operation Atalanta combating piracy in the Indian Ocean), with its NATO allies (International Security Assistance Force in Afghanistan, 2001-2014), within the framework of international coalitions (air and naval operations against Da’esh from the Persian Gulf since 2015), with its Australian and New Zealand partners and neighbours (post-cyclonic operations within the framework of FRANZ agreements), and at a national level (e.g. tsunami in the Indian Ocean, December 2004).
FRENCH OPERATIONS
French national / under UN or EU or NATO military operations HA/DR operations
UNIFIL SINCE 1978 SYRIA LEBANON
UNCMAC Since 1953 IRAQ
Noncombatant evacuation operations (April 2015)
AFGHANISTAN
CHAMMAL (Levant) Since 2014
ISAF Since 2001-2014 GAN 12.2015 - 03.2016
YEMEN
UNAMIC UNTAC 1991-1993
NEO 04.2015
CAMBODIA
HAIYAN (11.2013) PHILIPPINES
OPERATION ATALANTA Since 2008
TSUNAMI 2004-2005
ACEH MONITORING MISSION 2005-2006
INDONESIA
Mayotte
INTERFET 1999-2000
FIJI
New Caledonia
Amsterdam and Saint-Paul Islands
Crozet Islands
Kerguelen Islands
Society Islands
Tuamotu
ia
WINSTON (02.2016) Réunion
es
VANUATU
lyn
Scattered Islands
Marquesas Islands
n
Po
PAM (03.2015) Tromelin
Fre
ch
Wallis & Futuna
EAST TIMOR
Austral Islands
France’s international commitments in the Asia-Pacific “The strengthening of the American military presence in the region may contribute to control of tensions in Asia and facilitate rollout of stabilizing instruments aimed at ensuring peaceful management of disputes. But American engagement does not relieve France, as a permanent member of the United Nations Security Council and a signatory of the Treaty of Amity and Cooperation in South-East Asia, of its responsibilities. France supports the role of the European Union in the ASEAN Regional Forum (ARF) and is keen to play a more active role with regional security organizations. It enjoys relations of confidence with all the countries in the region, notably with South Korea and Japan, and supports Japan’s bid to become a member of the UN Security Council. For our country, the stability of Asia and freedom of navigation are diplomatic and economic priorities. Alongside its allies, France would, in the event of an open crisis, make a political and military contribution at the appropriate level.” 2013 French White Paper on Defence and National Security
France is linked to the Asia-Pacific through several treaties and political and security commitments: • the peace treaty with Japan, known as the “San Francisco Treaty”, signed on 8 September 1951; • the Korean Armistice Agreement signed on 27 July 1953. France has remained a member of the coalition of the United Nations Command (UNC) and of the UNC Military Armistice Commission (UNCMAC); • the Collective Security Treaty in Southeast Asia, known as the “Manila Treaty”, signed on 8 September 1954, which remains in force even though its military organization, SEATO, was dissolved in 1977; • the Treaty of Amity and Cooperation in Southeast Asia, known as the “Bali Treaty”, signed on 24 February 1976, which France joined in January 2007. France complies with embargoes and other restrictive measures decided by the UN Security Council and the Council of the European Union on the Asia-Pacific countries of Burma, China, North Korea and Thailand as well as on entities and individuals associated with Da’esh, the Taliban and Al Qaeda. Within the framework of the fight against international terrorism, France has established, since 2014, specific linkages with key partners of Asia and Oceania, in order to contribute to coordinate efforts aimed at first containing, then eradicating, the phenomenon of “Foreign Fighters”.
and their means of delivery (NPT, CWC, BWC, MTCR, NSG, the Australia Group, the Wassenaar Arrangement, and the Proliferation Security Initiative) together with several countries of Asia and Oceania with which it works closely. France is party to the FRANZ Agreement signed on 22 December 1992 with Australia and New Zealand to coordinate civil and military assistance to Pacific island countries affected by natural disasters. It is also part of QUAD (Quadrilateral Defence Coordination Group) involving France, the United States, Australia, and New Zealand), which coordinates the security effort in the Pacific, primarily in the maritime domain, by accompanying island nations to thoughtfully and sustainably manage their natural resources, particularly fisheries. France has highly contributed to reach the first universal agreement on climate, unanimously approved by 195 States and the EU, on 12 December 2015 in Paris, during the United Nations conference on climate change COP21*. In October 2015, the ministers and high defence representatives of 33 States (among which Australia, China, India, Japan, Papua New Guinea, the Philippines, Singapore, as well as the United Nations and the African Union) had shared in Paris their analysis on the defence and security consequences of climate change, during the first international conference at ministerial level dedicated to that issue. In that momentum, France will sustain and deepen its efforts concerning environmental security in the Indo-Pacific.
France is an active member of various non-proliferation instruments and regimes dedicated to combatting the proliferation of WMD
* On 22 April 2016, at the United Nations Headquarters in New York City, 175 parties (147 countries and the European Union) signed the Paris Agreement, which sets a new record figure for an opening day to the signing of an international agreement.
8
INTERNATIONAL COMMITMENTS CANADA
RUSSIA
FRANCE MONGOLIA UNITED STATES
NORTH KOREA CHINA
AFGHANISTAN
JAPAN
SOUTH KOREA
PAKISTAN BANGLADESH BURMA INDIA
Hawaii
LAOS
U.S.A U.S.A
VIETNAM PHILIPPINES
THAILAND CAMBODIA
Guam PALAU
SRI LANKA
MARSHALL ISLANDS
MICRONESIA
Clipperton
BRUNEI MALAYSIA SINGAPORE INDONESIA
PAPUA NEW GUINEA EAST TIMOR
NAURU
SOLOMON ISLANDS
KIRIBATI TUVALU
Wallis & Futuna SAMOA
VANUATU
TONGA
New Caledonia AUSTRALIA Quadrilateral Defence Coordination Group (QUAD) FRANZ Agreements Treaty of Amity and Cooperation in Southeast Asia Members of the PSI Operational Experts Group (OEG) Countries subscribing to the PSI Principles Members of the United Nations Command (UNC) Pacific Community (26 Member States and Territories) XYZ Pacific Islands Forum (16 Member States + Associated Territories) Countries under UN and/or EU embargo
NEW ZEALAND
N.Z
NEW ZEALAND
COOK ISLANDS
Fre nc hP
sia ne oly
FIJI
U.S.A
NIUE
Khaan Quest (25 countries)
KAZAKHSTAN
MONGOLIA
UZBEKISTAN KYRGYZSTAN
TURKMENISTAN
NORTH KOREA
French Forces in United Arab Emirates 700 personnel
JAPAN
Key Resolve (9 countries) Ulchi Freedom Guardian (9 c
TAJIKISTAN CHINA SOUTH KOREA
AFGHANISTAN PAKISTAN
NEPAL
FS
FRE MM L a P rovence 20 15
Guam (U.S.A.)
CAMBODIA VIET NAM
SRI LANKA
MALDIVES
PHILIPPINES
THAILAND
Cobra Gold (24 countries)
BRUNEI DARUSSALAM
PALAU
GEAO Armed M “JeForces aOcean nne d Zone in South Indian ’Arc” 1,90020personnel 16
Réunion
France’s main defence partners Other defence partners
Amsterdam and Saint-Paul Islands
Defence Attachés Non-resident Defence Attachés Castor Military exercises in which France is involved French Humanitarian Assistance and Disaster Relief Mititary Operations
Crozet Islands
Kerguelen Islands
10
FEDERATE STATE OF MICRONESIA
MALAYSIA
SINGAPORE
Komodo (20 countries) INDONESIA
TG
French Territories
French Navy Ships port calls
LAOS
PAPUA NEW GUINEA
ng
MAP LEGEND
Scattered Islands
BURMA
i in Tra en m 5 hip ds 201 Mi
Mayotte
“Jeanne d’Arc” Midshipmen training TG 201 6
French Forces in Djibouti 1,350 personnel
BANGLADESH
rc” ’A ed a nn “Je
INDIA
iaire ém nd 2015 Ve
BHUTAN
Varuna Garuda Shakti (bilateral)
EAST TIMOR
AUSTRALIA
Pitch Black (9 countries) Kakadu (17 countries)
2015-2016 FRENCH FORCES ACTIVITIES IN ASIA-PACIFIC
CANADA
UNITED STATES OF AMERICA
countries)
E A
Hawaii
Rimpac (23 countries) Pacific Partnership (10 countries) MARSHALL ISLANDS
Clipperton
NAURU KIRIBATI
Kurukuru (15 countries) TUVALU
SOLOMON ISLANDS
Wallis & Futuna
Marquesas Islands
SAMOA VANUATU
TONGA
NEW ZEALAND
Southern Katipo (10 countries)
Po
ly
Society Islands
a
Équateur 15 (13 countries) Croix du Sud (15 countries) Castor (4 countries)
ch
si
Armed Forces in New Caledonia 1,800 personnel
Tuàmotu
ne
New Caledonia
Fren
COOK ISLANDS
FIDJI
Austral Islands
Tafakula (4 countries)
Armed Forces in French Polynesia 1,000 personnel
A significant French military presence “In the context of tensions around access to resources, France must have the capacity to affirm its sovereignty and defend its interests in its overseas territories. In other words, it must be able to monitor, control and if necessary take military action to counter a threat that could jeopardize the integrity of its national territory. This threat, which would most likely be of a non-state nature, calls for a visible, deterrent presence of military forces. In the less likely case of a state-led threat, France must be able to rapidly deploy appropriate means of intervention. This requires preserving points of entry (ports and airports) and maintaining certain capabilities.” 2013 French White Paper on Defence and National Security
France’s military presence in the Indo-Pacific is adapted to its defence and security needs. Permanently, 8,000 personnel are located throughout the whole area: 4,500 in the Indian Ocean, 2,800 in the Pacific Ocean and 700 sailors in deployment. These forces ensure the protection and safety of French territories, as well as the surveillance of our exclusive economic zones. They undertake HADR operations, fight against trafficking, contribute to the State’s action at sea and are involved in a number of defence cooperation activities in all aspects. In the north of the Indian Ocean, the forces stationed in the United Arab Emirates (FFEAU) and in Djibouti (FFDJ) field 6 Rafale combat aircraft (UAE), 4 Mirage 2000 (Djibouti), 8 helicopters, 1 tactical transport aircraft and 2 support vessels. Combat vessels based in mainland territory and deployed in operations in the region conduct missions autonomously or within the framework of task forces: mine warfare, amphibious forces centred on a projection and command ship or carrier vessel battle group structured around the aircraft carrier Charles de Gaulle. In the south of the Indian Ocean, the French armed forces (FAZSOI) are divided between La Réunion and Mayotte islands and use 2 surveillance frigates, 1 light landing ship, 2 patrol vessels, 2 tactical transport aircraft and 2 helicopters. In the Pacific Ocean, the French armed forces in New Caledonia (FANC) and in French Polynesia (FAPF) operate 2 surveillance frigates, 4 patrol vessels, 2 multi-mission ships, 5 maritime surveillance aircraft, 4 tactical transport aircraft and 7 helicopters. Furthermore, France maintains a close network of eighteen resident and non-resident defence attachés accredited in 33 countries of Asia and Oceania that, with the help of deputy defence attachés (in China,
12
in India and in Australia since spring 2016), of “armament” attachés, of permanent advisors in charge of military cooperation and of a liaison officer at U.S. PACOM develop the bilateral defence cooperation in all aspects. A French Navy officer is embedded in the Information Fusion Centre (IFC), the Singaporean centre that has been given a regional remit and is dedicated to the surveillance of sea lanes of communication in Asia. He is also a liaison officer at the Regional Humanitarian Assistance and Disaster Relief Coordination Centre (RHCC – collocated with the IFC since its creation in 2014), whose goal is to address the military aspect of assistance operations. On a political and military level, France participates in the South Pacific Defence Ministers’ Meeting (SPDMM) and in the Shangri-La Dialogue, a forum bringing together, every year, major senior defence and security officials involved in security in the Asia-Pacific. Besides, France – through the EU – indirectly participates in the ASEAN Regional Forum. On a military level, the U.S. PACOM Pacific Nations Chiefs of Defense Seminar (CHOD) and the annual Asia-Pacific Intelligence Chiefs Conference (APICC) represent core activities. As a leading maritime power, France is involved in various regional cooperation fora specialised on maritime issues both in the Indian Ocean – Indian Ocean Naval Symposium – and in the Pacific Ocean: Pacific Coast-Guard Forum, Western Pacific Naval Symposium. Moreover, France is a founding member of the Indian Ocean Commission and a dialogue partner of the Indian Ocean Rim Association.
FRENCH MILITARY PRESENCE
Defence dialogues in which France is involved � SPDMM - South Pacific Defence Ministers’ Meeting � JIDD - Jakarta International Defense Dialogue � Putrajaya Forum � Shangri-La Dialogue � SDD - Seoul Defense Dialogue
MONGOLIA
KAZAKHSTAN
UZBEKISTAN KYRGYZSTAN
TURKMENISTAN
NORTH KOREA
TAJIKISTAN
FFEAU French Forces in United Arab Emirates
NEPAL
PAKISTAN
BHUTAN BANGLADESH
1 naval base
700
6
SOUTH KOREA
CHINA
AFGHANISTAN
� APICC - Asia Pacific Intelligence Chiefs � CAEX - Chiefs of Army Exercise � CHODS - Chiefs of Defence Seminar � IONS - Indian Ocean Naval Symposium � IORA - Indian Ocean Rim Association � MPAT - Multinational Planning Augmentation Team � PACC - Pacific Armies Chiefs Conference � PCGF - Pacific Coast Guard Forum � QUAD - Quadrilateral Defence Coordination Group � WPNS - Western Pacific Naval Symposium
JAPAN
1
INDIA
BURMA
VIETNAM
Taiwan
LAOS THAILAND
SRI LANKA 4
1
Guam
CAMBODIA
FFDJ French Forces in Djibouti
1,350
Hawaii
MALAYSIA
BRUNEI
PHILIPPINES
8
SINGAPORE FAPF Armed Forces in French Polynesia
MALDIVES INDONESIA EAST TIMOR
FAZSOI Armed Forces in South Indian Ocean Zone
PAPUA NEW GUINEA
1,000
3
5
4
Wallis & Futuna
Mayotte
1,900
5
2
VANUATU
2
New Caledonia
Reunion
French territories
AUSTRALIA
Defence Attachés Non-resident Defence Attachés
4
4
4
Armament Attachés French Liaison Officer – US PACOM French Liaison Officer – Information Fusion Centre
Amsterdam and Saint-Paul Islands
NEW ZEALAND
Sovereignty Forces Presence Forces Main Navy Ships port calls in 2015-2016
Kerguelen Islands
French Polynesia
TONGA
FANC Armed Forces in New Caledonia 1,800
FIJI
France: a dynamic and reliable defence cooperation partner “As a neighbouring power in the Indian Ocean, France plays a particular role here, reinforced by the development of privileged relations with India. A strategic partnership signed in 1998 enables cooperation in areas that concern the major interests of both countries. France supports a reform of the United Nations Security Council that would create a place for new permanent members, including India [...] “In the Pacific, France fully assumes its responsibilities as a political and maritime power with a presence in the region. It signed a strategic partnership agreement with Australia in 2012, which marks the growing convergence of the two countries’ interests on a great many international and regional matters relative to the Pacific and the Indian Ocean. It also confirms a renewed interest in a French presence on the part of countries in the region, seen as a factor of stability and a source of immediate assistance, particularly in the event of a natural disaster, thanks to France’s pre-positioned resources in the overseas territories in the region.” 2013 French White Paper on Defence and National Security
France has established strong relations with numerous countries in the region (see map opposite) and has concluded “strategic partnerships”*, including a component related to international defence and security issues, with Japan (1995, elevated to ministerial level in 2012), China (1997), India (1998), Indonesia (2011), Australia (2012), Singapore (2012) and Vietnam (2013). With Australia and India, France has developed a major strategic partnership, based on common values and interests, organized around strategic dialogues, a particularly close military cooperation and an exceptional armament cooperation. Paris and Canberra, already jointly engaged in the Middle East, in the Indian and in the Pacific Oceans, gave in April 2016 an unprecedented impetus to their strategic relationship, which will consolidate security in the whole region. This momentum is likely to strengthen the privileged relation shared with New Delhi and embodied by major yearly exercises conducted between navies (Varuna), air forces (Garuda) and armies (Shakti). With Japan, France has reached a “partnership of exception”, which provides prospects for closer cooperation on the international stage since the evolution of the interpretation of the Japanese Constitution by Tokyo. Vis-à-vis these countries, France holds the advantage of having a strong alliance with the United States while maintaining its strategic autonomy. With Singapore, France intends to sustain over time its partnership of trust via the continued reinforcement of bilateral cooperation in defence research and technology, and Singaporean Air Force training held in France. More recently, Malaysia has become a partner close to France through close political dialogue (High Joint Strategic Defence Committee held at ministerial level) and exemplary defence cooperation demonstrated by France’s assistance in setting up Malaysia’s submarine force. In the South Pacific, France has established a specific relationship with New Zealand, based on a convergence of strategic assessments and interests. The relationship maintained with its Australian and New Zealand neighbours
has led to the organization in New Caledonia, in 2015, of the first trilateral interdepartmental seminar dedicated to regional maritime surveillance. Renowned for their expertise in managing natural disasters, the French armed forces stationed in the Pacific Ocean: • Organize biennial Croix du Sud (Southern Cross) military exercises, open to the Pacific and Southeast Asian partners. It aims particularly at enhancing interoperability as well as capacities in humanitarian aid and evacuation of State nationals; • Host regularly the Tempest Express workshops, within the framework of the Multinational Planning Augmentation Team programme set up by the chiefs of defence of 31 Asia-Pacific States and organized by U.S. PACOM. In addition to port calls made by our surveillance frigates stationed in Nouméa and Papeete and the regular deployment of a carrier or amphibious battle group from mainland France or the Gulf (Jeanne d’Arc Group, specific missions), our cooperation is also demonstrated through contributions to the major regional exercises and programs related to the security of maritime spaces, humanitarian aid, provision of support to the victims of natural disasters, and evacuation of State nationals organized by our allies or partners. The structural component of defence cooperation focuses on the sharing of expertise, advice, and training skills with partner countries in order to help them structure their own defence apparatus. Designed and implemented by the Ministry of Foreign Affairs, in consultation with the Ministry of Defence, this long-term cooperation adheres to prevention or crisis recovery process. Training and counselling primarily involves training foreign officers in French military institutions (around one hundred officers from Asian countries each year), conducting expert missions for the local armed forces and supporting peacekeeping training centres.
* Although each strategic partnership is specific and has different names between countries, it remains in all cases a strong political commitment.
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DEFENCE COOPERATION RUSSIA
CANADA
FRANCE KAZAKHSTAN MONGOLIA
UNITED STATES
UZBEKISTAN KYRGYZSTAN
NORTH KOREA
TURKMENISTAN TAJIKISTAN
SOUTH KOREA
CHINA
AFGHANISTAN
PAKISTAN INDIA
NEPAL
JAPAN
BHUTAN
BANGLADESH
Taiwan
BURMA
Hawaii
LAOS VIETNAM THAILAND
PHILIPPINES SRI LANKA
France’s main defence partners Other defence partners Structural defence cooperation activities Military exercises organised by France: CROIX DU SUD CASTOR
MICRONESIA
BRUNEI PALAU
SINGAPORE
NAURU INDONESIA EAST TIMOR
PAPUA NEW GUINEA SOLOMON ISLANDS
KIRIBATI TUVALU
Wallis & Futuna VANUATU
Tokelau (NZ)
SAMOA Cook Islands (NZ) French Po lyn es i Niue (NZ)
FIJI
a
Main exercises in which France is involved: KHAAN QUEST ULCHI FREEDOM GUARDIAN RIMPAC SOUTHERN KATIPO KURUKURU TAFAKULA PITCH BLACK KAKADU PACIFIC PARTNERSHIP KEY RESOLVE COBRA GOLD Bilateral joint exercises (Varuna, Garuda, Shakti)
MALAYSIA
MARSHALL ISLANDS
Guam
CAMBODIA
New Caledonia
AUSTRALIA
NEW ZEALAND
TONGA
An innovative, reliable and responsible armaments cooperation partner “Through defence cooperation, France contributes to the security of several countries in the region, notably Indonesia, Malaysia, Singapore and Vietnam. It bolsters its political engagement through an active presence, development of strategic partnerships and intensification of its cooperation networks. With Singapore, our leading commercial partner in South-East Asia and number three in Asia (after China and Japan), it conducts regular political dialogue and very close cooperation in defence and security.” 2013 French White Paper on Defence and National Security
The sixth largest economy in the world, France has comprehensive and independent military resources, as illustrated by its autonomous design and manufacturing of nuclear deterrence capabilities, satellites, fighter aircrafts, submarines, ships, tanks, combat vehicles, missiles of all kinds, and all equipment contributing to C4ISR. This capacity is unique in Europe and is based on strong and innovative industrial resources, a significant defence budget and domestic spending on civil and military research and development that ranks France in the latter domain sixth in the world and second in Europe. France is the fourth largest armaments exporter and contributes to building Asian nations’ self-defence capacities, which now account for a growing proportion of French defence equipment sales (28% during 2008-2012, versus 12% during 1998-2002). France’s main partners for cooperation in this area are Australia, India, Malaysia and Singapore (France’s second largest partner in defence research and technology); however, France also maintains relations with most Asia-Pacific countries. France’s general armaments cooperation policy is characterized by its experience and openness to industrial cooperation and transfer of technology and expertise as well as the provision of long-term training and logistics support and assistance. As such, France attends various armaments exhibitions, notably in Australia, Singapore, Malaysia, Indonesia and Japan: Avalon (Australia International Aerospace & Defence Exposition), Pacific (International maritime Exposition), Singapore Air Show, Lima (Langkawi International Maritime & Aerospace Exhibition), Indo Defence Expo & Forum, MAST Asia (Maritime/Air Systems & Technologies), etc.
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France’s defence equipment export and industrial and technical cooperation policy is a tool for the benefit of strategic partnerships and global relations that France is keen to develop. Due to the special nature of this kind of equipment, the sale of French armaments to a third country is never a purely technical or commercial decision. It is governed by political and strategic considerations and is a symbol of trust between partners. France’s export policy is also based on the principles of transparency, the protection of human rights, international stability, and ethics.
Main partners of France in the Asia-Pacific as regards to armaments (2006-2015)
Geographical distribution of French orders (2008-2012) 617.1 M€
6,000
970.1 M€
ASIA
in €M
5,000 4,000
4,428.2 M€ Africa 4.4%
3,000 2,000
3,558.1 M€ Asia 26.9% Asia
Americas 10.8%
1,000 0
Europe 16.0% 12.7%
Other 3.2%
India
Malaysia
South Korea
Singapore
Indonesia
Australia
30.1% Oceania 0.7%
Americas 26.3%
OCEANIA
242.4 M€
Near and Near and Middle East Middle East 21.4% 38.1%
NEAR AND MIDDLE EAST
Source: DGA/DI
11,817.9 M€
Exporting countries distribution 2010-2014 Assessed market shares (orders’ yearly average) Regional breakdown of deliveries in 2014
48.2%
Europe 17%
28.2%
Africa 4.4%
11.9%
Europe United States Russia of America
Asia 28%
Americas 10.8%
11.7% Other countries
Other 5%
Near and Middle East 26%
Yearly average 100 G€ Sources: France and arms trade control 2016
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Editorial Board Directorate General for International Relations and Strategy: Philippe Errera (Director General), Patricia Lewin (Head of Outreach Programs), Commander Jérôme Chardon (Head of Asia-Pacific Desk), Mariam Pontoni (Asia-Pacific Desk), Lucie Lelyon (Head of Communication and Strategic Watch Section)
DICoD Commander Jérôme Baroë (Head of the Publications Office), Jean-Charles Mougeot (Artistic Director), Isabelle Arnold (Copy Editor), Jean-François Munier (Head of Production) Graphic Design: Christine Pirot Cover: Jean-Charles Mougeot www.defense.gouv.fr
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