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Les Faiblesses De L'état LLLES FAIBLESSES DE L’É’É’ÉTAT ACTIONNAIRE DDD’’’ENTREPRISES INDUSTRIELLES DE DEFDEFENSEENSEENSEENSE Rapport public thématique Cour des comptes Les faiblesses de l’État actionnaire d’entreprises industrielles de défense – avril 2013 13 rue Cambon 75100 PARIS CEDEX 01 - tel : 01 42 98 95 00 - www.ccomptes.fr Sommaire DELIBERE .................................................................................................... 9 INTRODUCTION ..................................................................................... 11 CHAPITRE I - LES SPECIFICITES DE L’ÉTAT ACTIONNAIRE D’ENTREPRISES INDUSTRIELLES DE DEFENSE ........................... 15 I - Le contexte .......................................................................................... 15 A - La contrainte budgétaire .................................................................... 15 B - L’impact sur les dépenses d’équipement des forces en Europe ......... 18 C - La taille intermédiaire des groupes français ....................................... 19 D - Les trois préoccupations de l’État-actionnaire ................................... 21 II - Caractéristiques de la fonction de l’État actionnaire d’industries de défense .................................................................................................... 22 A - Les enjeux industriels de défense ....................................................... 23 B - Les dispositifs de protection des industries de défense ..................... 28 C - Les moyens de l’État-actionnaire ........................................................ 31 D - L’organisation de l’État-actionnaire : les rôles respectifs de l’Agence des participations de l’État et de la direction générale de l’armement ... 35 CHAPITRE II - L’ÉTAT UNIQUE ACTIONNAIRE DE REFERENCE : SAFRAN, GIAT INDUSTRIES ET SNPE .............................................. 45 I - Safran : les suites d’une fusion ............................................................ 45 A - La fusion Sagem-SNECMA ................................................................... 45 B - Les pouvoirs actuels de l’État-actionnaire dans Safran ...................... 50 C - Les partenariats industriels envisagés ................................................ 52 II - GIAT Industries : une lourde restructuration ...................................... 53 A - Rappel historique ................................................................................ 53 B - Actionnariat actuel et gouvernance .................................................... 55 Cour des comptes Les faiblesses de l’État actionnaire d’entreprises industrielles de défense – avril 2013 13 rue Cambon 75100 PARIS CEDEX 01 - tel : 01 42 98 95 00 - www.ccomptes.fr 4 COUR DES COMPTES III - SNPE : la vente par sous-ensembles après l’accident d’AZF ............... 57 A - Rappel historique ................................................................................ 57 B - Actionnariat actuel .............................................................................. 58 C - Les résistances au rapprochement Herakles décidé par l’État .......... 58 IV - Les réflexions sur l’avenir de GIAT Industries et de SNPE .................. 60 CHAPITRE III - LA MONTEE PROGRESSIVE DU CONTROLE ACTIONNARIAL EXERCE PAR LE GROUPE PRIVE DASSAULT : DASSAULT-AVIATION, THALES ET DCNS ...................................... 63 I - La perte progressive de tout contrôle actionnarial de l’État sur Dassault- Aviation .................................................................................................... 65 A - 1979 : l’entrée de l’État au capital de Dassault-Aviation .................... 65 B - 1981, une prise de contrôle public temporaire de Dassault-Aviation 66 C - 1996, une tentative avortée de fusion Aérospatiale/Dassault-Aviation .................................................................................................................. 67 D - 1998 : le transfert des participations publiques dans Dassault-Aviation au profit d’Aérospatiale puis du groupe Lagardère ................................. 67 II - 2008 : le partage du contrôle actionnarial de THALES avec Dassault... 69 A - Le départ d’Alcatel du capital de THALES ........................................... 69 B - L’accord passé avec Dassault .............................................................. 71 C - 2010-2012, la montée de Dassault-Aviation en droits de vote et la dilution corrélative de l’État ..................................................................... 72 D - Le fonctionnement du pacte d'actionnaires ....................................... 74 E - Une vision divergente de la gouvernance de THALES entre Dassault- Aviation et l’État ....................................................................................... 75 F - Les désaccords stratégiques ................................................................ 77 III - 2007-2012, la montée de THALES au capital de DCNS ........................ 78 CHAPITRE IV - UNE ENTREPRISE SOUS CONTROLE PUBLIC PLURI-NATIONAL : EADS .................................................................... 81 I - Une construction actionnariale initiale reposant sur des intérêts hétérogènes ............................................................................................. 81 A - Des conditions initiales peu favorables à la défense des intérêts patrimoniaux de l’État .............................................................................. 81 B - Un dispositif de contrôle actionnarial qui s’est rapidement révélé inadapté ................................................................................................... 86 C - Des relations déséquilibrées entre l’État et le groupe Lagardère ....... 89 Cour des comptes Les faiblesses de l’État actionnaire d’entreprises industrielles de défense – avril 2013 13 rue Cambon 75100 PARIS CEDEX 01 - tel : 01 42 98 95 00 - www.ccomptes.fr SOMMAIRE 5 II - L’échec du projet de rapprochement EADS-British Aerospace ............ 94 A - Les contours généraux de l’opération proposée ................................ 94 B - Des difficultés concernant la souveraineté des trois États concernés ................................................................................................. 95 C - Les raisons de l’échec .......................................................................... 96 III - Le rééquilibrage actionnarial : l’accord du 5 décembre 2012 ............. 99 A - Les contraintes .................................................................................... 99 B - Une mise en œuvre en deux étapes ................................................. 101 C - Les accords complémentaires concernant la protection des intérêts français de défense ................................................................................ 103 CONCLUSION GENERALE ...................................................................107 ANNEXES.................................................................................................115 RÉPONSES DES ADMINISTRATIONS ET DES ORGANISMES CONCERNÉS ...........................................................................................143 Cour des comptes Les faiblesses de l’État actionnaire d’entreprises industrielles de défense – avril 2013 13 rue Cambon 75100 PARIS CEDEX 01 - tel : 01 42 98 95 00 - www.ccomptes.fr Cour des comptes Les faiblesses de l’État actionnaire d’entreprises industrielles de défense – avril 2013 13 rue Cambon 75100 PARIS CEDEX 01 - tel : 01 42 98 95 00 - www.ccomptes.fr Les rapports publics de la Cour des comptes - élaboration et publication - La Cour publie, chaque année, un rapport public annuel et des rapports publics thématiques. Le présent rapport est un rapport public thématique. Les rapports publics de la Cour s’appuient sur les contrôles et les enquêtes conduits par la Cour des comptes ou les chambres régionales des comptes et, pour certains, conjointement entre la Cour et les chambres régionales ou entre les chambres. En tant que de besoin, il est fait appel au concours d’experts extérieurs, et des consultations et des auditions sont organisées pour bénéficier d’éclairages larges et variés. Au sein de la Cour, ces travaux et leurs suites, notamment la préparation des projets de texte destinés à un rapport public, sont réalisés par l’une des sept chambres que comprend la Cour ou par une formation associant plusieurs chambres. Trois principes fondamentaux gouvernent l’organisation et l’activité de la Cour des comptes, ainsi que des chambres régionales des comptes, et donc aussi bien l’exécution de leurs contrôles et enquêtes que l’élaboration des rapports publics : l’indépendance, la contradiction et la collégialité. L’indépendance institutionnelle des juridictions financières et statutaire de leurs membres garantit que les contrôles effectués et les conclusions tirées le sont en toute liberté d’appréciation. La contradiction implique que toutes les constatations et appréciations ressortant d’un contrôle ou d’une enquête, de même que toutes les observations et recommandations formulées ensuite, sont systématiquement soumises aux responsables des administrations ou organismes concernés ; elles ne peuvent être rendues définitives qu’après prise en compte des réponses reçues et, s’il y a lieu, après audition des responsables concernés. La publication d’un rapport public est nécessairement précédée par la communication du projet de texte que la Cour se propose de publier aux ministres et aux responsables des organismes concernés, ainsi qu’aux autres personnes morales
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