2019 I ISSUE #17

EUROPEAN DEFENCE MATTERS

years supporting 15 European defence CONTENTS

LOOKING BACK AT 15 YEARS > Foreword by Federica Mogherini – Head of the Agency 3 > The Birth of an Agency – How it all began 4 > Flashback by Javier Solana – The first Head of the Agency looks back and ahead 6 > Cooperation pioneers, innovators, facilitators – Joint interview with EDA’s former & current Chief Executives 8

MEMBER STATES’ VIEW > Why EDA is the right intergovernmental platform for joint capability prioritisation, planning & development – by Finnish Defence Minister Antti Kaikkonen 14

EDA’S KEY ACHIEVEMENTS OF THE PAST 15 YEARS > Main architect of EU defence capability priorities 17 > Manager of European Defence Research 20 04 © > The European hub for multinational capability development 23 > The military voice and interface for EU policies 26 > Europe’s training pitch for enhanced interoperability 29 > Guardian of coherence among EU defence cooperation tools 32

INDUSTRY TALK > MBDA’s new CEO Eric Béranger shares his views and analyses 35

NATO VIEW > By former NATO Assistant Secretary General for Defence Policy & Planning, Heinrich Brauss 38

PARTNER MESSAGES > Close partners, strong cooperation – Anniversary reflections by some of EDA’s main partners 40 08 OUTLOOK > Quo Vadis, EDA? – An outlook by Dick Zandee 44

Editor-in-Chief CONTACTS Helmut Brüls Elisabeth Schoeffmann Design Head of Media & Communication Simon Smith Associates Helmut Brüls Printing Media & Communication Officer Drukkerij Hendrix NV Kiezel Kleine-Brogel 55, B-3990 Peer Rue des Drapiers 17-23 B-1050 Brussels This document is published by EDA in www.eda.europa.eu the interests of exchange of information Contact: [email protected] Front cover image; ©. Other images; EDA, Catalogue number Shutterstock QU-AC-19-001-EN-N ISSN (2433-5511)

EDA is a member of the European Military Press Association © European Defence Agency (EDA) June 2019. All rights reserved. The entire contents of this 35 38 publication are protected by copyright. No part of this publication may be reproduced, stored in a © MBDA © MSC retrieval system, or transmitted in any form or by any means: electronic, mechanical, photocopying, recording or otherwise, without the prior permission of EDA. The reproduction of advertisements in this publication does not in any way imply endorsement of their content by EDA. The views We hope this magazine will provide valuable food for thought expressed in the articles are those of the authors and do not necessarily reflect the official position or policy of EDA. and information about EDA’s work. Should you have comments or recommendations, please get in touch: [email protected]

2 www.eda.europa.eu SPECIAL EDITION: WELCOME

EDA 15th Anniversary Foreword by Federica Mogherini,

© EEAS Head of the Agency

It has been an honour for me to lead the European with the European External Action Service and the Defence Agency in these five years, and up until EU Military Staff. It is also a central operator for its fifteenth birthday. I remember very well my first EU-funded defence activities. The Agency is today in visit to the EDA headquarters. Together with the EDA a unique position to contribute to coherence among leadership and staff, we realised that we shared the the various initiatives, efficiency and a steady focus same goal: to make European cooperation the norm on our capability priorities. – not the exception – on defence matters too. Five years ago, few people imagined how far we would This is why we have worked to strengthen the come. In these years European defence cooperation Agency so that it can be up for the new task. has expanded like never before. And the Agency has The Long Term Review that we initiated led to a been at the core of our work and of all the progress threefold reinforcement of EDA, which was approved we have achieved together. by Defence Ministers in May 2017: the Agency is now recognised as the main intergovernmental When we worked on our Global Strategy for instrument to identify shared priorities at EU foreign and security policy, presented in 2016, we level on defence capability development; it is the called on Member States to make “full use” of the preferred management support structure at EU Agency’s potential. The Strategy set a new level of level for collaborative technology and capability ambition for European cooperation on defence and development; and it is the military interface and acknowledged EDA’s “key role” in developing better central operator for EU-funded defence-related and more interoperable capabilities together. What activities. It will be essential to ensure that EDA happened in the following months and years was always has the means to fulfil such crucial tasks. unprecedented. A range of new initiatives were launched to boost defence cooperation through joint All the progress achieved has only been possible planning among Member States, joint research and because of a strong political will to move forward. development, joint training and action. We harnessed All relevant actors have played their part towards the untapped potential of the Lisbon Treaty, and set a shared goal – from Member States to the up a Permanent Structured Cooperation on defence and Parliament, in close among Member States (PESCO). We launched a cooperation with the EU Military Committee, the Coordinated Annual Review on Defence (CARD). And EEAS, the EU Military Staff and EDA. The same for the first time, the European Commission created strong determination will be necessary in the years a European Defence Fund (EDF) to incentivise ahead. The choice of “making cooperation the norm” cooperative projects on defence. will have to be confirmed day-by-day with more concrete action. EDA made essential contributions to crafting these initiatives all along the way, and now plays a The Europe of Defence is taking shape. To get there, central role in their implementation. The Agency is the unique expert role of EDA will be even more the secretariat for both CARD and PESCO, together needed in the future than today.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 3 Flashback 2001-2004 The birth of an Agency

Building on previous efforts by the Western (WEU) to boost armaments cooperation, the idea of creating a European agency for defence capability development, research, acquisition and armaments gained decisive traction when, in 2002, it was taken up by the ‘Convention on the Future of Europe’ whose mission was to reflect on the future of Europe and prepare a draft Constitutional Treaty for the EU.

Established by EU leaders and chaired by Agency would incorporate, with a European busy preparing the European Council that former French President Giscard d’Estaing, label, closer forms of cooperation which would take place in Thessaloniki in June the Convention set in motion a process already exist in the armaments field 2003. In its final conclusions, this Summit that led to today’s European Defence between certain Member States (OCCAR, confirmed that a new European Defence Agency (EDA), starting with the decision LoI). The Agency should also be tasked Agency was on the agenda and would soon in September 2002 to set up a dedicated with strengthening the industrial and become a reality. “The European Council Working Group on Defence. Chaired by Michel technological base of the defence sector. [...] tasks the appropriate bodies of the Barnier, the group had to investigate “the It should also incorporate the appropriate Council to undertake the necessary actions possibility of setting up an arms agency elements of the cooperation that most towards creating, in the course of 2004, whose tasks (research, development, Member States undertake within the WEAG.” an intergovernmental agency in the field of acquisitions) and operating methods defence capabilities development, research, would have to be studied in detail”, The working group laid out a few ideas acquisition and armaments”, the final acknowledging that “there [is] in fact regarding the way this future Agency could declaration stated. currently no cooperation on armaments at interact with its stakeholders. “All Member Union level”. The idea of a new Agency proved States which so wished could participate The overall objective of the new body was a consensus builder. In its final report, the in the Agency, the composition of which briefly explained: “This Agency, which will group laid out some of the foundations of would not be linked to other, limited forms what would become the EDA we know today, of defence cooperation”, the final report although the final name wasn’t there yet. explained. “Certain Member States could constitute specific groups based on a “The setting up on an intergovernmental commitment to carry out specific projects”, basis of a European Armaments and which could also “be opened up on an ad hoc Strategic Research Agency was supported basis to countries which are not members of by many in the Group”, the report stated. “The the European Union”. Agency’s initial tasks would be to ensure the fulfillment of operational requirements Thessaloniki EU Summit by promoting a policy of harmonised The Convention finished its work in July procurement by the Member States, and to 2003 with the publication of a Draft Treaty © European Commission support research into defence technology, establishing a Constitution for Europe. Michel Barnier, chairman of the Convention’s including military space systems. The Meanwhile, Member States were also Working Group on Defence

4 www.eda.europa.eu EDA ANNIVERSARY: BEGINNING

© European Council

The decision to create EDA was taken at the Thessaloniki European Council in June 2003

be subject to the Council’s authority and which different people projected different because anything more specific could have open to participation by all Member States, aspirations. By November 2003 it was clear been seen as trying to push the Agency one will aim at developing defence capabilities that the only way out was to establish a way or another. in the field of crisis management, promoting special project team, with a brief to report by and enhancing European armaments end April ”. By the end of April 2004, the team was able to cooperation, strengthening the European submit its blue-print for the new institution, defence industrial and technological base After some delay, High Representative clearing the way for Member State diplomats and creating a competitive European Javier Solana picked Nick Witney to head to finalise the legal documentation. defence equipment market, as well as this Agency Establishment Team. With promoting, in liaison with the Community’s time now very tight, he gathered a small The race to become operational research activities where appropriate, team around him in a tiny office on the On 12 July 2004, Member States formally research aimed at leadership in strategic top floor of the Kortenberg building, home adopted the Council Joint Action 2004/551/ technologies for future defence and security of the EU CSDP structures. The Team’s CFSP on the establishment of the Agency, capabilities, thereby strengthening Europe’s motto was “Form Follows Function”; that is, EDA’s birth certificate. Soon afterwards, industrial potential in this domain”. they set to one side the contentious legal Nick Witney was appointed first Chief and organisational issues until they had Executive. The second half of 2004 was The Agency Establishment Team established a clear understanding of what dedicated to putting everything in place. The next step was to prepare the ground the Agency would do and how it would do it. Hilmar Linnenkamp joined as Deputy for the new agency. Nick Witney, who would Chief Executive, and in October the first become the first EDA Chief Executive in 2004, The team liaised closely with an ad hoc four directors were chosen, and began played a central role in that process. “During representative group of all EU Member assembling their own teams. At the same the second half of 2003, a working group States, which they met with every two time, the embryo staff began to define the was convened in Brussels to make a reality weeks. “It was a useful interaction”, Witney Agency’s first projects and to establish links of this and I was the British representative. explains, “because it allowed us to reassure with a wide range of stakeholders, from As the deputy head of the UK MoD’s strategic them but also to get their fingerprints on military authorities to the defence industry. affairs directorate, I travelled to Brussels what we were doing to make sure they In autumn 2004, EDA’s Steering Board, made regularly in the second half of 2003 to meet couldn’t repudiate it at the end”. While some up of Defence Ministers from each Member with my counterparts”, he recalls. argued the Agency should mainly focus on State, met for the first time. They approved capability development, others pushed for the budget for 2005, the first annual Work Even though Member States agreed that a predominant armament role. “Our job in a Programme, and the official structure of the an Agency would be a good thing, there way was to demonstrate that the Agency Agency. By the end of 2004, the deadline was no clear understanding at the time of was able to do both, and moreover by set at Thessaloniki, the Agency was up and what its exact role should be, or where it doing both it could succeed better in each”, running, albeit in temporary offices in the would be positioned on the institutional Witney explains. Reflecting this debate, the Justus Lipsius building. With its staff growing grid, Witney said. “The only thing we had European Defence Agency name was finally fast, the Agency had to look for a permanent was two sentences from the Thessaloniki adopted because “it was short, accurate, home: in 2005, it moved to its current Rue Council, which served as a blank screen onto unconstraining”, Witney says, and also des Drapiers headquarters.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 5 EDA ANNIVERSARY: JAVIER SOLANA European defence, one achievement at a time

By Javier Solana, first EU High Representative for the Common Foreign and Security Policy (1999-2009) and Head of the European Defence Agency (2004-2009).

“Europe will not be made all at once, or at that time uncontested, stepped into the Although French and Dutch voters rejected according to a single plan. It will be built vacuum created by the EU’s inaction. the Constitutional Treaty in 2005, the prior through concrete achievements which first establishment of EDA showed the way create a de facto solidarity.” Wake-up call forward. The fiasco of the Constitutional Much like World War II, the Balkan wars Treaty was not to be interpreted as a These words, arguably the most famous were a wake-up call for Europe: it was blanket rejection and, therefore, many of the Schuman Declaration, inspired plain to see that the poison of conflict was ideas put forward by the Convention ended the foundation of the European Coal and still corroding the continent. Thus, before up finding a new home in the Treaty of Steel Community in 1952. Yet the road to the turn of the century, European defence Lisbon of 2009. indeed turned out cooperation received a renewed boost. to be both bumpy and winding. Only two The 1993 opened the The Lisbon Treaty enshrined EDA’s role as a years on, for example, the French National door to a common defence policy in the EU, cornerstone of the EU’s flourishing security Assembly rejected a treaty that would have and the 1998 British-French declaration of and defence landscape. The Agency’s established a European Defence Community Saint-Malo decisively endorsed the Union’s intergovernmental nature – EDA is subject (EDC). As it happens, the EDC plan had been capacity for autonomous action on the to the authority of the Council – places it envisioned by French diplomat Jean Monnet, international stage. Ever since, defence in an ideal position to act as a catalyst for one of the architects of the Schuman integration has been a quiet success story joint capability-building initiatives involving Declaration. of the EU. Member States. All EU countries but one are members of EDA, which has also The failure of the EDC – through which six To be sure, concrete achievements in the reached agreements with several non-EU European countries would have created a area of security and defence have come countries (, Serbia, and supranational army – turned the spotlight along at a more modest pace than Monnet Ukraine). EDA allows countries to cooperate towards NATO, which had been founded envisioned – but they have come along on an ad hoc basis, and provides them a few years earlier. In the decades that nonetheless. with invaluable expert input. Additionally, followed, European countries undertook it represents a useful vehicle for Member several joint initiatives in the field of defence, Creation of EDA States to liaise with key EU institutions, such but NATO’s umbrella overshadowed them all. One such achievement was the European as the European Commission. At no point was this more glaringly obvious Security Strategy, adopted in 2003; than during the wars in the Balkans in the another was the birth of the European In yet another breakthrough, the Lisbon 1990s, which exposed the shortfalls of Defence Agency (EDA) in 2004. EDA was a Treaty offered the option of so-called the European project in terms of security brainchild of the Convention on the Future ‘Permanent Structured Cooperation’ among cooperation and military capabilities. The of Europe, which had been tasked with Member States. Unfortunately, this became United States, whose global hegemony was producing a draft Constitution for the EU. a neglected asset in the EU’s toolbox, as

6 www.eda.europa.eu “The 15th anniversary of EDA is a cause for celebration, as well as a perfect occasion to reaffirm the Agency’s mission and insist on the need to streamline military spending in Europe”

© European Council

Europe entered an onerous decade marked EU. Since 2017, EDA has not only taken on thought of as two sides of the same coin. by multiple crises. new responsibilities, but its added value That is true in an institutional sense (EDA has also increased across the board. is part of the PESCO Secretariat) and in a New momentum functional sense (many PESCO projects Nevertheless, the EU once again ended Third, the ‘Permanent Structured Cooperation require EDA’s direct support). Moreover, up finding new momentum in the midst of (PESCO), foreseen in the Lisbon Treaty, finally both initiatives illustrate the EU’s new-found the storm. Instead of allowing itself to be came into fruition. PESCO was established drive in defence integration, which has also dragged down by the opponents of European in December 2017 with the participation led to the launch of the European Defence integration, who convinced British voters to of the vast majority of EU Member States. Fund (EDF) and the Coordinated Annual make the regrettable decision of leaving the While it cannot be expected to immediately Review on Defence (CARD). bloc, the EU kept moving forward. put an end to today’s excessive military fragmentation, PESCO can kick-start a Given the intricacies of this burgeoning First, the European Security Strategy was virtuous cycle leading to more robust and framework, it is clear that EU Member replaced in 2016 by a more ambitious Global cohesive European defence capabilities. States need to keep empowering EDA if Strategy, which set the development of PESCO is to realise its full potential. ‘’ as a fundamental goal It is important to underline that PESCO and of the EU. As the Global Strategy puts it, “a NATO are fully compatible – actually, by The 15th anniversary of EDA is a cause for sustainable, innovative and competitive tapping into synergies on a European scale, celebration, as well as a perfect occasion European defence industry is essential for PESCO will reduce wasteful duplications to reaffirm the Agency’s mission and Europe’s strategic autonomy.” All efforts and indirectly benefit other NATO allies. insist on the need to streamline military in this direction have received the vital As European Commission President spending in Europe. Current levels of support of EDA – a critical lever in the Jean-Claude Juncker said in 2017, EU fragmentation severely hinder the EU’s EU’s quest to underpin its self-sufficiency countries combined spend half as much as competitiveness and self-reliance, and are in an increasingly volatile international the United States on defence, yet attain only simply unsustainable. EU citizens appear environment. 15 per cent of its military efficiency. A case to agree with this assessment, as polls in point is the fact that EU countries use 17 show there is significant public appetite for Second, EDA finalised its Long Term Review different types of tanks, while the United further integration in the area of security (LTR) in 2017, thus answering the Global States uses only one. and defence. Strategy’s call for enhanced defence cooperation among EU Member States. The EDA and PESCO: two sides of the same EDA is well suited to keep leading this LTR refined and reinforced the Agency’s role coin historical process, and to consolidate as the central hub in terms of capability The fortunes of PESCO and EDA are itself as an epitome of the EU of the future: development and strategic planning in the inextricably linked; indeed, they can be flexible, smart, and effective.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 7 Current & former Chief Executives reflect on EDA’s past and future Cooperation pioneers, innovators, facilitators

8 www.eda.europa.eu EDA ANNIVERSARY: CHIEF EXECUTIVES

To tap into EDA’s collective memory, European Defence Matters brought together those who, as Chief Executives, have steered the Agency through fifteen exciting yet challenging years: Nick Witney (2004–2007), Claude- Arnould (2011–2015) and Jorge Domecq (in charge since 2015). Alexander Weis, who served as Chief Executive from 2007-2011, could unfortunately not join this exceptional come-together. Question Time.

Mr Witney, you surely remember 30 July and security work to convert the Rue des 2004 when you were appointed first CE of Drapiers into our new home. the European Defence Agency (EDA). What was your dominant feeling on that day? Which were the first priorities you started N.Witney: I predominantly felt a sense of with? relief that the decision had been formalised N.Witney: First of all, we spent quite some before the summer break because there time on getting people intellectually on the was so much to be done and no time to same page, debating policies and strategies waste. You have to recall that the whole and trying to persuade Member States on establishment process of the Agency took what we felt was necessary: the imperative place under enormous time pressure. The to increase cooperation and modernise Thessaloniki Summit in June 2003 had capabilities, away from heavy metal and high decided that the Agency was to be created explosive to a greater emphasis on the new “in the course of 2004”. The autumn of technologies of “network-centric warfare”; 2003 was lost to a false start; and when reducing spend on excessive manpower, and I was called to Brussels in January 2004, increasing it on research and development; I barely had three months to set up the fostering a stronger defence technological Establishment Team and develop a plan. and industrial base through consolidation on This led on to the creation of the Agency as both demand and supply sides, and a more a legal entity in June (the Irish Presidency open internal defence equipment market. were brilliant on this) – leaving a scant half year to achieve first operational status At the same time, we wanted to have a few by the year-end, to meet the Thessaloniki demonstrative projects to start with. We deadline. looked into armed fighting vehicles and Remotely Piloted Air Systems (RPAS) and Which were the main difficulties in getting also started a lot of research collaborations, the Agency fully up and running? for instance on software-defined radio. N.Witney: There was a lot to be done in Another project we focused on was the terms of recruitment, to start with. This was Code of Conduct on Defence Procurement, more complicated than I expected: naively, which was approved in November 2005 (a I was taken aback at the determination of voluntary approach to increasing cross- a number of capitals to secure particular border purchasing, which worked rather well posts for their own nationals, sometimes for before the Commission decided to legislate), wholly unsuitable individuals. But we ended and a first Joint Investment Programme on up with a top team whom I was more than research dealing with soldier protection. happy with, and they then recruited their From time to time, we would also throw in immediate support. So by year-end we had new ideas. One of them, I remember, was some 25 staff in place, and had been able to investigate a European coastguard. ‘A to sort out work programmes and agendas coastguard? That’s ridiculous!’, was the for the year ahead. We were also engaged overall reaction. Fifteen years on, it doesn’t in the search for offices, and then the IT sound ridiculous anymore!

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 9 EDA ANNIVERSARY: CHIEF EXECUTIVES

“EDA and defence cooperation were new projects and everyone wanted to be part of them” Nick Witney EDA Chief Executive 2004-2007

Was the newly born agency immediately Development Plan (CDP) drawn up in 2008. obviously to provide substance, synergy taken seriously by national MoDs? Did it lay the groundwork for today’s joint between the capability, the procurement N.Witney: Yes and no. I was very fortunate to planning and prioritisation? and the R&T actors, and connection be there at a time when the general mood J.Domecq: Yes, absolutely. But the CDP has between the expert level and the political and political momentum were very positive strongly evolved since then. The first three level, namely Defence Ministers, EDA is the and pro-EU. Europe was so fashionable versions of 2008, 2011 and 2014 cannot be place to go. The EUMC was important to and popular. EDA and defence cooperation compared to the 2018 plan which, for the first involve the Chiefs of Defence (CHODS) and were new projects and everyone wanted time, has now been recognised by Member take into account, thanks to the work of the to be part of them! It was also the time of States as the baseline reference for all EUMS, the lessons of EU operations. enlargement, and all the new members were European efforts in that domain. For a long so enthusiastic. All this played in our favour. It time, MoDs had viewed the CDP as a nice tool Nevertheless, in some corners, Pooling & was only over time that I realised the extent to have but they only remembered it once Sharing and, thus, our work in EDA, were of resistance and inertia in the machinery: every few years when it had to be reviewed. perceived as threatening defence budgets. it was hugely difficult to get the Ministries In between, they didn’t take it into account Therefore, we had to be very careful not of Defence actually to change the way they when drafting their national plans. That has to give our stakeholders the impression spend their money. changed. Today’s baseline CDP is a result of that the objective was “to do more with EDA’s work throughout the years. less”. We constantly had to reassure You mean resistance from the military? them that EDA was there to support them N.Witney: Yes, definitely. If there was one group Madame Arnould, under your tenure, EDA to do things better together, not to cut of stakeholders who were not supportive gained traction with the ‘Pooling & Sharing’ their spending. We not only needed more to EDA at the outset, it was the military. concept which guided its work for years. defence cooperation but also more defence This came to me as a big surprise. I think C.-F.Arnould: ‘Pooling & Sharing’ was a spending. We all agreed that to pool and the reality was that, as professional men, concept which provided much political share, you need proper capabilities to pool they were much more comfortable working impetus for EDA’s subsequent work. The and share. with the Americans in NATO, and viewed objective was broadly and simply to be European defence with some skepticism; more efficient by acting together. Then In December 2013, the European Council crisis-management operations were seldom came the question: should the Pooling held a first debate on defence and identified greeted with enthusiasm. But perhaps I was & Sharing initiative be hosted by the EU priority actions for stronger cooperation. unrealistic in my expectations of how rapidly Military Committee (EUMC) or by EDA? I How big a political impetus was this for a complex culture could change. had very pragmatic discussions with the EDA’s work? Chairman of the Military Committee at the C.-F.Arnould: It was essential. We had During the mandate of Alexander Weis, one time, General Håkan Syrén, and we agreed always tried to persuade the Heads of of the highlights was the first Capability that we should support each other. And, State and Government to address defence

10 www.eda.europa.eu cooperation. Not in vague strategic by Member States of the tasks they to ensure that EU policies take into account terms but linked to the main topics that previously had given to the Agency. And what our Armed Forces need. dominated their agenda: economic growth, while we mostly managed to deliver on those job creation, innovation, etc. Herman Van tasks, Member States very often got cold feet The strategic discussion we had during the Rompuy, as President of the European and backtracked... But as time went on, they LTR with Ministers’ sherpas was essential Council, agreed that this approach was the increasingly understood that there is only to define and strengthen the Agency’s best way to ensure the leaders’ interest for one place where they can get all the different missions and to prepare it for the roles it defence and their commitment. We worked military viewpoints – from armament to is now playing in CARD, PESCO and the EDF. with the President’s very pragmatic and capability & planning directors, from research Now that the European Commission has efficient cabinet, with the Commission, to defence policy directors – reflected in one jumped into the defence realm, we needed with the Secretariat of the Council and, single platform. And that is EDA. to have a clear vision from Member States together, provided input for the debate on where they want EDA to be placed on the on those issues which went well, even if Your mandate so far is marked by the new defence map. some important ideas such as a financial setting-up of new EU tools (CARD, PESCO, mechanism largely disappeared. At the EDF) all of which EDA is involved in. Is this a Is EDA now well enough equipped for the same time, a strong incentive was provided true water-shed moment for the Agency? future, or do you see the need for further by the decision taken by the Belgian J.Domecq: Well, I would argue that EDA adjustments? authorities to provide VAT exoneration for has gone from one water-shed moment to J.Domecq: We continue to evolve. Member programmes conducted in EDA. another since its creation. The Agency’s life States have to understand that if they don’t is as challenging as are the efforts to have reflect at home the collaborative efforts done Did it have an immediate impact on EDA’s a more efficient European defence. Both go at EU level – for instance if they ignore the work? hand in hand. I think that the future of the European capability development priorities C.-F.Arnould: Yes, of course. We chose four Agency will be very much tied to the success when setting up their national defence plans projects which were fully supported by of PESCO. It’s two sides of a same coin, and – then EDA will become a mere bureaucratic Member States: air-to-air refueling, remotely it’s not by chance that the Treaty put us householder. This would mean that Member piloted aircraft systems, governmental together. States don’t take seriously the support work satellite communications and cyber. These we do for them. That is the first big challenge were topics on which everybody wanted to Going forward, it is important that Member I see for the Agency. see action and results. Industry was also States have a clear view on what EDA should involved, which was crucial. concentrate on. That’s why the Agency’s 2017 The second challenge is to make sure EDA Long Term Review (LTR) was so important. has the right resources, especially human N.Witney: A key aspect of the December 2013 It reinforced EDA as a real planning and resources. We are all fishing in the same conclusions was that they set deadlines, prioritisation instrument, which it was not pond: we, the Agency, but also the national meaning that project leaders were required before. It also confirmed the Agency as administrations which have huge staffing to come back to the European Council within the natural European hub for collaborative needs, especially since defence budgets 18 months and brief on progress. But the defence capability and technology are rising again. NATO is also having staff tragedy was that it actually didn’t happen development. And EDA’s third key mission is increases. Plus of course the Commission because, somehow, the ball was dropped afterwards...

J.Domecq: We should not forget that in 2014/2015, things changed drastically and new security threats, such as terrorism, arose in and around Europe. All of that made citizens and governments think: shouldn’t we cooperate more and better to protect our citizens? This new context led to the 2016 EU Global Strategy which set the tone for a much more ambitious security and defence agenda.

Mr Domecq, you arrived at the Agency at Alexander Weis that particular moment, in 2015. EDA Chief Executive 2007-2011 J.Domecq: Indeed. And the first thing that struck me was the continuous questioning

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 11 EDA ANNIVERSARY: CHIEF EXECUTIVES

Research). The UK was so nervous about it that they intended to raise the issue at the level of a NATO summit. But we demonstrated that EDA could successfully provide the interface between the military requirements and the EU structures in charge of that programme. I remember that Catherine Ashton came for a visit when a SESAR related meeting was also taking place in the building. She could hardly believe that we had in one of our meeting rooms all NATO nations, including the US and Turkey, as well as all EDA members, including , SESAR Joint Undertaking and NATO International secretariat sitting at the same table.

N.Witney: This would have been totally impossible in my days! It shows how things have changed.

C.-F.Arnould: Another aspect of our relationship with NATO was the strong “EDA is well placed and equipped support we got from the US, especially the to play a key role in the field of Pentagon. They were very supportive of what we were doing at EDA, especially in the joint capability development, for field of air-to-air refuelling. It was important today and tomorrow” for them to show, including to the Congress, that Europeans were beginning to be serious Claude-France Arnould about enhancing their capabilities and EDA Chief Executive 2011-2015 addressing their shortfalls.

J.Domecq: When I arrived, I immediately saw the need for a structured relationship which will have to attract defence experts cooperation but rather to deconflict the with NATO, upstream, in the prioritisation in the future. How can we handle this situation with NATO. When NATO decided domain. Today we work hand in hand on challenge? On the European side, we should to take up one particular topic to improve key tools such as CDP, NDPP and CARD and try to avoid duplication of structures. collective defence, we would focus on in many other domains. So, even before something else. To not obstruct each other, the EU-NATO Joint Declaration (in 2016), The third challenge will be to maintain EDA that was probably the best we could hope we had already gone ahead with closer as a hub where it is interesting for industry for at that time. cooperation. We avoid duplication in both to engage in for the development of new senses. And, importantly, during my period, innovative and disruptive technologies, C.-F.Arnould: During my time, we had to our Member States never blocked NATO such as Artificial Intelligence, which will demonstrate that we work well with NATO. I from participating in a single meeting in change the way warfare is conducted in was happy to find efficient and cooperative EDA. Which, unfortunately, has not been the the future. partners on their side. The work with the case the other way around. Looking ahead, Allied Command Transformation (ACT) was transparency will be essential for a strong What is your personal assessment of excellent, in particular to deconflict activities relationship. the way EDA’s relationship with NATO has under Pooling & Sharing and “Smart evolved over years? Defence” that the NATO Secretary General And the relationship with the European N.Witney: Things have changed considerably. promoted soon afterwards. Commission? How has it evolved over time? When I arrived, there were desperate C.-F.Arnould: Just before my appointment, political problems around the relationship I also would like to mention a topic on relations were difficult, particularly in the between the EU’s CSDP and NATO. Therefore, which cooperation was particularly context of the revision of the Joint Action my first concern was not so much to seek efficient: SESAR (Single European Sky ATM (which was replaced in 2011 by a Council

12 www.eda.europa.eu Decision). I remember a letter from the Commission that challenged some key EDA missions, especially related to competition, markets and the implementation of the two defence directives. But we found the proper formulation rather quickly, thanks to Michel Barnier and his cabinet.

Afterwards, the cooperation was excellent and easy on many issues. I already mentioned SESAR JU. I should add DG MOVE, DG Connect, and agencies such as EASA: on certification, for instance, which I regard as very important, our work was fully complementary. The main challenge was with DG Industry and Market: either you have theological quarrels on who should do what – community versus intergovernmental approach – or you concentrate on what is to be done and where it is best achieved. We did not always agree on everything but we knew that we really needed each other to be “I think the future of the Agency successful. And I was lucky enough to have is very much tied to PESCO great interlocutors both in the cabinets and the DGs. and whether we can make concrete progress towards J.Domecq: Today, EDA has working relations with 16 Directorates-General (DG) in the strategic autonomy” Commission. We also have reinforced our Jorge Domecq cooperation with its executive agencies, EDA Chief Executive since 2015 such as Frontex, the cyber agencies and many others. Something which would have been unthinkable some years ago. We’ve seen a complete change in Commission attitude towards defence: while not so prioritisation and defence planning, for part of the EU family, building on experts’ long ago, there was a lot of reluctance and instance, is not something to be done by input but receiving guidance at the political even dogmatism on their side not to touch the Commission. And I don’t know any level of Defence Ministers, these are anything related to defence, it now wants Member State who wants the Commission tremendous assets for what is to be done. to get involved notably with the European to take care of that. So, if the EDF intends to But Member States have to use EDA’s full Defence Fund. There is also talk of a DG be more than a strong defence cooperation potential now if they want it to be even Defence in the next Commission. incentive, we might end up with a Fund more useful and efficient in the future. If we which is not capability but industry driven. fail to use today’s momentum for defence How to you assess these developments? And I’m not sure this is what Member States cooperation, it will be very difficult for us to J.Domecq: I have nothing against a DG want. return to it again later. Defence to manage the big budget of the European Defence Fund. But we should How do you see the future of the Agency? J.Domecq: As said before, I think the future not throw away the results of the test runs C.-F.Arnould: EDA is well placed and of the Agency is very much tied to PESCO we did over the past three years. I mean equipped to play a key role in the field of and whether we can make concrete the Pilot Project as well as the Preparatory joint capability development, for today progress towards strategic autonomy. If we Action on Defence Research (PADR) which and tomorrow. The design is outstanding. manage to do this, then I see EDA playing a is managed by EDA and is going very well; The combination of complementary very important role, especially for making you only have to read the reports of the tasks, complementary shareholders, the different EU defence initiatives work in independent experts. Also, we should the network of stakeholders, having an a coherent manner. If we don’t get this right avoid mixing things up, and instead keep a intergovernmental approach but supported now, it will be a missed opportunity that clear line on who is doing what. Capability by a lean and competent structure and might not come back anytime soon.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 13 MEMBER STATES’ VIEW: ANTTI KAIKKONEN Why EDA is the right intergov ernmental platform for joint capability prioritisation, plann ing & development

By Antti Kaikkonen, Minister of Defence of .

We are soon approaching Finland’s Presidency of the Council of the European Union. We will have busy and interesting months ahead of us. We are looking at ways to promote the EU defence agenda, while defence will also be among our main national priorities. Our citizens in the EU expect a strong focus on security. This means especially strengthening the EU as a global actor and deepening security and defence cooperation as well as enhancing the EU’s and Member States’ defence capabilities.

Finland has been supporting EU defence cooperation for a long time. A lot has been achieved over the years, including the creation of the European Defence Agency (EDA) 15 years ago.

EDA was established to support Member States in their efforts to improve European crisis management capabilities and to sustain the European Security and Defence Policy as it stands now and develops in the

“For a relatively small country such as Finland, cooperation with other Member States is crucial” © Laura Kotila Prime Minister’s Office, Finland Minister’s Prime Kotila © Laura

14 www.eda.europa.eu Why EDA is the right intergov ernmental platform for joint capability prioritisation, plann ing & development

future. The Agency’s agenda has grown rapidly ever since. The Agency is now the main intergovernmental platform for European level capability planning. For us in Finland, EDA is also the main European forum for defence materiel cooperation.

What is important for us is that EDA combines different working areas: the development of defence capabilities and defence materiel cooperation, the strengthening of defence technology and industry foundations, and the promotion of research and technology © Finnish cooperation in the defence sector. This is a In 2016, Finland hosted EDA’s ‘Cold Blade’ helicopter exercise quite unique combination. We in Finland are also happy with EDA’s role done a lot of work with NATO, making sure Many new EU defence initiatives have been as a coordinator of military views in wider there is no unnecessary duplication. launched recently. We see EDA’s biggest EU policies, as the combined voice of many value in concrete capability projects and is more effective than the voice of every EDA has conducted the CARD pilot in activities such as cyber defence and military single one. a professional manner and in good mobility. cooperation with Member States. The The European Commission has taken bilateral negotiations were constructive, For a relatively small country such as Finland, new initiatives in defence matters. While and the process has been a useful learning cooperation with other Member States is welcoming and strongly supporting the experience for us. crucial. actions taken by the Commission, we also very much value the intergovernmental The CDP continues to be the backbone of our Looking at EDA’s work in the Research and nature of EDA. In our view, there is a need cooperation and the link to national defence Technology (R&T) domain, we can say that it for such cooperation format amongst EU planning. We were happy with the priorities has definitely been of added value for us. We Defence Ministers. agreed. Naturally, the CDP priorities are also have saved resources through cooperation a tool to link all the EU initiatives, like PESCO and have also learned valuable lessons As regards EDA’s current activities, I would and the Defence Fund, together. from other Member States. Participation like to highlight three of them in particular. in the European defence research and EDA’s roles in the Permanent Structured From 2017 onwards, senior officials from development serves the defence research Cooperation (PESCO) and the Coordinated Member States have been working on EDA’s needs of Finland. Cooperation between Annual Review on Defence (CARD) as well as Long Term Review. The report based on this Finland and EDA has offered benefits such in the EU Capability Development Plan (CDP). work was approved by the Defence Ministers. as broader and more in-depth views on Finland was very pleased that the Defence research problems and support networking For us, PESCO is a broad framework for Ministers endorsed the reinforcement of with other European cooperation partners. defence cooperation. EU defence is no the Agency as the forum for prioritisation, longer only devoted to crisis management, project support and interface towards wider Another good example is the cooperation which is a good thing. The goal is to deliver EU policies. This is a good basis for the work under the Agency’s helicopter training full-spectrum capabilities that can be used forward. programme where EDA has done excellent in all formats. It is also important to mention work. Our NH-90 pilots are very satisfied that in our view, the EU’s defence initiatives I took over as Finland’s Minister of Defence in and now perform major parts of their basic are by design complementary to those of early June and am looking forward to meeting training at these EDA courses. NATO. EDA, as part of PESCO Secretariat, has my colleagues at EDA Ministerial meetings.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 15 KEY ACHIEVEMENTS

Accelerated motion: EDA’s evolution to a mature defence hub in just 15 years

Like a heavily weighted train pulling out of its station, the European Defence Agency’s initial efforts after its creation in 2004 were small forward motions, slowly gathering momentum and expertise. From small feasibility studies and backdoor policy consultations with its Member States, the Agency has now grown into a central hub for defence planning, aligning R&D goals among its defence ministries, liaising with EU authorities on their behalf and, above all, shaping European capability development. Not to forget the crucial role it plays in ensuring coherence among the several EU defence initiatives (revised CDP, CARD, PESCO, EDF) launched since 2016. As the following pages show, it’s been an exciting ride – and one whose momentum can only increase over the next 15 years.

16 www.eda.europa.eu KEY ACHIEVEMENTS: PRIORITISATION

© European Council

Over the past 15 years, EDA established itself as... The main architect of EU defence capability priorities

Nurturing cooperative capability development lies at the heart of all activities at EDA, which has evolved over its 15 years into the main coordinating body at EU level for that goal.

Success in achieving cooperative Above all stands the Capability European defence landscape and its defence capabilities, however, demands Development Plan (CDP), which was coherence, including defence capabilities. prioritisation among the Member States strategically revised in 2018 and – of their goals, their resources and their accepted by EU leaders. The EU capability Capability Development Plan collective effort. development priorities agreed therein Steered by the Agency, the revised CDP serve as a key reference for Member delivered 11 new EU capability development Fortunately, the EU now has a full set of States’ and EU’s capability development priorities. They span all military domains tools that, largely managed by EDA, cover and future cooperation under all EU and comprise the following: cyber-response the gamut of prioritising activities. These defence initiatives. The forthcoming operations; space-based information and include the agency’s Overarching Strategic Coordinated Annual Review on Defence communication; information superiority; Research Agenda (OSRA) and its set of Key (CARD), which is conducted every two ground combat capabilities; enhanced Strategic Activities. years, will provide an overview on the logistics and medical support; naval

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 17 KEY ACHIEVEMENTS: PRIORITISATION

© EUNAVFOR maneuverability; underwater control; air Facilitating Member States’ cooperative Different inputs from different sources superiority; air mobility; integration of air capability development was the raison d’être The analysis, identification and capabilities; and finally, cross-domain behind the Agency’s birth in 2004. Prior approval of the CDP’s priorities rest on a capabilities. to that, the EU’s attempts to generate the four-strand foundation. As such, the CDP military muscle it needs did not yield much. combines data and inputs from different Notably, the above list does not describe Its so-called of 1999 to sources, perspectives and timelines in a specific kinds of equipment, systems, produce a European rapid reaction force of comprehensive tool. models or weapons. For example, to achieve 60,000 by 2003 fell far short of the mark. The naval maneuverability the CDP calls for European Capability Action Plan, a bottom-up The first one, Strand A, is focused on the EU’s maritime situational awareness, surface attempt to generate the capabilities, fell short current military capability shortfalls. These superiority and power projection – without of expectations. It and other factors were are derived from scenarios based on the mandating the details. behind the Member States’ decision to create EU’s Common Security and Defence Policy EDA as a permanent forum where Europe’s (CSDP), such as stabilisation operations. The Indeed, unlike other capability planning defence ministry personnel could exchange difference between what the Member States processes, the CDP derives its capability ideas and expertise to better coordinate how could contribute toward such scenarios – development priorities by first prioritising capabilities are generated. the so-called force catalogue – and what the tasks that Europe’s militaries would is theoretically needed to carry out the need to carry out now and in the future, Today’s CDP descends from the first one operations’ tasks equals the shortfalls. before identifying the kinds of equipment delivered in mid-2008, and two subsequent and weaponry needed to do that. revisions in 2011 and 2014. Those revisions The shortfalls are prioritised according reflected the changes in Europe’s security to operational risk by the EU Military This inversion of the usual process explains environment. Whereas the 2008 CDP was Committee, which is also responsible for the unique approach that the Member focused mainly on expeditionary priorities, the CDP’s Strand D. Here, the Committee States, the Agency and other EU players use the subsequent ones have seen a gradual provides lessons from operations that to define and update the plan’s priorities. shift to more high-tech, high-end war-fighting have a capability development implication. “It’s verbs – versus nouns – that are unlinked capabilities. This could be a national lesson learnt, one to specific systems, units or platforms,” from CSDP operations or from coalition says Kris Herrebout, EDA’s project officer for “National requirements demand this: operations. “You could see this as a reality the CDP. more command-and-control capabilities, check on Strand A’s CSDP scenarios,” said war-fighting vessels, armed drones, etc. Herrebout. NATO’s defence planning process, for Nonetheless, while the plan’s priorities have example, revolves around specific changed over the years, the way its goals are After that, the CDP process starts to gain capabilities – a type of ship or aircraft or set has not been altered. How we assemble more complexity. Its Strand C has to take tank. It is a taxonomy of things, used for the CDP’s information has changed over into account the medium-term capability quantitative analysis of shortfalls and time, but the structure is still there because planning – out to 10 years – across the EDA apportionment. By contrast, the CDP “works it has proven its worth time and time again,” countries to posit where the opportunities with a taxonomy of tasks,” he said. said Herrebout. for cross-border cooperation may lie.

18 www.eda.europa.eu © SAAB AB © Airbus

This is where an important EDA tool enters which regional groupings for capability observed Herrebout. “But even there, it the picture: its collaborative database. development make the most sense, is only as additional information in the Known as CODABA, the database is fed by where national plans between members form of studies, and not in the capability data from the Member States themselves, converge and so on. National capitals are requirements themselves.” by studies and from open source data now using it in those ways.” gathered by the agency about national More important is the CDP’s imple- defence plans and programmes. Finally, there is the CDP’s fourth segment, mentation. “We don’t want this thing to which offers the long-term view. Strand remain a theoretical exercise. We want to Launched in 2007, the CODABA got off to a B tries to project capability trends into inform Member States’ national defence slow start. The Member States didn’t see the future – until 2035 – but with a twist. planning processes and support them to its value-added at the time and did not “This means looking not only at what develop the capabilities Europe needs, contribute much, leaving the Agency to possibilities the future offers to us but also and to do in a manner which leads to more feed data into it on a catch-as-catch-can to our adversaries and what they could do coherence of the European capability basis. But slowly its utility as a tool for with those capabilities,” said Herrebout. landscape at large,” he stated. identifying the commonality of goals and capability efforts between the Member Once all the strands’ in-put is received, That points directly to the EDA’s States began to emerge. the process to derive priorities form the forthcoming “Strategic Context Cases” CDP starts. This is done in permanent (SCC) which were developed together with A sea change took place in 2014 when dialogue with the Member States and Member States. There will be one SCC for the Agency made a concerted effort other EU stakeholders in a transparent each of the capability plan’s 11 priority to demonstrate CODABA’s utility to its manner. With the help of EDA, the Member areas. The Agency has recently put the constituent defence ministries. It put more States prioritise the tasks, with the finishing touches on all the SCCs and will money into gathering the data, turned to resulting priorities agreed at political level. submit them for approval to its steering outside contractors for support, carried These priorities reflect both the EU’s and board of national Capability Directors out additional studies and seconded more Member States’ perspective. It is then in June 2019, and then implementation people within the agency to make this up to the Member States to achieve the starting in late 2019. happen. From a collection of 427 records in capabilities. 2014, the database mushroomed to 8,500 The purpose of the SCCs is to generate, in 2018 – an increase of 2000 percent. Capability-driven, output-oriented facilitate and guide the implementation How to keep the whole CDP process of collaborative solutions in a European “The more information you have, the better capability-driven and output-oriented are context. Each SCC describes the your picture and thus the more you can two obvious challenges. Regarding the possible avenues of approach for the extract examples of where the Member former, for example, “one might have the implementation to achieve the capabilities States should be working together toward impression that the CDP is for industry. needed for each priority. Just as important, cooperative capability development,” However, industry does not prefigure in the strategic context cases will be living Herrebout said. “The CODABA shows which any of the strands except a bit in Strand documents that are updated every one or countries are working on similar things, B and its long-term forecasting work,” two years.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 19 KEY ACHIEVEMENTS: DEFENCE RESEARCH

Over the past 15 years, EDA established itself as... Manager of European Defence Research

At the beginning of this century the idea of “European” defence research carried out under the EU’s auspices would have been scoffed at in most policy circles as either a joke or inconceivable, or both. How times have changed.

From its first tenuous contacts in 2004 acquisition of assets and capabilities to systems to technical studies for Europe’s with industry, national armaments generate efficiencies for all. next-generation large-body military drone. officials and defence research institutes to involve them in its R&D feasibility Ups and downs A good example is the Agency’s studies, EDA has established itself as As with any entity blazing new ground, the self-financed pair of studies, known as an efficient manager and implementer Agency had its ups and downs over the years STASS I and II, to investigate common of unprecedented collaborative defence in pursuit of those goals. functions and kit that go into soldier research programmes funded by the systems: power sources, software European Commission. Some of its ambitions for getting national and electronics, voice and data research to converge in specific areas for communications, sensors and so on. The “We have demonstrated that centrally- standardised kit were premature and never studies’ results sparked enough interest funded EU defence research is possible,” took off. By contrast, others are now leading among their participating nations for the says Denis Roger, who served as EDA to common standards or approaches to kit European Commission to include it among Director for European Synergies and such as soldier systems and field hospitals, the 2017 call for proposals of its Preparatory Innovation from May 2014 to April 2019. certification methods for military aircraft Action on Defence Research (the “GOSSRA” Roger helped position the Agency for its or manufacturing processes for weaponry project) for expanded development. future overseer role in EU defence research. such as additive manufacturing (see box – “That is a major achievement.” page 22). Indeed, the value of defence research at European level is finally coming into One of the primary reasons behind the One constraint has been EDA’s own its own with the EU’s planned creation, Agency’s creation 15 years ago was to research budget, which has always been starting in 2021, of a fully-fledged European encourage more cross-border defence R&D tiny. But that has also forced the Agency Defence Fund (EDF). It will be split into and capabilities among its Member States. to carefully choose only those topics for two so-called windows. One will focus on The goals were, as they remain today, to study or development whose chances defence capability development, with the foster innovation, promote interoperability are highest for follow-on action by the Commission co-funding projects at various and common requirements among national Member States or the EU. These have rates with national capitals. The other militaries across Europe and encourage the ranged from small-scale efforts such as window will support defence R&D projects collaborative planning, development and modular parts for in-theatre bio-detection at 100% from the EU’s next 2021-2027

20 www.eda.europa.eu Mario Guerra © THALES

“” general research budget, EDA manages the Preparatory with about €500 million set aside each year Action on Defence Research for that purpose. (PADR) based on a delegation agreement signed with the Taking into account the lessons learnt Commission in May 2017 from the Preparatory Action on Defence © European Council Research (PADR), it would be useful if EDA gains a central role in managing the EDF’s “When I first arrived at the Agency in 2014 “The fact that EDA was the implementing research projects as they get off the ground the pilot project was still a very fuzzy idea, body for the pilot projects was a feather in in 2021. Interest across Europe’s defence and a controversial one,” said Denis Roger. its cap, but being a small Agency, it had to community in understanding how this will “Very few people thought it would be feasible do fast turn-around work,” observed Dirk work is very strong, as evidenced by the and even the Commission was not fully Tielbuerger, EDA’s Head of Unit in charge of 500-strong crowd that gathered in Bucharest convinced it would fly. We heard all kinds PADR. “Each day in the run-up to the projects’ in late March for a defence R&T conference of arguments against it: legally, EU-funded launch we bumped into new obstacles. Could co-organised by the Agency and the EU’s defence research was not allowed; national we copy-paste the EU’s Horizon 2020 rules Romanian Presidency. capitals would never accept it because that to the defence sector? What was the right was their prerogative; the Commission had level of detail for the technical requirements? From Pilot Project to EU Defence Research no expertise in the sector, and so on.” Whose IPR [intellectual property rights] rules Programme would apply? How to manage each project’s Though the EDF and its objectives are now But at the initiative of the European market uptake?” taken for granted, the notion of using EU Parliament, and working closely with the money to directly finance defence research Agency, the Commission soldiered on. It Fortunately, one of the Agency’s big and capabilities was by no means a given, granted a tiny budget in 2015 of €1.4 million for advantages is its large and well-established even just a few years ago. three pilot projects, each to be implemented network of defence ministry contacts at all by EDA and completed by the end of 2018. levels – technical, R&D, acquisition, testing To get there, it was deemed necessary to – and its contacts with industry. “That was first test the concept in the form of a small To say that was a challenge for the Agency is a major asset in enabling us to bring the EU-funded pilot project. putting it mildly. projects to completion on time,” he said.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 21 KEY ACHIEVEMENTS: DEFENCE RESEARCH

The pilot project’s success led to the Commission’s next defence research decision: to expand the initiative into the formal three-year PADR. Launched in May 2017 with a budget of €90 million, the action is financing a clutch of innovative research efforts, from reconfigurable system-on- a-chip technology and high-power laser effectors to interoperability standards for unmanned military systems and methods for achieving electromagnetic spectrum dominance. PADR will also support research into future disruptive defence technologies.

Again, speed of reaction on the Agency’s part was crucial. “The delegation of PADR by the Commission to EDA was in May 2017. We published its first call the next month © SAAB and signed the first grant agreement in December 2017. That is lightning fast by most OCEAN 2020, one of the EU funded preparatory action projects, will demonstrate technologies defence standards,” said Tielbuerger. for enhanced situational awareness in a naval environment using unmanned systems

Ultimately, however, it was the close, for really strong cooperation between the management, harmonisation of views across near-daily coordination between the EDA and the Commission,” said EDA Chief its Ministries of Defence, how to prioritise Commission and the Agency that enabled the Executive Jorge Domecq. “The Commission the technical goals and its cross-sectoral programme to move ahead so quickly. has the right-of-initiative, can mobilise a lot network of experts. The respective strengths of money and makes things move with an and weakness of the two organisations were “I think the most important lesson learnt effective decision-making process. On EDA’s complementary, and that is the model for the during the Preparatory Action was the need side, it knows all the defence details: project future,” he observed. EDA research projects: from pin-point to system-of-systems capabilities Since its inception, the Agency has managed some 200 Another example of successful R&T initiated at EDA is its research projects worth more than €1 billion. These range integrated research programme in unmanned maritime systems from the narrowest to the widest of objectives. For example, (UMS), approved by defence ministers in 2009. So far 15 individual the singular technology of additive manufacturing, more research and technology projects worth more than €50 million commonly known as 3D printing, offers huge potential for have been launched under its aegis, including standards and cost savings and logistical efficiency to Europe’s militaries by interfaces for more interoperable European unmanned maritime enabling instant, on-the-spot production of spare parts, tools systems, network-enabled cooperation systems of autonomous and even weaponry. vehicles, buried mines and hybrid fuel cells. Ten EDA members (Belgium, Finland, France, , , , , EDA has studied it for several years and now six of its , , ) and Norway are currently involved. members – Finland, France, Germany, Netherlands, Poland and Sweden – as well as Norway are pursuing the idea At the other end of the research scale is the PADR project known with their “Additive Manufacturing Techniques for Energetic as OCEAN 2020. Launched in March 2018 with a budget of EUR Materials” (AMTEM) project, which kicked off in February 2019 35 million, the two-year project is overseeing the integration of with 15 partners and a budget of €3.6 million. A four-year above-water, surface and underwater unmanned vehicles with endeavour, the AMTEM team will investigate how 3D printing manned platforms to boost the maritime situational awareness techniques could yield new types of warheads and propellants of Europe’s navies. Over 40 industry, navy and research players faster and cheaper for both short-series production and from 15 EU countries are involved in the project, which will rapid prototyping. Aside from its benefits for the military, organise two live demonstrations of the capability, the first such technology would also strengthen Europe’s industrial in the Mediterranean in the latter half of 2019, followed by the competitiveness in the additive manufacturing field. second in the Baltic Sea in 2020.

22 www.eda.europa.eu KEY ACHIEVEMENTS: EXPERT HUB

Over the past 15 years, EDA established itself as... The European hub for multinational capability development

One of the first things a visitor sees when arriving at EDA’s ground-floor reception area is a small screen showing news and events pertaining to the Agency’s activities. Pick any workday of the year and chances are that most of the items on display will involve meetings of defence officials from EDA’s 27 Member States. And many of those meetings will comprise technical experts working on one aspect or another of multi-nation capability development, be it research, design, prototyping, programme definition or budgeting.

This beehive of expert activity lies at the Various iterations of the CDP have been The stress now is on output orientation, heart of one of the Agency’s primary roles: around for years, the first being launched based on strong political guidance. “We to function as a hub for identifying, defining, in 2008. However, it is really only in the are now changing the basic way we work and coordinating collaborative capability last few years that its objectives have to generate capability projects,” explains programmes in Europe. The reference point come into the sharpest focus as a result of Jean-Youri Marty, EDA’s Deputy Director of around which this activity is organised is the wider policies, namely the EU’s 2016 Global Capability Armament Technology. EU’s Capability Development Plan (CDP) and Strategy, the European Commission’s June its 11 priorities. 2017 unveiling of the European Defence Fund Moving away from only bottom-up and the Member States’ decision to launch During its early years, for example, the Those priorities range across all domains Permanent Structured Cooperation (PESCO) Agency used mainly a bottom-up approach from sea to space, including cross-cutting in December 2017. to generate cooperative projects. The capabilites, with their management guiding priorities were set at ministerial overseen by EDA. At its most basic, the EDA worked closely with national capitals to level but they were more EDA-centric, and CDP is the EU’s overall tool for developing tailor the CDP in June 2018 with its current it fell largely to the Agency to identify topics strategic autonomy and a major ‘driver’ for set of objectives to support those policy where it thought something could be done R&T investment, armaments cooperation developments. It is also changing how the among capitals for collaborative capability and Europe’s defence industries. CDP priorities are tackled. development.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 23 KEY ACHIEVEMENTS: EXPERT HUB

Once a topic was identified, EDA aimed to experts began creating a network in 2006 A sterling example of ‘hub success’ has harmonise the requirements, clarify which (“MARSUR”) to seamlessly exchange been the Agency’s work on the multirole Member States could logically participate, maritime awareness data between their tanker transport aircraft project (MMF). First and then define a business case for an navies, an endeavour that is now moving explored in 2012, a five-strong group of ad hoc project involving the interested to industrial scale. nations (EDA members Belgium, Germany, countries. This meant defining the main and Netherlands, plus EDA work packages, coming up with a budget, Another example is EDA’s ongoing partner country Norway) signed a contract understanding the type of industries to be GOVSATCOM project. Having reached initial in July 2016 to purchase 8 Airbus A330 involved and so on – details that down-in- operating capability in January 2019 after aircraft. Based on each nation buying the-weeds national experts had to mostly five years of preparation, it demonstrates operational hours at a fixed cost, other EDA cobble together themselves. the benefits of pooling national satellite countries are now considering it as well – a communications capabilities by sharing collective capability that will go far toward Where this worked, the results have been them on an efficient pay-per-use basis filling a long-standing gap in Europe. impressive. Via the Agency, national naval amongst EDA countries. But the bottom-up approach has had its setbacks too. The telling example here was the Agency’s idea, launched in 2007, for multi-nation development of future tactical unmanned air systems for maritime and land applications. Its research group produced a solid set of good recommendations in 2011, but it died on the vine.

“Everyone liked the results a lot, but it never led anywhere because there was no pre-existing requirement for cooperation in the plans and budgets of the Member © KMW States involved. It was not embedded there,” observed Marty. “At the experts’ level there was no way they could start Optimising MBTs on a with a blank page and shape the future of capability development in Europe. Each European scale came to the table with their own national One of the most difficult capability goals facing the EU Member States has been to plan, hoping to find something in common, decide how to upgrade, redesign or rationalise their fleets of main battle tanks (MBTs). A even though they could not deviate much legacy of the Cold War, there are some 5000 MBTs scattered across Europe, where some from that plan. In the end, it was an attempt 16 different models jostle alongside one another. to bend those plans a bit by cross-checking and looking for overlaps but there was only Some EU countries have too many while others none at all. How to deal with this situation in an efficient way has been a longstanding challenge. so much bending they could do.”

A solution is in sight, however. In spring 2017 EDA launched its programme, “Optimisation Eventually, with all those experts mingling of the MBT Capability in Europe.” Focused on the legacy Leopard 2 chassis (both MBTs together within EDA, it emerged that the and derivatives), this pilot project is testing how surplus Leopard platforms with basic only logical way forward was to identify equipment in one country can be transferred to others. new things that all could support. Key to the idea is to pool not only the recipients’ demand for the Leopard but also their requirements for upgrading to one of its latest configurations. By doing the latter, the And that required a novel political approach programme will create pan-European upgrade work across the recipient countries to as well. yield a single type of platform, the same type of derivatives and common training and logistic support. Main lessons learnt Following an earlier request for information on behalf of its interested Member States, “It was the central lesson learnt,” observed more consultations with industry will take place during 2019. Afterwards, each interested Marty. “To get effective capability dev- EDA country will then decide on the level of its engagement in the programme, thus elopment going among the Member States overcoming the sector’s longstanding inertia. you need the bottom-up expertise of course, but it must absolutely be combined

24 www.eda.europa.eu with a strong political drive. The top-down political support has to be there.”

One of EDA’s main tools to emerge from that insight is its forthcoming set of strategic context cases [SCCs]. Broadly, these are future-geared scenarios whose strategic implications are intended to get all EDA’s constituent Ministries of Defence to pinpoint where their capability gaps overlap, and how they could work together in various groups to fill those gaps. It’s the ultimate top-down approach. © Shutterstock

“This is what we are trying to do with the Guiding goals to conclusion you can be regarding the timing of its strategic context cases: use them as a In the end the new top-down approach output,” he said. magnet to draw the Ministries of Defence should augment the Agency’s efficacy as together,” said Marty. “Take counter- a consultative hub, with clearer objectives “So, we might say to the group of national IED [improvised explosive devices], for from the outset for experts to discuss. experts: provide a description and a plan example. The SCCs will require the Member Thus, if specific air combat objectives six months from now of what is feasible States to define exactly what they want: are the goal, then the experts will focus regarding X that we can present to the purchase an existing C-IED system, on those only. Conversely, if an expert’s EDA’s steering board [of national defence develop a new one, or restrict it just to national plan excludes discussion of one ministers]. If such a request came back joint training? These kinds of questions thing or another, then the expert will have empty, then we’d know that either the have to be addressed at national MoD the time to explore back home how national guidance was incorrect or there is an level, and then filtered down to produce a plans could be changed to accommodate issue preventing people around the table multi-nation programme with a budget and the capability goals. from doing the work, and thus we can take officials who have the mandate to work corrective action,” he said. “This whole SCC together.” The timelines of capability development will approach will be about generating projects: also change, according to Marty. “The more eliminating all those areas where nothing is There will also be another change to specific the objective, the more demanding possible, and focusing on those that are.” the way capabilities are approved for development: projects or programmes flowing from the SCCs will be prepared with national experts from the capability branch and the armaments branch of each Cooperative financing for defence ministry. cooperative projects “That has been another key lesson,” said The launch of multi-nation capability projects often stumbles on the mismatched Marty. “When you harmonise an initial budgetary cycles of the participating nations, where some members are ready to go but requirement, you normally work with others not. Working with its defence ministries and the (EIB) the end-users versus the armaments the Agency has come up with a solution. directors. This might be an issue because when a project lands unbeknownst on EDA’s new Cooperative Financial Mechanism (CFM) will help smooth out disjointed national defence research, development and acquisition cycles by offering two sources of “gap an armament director’s desk without filler” financing. These will enable group of nations to launch their projects on time. his views reflected on restrictions on work-share arrangements, intellectual The first source is the EIB, which will financially support dual use projects. Acting as the property rights and other areas, it is unlikely bank’s “Facility Agent”, EDA will technically assess projects on its behalf, while serving as it will be supported. Also, security of supply the administrative liaison point between the bank and the Agency’s Member States. often enters the picture, with the insistence The second source will be “state-to-state” financing where, on an intergovernmental that work be granted to native industry basis, EDA countries will mutually support one another via reimbursable advances and to maintain national competences. By deferred payments to facilitate the smooth launch of their capability projects. Not only involving armaments directors earlier in the will this help reduce paperwork and delays, but it will see a more efficient collective use of game, we can at least escalate problems Europe’s national defence budgets. quickly and try to find a solution.”

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 25 KEY ACHIEVEMENTS: MILITARY VOICE

Over the past 15 years, EDA established itself as... The military voice and interface for EU policies

Pursuing multi-nation research, capability development or interoperability goals is complicated enough for Europe’s militaries, but when these efforts intersect with European policy and authorities, the challenge grows far more complex. Nowhere is this truer than with the EU’s vast array of directives and financial instruments, some of which have direct implications – but also opportunities – for the military.

“Weaving one’s way through the EU’s other Union policies in so far as they have for defence capability development and labyrinth of policies, agendas and players implications for defence capabilities”. research. Those projects helped lay the takes time, skill and a close knowledge of groundwork for the EU’s forthcoming foray how things work in Brussels. These are Strategically, this was reiterated by the into defence capability development, factors that can easily elude a military or EDA’s steering board of defence ministers which begins in 2021 with the launch of its defence ministry accustomed to dealing in May 2017 when issuing their Long-Term European Defence Fund. with its own single national government Review and recommendations for the and procedures,” said Emilio Fajardo, EDA’s Agency’s future. The review strengthened Interaction in all guises Director for Industry, Synergies & Enablers. the EDA’s position in three areas regarding While these are some of the more outwardly capability development, including its role visible signs of the Agency’s interface Organising the voice of Europe’s militaries as the “facilitator towards the European role, what it does behind the scenes – and in Brussels has become crucial, particularly Commission and EU Agencies” and as the down in the weeds – is just as important. with the gathering pace of defence-related ministries’ interface for “exploiting wider EU Organising the Member States’ military initiatives flowing from the EU’s doors. It’s policies” to the benefit of defence. voice on highly technical issues, particularly why EDA utility as their interlocutor has where they intersect with civil authorities, is grown in importance in recent years. That reaffirmation has positioned the vital since those issues can directly impact Agency for new responsibilities vis-à-vis EU security and defence missions. This is no casual or haphazard evolution. initiatives, while opening up opportunities Having liaised with the EU for 15 years, the to help its Member States exploit EU This angles out in many directions such as Agency is uniquely positioned to pinpoint policy and funding to their advantage. For the Agency’s on-going assessment of how when union policy affects national example, EDA has worked for years with the the EU’s wide-ranging REACH (Registration, militaries, where the opportunities are for European Commission to identify how the Evaluation, Authorisation and Restriction of its ministries and how to best organise EU’s massive Structural Funds for regional Chemicals) directive affects the military. It their voice to identify and defend their economic development could be better also coordinates on behalf of its militaries interests. Indeed, EDA’s role as the deployed toward dual-use technologies – with EU and international agencies on collective policy voice for Europe’s i.e. civil capabilities with military spin-off space-related policies, and does the same militaries was confirmed by the 2015 benefits. It also began piloting projects in the maritime domain. Here it closely Council decision on EDA, which called on in 2016 to test the technical and political liaises with EU authorities to strengthen the Agency to “pursue coherence with feasibility of using EU funding directly Europe’s maritime surveillance while

26 www.eda.europa.eu Though very technical and often slow-moving, the MAWA forum’s work has huge but positive cost, operational, regulatory and even industrial implications for Europe in the long run. EDA estimates that a considerable amount of costs will be avoided in the future by aligning national airworthiness procedures with one another and, where possible, with those of EASA.

In a similar vein, EDA has worked closely with its militaries to attain pre-diplomatic clearance for their aircraft when flying across borders within Europe. That, too, means liaising with a wide range of actors, both civil and military. Mutually recognised diplomatic clearance procedures are also leading to savings in time, money and effort for military operations.

EDA as air domain liaison Not only does the air domain cut across all its members’ military forces, but it © Thinkstock necessarily demands close interaction and coordination with civil authorities. Airspace overseeing multi-nation R&D projects to long-term endeavour known as the Military is a confined asset and must be shared in a help deliver the advanced capabilities that Airworthiness Authorities (MAWA) Forum. Its balanced way between its military and civil Europe’s navies need. goal is to herd national military aviation and stakeholders, the latter of whom are leading their various fleets of platforms – whether today’s technological and policy efforts to Energy is another sector where EDA rotary, fixed-wing or unmanned – toward a exploit it more efficiently. functions as a direct link between its common airworthiness approach. militaries and EU policy, most notably by The example par excellence of the Agency’s administering on behalf of the Commission This is harder than it sounds because interface role here is its close coordination its Consultative Forum for Sustainable the Military Aviation Authorities models with stakeholders involved in Single Energy in the Defence and Security Sector. and organisations are different and the European Sky (SES), the Commission’s Given that Europe’s armed forces spend military aviation regulations fragmented. initiative to reform Europe’s air traffic billions of each year on energy, the Consequently, EDA is helping put in place management (ATM) system. There are many savings potential is vast. equivalency and mutual recognition stakeholders, to say the least: Commission, procedures among them. That also means EASA, , SESAR Joint Undertaking “The Consultation Forum has not only working with civil authorities such as the and SESAR Deployment Manager, EUROCAE, developed interesting ideas that should European Aviation Safety Agency (EASA) national ATM authorities, NATO and many lead to concrete action for improving energy and others to identify where existing civil industrial players management and efficiency in the military standards could be applied, partially or and for enhancing the resilience of defence- otherwise, to military aircraft. Launched in 2004, SES’s evolving bundle of related critical energy infrastructure, but it regulatory, operational and technological is also an excellent example of smooth and This is in line with what has been changes will impinge on Europe’s militaries, efficient collaboration between EDA and the done to develop the European Military which will have to adapt their own air traffic European Commission,” says Jorge Domecq, Airworthiness Requirements (EMAR). “We procedures, equipment and platforms to the EDA’s Chief Executive. first take the relevant civil regulation and if function smoothly within the modernisation this is fit for purpose, we simply copy-paste of Europe’s air traffic management system It is the air domain, however, where the to our domain. If not, then we have to find and a more dynamic airspace management. Agency’s interface role has been particularly a bridging solution which is harmonised to Even if SES will bring some opportunities for intense. For example, it has been working the maximum extent possible,” explained military aviation, the militaries’ collective with its national militaries since 2008 on a Fajardo. cost for complying with the upcoming SES

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 27 KEY ACHIEVEMENTS: MILITARY VOICE

Down under and above: U-Space and high-altitude challenges

The EU has a plan to create a low-altitude airspace – below 500 feet – where small drones of all types can fly, known as ‘U-space’. All platforms in it will have to be registered and adhere to certain rules. However, the presence of so many moving objects at low altitude poses risks to the larger manned and unmanned platforms that Europe’s militaries and civil first responders fly through it. “We obviously have security and safety issues with this, and are working with the Commission, Eurocontrol and national authorities to tackle that,” said Vivier. Similarly, the upper end of airspace poses the same challenges. Europe’s aviation sector is moving quickly toward what is known as a cooperative environment where platforms automatically exchange data with each other. By 2020, for example, all aircraft must be equipped with “automatic dependent surveillance broadcast” – a cooperative surveillance system based on international aviation standards. “The challenge for our militaries is to identify non-cooperative objects, and that requires navigation, surveillance and communications systems adapted to our needs,” he said. “In some cases, we are looking for exemptions and derogations for Military assets,” he said. “That would give us the time to come up with a dual-use solution for interoperability between military and civil platforms.” © Eurocontrol related technical solutions lies between 4 of upgrade work. “Not all our Ministries of “We are looking at the whole range of air and 11 billion euros. Defence are aware of the possibilities for integration issues,” he said, adding that getting funds from the EU or how to propose three technical enablers – autonomy, drone EDA’s remit here is to facilitate the projects, which is why we are working with C2 links and detect-and-avoid systems – coordination of the military to defend their them to secure the funding by supporting are crucial for Europe’s strategic autonomy. operational needs within SES and, “to them in identifying collaborative projects,” “A drone has to be integrated with ensure that military aviation will continue he observed. Europe’s civil ATM structure thanks to its to provide and further improve, effective airworthiness certificate and appropriate security and defence in Europe in the The €93 million covers only the ground safety mitigation measures, particularly changing context of the civil aviation segment of military ATM regarding Europe’s for those flying at medium altitude for long sector”, said Christophe Vivier, who leads civil ATM network, but it is a crucial periods.” EDA’s unit dealing with SES. “So far, we segment of work. The future ATM system have achieved good results: the military is will be based on information exchanges How and when militaries use airspace well integrated into the SES landscape and between all stakeholders – including the for drones en-route flights is another considered a key partner, since security military – through ‘SWIM’, SES’s System- issue vis-à-vis civil aviation authorities. and defence are a shared responsibility”. Wide Information Management solution, “Segregated airspace in such a case with everything in the air and on the ground might negatively impact the performance Finding funds for its members related to aviation connected to it. of the ATM network. We think the solution One way the Agency has mitigated the would be for them to support our needs for cost of SES for Europe’s militaries has been This is raising a number of cyber-security non-segregated space so our platforms can to winkle out funds from the EU for them. issues. “We have to make sure SWIM is fly with more flexibility while mitigating this “We’ve received EU funding of around €93 very robust and resilient enough to protect problem,” said Vivier. million to help upgrade national military confidentiality, meaning we might need to ground infrastructures contributing to the develop a specific interface because of the “To do so as soon as possible, we are looking modernisation of the ATM system in the security levels required by the military versus for ways to fly at different hours or different framework of SESAR deployment,” said civil security users,” observed Vivier. flight routes that could accommodate both Vivier. sides on this issue. The overall goal is to There are other areas as well where military start flying our platforms by 2025 outside Though that amount is less than 5% of what operations and capability goals intersect segregated but controlled areas where all the EU has given to the commercial and ATM with SES. The integration alongside civil air traffic is known by ATM authorities. Then, sectors, it is a promising development in traffic of military remotely piloted aircraft after 2030, the military could fly its drones that the military has never before received systems, more commonly known as drones, in all airspace, with no restrictions, he money from the Commission for this kind is a case in point. concluded.

28 www.eda.europa.eu KEY ACHIEVEMENTS: TRAINING

Over the past 15 years, EDA established itself as... Europe’s training pitch for enhanced interoperability

One of the hardest challenges to Europe’s post-WWII militaries has been to make them work seamlessly when coming together for the first time in a conflict zone. By and large, they haven’t been able to do that without huge and expensive effort which, unless wilfully sustained over time, is usually lost as personnel turn over, national military priorities diverge, or equipment is replaced at uneven rates from one country to the next. The allies know this well, having struggled continuously with interoperability issues since NATO’s founding 70 years ago.

For the European Defence Agency (EDA), historically having been in the air domain, have since expanded to meet other needs the main reason for organising training and though other areas of training are growing,” as well. exercises (T&E) among its Member States is says Tom Bennington at EDA’s Operations, to boost their interoperability for operations Training and Exercise Unit. Pooling demand Launched in 2007, the Agency’s C-IED conducted under the EU’s Common Security among EDA Member States for common programme has trained some 800 students, and Defence Policy. That is easier said services is another way to achieve that by including C-IED specialists and ordnance than done, however. Interoperability issues nailing down guaranteed access to niche personnel, and has prompted a swathe of cut across just about every activity in a capabilities at competitive prices. (See box related national and multi-nation research multi-nation military operation – training – page 31) projects. These focus on early warning, and doctrine, communications, logistics, detection, exploitation and disposal strategic and tactical planning, medical Counter-IED capabilities, not only for conventional IED evacuation and transport, not to mention the Two of the Agency’s longest-running T&E threats but also those emanating from inherent friction arising from incompatible efforts, for example, have been counter-IED chemical, biological and radiological vectors. military equipment and systems. (improvised explosive device) training for Moreover, the skills developed for Europe’s national explosive ordnance experts and militaries in these areas offer dual-use “We cover all the military domains except helicopter training. Both came in response benefits to Europe by combatting IED threats space, with the biggest emphasis to pressing operational shortages but in urban settings.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 29 KEY ACHIEVEMENTS: TRAINING

Helicopter: towards a multinational practice and are updated regularly. Part of training centre the reason why this course is so popular Building on a prior Franco-British initiative, among helicopter crews is because it is not EDA’s training courses for helicopter aircrew platform-based. Everyone can share in the got off the ground in 2009. Its initial goal lessons learnt and apply them to their own was to fill its Member States’ gap in tactical tactical manoeuvres.” training and interoperability for operations in Afghanistan by promoting a common Meanwhile, EDA’s helicopter exercise approach to helicopter activities in an programme carried out its 13th Blade environment that was new and challenging exercise in May 2019. Around 30 platforms, for many of them. Currently, EDA is running including rotary and fixed wing, and three activities in this area: a helicopter 1200 people from 11 EDA Member States exercise programme, a helicopter tactics participated in last year’s “HOT BLADE course (HTC) and a helicopter tactics 2018” exercise, which focused on joint and instructors’ course (HTIC). combined interoperability.

Fifteen European countries participate in The next step will be to set up a multinational one or more of these courses, which include helicopter training centre. With an initial the annual multinational helicopter “Blade” planned budget of around €6 million, the exercise, a tactics symposium and a several centre should open its doors in late 2021 demonstrator project to use a virtual private other tactics-related activities such as with offices, a simulator facility featuring two network to link the generic, platform-neutral electronic warfare. The HTIC, for example, co-located augmented helicopter fuselages, RPAS simulator centres of 10 Member States ensures the permanent availability of a cadre and accommodations for its students. “This together for collaborative training. of tactics instructors as mentors to ensure will be the final location for rotary wing standardisation of all helicopter training. tactical training, planning and coordination “This would not be mission rehearsal training At the end of each year, lessons learnt and under Member State direction,” said Emilio but more a conversion to type and basic new tactical procedures are assessed, Fajardo, EDA’s Industry Synergies & Enablers collaboration. It would offer a development refined and codified within the course’s (ISE) Director. tool that allows users to concoct their own reference of standard operating procedures. scenarios for common use within the group,” This reference has become the de facto Airlift training explained Bennington. “We’re trying to prove handbook of advanced helicopter tactics for Fixed-wing airlift has also been a T&E focus, that you can link all the technical sites to a all pilots and crewmen, whether across the where the first major development came in common training network of hardware and EU or NATO, said Bennington. 2011 with the launch of the Agency’s European software in order to run an ongoing exercise Air Transport Fleet Programme (EATF) for programme – all for less than €1 million euros.” One of the Agency’s undisputed success tactical airlift training. Again, the overall goal: stories is the HTC, which has grown from improve the interoperability and operational With the demonstrator’s final simulator its initial Afghanistan-specific training availability of crews and aircraft regarding distributed to Germany in February 2019, all scenarios centred on hot, high and dusty airlift and air drops via agreed SOPs. the sites will work together as RPAS squads. conditions to include arctic, cold and special “Eventually this could link into a PESCO operations training for night-time and urban By 2016 this effort had evolved to see 11 project,” said Fajardo, referring to the EU’s environments. The simulator-based HTC of the participating nations create their legal framework for Permanent Structured has trained almost 800 aircrew since its European Tactical Airlift Centre near the Cooperation in defence. “Italy, for example, inception in 2011 and is still going strong, with Spanish city of Zaragoza, with full operating has proposed a European drone centre of the participation of seven EU countries. capability planned for September 2019. excellence as a PESCO project and there are There is also a new idea in the works several other related PESCO workstreams “Believe it or not, until these training for five EDA member states that use the that could benefit from the project too.” courses came along there was no common smaller Spartan C-27 fixed-wing aircraft to reference for tactical procedures for pilots integrate their tactical training activities via The Agency has a similar initiative in the and crew operating under these different a collaborative exercise programme that cyber-defence sector where it sponsored scenarios,” observed Bennington. “Due to would be run on similar lines. the linking together of national training its harmonisation and agreement process, sites to create a federated network of Allied doctrine can be rather generic and RPAS, cyber, energy management cyber-ranges. Other efforts have focused bureaucratic in its development, whereas EDA’s air domain training will even branch out on cyber situational awareness, forensics the helicopter SOPs are targeted at the to remotely piloted aircraft systems (RPAS). It and training for political leaders during major working level. These reflect identified best is currently developing a training technology cyber-attacks.

30 www.eda.europa.eu ©

One of EDA’s more unconventional T&E ideas, areas that a single Member State cannot structures and activities to fill them – but but one with potentially big implications for cost effectively do on its own – always only up to a certain point. military operational efficiency, is its “Defence links to the priorities of the EU’s Capability Energy Managers’ Course” (DEMC). Energy- Development Plan. Yet at the same time, “We do the initial assessment, build the activity and-resource management has long been the Agency is not a permanent training to a certain level and then hand it over to a the neglected step-child of militaries around institute. It functions more as a training group of Member States as the effort reaches the world, and it is only in recent years consultancy by identifying where Europe’s maturity,” said EDA Chief Executive Jorge that environmental and climate-change military training gaps are and nurturing the Domecq. ”And that’s the way it should be.” concerns, along with increased operational sustainability requirements, have compelled them to start taking notice of new ways to conserve energy. “Collective” bargaining: Having ended in April 2018, the year-long interoperability as pooled DEMC course’s trial run instructed 20 participants from eight Member States on how to develop and apply effective energy demand management systems in accordance with Interoperability is not all about common training and exercises. It also derives from the ISO 50001 standard. This was done at sharing the same equipment or services. 10 military installations, ranging from naval Here the Agency has had an increasing role in pooling demand between its Member stations and armoured vehicle camps to States’ militaries to get the best prices and access for the goods and services they need. military academies. Two good examples are satellite communications (SatCom) and in-theatre air medical evacuation (AirMedevac) services. The trial run’s concrete results speak for themselves: annual energy savings of 2,916 SatCom is expensive because the military needs guaranteed access to it during operations or crises and must pay for that stand-by privilege. Thus, it makes eminent MWh – equal to the fuel required to drive a sense to pool demand to get the best price from commercial providers. The Agency Leopard II main battle tank around the Earth began doing this on behalf of its Member States and the EU’s various CSDP missions in twice – plus more than 19,000 cubic metres 2013. So far it has handled nearly 200 SatCom orders worth €27.3 million – a trend that of water saved. That opened eyes. The continues to grow. defence energy managers’ course is now oversubscribed, with two more currently EDA used a similar approach for AirMedevac where it has pooled the demand of four Member States – , Belgium, Germany and the Netherlands – to negotiate the most under delivery and another three planned economical price for stand-by medical evacuation during operations. Worth €120 million, until mid-2021. the first supply contracts were signed on behalf of the countries in January 2019 via a four-year framework arrangement, which is open to all EDA Member States and associated In sum, EDA’s approach to T&E – whether countries for participation. collective training or as a niche focus in

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 31 KEY ACHIEVEMENTS: COHERENCE

Over the past 15 years, EDA established itself as... Guardian of coherence among EU defence cooperation tools

It has become a commonplace to say that the EU and its Member States have launched more joint defence initiatives in the last two years than in the previous twenty. Yet this ground-breaking drive also point to one overarching challenge: how to ensure that all the different players involved are marching to the same beat as they develop capabilities in support of the EU’s common security and defence policy (CSDP) framework?

EDA’s coordination role in future European the main forum in Brussels for defence the security of all other segments of society. capability development will be central. experts to exchange ideas and initiatives These point directly to matters of security Together with its Member States and EU on defence research and technology, of supply, industrial competences, national institutions, it has helped assemble a set of align procurement cycles, pool demand military prerogatives and other aspects that interlocking tools and policies designed to for equipment and services, define account for the traditional divergence and forge coherence across the full spectrum of programme management goals and other duplication of effort that has characterised capability developments that lie ahead, from activities critical to generating capabilities. Europe’s defence sector as a whole for the defence research to pre-procurement testing It has long experience in managing past 70 years. and prototyping to acquisition support. defence research projects, for example, Without such coherence, Europe’s defence and it functions as the military’s voice To create higher levels of interoperability sector will remain fractured into small and interface vis-à-vis EU institutions and between the Member States’ defence national markets, with all their associated policies. capabilities is a major challenge, to put it high costs and duplication of effort. mildly. But it can be done with enough time Getting EDA’s Member States to move and the right kind of effort linked to what is “The momentum created by these together toward better and more efficient achievable in concrete terms. initiatives offers a unique opportunity to capabilities sounds straightforward overcome this fragmentation,” says EDA enough, and if it was any sector other than The EU’s gameplan for generating these Chief Executive Jorge Domecq. “Achieving defence that might be true. After all, Europe results rests on two pillars: identification of that will take time, of course, but we now has binding rules and standards for many the interoperable capabilities needed, and have the tools at our disposal. The test will of its sectors such as telecommunications a set of tools to support their development, be how they are used and whether they or transport. leading ultimately to common planning deliver the expected results.” among Member States. But defence occupies in its own unique EDA is well positioned to oversee how category, with only one purchaser – the The desired military capabilities arise from the those tools are used. For example, it is government – and the obligation to guarantee Union’s Level of Ambition and are defined by

32 www.eda.europa.eu © EU Council of Ministers

the EU’s Capability Development Plan (CDP), the necessary tools for vastly improved defence, armoured vehicles, helicopters, which was revised by Member States in June capability development at European medical support, cyber defence, satellite 2018 in EDA. The agreed 2018 EU Capability level. These form a matrix of policies and communications, tactical unmanned aerial Development Priorities (11), resulting from the incentives whose sequencing of steps, systems, maritime security and maritime revised CDP, address the entire capability if carefully managed, will lead to the mine countermeasures. spectrum, taking into account the CSDP capabilities’ realisation. The matrix starts capability shortfalls, long-term capability with the CDP’s priorities. Among the trial CARD’s most telling and technological trends, Member States’ conclusions is its recommendation that the defence plans, and lessons learned from The next step will be to track national EU needs to move from ad hoc multinational CSDP missions and operations, and provide progress toward those priorities and to projects towards a systematic and a key reference for Member States’ and EU’s identify opportunities for multi-nation structured alignment of Member States’ capability development. cooperation. Here EDA will have a vital role. defence planning. The forthcoming CARD In the second half of 2019 it will launch the process will support that by aiming for It falls to the Member States to generate first formal Coordinated Annual Review on gradual synchronisation and mutual those capabilities, a task easier said than Defence (CARD) where it will confer yearly adaption of national defence planning done. Indeed, the EU has framed capability with each Member State to assess their cycles, thus leading to more systematic goals for its Member States several times defence plans and spending, R&D goals, defence cooperation Europe. in the past, but to little effect. However, the budgetary and programme cycles and pressure on Europe for strategic autonomy other aspects of capability development Indeed, the CARD is expected to function combined with the new security threats and regarding the CDP’s goals. As the CARD as a pathfinder for identifying where challenges that now confront its corner of the secretariat, the Agency will extract a global defence ministries can collaboratively world demand a far more effective approach picture of the Member States’ collective develop or procure defence assets. As to generating European capabilities. activity and progress toward the CDP from Domecq observes, the CARD “will be an one year to the next. essential intermediate step in the overall EU Fortunately, valuable lessons have been capability development process.” absorbed in national and EU policymaking EDA carefully prepared the ground for CARD, circles about what has, and has not, worked in having run a trial version of the process in As opportunities are identified by the CARD, previous attempts to generate interoperable 2018 and early 2019. Among other things, the coherence matrix’s second step hoves defence capabilities. There is a new approach the trial run identified those areas where into view: PESCO, the EU’s legal framework to coherence and keeping it on track. the Member States’ interest in collaborative for Permanent Structured Cooperation capability development converge the in defence. Agreed by 25 Member States The coherence toolbox strongest. These are reflected in the in December 2017, PESCO also uses the The EU and its Member States now have new CDP and include short-range air Agency as its secretariat (along with the

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 33 KEY ACHIEVEMENTS: COHERENCE

European External Action Service, including defence research, capability prototyping is administered, though, the EU Capability the EU’s Military Staff). and acquisition. Whether these are Development Priorities will remain as the pursued within PESCO or outside it, what baseline for implementing the CARD, PESCO It means EDA will function as the platform counts is that the Member States pursue and the EDF. where the PESCO participating Member collaborative capability development as States can identify, assess and consolidate much as possible. Above all, EDA will continue its central the projects they want to pursue. At the role as the inevitable hub for European same time, the Agency will have the leading The Agency has long experience in liaising military cooperation, defence technological role in annually evaluating the Member with its constituent defence ministries for innovation and engagement with industry. States’ contributions and commitments to collaborative efforts, whether for research Its unparalleled technical expertise and PESCO. purposes or for capability planning and unique position as the interface in Brussels implementation, and with industry. It would between national defence ministries and Having already helped assess PESCO’s be a natural partner for the Commission in EU institutions have served the Agency’s two first rounds of projects, the Agency managing aspects of the EDF as the fund stakeholders well for the past 15 years – and will soon do the same for the next round, fully rolls out in 2021. Regardless of how this will do so for the next 15 as well. which will be approved in November 2019. EDA’s input at the early stage of the projects’ assessment helps ensure there is A coherent approach from priorities to impact no unnecessary duplication vis-a-via other initiatives, for example. Yet it is important COMMON DEFENCE REVIEW COMMON IMPACT ON PRIORITY & OPPORTUNITIES PLANNING & PROJECT EUROPEAN CAPABILITY to stress that PESCO is not just about SETTING FOR COOPERATION IMPLEMENTATION LANDSCAPE projects. Its more important long-term goal CDP CARD PESCO CAPABILITIES is to expand common planning, defence Capability Development Plan Coordinated Annual Review Permanent Structured Cooperation Owned by Member States on Defence > Identifies EU capability > Common planning, harmonised > Co herent set of usable, deployable, spending and collaboration among its development priorities > Provides a full picture of capability requirements, coordinated use of interoperable, sustainable > Output-driven orientation landscape capabilities, collaborative approach capabilities and forces participating Member States – areas that > Monitors implementation of EU to capability gaps capability development and R&T > Identification, initiation, > Capability shortfalls priorities implementation of projects in the Agency has pursued since its inception > Lessons learned > Assesses state of defence capability & operational domains > National Plans & Programmes cooperation in Europe in 2004. > Long term capability trends > Identifies cooperation opportunities

OCCAR Multinational EDA projects projects projects The third step in the coherence matrix NATO Overarching Strategic is the Commission’s European Defence Defence Research Agenda EDF Planning (OSRA) European Defence Fund Fund, which will offer financial incentives Process Research and Capability windows > Contribute to strengthening the competitiveness and innovative for collaborative capability development capacity of the EU’s defence industry > Fo ster defence cooperation through projects. The EDF will help strengthen the supporting investment in joint defence research, development innovation and competitiveness of the of prototypes and acquisition of defence equipment and technology. EU’s defence industry by supporting joint

EU-NATO coherence of output

With both EDA and NATO doing heavy-duty capability planning, how There is also resonance between the two regarding the CDP’s Strand to avoid duplication of effort? B long-term analysis. NATO regularly carries out assessments in this regard. “Since there is no sense in our starting from a blank sheet The CDP’s coherence of output with the Alliance’s defence planning of paper, we capitalise on NATO’s document, ‘Strategic Foresight process is of primordial concern to the 21 EU countries that also Analysis’, as a building block for our own analysis. It’s a good example belong to NATO and are committed to the EU’s CSDP, and they insist of upstream exchange with NATO,” said Kris Herrebout, EDA’s project on that. officer for the CDP. Both upstream and downstream, there is a dialogue and exchanges There are no direct exchanges between the two regarding the CDP’s of information with NATO, which goes partially through those EU other strands, however, meaning only EU Member States have access Member States who are NATO allies. For example, the CDP’s Strand to the Agency’s CODABA database, for example. But there is a built-in A tool and approach are very similar as those used by NATO. corrective factor. “The double-hatted Member States will shake Indeed, EDA contracts the support of the NATO Communications their head immediately if we propose something they are already and Information Agency to underpin the EUMC activities to run that doing at NATO, and vice versa, so that works quite well for avoiding strand of the CDP work. unnecessary duplication of capabilities,” he said.

34 www.eda.europa.eu INDUSTRY TALK: ERIC BÉRANGER

In an exclusive interview with European Defence Matters, MBDA’s new CEO Eric Béranger shares his views and analysis on how European defence cooperation and EDA’s role in it have evolved over the past 15 years and what the industrial prospects and challenges are for the future. He also touches upon the implementation of the most recent EU defence initiatives, some current and upcoming European capability projects as © MBDA well as . “Increased defence cooperation among Europeans is becoming urgent”

What is your general view on how European today, a general adhesion to the principles the ones related to the procurement defence cooperation has evolved over the that led to our creation in 2001. strategies and their impact on the European past decade and a half, and particularly defence technological and industrial base, since the 2016 EU Global Strategy? And your overall assessment of the which are of particular importance for The launch of the Global Strategy in 2016 European Defence Agency’s (EDA) role in that industry. Last but not least, through its 12 created a tremendous opportunity. We have development? Capability Technology Areas (CapTechs) since been witnessing the emergence of EDA is playing a key role in the development and networks of industry and government a brand-new environment that will deeply of defence cooperation. Due to its unique experts, EDA is acting as a catalyst for change the perception and interactions nature, defence policy will remain the more R&T collaboration between European of the defence industry. Although these political responsibility of the Member States. stakeholders. initiatives are still in their infancy and The end purpose of the new European budgets are limited, we can already see a defence agenda and of the mobilisation of A competitive defence industry is a ripple effect with an extremely significant EU funding is to support the development prerequisite for a strong European defence, mobilisation among industries and of the military capabilities Member States’ let alone for achieving strategic autonomy. governments; as if the entire European armed forces need to perform their What is needed to bring our industry to that defence community had grasped the operational duties. The intergovernmental level? importance of those initiatives and is now dimension of this agenda remains therefore European nations undoubtedly have world- looking at them with a lot of attention. It pivotal. In this context, EDA is the forum of class defence industries, but in the current seems that everyone is now understanding choice for Member States to help prioritise geostrategic environment characterised and agreeing with this objective of the the operational needs and technologies that by uncertainties and the rise of regional 2016 EU Global Strategy: “A sustainable, need to be dealt with at European level. As powers, increased defence and security innovative and competitive European the secretariat of the PESCO initiative, EDA cooperation between European nations is defence industry is essential for Europe’s is also evaluating the European added value becoming urgent. I identify two key priorities. strategic autonomy and for a credible CSDP.” of the PESCO capability projects and the First, the development and strengthening of As you know, MBDA is a truly European implementation by the Member States of the the European technological base in order to company and it is quite pleasant to see, PESCO binding commitments, in particular ensure security of supply for European

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 35 “EDA is playing a key role in the development of defence cooperation.”

© Adrien Daste MBDA

The unique Beyond Line Of Sight capabilities of the MMP land combat missile (here in the turret of this vehicle) led to a PESCO capability project with cooperation between France, Belgium and Cyprus

armed forces, which will lead to increased the few European defence industries that industry has now a solid opportunity to freedom of action and autonomy for our have access to the largest possible network benefit from a coherent process at EU level, nations when they need to protect their of researchers and startups thanks to its starting with the identification of European interests. Second, the ability for the industry multinational base. capability development priorities (CDP/ to be proactive and anticipate the future CARD), then the possibility to address these needs of European actors with innovative However, when it comes to AI and deep priorities between voluntary Member States solutions. Today, European countries are learning, sharing of data for machine within a permanent and binding framework committing themselves to the principle of learning between the member nations (PESCO), and finally the contribution of the EU cooperation as well as to the concept of should be encouraged as it would help budget through the European Defence Fund a genuine European industrial base in the Europe have access to databases of sizes to implement these capabilities. defence sector, in particular through PESCO. similar to those of the USA, China or Russia Our role, as industry, is to make sure we can in order to better train our algorithms. As The ‘European Beyond Line Of Sight’ (BLOS) offer the best solution for every specified those algorithms require huge computing capability approach in the land battlefield requirement, either by proposing new power, another key sovereign technology missile systems domain is the first concrete concepts or by mutualising the solutions Europe needs to master certainly is the example in our sector. The ground combat with the aim to cut costs. new generation of low power consumption capability is identified as one of the eleven Massively Parallel Processors (MPP) if it capability priorities as part of the revised CDP. Artificial intelligence, robotics, autonomous wants to avoid critical dependencies in In this context, France, Belgium and Cyprus systems, etc.: new disruptive technologies the future. These are two examples of the launched last year a PESCO capability project are revolutionising the defence sector. challenges that Europe has to face when it highlighting a new operational differentiating Can European suppliers – including MBDA wants to sustain its strategic autonomy for capability in this field, which provides – compete in these domains? If not, what the future. the necessary high degree of accuracy does this mean for EU strategic autonomy? and efficiency while avoiding widespread We certainly can compete and already are. How do you assess the EU’s new defence collateral damage and reducing the exposure In order to secure its leading position, MBDA initiatives (CARD, PESCO, EDF)? What of friendly forces. The testing of a mounted is investing a lot in specific R&T and R&D. difference can they make to improve BLOS capability with a stand-alone target As an example, we are already introducing industry’s competitiveness? designation will in the end benefit from EU decision aid functions in our missile systems The EU’s new defence initiatives are in fact the funding support through the EU Defence to help the operator identify the target and three core elements of the same European Industrial Development Programme (EDIDP). optimise the engagement timing. Just a few defence dynamic. Each of these initiatives As the European champion in missile weeks ago, we inaugurated our new data has its own added value. Their strength lies systems, we fully support and actively centre that will extend the speed domain of in their comprehensive articulation in order contribute to this European approach with our simulations into hypersonics in order to to generate new collaborative programmes, the objective to sustain it in the long term validate and develop an even broader set of which is even more challenging in today’s and to replicate it in the near future in other missile capabilities. MBDA is certainly among European political landscape. The defence missile systems domains.

36 www.eda.europa.eu INDUSTRY TALK: ERIC BÉRANGER

What is your assessment of the EU’s We are involved in the Future Combat Air Obviously, we are eager to be part of it. Preparatory Action on Defence Research System (FCAS), a French-German and now MBDA will always share support, ideas and the prospects of a future European Spanish programme and in the British Team and expertise with other countries and Defence Research Programme? Tempest with the aim, in those very early be looking for other partners. Through From an industrial perspective, the new steps, to define the best trade-off between PESCO, collaborative programmes or other funding opportunities at EU level have platforms and effectors that will lead to an frameworks is, for now, how we intend three main merits. Firstly, they are a real optimised system. MBDA is very proud to to grow and better serve the strategic incentive to generate new European contribute with the MMP potentialities to autonomy of our nations and of the EU as collaborative activities by complementing the EU Beyond Line Of Sight PESCO project a whole. national funding on topics with a clear that will allow European nations to share European added value and by accelerating operational concepts and doctrines on this What impact do you expect Brexit to have the launch of new programmes. Secondly, brand new battlefield combat capability, on European defence? Politically, but also these instruments give substance to the based on technologies that are fully for Europe’s defence industry and future objective of strategic autonomy, which mastered and owned in Europe with no risk collaborative projects? would otherwise remain theoretical. of control nor restriction from abroad. In the field of defence, the UK cannot be Thanks to the EU institutions, they also treated after Brexit in the same manner only support genuine European industries We are also pursuing internal concept as any other third country. The UK clearly and technologies without non-EU studies on what could be a follow-on to the shares European values and interests and restrictions or control. A European design Aster extended air defence interceptor that is among the nations who have historically authority is indeed the sole mean to equips French, Italian and British forces contributed the most to cooperation in guarantee an effective security of supply and six other countries outside Europe. Europe, through programmes such as and a technological mastery, two critical We consider that a protection against Tornado, Typhoon, A400M and Meteor. More conditions to achieve freedom of action on the emerging threats of manoeuvring recently, the decision to join the European the battlefield. Thirdly, they offer concrete ballistic and hypersonic cruise missiles is Intervention Initiative is a further example opportunities of cooperation between a capability that would bring significant of the UK’s commitment to European European stakeholders at industrial and strategic autonomy to Europe and that defence and I can see this has been technological levels. Keeping in mind the could be a good candidate for being led recently recognised by the highest French technological excellence and industrial within the PESCO framework. and German political leaders who called for performance requirements, they represent a European Security Council to which the UK a real possibility to find new partners, MBDA was created in 2001 after the merger should be associated. enlarge our supply chain network and, in of missile systems companies from some cases, resolve existing dependencies France, Italy and the UK, later followed It will therefore be essential after Brexit towards non-European solutions. Due to its by manufacturers from Germany and to maintain access for the UK, under European DNA, MBDA can only be proactive, Spain. Will it further expand in the future conditions to be negotiated, to the as a leader or as a contributor, to these to become an even bigger European instruments of the EU defence policy; European initiatives. champion? whether it is the European Defence To consolidate its stature of European Agency, PESCO or the European Defence What are MBDA’s defence innovation and champion is a natural aim for a company Fund. It is indeed in the interest of both development priorities for the coming such as MBDA... Does it necessarily take the EU and the UK to continue sustaining years? new mergers? I am not so sure. As we together their industries that have for MBDA is a truly European company and I will already discussed, the ongoing European long worked together and created mutual therefore mention those programmes that defence agenda is already offering dependencies. This is the condition to keep are led in cooperation and demonstrate our multiple new collaboration opportunities a critical mass and competitiveness for the added value. This is the case of the Anglo- within the European defence community. European industry as a whole. French FC/ASW (Future Cruise/Anti-Ship Weapon) that is intended to replace the whole portfolio of deep strike and heavy anti-ship missiles currently operated by France and the UK (SCALP/Storm Shadow, Eric Béranger was named CEO of MBDA on 1 June 2019, Exocet and Harpoon) with a step change in replacing Antoine Bouvier. Prior to joining MBDA, he was the operational capabilities. This programme is CEO of OneWeb. into the second year of its concept phase MBDA was created in 2001 after the merger of the main and we would like to see more European missile systems companies in France, Italy and the UK. In nations joining before the full-scale March 2006, it acquired LFK-Lenkflugkörpersysteme GmbH, development is launched in 2024. the German missile subsidiary of EADS (now Airbus).

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 37 NATO VIEW: HEINRICH BRAUSS

NATO & EU capability development Enhancing cooperation, improving effectiveness, ensuring coherence By Heinrich Brauss, former NATO Assistant Secretary General for Defence Policy & Planning, currently Senior Associate Fellow at the German Council on Foreign Relations (DGAP).

Europe and North America, NATO and the The EU, in turn, is working to implement the capabilities each to meet the requirements of European Union face unprecedented EU Global Strategy in the area of security both collective defence and crisis response. challenges and threats from multiple and defence. From a NATO perspective, directions. To the east, Russia’s aggressive this essentially is about (1) enhancing the EDA plays a key role in assisting nations to actions aim to destabilise and intimidate capabilities and structures needed for develop required capabilities, strengthening neighbours and Allies and undermine the types of civilian missions and military the CDP and acting as an interface between NATO and the EU. To the south, instability, crisis response operations the EU wants Member States and the Commission. continuing crises, regional conflicts and to be capable of undertaking as well as When it comes to NATO-EU cooperation on wars across North Africa and the Middle protecting the Union and its citizens; (2) capability development, EDA therefore is a East have fuelled terrorism and caused improving coordination of Member States’ key counterpart to NATO at staff level. EDA mass migration affecting Europe’s stability. capability development and promoting and NATO’s two International Staff divisions In addition, China’s global aspirations, multinational cooperation; in doing so, (3) in charge of capability development, the economic potential and growing military strengthening Europe’s defence industry; Defence Policy and Planning Division and power increasingly challenge the and (4) taking forward partnerships, the Defence Investment Division, have transatlantic community. including with NATO. This implementation a collegiate, constructive and mutually work has made significant progress with beneficial working relationship with regular NATO’s adaptation and the the setting-up of the necessary tools – e.g. coordination meetings at all levels. This has implementation of the EU Global with the refined Capability Development become part of a new era of interaction Strategy Plan (CDP) identifying the required capability between the two organisations that led, NATO has developed a dual response, priorities; the Coordinated Annual Review inter alia, to the Joint Declarations signed namely to strengthen its deterrence and on Defence (CARD) promoting transparency by the Presidents of the European Council defence posture (essentially by enhancing and cooperation among Member States; the and the European Commission and the NATO its responsiveness and the readiness of Permanent Structured Cooperation (PESCO) Secretary General to promote cooperation in Allied forces) and to project stability to advancing development of multinational areas that are crucial for the security of both its neighbourhood by means of assisting capabilities, collaborative programmes the EU and NATO, such as countering hybrid partners in their efforts to provide for and multinational force packages; and the warfare, cyber defence, defence capabilities, their own security and defence. The NATO European Defence Fund (EDF) supporting enabling , capacity building Defence Planning Process (NDPP), a new research and development and multinational of partners and others. cycle of which has just started, will review capability projects. the quantity and quality of all Allies’ forces European Defence reinforces European and capabilities needed to implement Close EU-NATO cooperation pillar of transatlantic security NATO’s overall posture. In general, NATO It is clear that capability development in NATO In light of the growing strategic challenges needs heavier, more high-end capabilities and the EU necessitates close coordination. facing both North America and Europe, and more forces and capabilities at higher 22 Allies are also EU Member States and the European nations together must readiness as well as enhanced cyber five other EU members are close NATO increase their contribution to transatlantic defence capabilities. partners. They all have one set of forces and security and take their fair share in

38 www.eda.europa.eu © MSC ensuring security for their own continent. output coherence – with the first focusing to increasingly focus on those capability This means increasing defence spending on nations’ individual efforts and the second areas that are essential for the whole (up to at least 2% of GDP by 2024) by all highlighting opportunities for multinational mission spectrum – situational awareness, Allies, as pledged by their political leaders, cooperation and promoting convergence of responsiveness, readiness and resilience. investing in high-end capabilities and capability development. The two processes PESCO projects supported by the EDF should enhancing contributions to operations and timelines are being coordinated to spare therefore help meet both CDP priorities and and missions that serve Europe’s security. the European nations duplicative reporting. It NATO defence planning priorities. The imbalance between the commitments is also essential to ensure full transparency by the US and European nations must be and fullest possible involvement of Non-EU Due consideration should also be given to adjusted. With this in mind, while Collective Allies in CSDP capability development, since defining the set of forces and capabilities Defence remains NATO’s sole responsibility, they provide substantial contributions the European nations should provide strengthening European Defence enhances to Europe’s security. This has become together, in quantitative and qualitative the EU’s contribution to Europe’s security particularly relevant in the context of Brexit terms. NATO and EU staffs could explore and thus reinforces the European pillar of as the ’s armed forces ways and means and advise nations transatlantic security. Conversely, enhanced remain among Europe´s most capable ones. accordingly. Improving military mobility defence spending for improved forces and is a case in point: NATO and EU staffs capabilities developed within NATO and The way ahead are working together to create the legal, usable for the whole mission spectrum also Looking at the future, the growing strategic logistical and infrastructure conditions benefits European Defence. challenges require both NATO and the EU to enable movement of forces to, across and from Europe. The EU will spend several Coherence and complementarity billions of Euros improving the transport In this context, EDA and NATO staffs have infrastructure across Europe: roads, been working to ensure that the capability railways, bridges, harbours, airports. priorities identified in both organisations This will strengthen Europe’s economic are broadly coherent and complementary. cohesion, facilitate deployment of Capabilities developed within the EU are European forces for crisis management, also available to NATO and vice versa, and enable rapid reinforcement for the © NATO upon nations’ decisions. Also, the biennial defence of Europe as well as deployment NDPP review of Allies’ efforts to implement The Joint Declaration signed on 10 July 2018 of US forces to, across and from Europe, their NATO Capability Targets and CARD has given an additional boost to EU-NATO thereby contributing to transatlantic are complementing each other in terms of cooperation burden sharing.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 39 EDA PARTNER MESSAGES

Close partners, strong cooperation Over the past 15 years, the European Defence Agency has developed close and important working relationships with a wide variety of EU institutions, agencies and bodies as well as other European organisations. A selection of thoughts and reflections from some of them. © © European

40 www.eda.europa.eu side of a capability. Member States can align “EDA has played a their technical requirements for a specific defence capability within the PESCO and CARD crucial role” framework, which is a requirement for some EDF By Pierre Delsaux, Deputy Director actions. © European Commission General, European Commission (DG GROW) Second, the capability part of the EDF “Defence matters in a world that is unsettled by innovation and competitiveness of the defence is implemented through a co-financing increasing international disorder. In response to industry so that industry can provide the military mechanism. The Commission awards grants changing and challenging geopolitics, European capabilities that the armed forces in the Member -at different percentage rates depending on leaders decided to join forces to strengthen States need. For the PADR, the Commission found the stage of the development process- from Europe’s common security and defence. a good partner in EDA that has been fulfilling the EU budget to selected projects. Member Driven by strong political consensus that the task of implementing the programme in a States commit to finance the remaining Member States can no longer address security complementary and satisfactory way. costs. Synchronisation of national budget challenges on their own, a number of initiatives commitments to capability priorities of the EDF have been launched at the European Union level The ambition of the Commission is high. The EDF, is crucial for projects to kick-off. As this is not for the EU to become a more effective security PADR and EDIP can be a real game-changer in easy to achieve, PESCO and CARD can assist to provider. EDA has played a crucial role in this how industrial defence cooperation is organised anticipate needed commitments and streamline respect. The Agency has been traditionally the within Europe: big military flagship programmes defence budgetary planning of the Member forum where Member States define capability could be developed within the next decade. States. development projects and jointly invest in those projects and in collaborative defence research But the PADR, EDIDP and EDF do not exist in Third, the EDF focuses on projects where EU projects. The expertise of the EDA in both isolation. Other important defence initiatives added-value can be demonstrated. The EDF’s capability development and in defence research by Member States, like CARD and PESCO, for objective is not to address all the capability gaps has greatly contributed to the EU defence which EDA is the secretariat also aim at greater identified in the Capability Development Plan initiatives. defence cooperation. All these initiatives have (CDP), as this is the responsibility of Member common goals, namely to make sure that the EU States. As Member States have an important The Commission’s contribution to defence at has the defence capabilities it needs. Linkages role in the implementation of the Fund, namely EU level is the European Defence Fund (EDF) between these initiatives are important and in defining the joint defence priorities within and its two preceding test programmes, equally important are the relationships between the Programme Committee that decides on the the Preparatory Acton on Defence Research the respective institutions dealing with the work-programme, they may take, for coherence (PADR) and the European Defence Industrial implementation. EDA, with its expertise, could reasons, priorities of the CDP, PESCO or CARD. Development Programme (EDIDP). play an important role to help the Member States develop the capabilities they need. In sum, the different defence initiatives all deal Both the test programmes and the EDF aim at with a different aspect of enhanced defence deeper cooperation in the EU in the areas of First, the EDF focuses on the supply side of cooperation. But only through consistency and defence research and development. By funding defence capabilities. The Commission will fund good relations between the defence initiatives collaborative projects proposed by consortia projects proposed by industry and research and therefore also the European institutions formed by entities such as companies and centres that can ‘supply’ a good solution and agencies can we achieve the shared research organisations across the Member for a defence capability. PESCO and CARD goal, namely the delivery of European military States, the Commission intends to support the can have a role in streamlining the demand capabilities”.

Security and defence are difficult and costly “Cooperation between EUMC to build and to maintain, but very easy to lose. EDA and the EUMC are both expressions of and EDA is paramount” Member States’ voice, although with different but By General Claudio Graziano, Chairman of the EU complementary roles. © EUMC Military Committee (EUMC) On the one side, EDA supports the development “As stated in the EU Global Strategy, the EU advantages that new technologies can deliver of defence capabilities, acts as a catalyst, should be credible, responsive and joined-up. as a key tool to develop the military instruments. promotes collaboration and introduces solutions It also acknowledges the need for the EU to to improve defence capabilities. further develop its hard power and, as a result, In this context, the military input to capability its military instruments. development is an integrated part of a broader On the other side, the EUMC represents the Chiefs effort, managed by EDA through the Capability of Defence and through them it ensures that the Accordingly, EU Member States and the Union as Development Plan. voice of the military end-users is heard in the EU a whole have clearly identified the need to step institutions and that it is incorporated into the up their capabilities including the technological The EUMC, supported by the EU Military Staff, decision-making process at all stages and levels toolbox, which entails the need to address regularly provides two out of the four strands of the EU’s CSDP. new important challenges and exploit great used in the Capability Development Process. opportunities. For this reason, the cooperation between the Technological superiority is a must for European two entities is paramount in order to ensure Drawing from my experience as a field defence and an essential requirement in order coherence in the overall development efforts and commander, I consider the ability to respond to fully achieve the potential of the EU Global to make sure all actors involved are able to play a to priority requirements and to benefit from the Strategy. role in this endeavour”.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 41 “Close cooperation between capabilities to meet political strategic objectives derived from a Global Strategy for the Foreign and EDA and EUMS is essential” Security Policy of the European Union. This applies in particular for the main priorities: to respond to By Lieutenant General Esa Pulkkinen, external conflicts and crisis, to build capacities of © EUMS Director General of the EU Military Staff (EUMS) partners and to protect the Union and its citizens.

“This year is the 15th birthday of the European Security and Defence Policy as it stands now and Close cooperation between EDA and the EUMS Defence Agency (EDA), established in 2004 develops in the future. is essential. Over the last three years this has with the aim to support the Member States led to an increased level of cooperation at all and the Council in their efforts to improve Today, undoubtedly, the Agency has extended its levels and resulted in constructive dialogue – it is European defence capabilities in the field of original mission taking into account significant through cooperation the goals and interests of the crisis management and to sustain the European changes challenging the avaailability of military European Union will ultimately be met”.

engaged in the downstream part of the process, “Fruitful focused mainly on the development, production and In-Service Support (ISS) phases associated cooperation” to obtaining these military capabilities. By Arturo Alfonso Meiriño, Thera are a number of examples of fruitful © OCCAR OCCAR Director cooperation between EDA and OCCAR. Programmes such as ESSOR, MMF, MMCM “As one of the members of its pioneer’s team, I of 10 November 2008, inviting EDA to seek or MUSIS originated in EDA and were then am very happy and proud to see EDA reaching the greatest synergy with OCCAR, came as transitioned to OCCAR by those Member States its 15th anniversary. Its creation was most no surprise. Both organisations share their that were willing to bring those projects to their definitely a turning point in the way defence European identity and the need to strengthen next stage. I am convinced that we will see business was addressed at supranational the competitiveness of the European defence more examples of such fruitful cooperation level in Europe. The immediate launch and technological and industrial base as a key factor in the short term. PADR, EDIDP and PESCO are subsequent implementation of the four EDA to develop the defence capabilities needed in European initiatives in which cooperation is at flagships at that time - defence industry and Europe to face current and future threats. stake and EDA and OCCAR can support them market strategy, research and technology, by transforming these policies into tangible armaments cooperation strategies and EDA and OCCAR concluded an Administrative results. Capability Development Plan - paved the way for Arrangement in 2012 by which both organisations the recent EU defence initiatives. sought and continue to seek that their activities My most sincere congratulations to EDA for are mutually reinforcing, non-duplicative, these 15 years full of initiatives in support of Whilst the Organisation Conjointe de coherent and complementary. Whilst EDA has European Member States and the Council in their Cooperation en matière d’Armement (OCCAR) a prominent upstream role in the identification effort to improve European defence capabilities was already operating with its legal status since of military capabilities with the promotion of in the field of crisis management. I look forward 2001, cooperation with EDA was foreseen from joint activities, research and technology and to our continued cooperation and to the success the Agency’s outset. The Council statement harmonisation of requirements, OCCAR is fully of both organisations”.

for European non-dependence, cyber resilience “Effective synergies for R&D and training, space-based imagery needs or secured satellite communications, to name the benefit of Europe” but a few of our joint policy and programmatic By Jan Woerner, Director General of the efforts. New opportunities to grow together in © ESA European Space Agency (ESA) this relationship are multiple and offer an already promising horizon. ESA and EDA share several common traits for importance to the full spectrum of security. ESA, having shaped, throughout the years, very as Europe’s space agency, has for decades Over the last decade, ESA has conducted a similar philosophies and work cultures: we are been adamant about pioneering European strategic evolution of its role towards its Member agencies that innovate and build, on behalf of intergovernmental, cooperative programmes States and users of space systems alike. Its our respective Member States, programmes and to maximise benefits for a wide-range set of relationship with EDA has been instrumental in technologies that are instrumental in delivering communities focused on science and applications. progressively and successfully adapting itself to critical services while helping shape Europe’s role In this context, the growing relationship with the requirements and culture of new communities, in the world. This shared disposition of developing EDA has been a welcomed evolution. The ESA/ tackling specific technological and policy areas innovative, user-driven programmes has been the EDA administrative arrangement signed in 2011 and delivering on objectives enshrined in our driving force to our joint efforts, our very purpose provides a structured relationship to achieve respective mandates. The trust, which ESA and and what will shape our future cooperation. shared goals. Our cooperation has since explored EDA have together built with our Member States is domains that have significant bearing on testimony of the confidence our stakeholders give Space is central to security: space assets increasing the effectiveness of space systems us in this endeavour, and which emboldens us to produce and deliver data and services of critical for security, be it in critical space technologies further strive in this strategic direction”.

42 www.eda.europa.eu EDA PARTNER MESSAGES

focus on supporting the development of dual “Cooperation makes use technologies.

perfect sense” Additionally, the two organisations will exchange By Alexander Stubb, Vice-President expertise, in particular with a view to identify © EIB of the European Investment Bank possible financing opportunities for defence and security-related research and technology “The EU is facing an increasingly complex aims to provide financing of €6 billion by 2021. projects of interest to the Member States and volatile range of security threats. Which participating in EDA. This could include both is why I find it only natural that the European The EIB and EDA have teamed up to support the projects promoted by the Member States, Council in October 2017 encouraged the EU’s Common Security and Defence Policy. such as those in the context of the recently European Investment Bank, the EU bank, to launched PESCO, as well as projects promoted examine further steps that can be taken to As first steps, EDA and the EIB have signed a by companies including small and medium- support investments in defence research and memorandum of understanding to strengthen sized enterprises in the defence and security development activities. We, here at the EIB, cooperation, and now envisage cooperation in sector. Given the risks and the emergence of took this task seriously. The EIB approved the the Cooperative Financial Mechanism (CFM). new threats across all areas of the economy, we European Security Initiative - Protect, Secure, The CFM is foreseen as a mechanism for EDA see it as the EIB’s mission to provide financing Defend, which has strengthened our support Member States to financially support the set for innovative solutions to help tackle some of for RDI for dual-use technologies, cybersecurity up and conduct of the development of military these challenges. It makes perfect sense that and civilian security infrastructure. The initiative technology. The EIB’s role in the CFM would we cooperate closely with EDA on this task”.

and ensuring that the European ATM Network “Example of sharing efforts performs well and benefits both its civil and its military users. The new Network Functions and avoiding duplication” Implementing Regulation, the outcomes of By Eamonn Brennan, Director General of the Airspace Architecture Study and the Wise © Eurocontrol EUROCONTROL Persons Group have provided EUROCONTROL, which has just been reappointed by the European “I would like to congratulate EDA on its 15th requirements to avoid adverse impacts on Commission as Network Manager until 2029, Anniversary. It’s an important milestone, and I military training and exercises. with guidance and targets in order to master the am very glad that our two Agencies have built up current capacity shortages in Europe’s skies, a strong cooperation, over more than a decade It is also a great example of sharing efforts and and to establish a better performing European of partnership. This cooperation has intensified avoiding duplication: EDA has the role to facilitate ATM Network over the years and has become instrumental military views at EU level, while EUROCOONTROL when it comes to military involvement in Single provides operational and technical level The excellent relationship built on trust and European Sky (SES) implementation and SESAR expertise and solutions to best support military cooperation between EDA and EUROCONTROL research, development and deployment. and civil aviation in Europe. will be key in the future also for the efficient and effective accommodation of military and Our strategic partnership has helped ensure In that context, the civil-military cooperation and civil aviation needs in a spirit of balanced that relevant EC implementing regulations and collaboration in ATM, CNS and Security is one considerations between economic needs, and EASA rulemaking take due regard of military of the key enablers for achieving the SES goals, security and defence requirements”.

“Very solid are key to achieving the Single European Sky and ensuring that the airspace is used in the most cooperation” optimal way by all those that seek to access it. In this respect, we need to continue to work By Florian Guillermet, Executive Director together to harmonise civil-military procedures © SESAR JU of SESAR Joint Undertaking and technologies, without placing unacceptable constraints on either stakeholder groups. Over the years, EDA and SESAR JU have built up strategic vision for Europe’s skies in the European a very solid cooperation, guided by the principle ATM Master Plan, to prioritising the research needs We must also strive to find ways to share that the European airspace is a resource shared and then contributing to validating the resulting information and infrastructure in the more cost by all airspace users whose specific needs must technologies and procedures (SESAR Solutions). effective and efficient way. The technologies are be taken fully into account. This relationship has there for greater interoperability and connectivity been key to ensuring the active engagement of We believe this strong level of cooperation and between civil and military stakeholders. We look the military in all aspects of the SESAR research trust between civil and military stakeholders, forward to building on our current collaboration so and innovation programme, from setting the enabled through the SESAR JU-EDA relationship, that we can go further together in the future”.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 43 THE WAY AHEAD: DICK ZANDEE Quo vadis EDA? By Dick Zandee. This summer, the European Defence Agency celebrates its 15th anniversary. What lies ahead in the next 15 years? The Agency has to be at the centre of European military capability development.

Since its creation in 2004, expectations There are many other EDA projects and their of EDA’s existence with a budget of €21.2 about the future of EDA were high. The importance should not be underestimated. million, the staff headcount was 80. In the founding fathers had learned from the Nevertheless, the number of large summer of 2005, Nick Witney, EDA’s first past to avoid a stove-piped institution equipment procurement programmes, Chief Executive, asked all personnel present solely focussed on one single area of initiated by EDA, is just a single digit figure. at an internal meeting to provide their capability development, such as research The pooled acquisition of the Multi-Role forecasts on the numbers of staff and the and technology (R&T). No, EDA would Tanker Transport (MRTT) aircraft, now by Agency’s budget in 2008. The average score encompass the whole chain, from demand five European countries, is an example. For was 150 staff members and a €40 million to supply. This was reflected in EDA’s the development of the Medium Altitude budget. At the time, this was considered as a original structure with four Directorates: Long Endurance Remotely Piloted Aircraft realistic outcome, somewhere in the middle Capabilities (setting requirements); R&T; System (MALE RPAS), initial work was also between the optimistic and pessimistic Armaments; Industry & Market. Based conducted in the EDA framework. However, forecasts. The 2019 budget figure is even on the assessment of Europe’s military even for these multinational acquisition lower (€32.5 million), while the number of capability shortfalls, R&T projects would programmes there is almost no visibility of staff (around 170 today) barely exceeds the be launched and armaments procurement the Agency’s involvement. EDA conducts 2008 forecast. It is interesting to compare programmes initiated, involving European the upstream work of initiating and EDA with Frontex, the European Border and defence industries as early as possible to facilitating such European collaborative Coast Guard Agency. Frontex started in 2005 ensure a capability-driven approach. capability projects while the Bonn-based with a budget of €6 million; in 2018 it had Organisation Conjointe de Coopération en risen to €320 million. It now employs 320 It sounded too good to be true matière d’Armament (OCCAR) manages the personnel and the number will grow to 1,250 Indeed, reality turned out to be different. development and acquisition programmes by 2021. Thus, compared to Frontex, EDA has Most of EDA’s achievements have been downstream. Recent initiatives, such as the experienced a very limited growth-path. realised in what was originally considered Franco-German as ‘low-hanging fruit’: organising training and the Main Ground Combat System An underused Agency programmes (helicopters, transport aircraft, projects, were launched outside the EDA EDA’s performance should not be measured air-to-air refuelling, unmanned aircraft); context. by the size of its budget and staff, though. pooling acquisition by Member States, for Member States were right in opposing example with regard to commercial satellite Small Agency institution-building as a goal in itself. Output communication services; or launching In 2019, EDA is still a small Agency in terms should be the benchmark, it was often portals and tools to assist Member of budget and staff. It is worth looking back stated. Unfortunately, results only partly States and EU actors in defence planning, at what the original expectations looked materialised as most Member States were operations and other activities. like. At the end of 2005, the first full year reluctant to use the Agency for seeking

44 www.eda.europa.eu “If Member States were to take European military capability development seriously (...) then EDA should be fully used for that purpose”

fifteen years the majority of European development. In particular, PESCO and countries have not implemented what their the EDF have been labelled as ‘game Defence Ministers have subscribed to, will it changers’. PESCO marks the transition from happen in the future? ’voluntarism’ to ‘commitment’ and the EDF is a revolutionary step of making the Union Change is needed budget available for defence investment. Europe’s security is endangered by a complex set of threats and challenges Nevertheless, the question may be asked which require well-coordinated responses whether these breakthrough initiatives will by all actors involved, nationally through deliver a quantum leap in European military a whole-of-government approach or capability development. Member States collaboration on R&T and armament even a whole-of-society approach, and have the lead in PESCO: a justified principle procurement programmes. The figures internationally by the coordinated efforts of as they own the capabilities and they decide speak for themselves: at the end of 2018, the two leading organisations: EU and NATO. on their national participation in multinational EDA’s R&T portfolio amounted to €274 million Looking at all the available instruments that military operations. Yet, based on the same in projects and programmes stretching over are needed for integrated responses, the principle, project selection may be driven several years. The collaborative European military element is most underdeveloped. by national needs rather than European Defence R&T expenditure as a percentage The European capability shortfalls, which capability shortfalls. of the total Defence R&T budgets has gone were listed at the start of the European down from its peak of 16.6% (2008) to 8% Security and Defence Policy in 2000, still The 34 PESCO projects, launched so far, (2017), far away from the 20% benchmark exist today despite improvements in constitute a mixed bag. If they were fully agreed by Ministers of Defence in 2007. For areas like strategic transport, intelligence implemented, the most pressing European European collaborative defence equipment and reconnaissance. Others have been capability shortfalls would continue to exist. procurement, the benchmark is 35% of added, from cyber capabilities and artificial The EDF offers great potential to stimulate the total; EDA data show that European intelligence applications to high-end collaborative capability development countries only spent 16.8% together. fighting power. The latter has returned programmes as the Fund makes cross- prominently on the priority list due to the border cooperation a precondition for Conclusion: a big gap continues to exist threats that Europe is facing, to its East in investing money from the Union budget between political statements on the need particular. There is no lack of priorities, but for defence. An important aim of the EDF for European defence cooperation, and daily there is a lack of solutions. In the meantime, is to strengthen the European Defence practice. Despite all the initiatives taken after US President Trump is increasing the Industrial and Technological Base (EDTIB), the launch of the EU Global Strategy in 2016 pressure on European countries by asking as underlined in the Commission’s EDF – such as the Coordinated Annual Review on them to share the defence burden more publications. The selection of projects and Defence (CARD) and Permanent Structured equally with the United States. programmes in the pilot programmes – the Cooperation (PESCO) – the ‘dating house’ Preparatory Action on Defence Research for collaborative investment to improve The new framework (2017-2019) and the European Defence European military capabilities remains largely In recent years, important new initiatives Industrial Development Programme (2019- underused. Even more worrying is that the have been launched under political pressure 2020) – is in accordance with the capability 2017-2018 CARD trial run has shown that to improve European defence capabilities, priorities as defined in EDA’s Capability three quarters of Member States allocated both in the EU and NATO. In the EU, the Development Plan. less than 50% of their defence investment to famous trio of CARD, PESCO and the EDF priority actions stemming from the Agency’s (European Defence Fund) now provide the 1 Roland Van Reybroeck, What’s in the CARDs?, Egmont Capability Development Plan.1 If in the past framework for European military capability Security Policy Brief no. 103, February 2019.

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 45 THE WAY AHEAD: DICK ZANDEE

So far, so good. But the risk of an industry-driven selection process will not automatically disappear. Throughout the EDF’s full lifetime, which is up to 2027, the capability-driven approach will have to be ensured. In that context, it is not comforting Dick Zandee is Head of to read in the EDF (draft) Regulation that the Security Unit of the EDA will have observer status in the research department of programme committees. the Clingendael Institute in The Hague. At the centre He served as the Head If the EU Member States were to take of the Planning & Policy European military capability development Unit of EDA during the seriously – not only in declarations and years 2005-2011. Council conclusions but also in practical © Clingendael collaborative programmes – then EDA should be fully used for that purpose. This would period. In this context, the merging of Planning Process. Equally, this applies to imply at least three key changes to the OCCAR and EDA should be investigated. monitoring and assessment. current situation. Multinational programme organisations outside the EU could be connected to EDA The way ahead • First, the Agency should be the central for reporting and assessment. The one-liner of the first EU High place where the defence investment Representative and Head of the Agency, of the Member States is monitored and • Third, Member States should consider Javier Solana, ‘to spend better and to spend assessed, based on the capability priorities a serious growth path for the Agency’s more together’ is as relevant as it was in the stemming from the Capability Development budget and staff when they express the early years of EDA’s existence. Plan. CARD and EDA’s (shared) secretariat political will to use EDA to the maximum role in PESCO offer the necessary tools. extent. It is not about duplication with The years of austerity (2010-2014) resulted They have to be used fully and should be NATO nor about unwanted EU institution- in a certain renationalisation of defence further enhanced as required. Equally, EDA building. EDA is the Defence Agency of planning and programming. Across Europe should play such a role for EDF investment, and for the Member States. If they want defence budgets are now rising again. Under from the start in the programme selection to be in the driving seat, then they have President Trump, the US pressure on Europe committees by ensuring the capability- to entrust EDA with the appropriate to contribute more to its own defence has driven approach and throughout the resources. The Agency has already been been stepped up considerably. NATO remains programme implementation phase. given new tasks in recent years – such as fundamental to European security, but the for implementation of CARD and PESCO – Alliance’s future is becoming increasingly • Second, the whole chain of capability without any increase in the budget. Now, dependent on Europe’s contribution. The development – from setting common it is time to address the issue of resources fragmentation of European capability requirements to the production of in an output-related manner, not on the development has to stop. Just pumping equipment – should be managed under one basis of ideology or politics. It will simply more money into defence is not enough. It roof. With too many actors in the chain, the be impossible for the Agency to conduct can even lead to further fragmentation and a door is open for deviating from the original the increasing amount of work without waste of resources. definitions of operational and technical additional staff and money. requirements during the downstream Spending better and spending more phases of capability development. We Naturally, making EDA the real centre of together implies coordinated defence have seen it in the past. Commonly European capability development should planning and maximising collaborative procured ships, vehicles and helicopters not be done in isolation from NATO. Since investment in order to increase interoperable look the same on the outside but they are the CDP is already defining European forces and standardised equipment. This often very different on the inside – thus capability priorities beyond the needs of the cannot be done solely between the capitals. restricting the potential for interoperability Common Security and Defence Policy, it is It needs a European house. EDA was created and cost saving both for production and not too difficult to synchronise capability for that purpose fifteen years ago. Let us use during the through-life maintenance development with the NATO Defence it to its full extent.

46 www.eda.europa.eu 15TH ANNIVERSARY PHOTO GALLERY

EUROPEAN DEFENCE MATTERS I 2019 I Issue #17 47 www.eda.europa.eu l @EUDefenceAgency i European Defence Agency European Defence Agency