The world has changed profoundly since the publication of the previous White Paper in 1994, in particular under the impact of globalisation. The formidable acceleration of information exchanges, the increased trade in goods and services as well as the rapid circulation of individuals, have transformed our economic, social and political environment in both positive and negative ways, as well as the paradigms of national and international security. The hierarchy of powers has changed and will continue to evolve. The world is not necessarily more dangerous, but it has become more unstable, more unforeseeable. New crises, in particular from the Middle East to Pakistan have come to the fore and have become more inter-connected. Jihadism-inspired terrorism aims directly at France and Europe, which are in a situation of greater direct vulnerability. As we look to the 2025 horizon, France and Europe will fall within the range of ballistic missiles developed by new powers; new risks have appeared, be it intentional in the case of cyber-attacks or non-intentional, such as health-related or environmental crises amplified by the deterioration of the biosphere. The White Paper aims at presenting the strategic appraisal for the next fifteen years to come, and consequences are drawn in order to draft together a new defence and security policy.

The major innovation compared to the previous White Paper is that the security interests are appraised globally without restricting the analysis to defence issues. A national security strategy is defined in order to provide responses to ‘all the risks and threats which could endanger the life of the Nation’. The scope of national security includes the defence policy, but is not limited to it. In order to better ensure the defence of the interests of France and the mission of protecting its population, the national security strategy calls upon the interior security policy, for anything which is not directly related to individual security of persons and property or law and order, as well as the civil security policy. Other policies such as foreign policy and economic policy also contribute directly to national security.

The national security strategy includes five strategic functions which the defence and security forces must master: knowledge and anticipation, prevention, deterrence, protection and intervention. The combination of these five functions must be flexible and evolve over time, adapting to the changes in the strategic environment. The White Paper will therefore be updated before the discussion of each new Military Programme and Interior Security Bills.