| The 2003 Defence White Paper, Delivering Security in a Changing World, flows directly from the 1998 Strategic Defence Review and the 2002 New Chapter to the Strategic Defence Review. At its centre are the concepts of effects-based operations and network-enabled capability. It signals a shift of focus from platforms and numbers towards effects sought. It proposes a re-balancing of land forces from heavy-weight towards medium-weight. But it lacks essential details. We are disappointed that an important policy document has been presented with little or no information on the relevant procurement decisions, funding questions or likely changes in force structures.
There is potential for confusion between the concepts of network-enabled capability and effects-based operations. Network-enabled capability may contribute to the delivery of military effect, but it is not a prerequisite for it, or indeed, necessarily the main contributor towards an effects-based operational outcome. The limits of what the military can achieve on their own in effects-based operations need to be understood not only by the Armed Forces, but across Government.
We believe that the security challenges faced by the UK require the retention of the existing scale of forces, enhanced by the benefits of network-enabled capability. A policy of reducing or restructuring existing forces in advance of acquiring new capabilities is potentially dangerous. At times the White Paper's conclusions appear to have been based more on what UK forces have been doing in the recent past than on an objective assessment of what they might have to do in the future. It is far from clear whether the White Paper has been effects-led, or rather resource driven.
The emphasis on effects-based operations places new demands on individual service personnel at all levels to understand the impact of their actions and we question whether the current focus on training for war-fighting adequately equips our service personnel for these much wider demands.
We have no reason to believe that the demanding operational tempo of the past six years and consequent stretch on too many of our service personnel will not continue. We believe that manpower shortages must be tackled urgently. The Armed Forces depend on the reserves for their operational capability. A reappraisal of the role of the reserves and of what can reasonably be expected of them is required.
On the surface the Defence White Paper might appear to be only another incremental step from the original Strategic Defence Review, but taken together with similar steps over the past six years, it could lead to profound changes in the Armed Forces and their relationship with political decision makers. The existing structures for decision making may not be capable of supporting the rapid and politicised pressures of effects-based operations in the future.
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