Understanding French Defense Cooperation in Africa

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In 2008 France released its first defense white paper since 1994. In it, France outlined the purpose of its security – defense cooperation mission was to develop the capacity of its partner nations to respond to crises and support peacekeeping operations led by regional or sub-regional organizations. It further defined its goals for security cooperation efforts in Africa in its 2013 white paper – “Support for the establishment of a collective security architecture in Africa is a priority of France’s cooperation and development policy.” In 2014, the chief of the DSCD further outlined the change in France’s approach to defense – security cooperation as “Structural defense cooperation in France has traditionally taken a bilateral approach: advice to the country’s senior civil and military authorities, training of senior staff, and specific technical training, for example in the area of scientific and technical police. In recent years, it has been associated with a multilateral approach, particularly through the regional schools with a regional vocation (ENVR), which train students from several African countries, even from the whole continent.”

Collaboration between the U.S. and France’s operational efforts are increasing in Africa; through an exchange of liaison officers, staff talks, and participation in regular multilateral planning groups. However, security cooperation/defense cooperation efforts are minimally integrated, and only at the embassy level, amongst Security Cooperation Officers (SCO), or at the Joint Staff and Combatant Command General Officer and Liaison Officer levels. A few of the J5 planners are communicating together, but overall none of the G5 planners and action officers are working together, yet. The purpose of this blog is to provide OSCs, planners, and action officers an understanding of French Defense Cooperation in hopes that it will assist them in working more with their French counterparts to synchronize the United States and French efforts in Africa.

The United States executes Security Cooperation through USAFRICOM and Security Assistance through the Department of State’s African Affairs and Political / Military Bureaus. Of the 53 countries in USAFRICOM’s area of responsibility, it conducts Security Cooperation and Security Assistance with 48 of the 53 African partners and has Defense Attaches that cover all 53 countries. USAFRICOM does not have defense or security cooperation agreements with any African countries in comparison to the accords France signs with its African partners. However, it does have many information sharing, a status of forces, and acquisition and cross-sharing agreements. It does sign some Memorandum of Agreements, but they are mostly overly non-committal in comparison to the French. The Joint Staff, through the National Guard Bureau, has 14 State Partnership Program agreements with African partners.

The United States contributed hundreds of millions in Foreign Military Financing, several more millions towards International Military Education Training (IMET), and even more hundreds of millions towards Peacekeeping Operations in Africa. The United States maintains one permanent military base in Djibouti and several contingency locations. The United States has no long-term (more than one year) embedded military advisors in Africa but does have a few civilian contractors integrated at the executive levels to advise senior leaders in a couple of countries. The United States has 56 military observers in United Nations missions in Africa but does not contribute any troops to UN missions. The United States is the most significant security cooperation provider in Africa when comparing sheer monetary numbers.

In comparison, France has 11 defense agreements, 17 Cooperation Agreements and 32 Defense Attaches in Africa. These agreements cover short, mid, and long-term timelines, and are executed by 65 military Cooperants and 27 police experts. Some of these Cooperants are embedded in the partner nation’s military academies, others in the 15 regionally-oriented schools or the five peacekeeping training centers (Ethiopia, Ghana, Kenya, Mali, Benin). France has four permanent bases in Africa (Senegal, Cote d’Ivoire, Gabon, and Djibouti) and contingency locations throughout the 26 Francophone countries in Africa. France has 815 military members in United Nations missions (most of which are not in Africa, but in Lebanon). France executes security and defense cooperation through its Ministry of Foreign Affairs, and military assistance through its Joint Staff Headquarters in Paris, France.

French Operational Deployments

Operational Deployments of French Forces 201704

French Defense Budget Decreases

French budget

Combining the United States’ and France’s contributions to African militaries it becomes clear that France and the U.S. are the most significant military partners in Africa. The main difference between the two are: 1) France invests more with its personnel and less with equipment; 2) the United States (USAFRICOM) covers the entire continent whereas France focuses mainly on West, Central, and Africa Indian Ocean Islands, or areas aligned with its colonial past; and lastly, 3) three of the current 15 United Nations mission are in prior French Colonies.

Structural and Operational

France’s security – defense cooperation efforts fall into two broad categories: structural and operational. The structural category has a long-term planning horizon of five to ten years and includes activities such as building a military academy or a demining unit (building partnership capacity). The Directorate of Cooperation of Security and Defense (DCSD), under the Ministry of Foreign and European Affairs, executes these programs through the Defense Attaché assigned to the partner nation and by embedded trainers and advisors, most of which are called Cooperants. The operational category falls under their Ministry of Defense and includes activities such as peacekeeping pre-deployment training and short-term police and border security training events. It also includes military assistance activities such as Operation Barkhane, the G5 Sahel initiative, and any advise/assist/accompany missions with partner nations.

The French system is similar to the United States as depicted below:

U.S. DoD DSCA = French DoD DGA

U.S. DoS Pol/Mil & Africa Bureau = French MFA and DCSD

U.S. DoD Joint Staff and Combatant Commands = French Joint Staff

French Operations Overall

The Directorate of Cooperation of Security and Defense (DCSD)

C3_YjjdWYAAIRvfThe Directorate of Cooperation of Security and Defense (DCSD) is an essential component of France’s diplomatic and development efforts in Africa. DCSD is of one of the sub-organizations in the Directorates-General of the Directorate-General for Political Affairs of the Ministry of Europe and Foreign Affairs (MEFA), within their Ministry of Foreign Affairs, which is the same as the United States Department of State. The DCSD is responsible for structural cooperation with foreign states in military, police and civil protection areas. It implements, at the request of partner countries, targeted actions of training, advising and material assistance (equipment and construction). This whole of cooperation approach offers accomplishable solutions, combining in particular: the implementation of adapted training courses and the deployment of its necessary equipment; the creation of professional military education schools and the development of professional training; and targeted projects and the insertion of advisors at the appropriate level. Organizing DCSD under the MFA reflects the lead role the MFA plays in the bilateral and multilateral relations in the security/defense and security/development areas.

DCSD’s concept of security/defense cooperation includes areas such as military, police, civil protection (firefighters, prison, border patrol, civil work programs, etc.). Security focuses on securing the country internally (Ministry of Interior), and Defense focuses on defending (Ministry of Defense) against external forces. DCSD comprises diplomats, military, police and civil protection experts. It consists of more than 300 personnel in 140 countries, with its primary focus on Africa. Along the security/defense cooperation paradigm, DCSD splits its forces in each partner nation through two different Attaches: The Defense Attaché and the Interior Attaché. These are comparable to the U.S. Defense Attaché, who executes Security Cooperation for the Department of Defense and Security Assistance for the Department of State; and the U.S. Embassy Regional Security Officer (RSO) who implements security assistance for the Department of State for police and border forces.

The French deploy their security and defense cooperation differently based upon the region or area of the world it is focused on. In sub-Saharan Africa, their projects are focused on partnering with the partner nation, preferring to include a regional or sub-regional approach, and executed through professional military education (PME) schools and peacekeeping training centers. These centers focus on United Nations peacekeeping training, specific military capabilities (Infantry, Engineer, Medical), or Gendarmerie (Police) academies. Initially open to mainly Francophone countries, they have now expanded to Anglophone and Lusophone countries. The French projects in North Africa and the Middle East are focused primarily to stabilize internal security issues.

The Directorate of Cooperation of Security and Defense (DCSD) Mission

“To contribute to international stability by strengthening the military and security capabilities of partner states, the Directorate for Security and Defense Cooperation (DCSD) conducts:

– the training of military or internal security and civil security personnel abroad or in France;

– the establishment of senior French officers to senior political, military or civilian authorities

– to provide them with strategic advice and guidance to develop structural reforms;

– the deployment of an audit, implementation support and evaluation missions conducted by French specialists in technical and conceptual expertise (such as the development of employment doctrines) in areas related to the restructuring of the armed forces and internal and civil security.

For 2017, the main lines of effort of the DCSD will be:

– Priority support to the fight against terrorism in the identified threat basins (Sahel-
Saharan, North Africa and Near East);

– Pursue the implementation of the decisions of the Elysée Summit for peace and security in Africa (Integrated border management and securing the Sahelian zone, maritime security in the Gulf of Guinea, support for the African Peace and Security Architecture);

– Targeted export support to selected key states (Gulf countries, Malaysia, Brazil, Morocco);

– Enlargement of countries benefiting from structural cooperation (Asia and emerging countries);

– Research for innovative financing, for the benefit of actions led by the DCSD, through the development of multilateral and public/private partnerships.

Cooperants (Embedded Advisors)

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Cooperants are more and more representative of DCSD’s portfolio. These advisors come at the request of the partner nation and are usually a single embed for a defined amount of time, or multiple embeds over a duration of time. These advisors can be military, gendarmerie or police to the generating force or executive direction level (the Prime Ministry, the Ministry of Defense, the General Staff, the Ministry of the Interior, etc.). These technical experts evaluate all or part of the security and defense areas and analyze the fundamental issues the partner nation is experiencing. Then they are challenged with providing solutions that are adapted to the partner nation. These advisors live in the country for two or three years, with their families, and wear the rank and uniform of the partner nation. The only comparison for the United States is the DSCA Ministry of Defense Advisor (MoDA) program, which there is one advisor in Botswana.

Cooperation with International Organizations

The DCSD also conducts military cooperation activities with international organizations that are regional in scope. Permanent advisers are assigned to African regional or sub-regional organizations such as the African Union (AU), Economic Community of Central African States (ECCAS), Economic Community of West African States (ECOWAS), Intergovernmental Authority on Development (IGAD), and African Standby Forces such as the East Africa Standby Force (EASFCOM). These advisors are mainly assigned to the Executive Secretaries or their deputies in charge of political, defense and security affairs.

In every African Regional Economic Community, pre-deployed French forces in Senegal, Cote d’Ivoire, Gabon, and Djibouti are commanded by a Brigadier General. They are responsible for the pre-positioned forces in the host nation as well as regional coordination with African Standby forces (ASF) in their region. In close cooperation with the defense attachés, their staff prepares a yearly plan of cooperation that is approved by the Joint Staff in Paris. The DCSD has also developed projects in multinational cooperation, including the Peacekeeping School (EMP) in Bamako, Mali or the Ouidah Humanitarian Demining Center in Benin (CPADD). Multinational cooperation partners for these peacekeeping centers include Argentina, Belgium, Benin, Brazil, Canada, Denmark, Japan, Mali, the Netherlands, the United Kingdom, Switzerland, and the USA.

Location of Military Cooperants
(defense + gendarmerie + civil protection) in the world on 12/31/2013
Total: 278 (229 + 41 + 8) with 189 Officers and 89 Non-Commissioned Officers

Screen Shot 2017-10-17 at 1.04.46 PM

Ecole militaire de spécialisation de l’ Outre-Mer et de l’étranger (ENSOME)

All French Cooperants, OSC Chiefs, Defense Attaches, military advisors, etc. go through EMSOME for training before deploying overseas.  Think DISCS, JMAS, and SFAB training combined: http://www.defense.gouv.fr/terre/l-armee-de-terre/les-grands-commandeurs/commandement-des-forces-terrestres/etat-major-de-specialisation-de-l-outre-mer-et-de-l-etranger

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Ecoles Nationales a Vocation Regionale (ENVR)

“The concept of ENVR enables, after a bilateral agreement, to help a country to develop a specialized military school which is opened to other countries in the region. The host country provides location, buildings, resources, and supervision necessary for the general running of the school. France provides technical support and expertise in training curricula. In return, the host country agrees that the school welcomes students from other African countries whose transportation and training fees are sustained by France.”

On average, ENVRs train 2,500 trainees each year in areas as varied as peacekeeping operations, internal security, health, demining, administration, offshore action or more recently, civil protection. They have become an essential element of French cooperation policy in Africa. Since 1997, more than 20,000 trainees were trained in these schools supported by France.

Location of ENVR in sub-Saharan Africa
Benin – Development Center for Demining and Depollution Techniques (Ouidah) CPADD
Burkina Faso – Ecole Militaire Technique of Ouagadougou EMTO
Burkina Faso -Higher Institute for Civil Protection Studies (Ouagadougou) ISEPC
Cameroon – International School of War (Yaoundé) ESIG
Cameroon -International School of Security Forces (Awaé) EIFORCES
Congo – School of Engineering-Works of Brazzaville EGT
Gabon – Libreville General Staff School MLEE
Gabon – Melen Health Service Application School EASSM
Mali – Bamako Peacekeeping School (international status) EMP
Mali – Military School of Administration (Koulikoro) EMA
Equatorial Guinea – Naval School of Bata IN
Niger – Niamey Paramedical Staff School EPPAN
Togo – School of the Health Service of Lomé ESSAL
Republic of Côte d’Ivoire – Institute for Interregional Maritime Security (international status) ISMI
Senegal – School of Infantry Application (Thiès) EAI
Senegal – Gendarmerie Officers Application Course (Ouakam) EOGN

ENVR info sheet

ENVR info sheet 2

Language Training

The Directorate of Security and Defense Cooperation (DCSD) develops cooperation for French and non-French-speaking countries through access to various training programs in France and abroad. The Directorate coordinates French language learning programs, with the goal of providing access to national, regional schools (ENVRs) or French military and security schools, and to allow better integration in peacekeeping operations. Each year, DCSD sends teachers from the National Center for Academic and Educational Works (CNOUS) and the General Association of Retired Practitioners (AGIR) to instruct French as a second language.

The objective is for the student to reach a level of language skills to attend an ENVR or French military and security schools. This training allows for the integration into United Nations peacekeeping operations, of which three of eight missions in Africa are in French-speaking countries. More than 35,000 military and police officers around the world benefit from a training program funded by the DCSD. France regularly highlights the need for French language training of peacekeepers to Francophone countries to be useful in U.N. peacekeeping missions.

Operational Cooperation

“Pursuing synchronization between structural and operational efforts is always a priority. In particular, the principle of setting up operational cooperation centers, which can substitute the troops during the phases of crisis resolution and is linked with our structural cooperation arrangements, is particularly interesting (Cote d’Ivoire, Afghanistan, Central African Republic).”

RECAMP (think DOS PKO)

RECAMP

Through RECAMP France supports African nations initiatives to assume ownership of crisis prevention; participate in United Nations Peacekeeping missions, and to strengthen local defense capabilities. This strategic approach is based on three lines of effort: 1) education and training, 2) logistics and 3) operational support. Furthermore, to conduct the RECAMP program, France set up several depos as a supply reserve where pre-deployed equipment is warehoused until required by their African partners. Use of the depo has two objectives: storage of equipment to deliver equipment at a later date, and facilitate RECAMP operational training conducted by its pre-deployed forces.

Military Operational Assistance / Assistance Militaire Operational (AMO)
(US lingo – SFA)

How does the French Army execute Security Force Assistance? For their Army, there is a four-stage approach to military assistance. These are resourced through the regionally assigned forces in the four pre-positioned bases in Africa but also resourced through units from the French mainland.

1) Basic Courses: Technical Instruction Detachments (DIT- Détachements d’instruction technique) – These are three-day to three-week courses similar to our M2M events, E-IMET, or SFA courses done by contractors.

2) Long Term Courses: Operational Instruction Detachment (DIO – Détachement d’Instruction Opérationnelle) – These are longer termed courses covering multiple branches of service. They are not permanent and are similar to our SFA/BPC train and equip programs.

3) Collective Training: Operational Military Assistance Detachment (DAMO – Détachement Opérationnel d’Aide Militaire) – These are platoon or company level training courses primarily through the RECAMP program, or similar to our SFA/BPC train and equip programs. However, these tend to be longer (over a year) and include a permanent staff, which is augmented with TDYers for 3 to 4 months.

4) Operations / Combat: Much like our Special Forces the French Forces also provide advisors who advise, assist, and accompany foreign forces.

The French recently unclassified a lot of their doctrine, including their OMA doctrine.

OMA Doctrine

Cooperation Agreements

The French Cooperation Agreement is a somewhat new (last ten years +/-) and comprises of a technical and legal instrument intended to develop and formalize the connection between them and their partner nation. It is similar to our MCC but for Security Cooperation. In my opinion, it is the fundamental agreement that the United States should mirror in Africa.

The Agreement is systematically structured into four components:

1) mutual interests of the two parties
2) the DCSD and the partner
3) the general principles of the partnership
4) it highlights the framework of the agreement and motivations each country has for the agreement

It also specifies the contributions of signing parties:

1) clarifies legal aspects for each partner and establishes the duration of the agreement (a minimum of three years)
2) outlines a way to highlight, discuss and solve disputes

The Cooperation Agreement has the following four objectives:

1) achieve the goals identified by the Ministry of Foreign Affairs and International Development;
2) formalize the pre-existing connections regarding information/intelligence sharing: military sales opportunities that may benefit the partner and opportunities for cooperation that benefit DCSD; increase France’s influence in the countries concerned and international organizations (UN, European Union);
3) complete actions agreed to for specific programs/project briefs

These programs/project briefs are the second component of the agreement. They explain on a case-by-case basis specific partnership actions: organization of a seminar day, action in one of the training centers initiated by the DCSD, joint drafting of a monthly information newsletter, and joint participation in a priority program. These briefs are signed by the Ministry of Foreign Affairs and Development and the host nation.

The third component of the agreement is an ethics charter found in the annex and indicates all the main fundamental principles that should be observed, such as respecting human rights, the outreach of France’s expertise and their concern for always acting lawfully.

Funding

In 2013 France allocated 94.8 million Euros towards defense, internal security and civil protection programs in Africa. In comparison, the DOS and DOD executed over $700 million. However, France committed over 100 permanent personnel to train and advise forces in West and Central Africa, and the United States engaged no permanent staff in all of Africa.

Conclusion

The French do two things better in Africa than the United States in reference to Security Cooperation: 1) They commit human more than financial capital – they understand that change in Africa requires relationships and time; 2) They engage in long-term agreements in Africa and commit to building defense institutions. They choose the most capable candidate, not the most connected.

The United States does one thing better than the French in Africa in reference to Security Cooperation: 1) We bring our lessons learned from multiple wars – Africans see Americans as the premier fighters in the world. We don’t talk down to them, we see them as a partner military – we have no colonial perspective to hinder us.

The time has never been better for Franco-American cooperation improvements in Africa. France’s military is now consumed by Mali – it is their Afghanistan, but yet they are still expanding into Anglophone and Lusophone countries in Africa. The issue with synchronizing our efforts is with how our MFA / DOS funding cycles are mismatched. Achieving full synchronization with the French MFA DCSD and their Defense Attaches, DOS AA and PM Bureau, along with USAFRICOM and its Defense Attaches is impossible. Simply, there are too many people and too many policy wonks who will overcomplicate the situations. Achieving Security Cooperation synchronization in Africa must be a solely military affairs strategy to streamline, plan accordingly, and set achievable effects. If our two nation’s military planners can achieve unity of effort in our long-term theater campaign plans, then we could present a common, synchronized front to our policymakers and funding authorities.

Sources used for this blog

“Défense Et Sécurité Nationale LE LIVRE BLANC.” La Documentation Francaise. June 2008. Accessed October 17, 2016. http://www.ladocumentationfrancaise.fr/var/storage/rapports-publics/084000341.pdf.

Compte rendu, Commission de la défense nationale et des forces armées. Audition de l’amiral Marin Gillier, directeur de la coopération de sécurité et de défense (DCSD), sur la coopération de défense en Afrique. Mercredi, 5 février 2014 Séance de 9 heures 30, Compte rendu n° 33, SESSION ORDINAIRE DE 2013-2014, Présidence
de Mme Patricia Adam, présidente

Unclassified presentation by French Forces to U.S. Military members October 2017, Paris, France.

République Française, Budget Général Mission Ministérielle Projets Annuels De Performances, Annexe Au Projet De Loi De Finances Pour Action Extérieure De L’état 2017

Partenaires sécurité defense, Revue de la coopération de sécurité et de défense DCSD : bilan 2013 et perspectives

https://www.diplomatie.gouv.fr/fr/politique-etrangere-de-la-france/defense-et-securite/cooperation-de-securite-et-de-defense/les-ecoles-nationales-a-vocation-regionale/

Partenaires sécurité défense Revue de la coopération de sécurité et de défense la réforme des systèmes de sécurité, March 2016.

Other helpful French Defense Cooperation professional materials

Doctrine magazine

DCSD Magazine 2

French Doctrine

One Comment

  1. Very insightful. Suggests that more liaison activity could be done at the GCC level to support SFA synch on the ground. I wonder if there are any permanent systems in place at any OSCs for regular meetings with P3 partners at the country team level. Keep the interesting topics coming!

    Like

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