Luxembourg Defence Guidelines
for 2025 and Beyond

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Defence Directorate

Date of publication:

December 2017

Luxembourg Armed Forces

Information and Press Department

NATOÉtienne Schneider
Deputy Prime Minister
Minister of Defence

Dear Reader,

I am pleased to present to you the Luxembourg Defence Guidelines for 2025 and Beyond.
This is the first document of its kind in the field of national defence policy. The intention of this ambitious vision for Luxembourg is to set out a coherent policy as a framework for implementing an increasing national defence effort. Luxembourg is acountry open to the world and integrated with the international community, in which it plays a recognized role. Luxembourg’s
election to a non-permanent member seat on the United Nations Security Council for the term 2013-2014 testifies to therecognition of our country’s contribution to international security. But such recognition also entails responsibilities and a
resolute commitment to contribute to the collective ability to address threats to our security. Luxembourg has made concretecommitments towards strengthening European defence within both the European Union (EU) and the North Atlantic Treaty
Organization (NATO). Luxembourg intends to honour these commitments and has defined its contribution to common defencein accordance with its interests and objectives.
That contribution is described in these Guidelines. The Government intends to deliver an enhanced, visible, relevant andreliable defence effort. We will create new defence structures in Luxembourg that meet the criteria of military relevance but
also our national crisis management requirements. We will equip our armed forces with modern, technological capabilities
to service the aspirations of an evolving, open, dynamic and generous country. Emphasis will be placed on human resources,
national public and private-sector know-how and on strengthening our engagement with our neighbour countries, in particular those of the BENELUX, who are our key partners in the area of defence policy.
Luxembourg and its population wish to continue contributing to national and international security. We have benefited fromthe security that has prevailed on the European continent since the end of the Second World War. With this new vision for
Luxembourg‘s defence, we intend to consolidate that security for ourselves, our partners and future generations.
I wish you pleasant reading.

Étienne Schneider

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Table des matières
Executive Summary

06

Introduction

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I. Context of Luxembourg‘s defence policy

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A. Defending Luxembourg – why does Luxembourg need defence?

12

B. Interests, objectives, and principles of the Luxembourg Defence

14a)Essential security interests

14b)Strategic objectives

14c)

Guiding principles

16

C. The Luxembourg Defence in a changing strategic environment

a)

b)

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Evolution of the institutional framework

18(1) Luxembourg in the European Union (EU)19(2) Luxembourg in the North Atlantic Treaty Organization (NATO)20

Evolution of Luxembourg‘s defence policy

21II. A defence that mirrors the country
A. Evolution of the Luxembourg Defence structures framework

24
26

a)

National level of ambition

26b)Planning

32c)Budgetary framework

34d)Defence structures

35e)

Legislative and regulatory framework

36

B. Evolution of the Luxembourg Defence beyond 2025

37

III.

a)

Main lines of capability development

37b)

The Luxembourg Armed Forces

44c)

Human resources

45

48

Conclusions

52

		 Annexes

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Executive Summary
The Luxembourg Defence Guidelines for 2025+ establish theframework for the development of Luxembourg’s Defence
and describe the policy directions approved by the Government for the coming years.
In setting forth the interests and objectives Luxembourg will
pursue in the area of defence policy, these Guidelines reassert the relevance, credibility and visibility of the national
defence effort in the context of the Grand Duchy’s international relations.
Luxembourg today is a modern, dynamic, open and supportive country capable of contributing to the response to present-day challenges. Our country has benefited from thesecurity enjoyed on the European continent thanks to themajor role played by NATO1 and the European Union, and iscommitted to and supportive of a multilateralism foundedon shared principles and values.
The relevance and credibility of the defence effort are important not only in the context of NATO and the transatlantic
relationship but also within the EU, where Luxembourg
wishes to remain in the lead group as regards European
integration.
The unstable international security environment has brought
about changes in international security and defence policies.
Like the world around it, Luxembourg’s Defence is adapting.
These Guidelines chart the course towards a modernizationof Luxembourg’s defence organization and army.

The men and women serving the cause of Luxembourg’s
Defence are at the heart of this ambitious modernization.
Consequently, this effort will entail increased investment
in human resources, and also in relevant and effective
equipment. The enhanced defence effort must involve amore diverse range of opportunities for defence personnel.
To chart this course, the Luxembourg Defence Guidelines
for 2025+ outline the following key directions and objectives:- confirm the 2014 commitment to increase Luxembourg’s
defence effort by 50% up until 2020 and to continue
increasing the defence effort beyond 2020;- develop the army, increasing its involvement in the
defence effort by allocating to it a greater share of investments and creating more diverse and more technology-focused specializations, whilst not forsaking theimportance of its social role;- modernize ISR (Intelligence, Surveillance, Reconnaissance)
capabilities through investment in new reconnaissancetechnologies (RPAS), as an extension of the traditional reconnaissance mission of the Luxembourg Armed Forces;- develop considerably the air component, with the acquisition of new capabilities and platforms for strategic lift,
medical evacuation and maritime aerial surveillance;
1

To assist the reader, a glossary is provided at the end of this document

07- develop a Government air hub at Findel airport;- implement a military medicine project involving, in particular, operationally deployable medical teams specializedin trauma surgery and infectious diseases, that will support
Luxembourg hospitals when not deployed, together withincreased bed capacity, incorporated in an existing hospital
facility, for use in times of crisis;- continue developing expertise and capabilities in the future oriented areas of “space” and “cyber defence” in order to meet the need for surveillance, communications anddata link capabilities, but also the need for data storage andanalysis capabilities, and so as to enhance the safety of ourmilitary personnel, particularly on deployments;- develop a strategy for industry, innovation and researchin order to involve Luxembourg’s economic fabric in defence
capability building;- develop a recruitment strategy to meet the requirement
for adequate human resources with suitable profiles,
particularly specialists capable of developing and implementing the capabilities of the defence organization andof the Luxembourg Armed Forces;- conduct a study on establishing a national service ofavailability enabling skilled civilians to be mobilized in theevent of a crisis so as to strengthen the resilience of theState and its departments;- establish a national capability-development agency
tasked with developing and implementing major investment projects.
For these new directions, the Luxembourg Defence will ensure that capabilities of high added value are acquired in
the recognized priority capability areas, that each projectis considered in the light of its potential relevance for Luxembourg society, and will establish durable structuresthat anchor defence in Luxembourg’s society and allow
better planning of our defence effort. In addition, the Luxembourg Defence will take particular care to tailor its approach to suit the frameworks of bilateral and multinational cooperation and partnerships in the areas of capability
building and deployment.
These Guidelines will be detailed in a more concrete planningdocument, a Defence Master Plan, to be updated annually.

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Introduction
The Luxembourg Defence Policy Guidelines for 2025+ is thefirst public, national policy document defining long-term
defence policy directions for Luxembourg. It describes
Luxembourg’s defence policy, the context and frameworkin which it is placed, Luxembourg’s strategic interests andobjectives, its available resources and the manner in which
they are employed, and how the Luxembourg Defence isdestined to evolve over the coming years.
Luxembourg has a military tradition which led to the introduction of compulsory military service in 1944, and, in 1967,
to the organization of Luxembourg’s army as we know ittoday. National interests and Luxembourg’s defence policy,of which the army is a major tool, have evolved in line withperiods of peace and crisis, and national and international
requirements.
Today, Luxembourg’s Defence is at a turning point. The international situation, commitments made in the United Nations(UN), the European Union (EU) and NATO, and the desire tohave an army that, in its modernity, reliability, openness anddynamism, is a reflection of our country, justify a change inpriorities for Luxembourg’s Defence and army.
In this context, several factors play a key role: the structuresof the Luxembourg Defence (the Defence Directorate and thearmy), the changes in recruitment and the human resources
profiles needed to implement the defence policy, the choiceof investments (i.e. military capabilities) and preferred areasof action, the development of a Defence Technological andIndustrial Base both within the EU and in Luxembourg, andthe evolution of Luxembourg’s defence effort.
Nowadays, rare are those countries that are able to influence the course of events alone, be it in terms of security
and defence policy or in other areas. Luxembourg is no exception, and all the more so given the size of our country
and the limited scale of our resources and defence structures. However, Luxembourg has always been able to turnits situation into a strength.

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It succeeds in defending its national interests by enlisting
the support of other nations, forging partnerships and leveraging its ability to influence major issues. Cooperating withpartners and maintaining a calm and stable national andinternational environment has always been a priority for
Luxembourg.
These Guidelines explain why Luxembourg needs to be areliable player, both relevant and visible in the field ofdefence, and lay down the overall directions for the future. They provide a strategic outlook designed to best
serve our interests in the pursuit of our long-term foreign
policy objectives and of our national and international security policy objectives. A strategic approach guided byclearly defined priorities and objectives enables opportunities to be recognized and seized the moment they arise.
These directions will in due course be given concrete expression in a separate document, the Defence Master Plan,
which will determine how these Guidelines are to be implemented. The Master Plan will serve as a time line and a toolfor implementing the Guidelines, and will be regularly updated. It will be drawn up and supervised by the Defence Directorate, in close cooperation with the Luxembourg army,
under the authority of the Minister of Defence. The Plan will
enable resource allocation, progress in implementation of
objectives, actual results achieved and real progression ofprojects to be monitored.
These two documents will facilitate democratic scrutinyof defence policy by setting out, in an entirely transparent
manner, the principles and objectives of that policy. They
constitute the baseline for monitoring the utilization of defence resources, the missions of the army, the investment
policy and the capability priorities. The Guidelines will alsoenable our interests to be better promoted in the institutionsof which Luxembourg is a member and will explain how theGrand Duchy intends to meet its solidarity-oriented policy
commitments as a credible player at the international level.

I. Context of Luxembourg’s
defence policy

Today, the European and transatlantic security order isbeing challenged. The norms of international law are disputed, even flouted. Europe is facing a huge migration crisis compounded by a humanitarian tragedy. The threat ofradical and violent extremism is spreading, and terrorism
plagues even Luxembourg’s neighbour countries. Luxembourg is spared neither the threat of extremism nor theattraction of violent ideologies for young people struggling
to find their way. This scourge, which has developed on the
periphery of Europe in the wake of disintegrating regional
and local orders, is capable of striking at the heart of oursocieties. Potentially just as dangerous, emerging threatssuch as cyber attacks and hybrid threats (which often havea cyber component) are less direct and sometimes lessvisible, making it very difficult to identify the assailant andproduce a response. Faced with these threats, our societies
must harden their resilience, i.e. their ability to withstand all
kinds of external attacks and blows, particularly in asymmetrical form, and to guarantee that the State and its public services will continue to function. The answers to thesecomplex challenges can only be effective if they derive fromholistic, interdepartmental, multidisciplinary and international approaches.

A. Defending Luxembourg
Luxembourg’s geographical location, territorial integrity andsize have always influenced our country’s history and foreignand security policy. Luxembourg cannot isolate itself fromthe international arena, nor has it ever wished to. Our country has opted for peace and effective multilateralism. Luxembourg’s sovereignty is guaranteed by the absolute observance– by all – of the rules governing relations between States. The
security and defence of our territory are dependent upon the
security of our neighbours, of the EU and of NATO, and uponstability in the world.
In the age of globalization, Luxembourg’s vital interests
cannot be defended at our immediate borders only. Its
economic prosperity and security interests are both dependent upon free and safe access – assured by international law – to resources and goods common to all nations(known as global commons). For confirmation, one needs
only think of space, which is essential for our space industry,of access to international waterways, which is fundamental for our maritime flag, of energy supplies, or indeed oftrade exchange, climate, airspace, cyberspace; all of these
domains are vital for our security and essential for the proper functioning of a knowledge-based and services economy
that is dynamic and open to the world.

On account of its political, economic, cultural and social
openness, Luxembourg is vulnerable and exposed to therisks affecting its external environment. Luxembourg cannot single-handedly preserve its territorial integrity, thesafety of its population, its prosperity, its independence andits sovereignty. International developments and the many12

elements of instability they generate often have direct or indirect impacts on our security, our society and our economy.
It is essential for Luxembourg to closely monitor, influence
and adapt to such changes.

es and equipment needed to contribute to defending our
security interests and to successfully accomplish national
and international missions. Luxembourg must make its due
contribution to collective security.

To protect its security interests, Luxembourg has chosen tohave an army and to integrate into multilateral structures.

Luxembourg thus supports national and international peaceand stability efforts in a holistic and coherent approachcombining diplomacy, development cooperation and defence (known as the “3D approach”). While the Luxembourg
Defence, in particular the army, provides territorial defence,
it is also a component of Luxembourg’s foreign policy which,in conjunction with traditional diplomacy and development
cooperation policy, contributes to conflict prevention andpost-conflict reconstruction. For this reason, Luxembourg
attaches particular importance to modes of action that are
not exclusively military, and contributes to training or equipments that enable other countries to provide their own security, for instance in the context of the EU “Capacity Building in support of Security and Development” programme
and NATO’s “Projecting Stability” initiative.

The preservation of a rules-based international order is avital security interest for Luxembourg. Luxembourg is oneof the founding members of the 20th century’s major multilateral institutions, in particular the United Nations, theNorth Atlantic Treaty Organization, the European Unionand the Organization for Security and Cooperation in Europe. This gives it not only great pride but also an affirmed
sense of special responsibility when it comes to defending
the founding values of these institutions. These multilateral fora provide the formal framework and the necessary
assurances to protect our vital interests, in particular our
economic and security interests, and justify taking decisions
that commit our country.
In order to assert its interests, to have its voice heard and toenjoy the collective security assured in particular by NATO,
Luxembourg must meet the commitments it has enteredinto in the international organizations, bear its share of responsibility in the efforts and risks inherent in collective andcommon defence, and be recognized as a partner making
relevant contributions. The goal of the defence policy is also
to ensure that Luxembourg’s army has the human resourc-

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B. The interests, objectives, andprinciples of the Luxembourg
Defence
The Luxembourg Defence contributes to the implementationof the Grand Duchy’s foreign and security policy. It enables
the State to exercise sovereign functions in the areas of security and defence, in pursuance of Luxembourg’s international
commitments. Luxembourg’s defence policy is articulatedaround essential security interests and guiding principles,and pursues a number of fundamental objectives.
a. Essential security interests
The Luxembourg Defence helps maintain and strengthen
institutions which promote the stability, prosperity and security of States and the respect of our values. To that end,
Luxembourg promotes in particular:- the rule of law and the observance of internationallaw, of human rights and fundamental freedoms andof the principles of good governance;- collaborative approaches in the context of an effective multilateral system;- the defence of our values on an international level;- a strong transatlantic link.

Luxembourg’s defence policy helps protect the essential
security interests and foundations of the living environment of the country and its population:- preserving Luxembourg’s territorial integrity, independence and sovereignty;- preserving the population’s freedom and safety in astable, open and dynamic society;- protecting the foundations of Luxembourg’s prosperity and economic & strategic supply security;- guaranteeing ongoing functioning of the State and of
public services;- decision-making autonomy;- strengthening institutions and international rules.

b. Strategic objectives
The Luxembourg Defence pursues a number of strategic
objectives which are also commitments in the context of its
active, solidarity-oriented participation in multilateral structures such as the European Union and NATO.

1. Providing visible contributions of high added value tocollective and common defence and to crisis-management
missions and stability-building efforts.
Luxembourg honours its international commitments
through solidarity-focused contributions to the equitable
sharing of operational risks, by engaging its armed forces
and increasing its defence effort. In addition to deploying
its armed forces, Luxembourg will also contribute to these
operational commitments by developing and offering access to high-value-added capabilities in niches of excellence, in particular via the development of a national Defence Technological and Industrial Base.

2. Contributing, in solidarity, to defence effort burden-sharing.
Luxembourg assumes its responsibilities as a NATO Ally
and will continue to enhance its contribution to burden
sharing, in particular by gradually increasing its defence
effort. At the NATO Summit held in Wales in 2014, Luxembourg committed, in a first stage, to achieving a defence
effort target equivalent to 0.6% of GDP in 2020. That trend
is to continue beyond 2020. Besides the financial criteria,
Luxembourg promotes a broader view of the defence andsecurity effort: qualitative aspects and policies other thandefence alone must be taken into account. European cooperation initiatives in the area of equipment must also be
promoted.

5. Promoting and federating national competencies so as todevelop a competitive technological and industrial base capable of contributing to NATO and EU capability requirements.
The existence of a technological and industrial base that iscompetitive on the international market is a central, strategic element enabling Luxembourg, the EU Member States
and the Allies to assume their obligations in the long term.
Developing a national Defence Technological and Industrial
Base is a useful means of contributing to military capability
building and decision-making autonomy in line with policy
choices made in the area of crisis management. Those capabilities and services – particularly in the areas of information gathering and data transmission, storage, processing
and analysis – form moreover part of the critical infrastructure that must be protected against hostile action.

3. Fostering coherent management of the full range ofcrisis-prevention and crisis-response tools.
Domestic and external security issues are linked and thethreats are complex, such that a coordinated approach tosecurity issues is essential. Luxembourg supports a consistent and integrated approach that promotes democracy,
sustainable development and prosperity to combat factorsof instability. This requires coherent implementation of
a set of tools not fully available to any single player andwhich touch on areas other than just defence (development
aid, environment, etc.).

Various forms of partnership with the private sector enable
new capabilities to be developed using innovative methods,
generally in the area of ‘dual-use’ (civilian and military) capabilities. This approach also involves promoting researchand development for emerging niches of excellence. To
this end, a strategy aiming to establish a national technology, innovation and research base will be developed.

4. Decision-making autonomy.
Luxembourg seeks to develop capabilities that it fully controls, over which it will have assured availability and security, that will remain autonomous and that will afford
visibility of Luxembourg’s security policy approach. Autonomy in decision-making allows Luxembourg to honour its
commitments and to engage its support and sustainment
capabilities while respecting its values and priorities.

6. Defence in tune with national realities.
The defence organization and the armed forces are an integral
part of Luxembourg society. Luxembourg’s defence policy must
promote an evolution of the army and of the defence investment effort that reflects Luxembourg society – open, multicultural, dynamic, modern, technological and solidarity-oriented.

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c. Guiding principles
The conduct of the Luxembourg Defence is informed by aset of guiding principles:• Defence that is relevant and visible in the context ofa coherent foreign policy
The usefulness of the defence organization and thearmed forces hinges on them having at their disposal
a range of operational capabilities that are both deployable and actually deployed to exert a military effort capable of defending Luxembourg’s security interests in the context of a coherent foreign and national& international security policy. Having a modern defence apparatus underpins Luxembourg as a reliableinternational partner. The capabilities available to the
Luxembourg Defence must cater for (1) contributions
to common and collective defence missions, (2) participation in crisis-management missions and in rapid

reaction groups in a sustained manner, (3) contributions to projecting stability in the context of the EU and
NATO, and (4) performance of national missions.
• Key partners
Luxembourg’s military forces and capabilities arealmost exclusively deployed in the context of multinational groups and incorporated into contingentsof our key partners (Germany, Belgium, France, The
Netherlands). Interaction with partners is consequently a main driver of defence development. Suchcooperation shapes and guides capability development and operational engagement, and requires interoperability of forces to be systematically taken into
account. In future, these partnerships are destined to
be further consolidated and deepened.

17• Operational risk sharing: leadership – skills – equipment– training
Personnel deployed by the are exposed to operational risks inherent to the engagement of militaryforces when options for resolving disputes by peaceful means have been exhausted. Observance of theprinciple of equitable sharing of risks requires forcesthat are instructed, equipped and trained to performtheir missions in the best possible conditions and inline with the political mandate for each operation. Interoperability with our partners is also a crucial factor for the effectiveness of our forces and the safetyof our military personnel. The Luxembourg Defence
will continue to invest in its personnel to ensure they
have the leadership, instruction, training, equipment
and protection needed to engage successfully.

• Flexibility and adaptability
The Luxembourg Defence must maintain a degree of
flexibility to react quickly to changing circumstances,
new threats and the emergence of new capability initiatives. Luxembourg must be able to respond to new
requests with respect to the niche areas of competence in which it excels. Its intent is to seize opportunities, asserting itself as a reliable and dynamic partner.

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C. The Luxembourg Defence in achanging international environment
The United Nations is the keystone of the international
structure whose purpose is to preserve lasting peace inthe world. The election of Luxembourg, on its first candidacy, to a non-permanent seat on the UN Security Council
for the term 2013-2014 enabled it to contribute actively tothis endeavour. Its election was a mark of confidence andrecognition, on the part of the international community, of
Luxembourg’s ability to promote international peace andsecurity. Above all, it is an illustration of the responsibility
that falls to our country in this area. Luxembourg has submitted a further candidacy for the term 2031-2032.
In addition to the United Nations, attachment to a strongtransatlantic link and commitment to a strong European defence within the European Union and NATO are fundamental
principles of Luxembourg’s security and defence policy. Geography, history and culture explain Luxembourg’s anchoring in the Euro-Atlantic community, of which we share not
only the values and interests but also the responsibilities forprotecting those values and interests on a scale beyond thepurely regional level. The presence on Luxembourg territoryof numerous European institutions, of NATO’s largest agency(NSPA – the NATO Support and Procurement Agency) and of
US defence infrastructure is tangible evidence of the recognition of Luxembourg’s international commitment.
Luxembourg acts with determination in concert with its
allies and partners, in particular in the context of the European Union and NATO, through active involvement in andcontributions to the efforts undertaken in those institutionalframeworks. Several factors underpin Luxembourg’s engagement at the international level:• the need for Europe to shoulder its security responsibilities to ensure stability in its area of interest, inparticular in connection with the implementation of
the new Global Strategy for security;• the need to contribute as an Ally to the modernizationof NATO’s collective defence capabilities (in particularwith a view to an effective deterrence policy), while atthe same time bolstering the resilience of our societies in the face of hybrid threats, and to meeting therequirement to share the burden equitably between
European and North American players;• the willingness to make concrete contributions (equipment, troops, training) to crisis management and toinitiatives aimed at projecting stability, using every
available security and development tool, to help contain instability factors before they result in the proliferation of transnational risks affecting our own security.
The Luxembourg Defence thus largely falls in with the priorities and commitments defined jointly within NATO andthe EU.

a. Evolution of the institutional framework
The European Union and the Alliance are facing unprecedented, complex challenges in an environment characterized by increasing unpredictability and uncertainty in which
populations are evidencing a degree of disenchantment withinternational institutions. Protecting the values and principles
on which these institutions are founded nowadays requires
concerted, determined, focused and measured action in order to preserve the benefits of an evolution that has brought
about a united, prosperous and peaceful Europe enjoyed by
500 million citizens..
In view of the changing international context, the member
nations of the Atlantic Alliance and the European Union
have embarked upon a process of adaptation and transformation, while ensuring close cooperation is maintained andavoiding duplication of their efforts. As an Ally and an EU
Member State, Luxembourg must also adapt and shoulder
its responsibilities in these organizations in solidarity.
The EU and NATO must leverage the fact that a majorityof the Allies are also EU Member States, sharing a very
similar geographic footprint and very similar security
challenges. Both organizations must intensify their cooperation in a coordinated, pragmatic and complementary
approach, particularly as regards hybrid threats, maritime
issues, cyber security, strategic communication, the defence industry and research, and exercises and capability
strengthening in the area of defence and security.
In making its strategic choices, Luxembourg will give priority to exploring avenues that will lead to deeper cooperation between NATO and the European Union, with due
respect for their decision-making autonomy.

• Luxembourg in the European Union (EU)contribution to collective security efforts and of acting autonomously when and where the need arises, with theirpartners wherever possible. This ambition must be founded on the EU’s ability to use the full range of global crisis
management tools. The Europeans must have their own
planning and decision-making capability.

The European Union is motivated by a project of peace, security and prosperity. Within the development of a European
Security and Defence Policy, it contributes to stability efforts
in its zone of influence, beyond continental Europe. The withdrawal of the United Kingdom does not alter the relevanceof the EU Global Strategy for security, particularly in its defence-related aspects. The security interests of the EU and its
Member States underline the need to continue to work with
the United Kingdom and other European partner countries.

In order to develop this stronger, more effective European defence, it will be necessary to enhance cooperation
between Member States in the development of relevant
military capabilities in the framework of a sustained defence effort, along the lines of what Luxembourg is alreadydoing, for instance within BENELUX, in particular with aview to improving the EU’s strategic and operational autonomy. Common planning and funding resources (European Defence Agency, European Defence Fund) will be
useful for harmonizing capability investment policy, so as
to ensure that defence budgets are used in the most rational, relevant and effective manner, and to enhance synergies between EU Member States in the area of defence.

The Global Strategy for security presented in 2016 aims toprovide a new framework for European foreign and security
policy. It defines the four fundamental interests of the European Union: peace and security, prosperity, democracy
and a rules-based global order. The strategy also emphasizes the importance of prevention to counter instability andthe need to take account of the links between domestic andexternal security. In the pursuit of its interests, the European Union observes four principles: unity, participation, responsibility and partnerships.

The EU’s strength lies in federating States that pool theirpolitical and operational strength. In future, emphasis
must be placed on major common investment programmes
supporting fair and inclusive development of the European
Defence Technological and Industrial Base and a common
defence policy. Luxembourg supports the establishment of
Permanent Structured Cooperation (PESCO) for defence
and welcomes the European Defence Action Plan.

Luxembourg shares the objectives of the new European
Union defence strategy and actively supports evolution
towards a strengthening of European defence policy incomplementarity with NATO. The EU can neither remainon the sidelines in the face of the global challenges nor
overly rely on others at the risk of endangering its own
stability and losing strategic weight and importance. The
European Union must project peace and stability beyond
its borders. The European Union Member States, including Luxembourg, must shoulder more responsibility forstrengthening Europe’s security and defence in a challenging geopolitical environment, in the interest of the security
and well-being of their citizens. The European Union andits Member States must be capable of making a decisive

Luxembourg will continue to take part in the EU’s common
acquisition programmes, in particular within the European
Defence Agency. It will also continue to deploy troops andmilitary capabilities in military operations worldwide, andto participate in EU Battlegroups.

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20• Luxembourg in the North Atlantic Treaty Organization(NATO)
NATO is a defensive military alliance. It is a guarantor of
security in the Euro-Atlantic area. The guarantees of collective security founded on a strong transatlantic link havemade it possible to cultivate an area of peace embracing
the values of democracy, human rights and freedom. The
solidarity among Allies is based on concrete commitments
in a context of equitable burden-sharing. The North Atlantic Treaty sets out the obligations of its signatories, who
define themselves as a community of values that include
freedom, democracy and the rule of law and are rooted in
a common history and heritage.

- responsiveness of forces and NATO’s decision-making agility are to be enhanced: NATO’s troops must
be capable of being deployed more rapidly. The NATO
Response Force (NRF) has consequently been reinforced, and within it a Very High Readiness Joint Task
Force (VJTF) has been established in which all Allies
take part, and which can be deployed in-theatre very
rapidly in the event of an incident or an attack;- an array of assurance measures will be sustained,
particularly for the Baltic States. This involves ensuring a significant level of defensive military activity
on the territory of Allied countries and in international airspace and waters;

Based on a Strategic Concept defining what the Alliancerequires to implement the Treaty’s Article 5 collective defence clause, the Allies are committed under Article 3 todevelop individually and collectively the military capacities
needed for that collective defence. Each Ally is therefore
required to invest in military capabilities, and the sum of
the capabilities of all the Allies must enable NATO to ensure the collective defence of the entire Alliance. To that
end, NATO has established a defence planning mechanismthat defines the nations’ contributions and helps nations toachieve them. This same process defines capability goalsconsistent with national and Alliance needs. The assignment of capability goals is based on the principles of equitable sharing and reasonable challenge. This equitable
sharing involves not just equipment and military acquisitions: each Ally must maintain operational forces capableof being deployed in jointly decided operations. Luxembourg, like the other Allies, must provide a fair share ofNATO’s collective capability requirements.

- continuous multinational military presence will beensured by rotation on the territory of certain Allies
requesting it, in the context of enhanced Forward
Presence (eFP) and tailored Forward Presence(tFP). In conjunction with assurance measures, theaim is to ensure that the solidarity of all the Allies isvisible by means of multinational defensive forces oflimited size acting as a deterrent and affirming thecredibility of collective defence. From 2017, Luxembourg will contribute to an eFP battalion in Lithuania
with Germany as Framework Nation;***

Policy adjustment aims in particular to improve the ability
to project stability for regional partners and organizations
that share our values and interests. The Defence Capacity
Building Initiative (DCBI) is the major initiative designed tohelp requesting countries to develop military capabilities
that are interoperable with NATO.

NATO has embarked on a long-term adaptation process
designed to allow it to confront the new risks affecting thesecurity of all the Allies. These risks call for comprehensive, concerted approaches. The process was launched at
the Wales Summit in September 2014. The Warsaw Summit in July 2016 reviewed progress and gave new impetus.
The adaptation covers three dimensions: military, policy,
and institutional. It aims to ensure NATO’s enduring relevance in continuing to guarantee the security of all the Allies in a degraded environment. It involves all of the Allies,
in solidarity. With this adaptation, the priority in terms ofNATO operations has shifted from crisis management tocollective defence. The military will no longer solely be deployed in operations such as that of KFOR in Kosovo or the
Resolute Support Mission in Afghanistan, but increasingly
in the context of reassurance measures for Allied nations
finding themselves in a degraded security situation.
Military adaptation involves concrete measures to which
Luxembourg contributes in the following areas in particular:- a strategy to counter hybrid threats and a reinforcement of national cyber defence capabilities help toimprove our societies’ resilience to these complex
threats. Resilience encompasses the full range ofmeasures needed to ensure that institutions andpublic services continue to function and that populations and critical infrastructures are safeguarded.

At the 2014 NATO Summit in Wales, Heads of State andGovernment made the commitment to increase their defence effort and move towards the target of 2% of GDP in
the medium term. They also agreed to allocate 20% of theirdefence effort to investments.
Luxembourg has met the 20% investment target and intends to continue exceeding that figure through its national defence effort. Our country has moreover agreed toincrease its defence effort from 0.4% to 0.6% of GDP by
2020. The intent is to consolidate this commitment to anaugmented defence effort.
Luxembourg will continue to invest in military capabilities
that are relevant for the Alliance, in a solidarity-oriented
effort aimed at collective defence. Our country has taken
part in NATO military operations and deployments andwill continue to do so. In addition to deployments in thecontext of reassurance measures, Luxembourg has beenLuxembourg must plan and roll out its defence effort ina responsible, effective, rational and innovative manner.
The investments made must be meaningful for our Allies
and for Luxembourg’s army. As far as possible, these investments should also be beneficial for the population, theeconomy and Luxembourg society. Luxembourg must establish new defence structures enabling this effort to besustained over time.

present for more than 15 years in Kosovo as part of KFOR,
and since 2003 in Afghanistan alongside other Allied andinternational troops.
For Luxembourg, the challenges stemming from these developments are complex and have profound implications:the stakes are high and the bar has been set higher. This isalso true of the expectations made of a prosperous country
that has benefited from the stability and security enjoyedon the European continent. A long-term view should therefore be taken in managing resources that are admittedly
increasing but nonetheless limited. Positions should be
adopted that will strengthen our credibility as a Member
State and Ally capable of contributing to collective security.

These Luxembourg Defence Guidelines and the future directions they set out for our country will enable the Grand
Duchy to respond and adapt to current and future threats.
The present situation, characterized by changes in international security, modernization of equipment and a heightened defence effort, must be taken as an opportunity for
the Luxembourg Defence and its armed forces. Continuing
as though nothing has happened is not an option. Like ourcountry and the world around it, the Luxembourg Defence
must look to the future.

b. Evolution of Luxembourg’s defence policy
For several years, Luxembourg has been facing a dualchange process:- at the national level, Luxembourg has evolved. Our
country is prosperous, our population continues togrow and this prosperity and growth are rooted in our
economy’s ever increasing diversification and openness. Luxembourg is also experiencing a technological evolution, particularly in the field of communications. Our armed forces must confront the challengeof new missions and modernizing technologies in ademographic context that constrains the recruitmentof the necessary talent;- at the international level, the security situation has
deteriorated, and constant change, instability and a
degree of insecurity now seem to be the norm. New
threats, more diffuse but no less dangerous, directly
or indirectly affect our country’s security. The worldis changing rapidly and will continue to change.
The commitments made at the 2014 and 2016 NATO Summits and in the European Union have set in motion a profound and lasting change in terms of security and defence
at the international level, and entail constant pressure toincrease our contribution to common and collective solidarity and defence. Our country, too, must adapt to thischange and prepare for the future, in order to defend ournational interests, assume our obligations and shoulder
our share of responsibility, in solidarity, alongside ourpartners.
The Luxembourg Defence, like the major international institutions and our partner countries, must keep abreast
with world developments and adapt to the changes.
Faced with constant, unpredictable evolutions in the international security context, new policy directions need
to be defined to defend Luxembourg’s security interests
and realize its strategic objectives.

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II. A defence that mirrors thecountry
Luxembourg’s army has always been the key component
in the defence of the Grand Duchy – the instrument ofchoice for meeting our national and international commitments. Within the Ministry of Foreign and European Affairs,
the Defence Directorate assists the Minister of Defence indefining defence policy and ensures that it is implemented,
including by the armed forces.
With the evolution of the defence effort and the national
and international context, the activities of the Luxembourg
Defence have, for several years now, extended beyond
merely investing in specific equipment for the army. In
particular, Luxembourg participates in multilateral acquisition programmes for common capabilities which enable
contributions to the priority requirements of the EU and
NATO, and which can either serve Luxembourg’s army directly with a view to deployment and operation by the latteron behalf of the Grand Duchy, or constitute a Luxembourg
contribution to EU, NATO or UN operations involving missions in which our armed forces do not participate directly.

The increase in budgetary resources allocated for defence,
announced at the NATO Summit held in Wales in September 2014, has been essentially manifested in significant
investment in multinational capabilities. The continuing
augmentation of the defence effort will require a significant level of investment to be sustained. This investment
effort has revealed structural challenges, particularly interms of human resources and of a degree of volatility at
the planning level. As things now stand, the structures ofthe defence organization and of the Luxembourg army are
managing only with difficulty to absorb this considerable
budgetary growth. In future, in addition to an investment
effort exceeding 20% of the defence budget, the aim will
be to establish new, sustainable defence structures andto develop new sectors within Luxembourg’s armed forces
together with the appropriate infrastructure. The goal is toensure that, in future, the Luxembourg Defence apparatus can be founded on broader structures. In keeping witha rapidly diversifying society and economy characterized
by an influx of foreign talent and technological innovation,

25

the Luxembourg Defence will leverage this technologicalknow-how and will be able to draw on expertise from EU
countries where necessary. This approach will be implemented in a resolute and intelligent manner, while maintaining the essential cohesion within the armed forces andrespecting the prerogatives of the public authorities.
This evolution will enable Luxembourg to have at its command a set of modern, diverse, relevant and effective tools
and resources for achieving its security objectives. In achanging world, where the nature of potential and actual
threats is increasingly varied, technological and unforeseeable, the Luxembourg Defence and the armed forces mustalso evolve, while conserving our national particularities.
The evolution of the Luxembourg Defence for 2025 and beyond takes account of the changes and broad principles described in the first chapter. Its overall objective is to ensurethat the Luxembourg Defence is effective and modern,reliable and dynamic, open and solidarity-oriented, andcapable of contributing to security in Europe and beyond.
Defence policy is defined and agreed upon in a specificframework that structures the thinking and decision-making process, for instance as regards the organization of thearmy or capability planning. The armed forces will remain
at the centre of Luxembourg’s defence policy and will begiven new capability areas. Other than the army, durable
capability sectors will be established in partnership withindustry for defence purposes.
Implementing a defence policy entails setting Luxembourg’s level of ambition, i.e. what we wish to be capable ofachieving in the field of defence at the national and international levels. It will then be necessary to put in place theassets (human and financial resources and capabilities,etc.) that we wish to have to achieve that level of ambition,and to decide how we wish to employ them.

A. Evolution of the Luxembourg
Defence structures framework

allow autonomous policy choices to be made.
These Guidelines describe a generic level of ambition thatwill be detailed in the Master Plan.
The level of ambition enables the missions provided for under Luxembourg law to materialize in the form of concretetasks.

a. National level of ambition
Like all other countries, Luxembourg has to set its “national level of ambition” in the area of defence. The level ofambition defines the defence and military objectives andresources that Luxembourg assigns, at the national andinternational levels, to defend its security interests and toparticipate in collective defence, crisis management andcooperative security, in accordance with our policy commitments. The purpose of so doing is for the Government
to have a sufficiently broad range of options for meeting allof its voluntary and binding commitments. The capabilities
must be credible, relevant, available and sustainable and

The law of 1952 (amended) on military organization sets
forth the army’s national missions as follows:• participating, in the event of armed conflict, in the defence of the territory of the Grand Duchy;• protecting vital points and areas of the national territory;26

• providing assistance to the other public authorities andto the population where the public interest is seriously
compromised or in the event of natural disasters;• participating within the same framework in peacekeeping and crisis management missions, including
peace pearce-makingmissions;• preparing its volunteers for public or private sector
employment.

The level of ambition therefore identifies the military andcapability resources enabling priority national tasks to be
performed and politically binding commitments to be met.
Further, it identifies the means of respecting any other voluntary commitments made by the Government to promote
peace, security and international stability in line with ourglobal “3D” approach.

In the context of our international commitments, the missions are as follows:• contributing to collective and common defence within the international organizations of which the Grand
Duchy is a member;This level of ambition will be detailed in the Defence MasterPlan.

• participating within the same framework in peacekeeping and crisis management missions, including
peace restoration missions;

***

27

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The Luxembourg Defence will implement the following level of ambition:
At the national level:
1. The Luxembourg Defence will maintain the resources required to contribute to defending the country,
including in the framework of the VigilNat plan, and to meet its obligations as a host nation.
2. The Luxembourg Defence will contribute to hardening national resilience, the goal being to tackle hybrid
threats and cyber threats with a view to ensuring continuity of public services.

At the international level:
1. Luxembourg will continue to participate in military operations abroad. Luxembourg’s contribution may
take the form of deployments of military or civilian personnel, of military capabilities and/or of financial
contributions, in compliance with NATO-defined criteria for the usability of forces.
2. In the context of a global approach to crisis prevention, the Luxembourg Defence will contribute to efforts
designed to support partner nations to enable them to take charge of their own security, particularly
through training and equipment support.
3. Luxembourg will contribute in the shape of civilian and military experts and instructors who can be madeavailable for international operations and missions.
4. In the framework of NATO:
The Luxembourg Defence will continue its durable contribution to fulfilling the policy commitments made at
the NATO Summits:a. by participating in exercises and deployments designed to strengthen the deterrence and defence posturethrough forward presence in certain Alliance countries, in close cooperation with our key partners;b. by participating in the rapid reaction capability (NRF/VJTF). A substantial contribution will be envisaged
at regular intervals, in principle every 4 to 5 years, taking into account the plans of our key partners;c. by participating in the Framework Nations Concept (FNC), including contributing to the constitution oflarge multinational units (“Larger Formations”) and pooling with other FNC participants key capabilities
essential for executing Alliance missions;d. by contributing to permanent or temporary reinforcement of the command structure and the force
structure, as far as demands and available resources allow;
e. by participating in conflict prevention, crisis management and stabilization missions with adequately
supported and sustainable contingents.

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5. In the framework of the European Union:a. Luxembourg will actively support implementation of the European Union’s Global Strategy for security and will contribute to the measures and structures designed to exploit the full potential of the Treatyof Lisbon as regards the Common Security and Defence Policy (CSDP), particularly in the context ofPermanent Structured Cooperation (PESCO), which is open to Member States committing to closer
cooperation in the area of defence;b. Luxembourg will regularly participate in crisis management, advisory, assistance and training operations;c. Luxembourg will participate in the EU’s rapid reaction capability (EU Battle Groups). A substantial
contribution will be envisaged at regular intervals, in principle every 4 or 5 years, taking into accountthe plans of our key partners;

The operational level of ambition comprises the following elements, which will be detailed in the Defence
Master Plan:
1. The responsiveness and speed of deployment of our forces will continue to improve, enhancing the credibility of our contributions to rapid-reaction force units.
2. In the context of defence planning within NATO, the maximum level of commitment planned for the Land
Component of the Luxembourg armed forces is a force strength equivalent to the manning level of a company, sustainable for one year. That contingent will be integrated with the contributions of key partners,
with a high level of interdependence in the area of support and sustainment. Affiliation arrangements will
be developed with our key partners within the Framework Nations Concept.
3. In the context of operational engagements in crisis management and long-term deployments on a rotation basis, the maximum deployment capability for the Land Component is a platoon strength contingent.
4. The Luxembourg Defence will enhance its resources so as to be able to provide Staff-level reinforcementsor specialized land and air capabilities or elements in its priority areas of action.

31

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b. Planning
To define and achieve its national level of ambition, Luxembourg must plan and manage its existing resources and assets and those it intends to acquire. This national planning
process is conducted within the framework of policy andmilitary objectives and commitments, of processes and ofpartnerships, in part mandatory, and it must allow the policy decisions and objectives, the operational in-theatre commitments decided by the Allies and the mandatory NATOplanning process to be realized.
Several factors and considerations thus structure and determine the planning of the resources and assets of the
Luxembourg Defence:• Policy and military objectives
Luxembourg’s adherence to international policy objectives
and commitments has significant consequences in termsof structures, resources, preparation and engagement offorces, capability building & commitment and in terms ofpartnering choices, which inform the transformation andadaptation of the forces.
These commitments have a direct effect on the armed forces’ organization, resulting in a transformation of our forces and a demanding time line and framework for Luxembourg’s armed forces. This has profound repercussions forthe management of human resources, equipment, training
and organization, and requires adjustments in terms of theinteroperability of our forces and an adaptation of our decision-making mechanisms.

• Mechanisms and bodies involved in capability development,
acquisition, management and monitoring
NATO and the EU have mechanisms to ensure the development, availability and coherence of available capabilities:
each of the Allies and EU Member States must develop at
national level capabilities that can be pooled for collective
defence.
Within NATO, this capability development mechanism takes
the form of the NATO Defence Planning Process (NDPP),
which sets concrete objectives for all Allies in four-year cycles and comprises an annual review and monitoring component. It includes tools for evaluation and comparison
against quantitative and qualitative benchmarks. Individual Allies are required to achieve objectives assigned to andaccepted by them on a national basis in order to contribute,in solidarity, to meeting the Alliance’s needs. Luxembourg
is therefore assigned a number of capability objectives tobe achieved in the short and medium terms.
The European Union mechanism is currently more flexible
and functions on a voluntary basis. It is synchronized with
the NATO mechanism. The establishment of a CoordinatedAnnual Review on Defence (CARD) in connection with theimplementation of the Global Strategy for security will also
contribute to improving the coordination of national efforts.
For acquisition, monitoring and, where the need arises,
employment of capabilities, the Luxembourg Defence favours pooling and the use of existing structures. It therefore engages at various levels in the European Defence
Agency (EDA), the European Air Transport Command(EATC), the NATO Communication and Information Agency (NCIA), and the Luxembourg-based NATO Support andProcurement Agency (NSPA).

• Bilateral and multilateral cooperation
Luxembourg’s troops deploy within multinational contingents. For these contingents to be operational, it must be
ensured that the troops and resources deployed by eachcountry are interoperable, in order to guarantee the effectiveness of the chain of command. The capabilities acquiredby Luxembourg must function within a multinationally coherent whole.
Engagement alongside our key partners informs Luxembourg’s decisions and enhances the legitimacy thereof as
regards capability investments and operational deployments.
For Luxembourg, cooperation between Allies and EU Member States is both a necessity and a deliberate choice. The
aims of this cooperation are, in particular, to jointly acquireor employ shared capabilities or to ensure the interoperability of forces.
Interoperability is a critical requirement because of theincreasing complexity of operational situations and thetechnicality of assets and processes. It involves all areas ofcooperation, ranging from common acquisition of capabili-

Copyright NATOties, through instruction & training and capability life-cycle
management, to operational engagements. The Luxembourg Defence intends to make lasting contributions to highvalue-added elements integrated in a multinational effort.
Capabilities held jointly with partners also allow access toalternatives in terms of military responses suited to concrete
calls for engagement and to national policy choices. Luxembourg’s armed forces will adopt, from amongst those capabilities, those best matching its evolution.

corps level: the “Larger Formations” initiative, in which
Luxembourg will take part.

For Luxembourg, cooperation with Belgium is founded ona long tradition of joint deployments and links between themembers of our Armed Forces, notably because most of the
Army’s officers are sent to train in Belgian military schools.
Joint exercises and deployments have become the norm.

Preserving a strong transatlantic link is crucial. To that
end, the Luxembourg Defence is involved in practical cooperation with the United States, particularly in the areaof satellites.

Luxembourg’s contributions to the European Corps and to
the Multinational Joint Headquarters in Ulm will continue
to evolve depending on the prospects of relevant contributions in the framework both of the European Union andNATO. Other contributions to a multinational unit could beenvisaged.

The partnership policy has a far-reaching structuring effect because interoperability constraints necessitate progressive alignment of military requirements, acquisition
programme timelines, employment concepts and training.
In response to the objection that Luxembourg’s defence apparatus risks losing control of its own future and identity, it
can be argued that only by interacting with partners can wemaster the technicalities of ever more sophisticated capabilities and, above all, leverage our investments through amultiplier effect while ensuring relevant implementation
in a coherent host environment provided by our partners.

Defence cooperation between the three BENELUX countries
has gained renewed momentum since the joint declaration by
the Ministers of Defence on 18 April 2012, and this will continue. Several joint projects have already been conducted.
There is also a long history of cooperation with Germany
and France; this will continue, particularly in the framework of the European Corps, occasionally in the framework of the Franco-German Brigade, and in the area of
instruction, training and deployments.
In June 2014, the NATO Ministers of Defence approved the
Framework Nations Concept (FNC), which originated ina German initiative. Luxembourg was amongst the firstto subscribe to the concept. The FNC offers a structured
framework allowing participating Allies to implement theircommon capability goals stemming from NATO defence
planning in a coherent manner that allows synergies to beachieved and fully interoperable capabilities to be put inplace. Based in particular on FNC cooperation, Germany
also intends to provide a land forces formation at army

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c. Budgetary ambition

Allies. The increase in Luxembourg’s defence effort must
therefore enable us to participate, in solidarity, in a more
ambitious European and transatlantic defence and security effort. This will also allow us to initiate a progressionof Luxembourg’s defence apparatus and army towards
more modern, high-tech capabilities and enable Luxembourg’s Defence structures to aim for a lasting impact.
Finally, defence effort investments will also enable Luxembourg society to enjoy not only a higher level of security
but also access to capabilities and infrastructure that canequally well be deployed for military purposes or used in
Luxembourg for the benefit of the population.

At the 2014 NATO Summit in Wales, the Allies committed
to reverse the downturn in defence budgets observed since
the fall of the Berlin wall and to aim in the medium term
at a defence effort amounting to 2% of GDP. The Luxembourg Government announced a first concrete objective:
to raise its defence effort from 0.4% of GDP in 2014 to
0.6% in 2020, i.e. an increase in real terms of at least 50%,
absorbing which represents a challenge for Luxembourg’s
current defence architecture. The proportion of the investment in multinational capabilities with partners will remain high, above the 20% benchmark confirmed by NATOat the Wales Summit.

Luxembourg’s annual defence effort will exceed 320 million
euros in 2018, amounting to roughly 0.5% of GDP (basedon GDP estimated at the time of going to print), while theaverage for European countries is close to 1.4%. Although
Luxembourg’s per capita GDP is one of the highest in theworld, our defence effort remains below 1%.

This decision is to be viewed in an international context
characterized by numerous crises. The increase in defence
budgets is also in keeping with Europe’s desire to develop
a stronger and more autonomous European defence, be
it within NATO or within the EU. Participation in PESCO,in line with Protocol No. 10 of the EU Treaty, will also
require a sustained budgetary effort. The international community has expressed an expectation of all of theWithin NATO, estimated figures for 2016 are as follows, inincreasing order of defence effort2:

4
3.5
3
2.5
2
1.5
1
0.5
0
1.

2.

3.

4.

5.

6.

7.

8.

9.

10.

11.

12.

13.

14.

15.

16.

17.

18.

19.

20.

21.

22.

23.

24.

25.

26.

27.

28.

29.

30.

1. Luxembourg (0,42%) / 2. Spain (0,90%) / 3. Belgium (0,91%) / 4. Czech Republic (1,01%) / 5. Slovenia (1,02%) / 6. Hungary (1,02%) / 7. Canada (1,02%)
8. Italy (1,11%) / 9. Albania (1,11%) / 10. Slovak Republic (1,12%) / 11. Denmark (1,14%) / 12. Netherlands (1,16%) / 13. Germany (1,20%) / 14. Croatia (1,21%)
15. Bulgaria (1,30%) / 16. Portugal (1,38%) / 17. Romania (1,41%) / 18. Latavia (1,46%) / 19. NATO Europe (1,47%) / 20. Lithuania (1,49%)
21. Norway (1,55%) / 22. Turkey (1,69%) / 23. France (1,79%) / 24. Poland (2,01%) / 25. United Kingdom (2,17%) / 26. Estonia (2,18%) / 27. Greece (2,36%)
28. NATO Total (2,43%) / 29. North America (3,36%) / 30. United States (3,61%)2

http://www.nato.int/nato_static_fl2014/assets/pdf/pdf_2016_07/20160704_160704-pr2016-116.pdf

d. Defence structures

The share allocated by Luxembourg to investment expenditure has systematically exceeded 30% of its average multi-year defence effort and has followed an increasing trend:a significant ability to invest is the dominant feature of the
Luxembourg Defence and its primary advantage for engaging in multinational capability cooperation.

Defence policy and defence effort planning are defined,
managed and implemented on various levels:• The Minister of Defence defines and implements Luxembourg’s defence policy.

Luxembourg’s defence effort comprises several elements,
the most important being the budget of the Army, thebudget managed by the Defence Directorate and the Military Equipment Fund – the principal instrument for defence
investment. This is supplemented by expenditure made byother ministries but having military relevance and purpose.

• The Defence Directorate advises and assists the
Minister in the development of defence policy andperforms and supervises its implementation; it defines and implements capability strategy and exercises supervision and control of the administrative andbudgetary management of the resources (human andfinancial) of Luxembourg’s Army. The Defence Directorate is incorporated within the Ministry of Foreignand European Affairs.

One of the major challenges in particular is having thenecessary budgetary flexibility to acquire complex capabilities in the context of major, long-term multinational
programmes. Planning in such circumstances depends
not only on Luxembourg, but also on how the programmes
progress, on disbursement scheduling and on other factorsthat can be difficult to predict and that require budgetaryadjustments throughout a project’s life cycle and great responsiveness. The long-term ambition is to achieve budgetary stability based on fixed or multi-year expenditure.

• Luxembourg’s Army is placed under the responsibilityof the Chief of Staff and performs in-service support
for the resources allocated by the Government in connection with missions falling within the legal framework. It manages the employment of the forces andassists in providing strategic advice to the Government
on conditions for the utilization of forces and on capability development.

All other things being equal, and based on the growth forecasts available in early 2017, the defence effort will exceed
410 million current euros in 2020 so as to reach the targetof 0.6% of GDP at that point. For the years 2017 - 2020, theLuxembourg Defence will thus have a total investment margin of some 310 million current euros. Beyond 2020, theGovernment has decided to plan for a constant increase in
defence effort.

The various evolutions described in these Guidelines
have revealed the need to adapt the defence management
structures to ensure they are furnished with the necessary
human resources (adequate in number and background),as well as the decision-making processes needed to implement an evolving defence policy and to properly manage
the defence effort.

Luxembourg’s commitment to increase its defence effort
illustrates our willingness to shoulder our responsibilities
as a European Ally and to continue improving our contribution to solidarity-oriented burden sharing. A long-term
resources and capabilities investment plan shall serve tosustain the defence effort, taking international requirements into account. The task of setting the time line andcredible objectives commensurate with our country’s
wealth will fall to future governments.

To that end, a new organizational chart for the defence
structures was adopted in September 2016 (see annex).
This arrangement will provide for efficient implementationand monitoring of the Luxembourg Defence Guidelines andMaster Plan. At the heart of this organizational chart lies
an organizational rapprochement between the Defence Directorate and the Army Staff.
• Increased staff numbers and the adoption of a newinternal organization within the Defence Directorate
make for better definition of tasks and better implementation of defence policy. Staffing levels have been
increased at every level, particularly in capability investments planning and management, relations with
the Army and legal review of the many dossiers involving the Army and international relations.

The evolution of the defence effort must form a part of asustained approach that also involves the gradual establishment of suitable structures. But given the complexity of
the factors leading to the current security threats, simply
increasing defence expenditure is an inadequate response.
Continued investment in development cooperation is required to push forward action on conflict prevention. It isalso necessary to spend better and to promote European
cooperation initiatives in the area of equipment. Besides thefinancial criteria, other quantitative and qualitative aspects
must be factored in to measure the real contributions made.
Luxembourg will also continue to advocate an overarching
and more differentiated view of national efforts in terms ofcontributions to stability and security, to include using Gross
National Income (GNI) instead of Gross Domestic Product(GDP) when calculating the defence effort, GNI being more
representative of Luxembourg’s economic reality.

• Regarding the Army, the new organizational chart
has made it possible to finalize the reorganization initiated in 2007, which sought synergies between the
Defence Directorate and the Army Staff and an optimized internal organization of the Army. The chart
reflects evolutions in the field of defence and will
enable the Army to branch out into new areas in the
future.

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The future Army Staff will have three divisions:

across the civilian and military defence structures.

- a General Affairs Division- a Resources Division- an Employment Division

The Resources and Employment Divisions will bemerged with the corresponding structures in the
Diekirch Military Centre, optimizing personnel andthe decision-making mechanisms within the Army.

The General Affairs Division – with its more strategic dimension and in particular responsibility
for defence planning, the Army’s international
relations and the controlling function – will be
collocated with the Defence Directorate for the
purpose of enhancing synergies and cohesion.
This collocation will group together civilian andmilitary planning entities and bolster the strategicplanning capability. This answers a requirement
for functionally integrated processes suitable formanaging simultaneously the policy and military
aspects of crises, including at the planning level.
The new structure will thus allow more integrated decision support processes to be implemented

The new Army structure provides for a transition
from a pure land Army towards a force that can
gradually take on joint force functions to manage
capabilities – air and aerospace in particular –likely to develop with the implementation of these
Guidelines.
• The strategic management of the defence effort will
be in the hands of a Steering Committee chaired by
the Minister of Defence and including representativesof the Defence Directorate and the Luxembourg Army.

e. Legislative and regulatory framework
Lastly, if the evolution of the Luxembourg Defence organization and the army is to have concrete effects, changes to thelegislative and regulatory framework governing defence policy must be brought about. Legislation and regulations will
be introduced through legislative channels within the term of
the current Government, particularly in the following areas:• the law governing military organization;• the law governing the Military Equipment Fund;• the law governing participation in external military operations and civilian missions;• the Grand Ducal regulations governing the organization of the army.

diversely skilled personnel and offer new types oftraining for those joining the armed forces;

B. Evolution of the Luxembourg
Defence for 2025+• create synergies with our international partners,
with national players and between the individual military capabilities themselves;

Beyond the 2025 horizon, the goal of defence policy will be
for the evolution of the armed forces to reflect the imageof our country – integrated with the international community, in full command of modern technology, receptive toresearch and development and open to EU citizens.

• offer the greatest possible benefit to the entire country
and allow the growth of a national Defence Technological and Industrial Base.

The army will be equipped with modern military capabilities such as RPAS in the context of its ISR mission, andwill develop its Air Component by investing in new air platforms and space technologies for communications & observation, medical evacuation and transport. A study will
be conducted on physically embedding some of these air
platforms at Luxembourg airport, with public and private
synergies. New skill profiles will be defined within the
military career pathways, making the armed forces more
attractive and opening gateways and career development
opportunities in the private sector.

a. Main lines of capability development
Armed forces traditionally comprise three major components: land, air and sea. Luxembourg’s armed force hashistorically been a land army. However, just as international
developments have seen two new domains of military action
emerge (space and cyber), the Luxembourg Defence andarmy have in recent years already begun working in these
new areas and in the field of air operations.

While career militaries must still be Luxembourg citizens,certain more technological functions may, under strict andlimited conditions, be open to EU citizens.

The Luxembourg Defence has traditionally specialized inland reconnaissance and operational support capabilities.
In military terms, reconnaissance is part of the broader
area of ISR – Intelligence, Surveillance & Reconnaissance.
Reconnaissance enables a military contingent engaged in
an operation to gather intelligence, by visual observation
and using various means of detection, in particular to identify the risks to which deployed military personnel are exposed, so as to protect them and to facilitate the planningand decision-making process.

Multinational capability investment will become a pillar of
national defence policy in line with the principles of international solidarity, synergy, integration and cooperation.
Consideration will be given to establishing and tasking anational capability investment agency, with a view to implementing a permanent, effective instrument for thislong-term capability investment policy. This entity would
be placed under the authority of the Defence Directorate.

For 2025 and beyond, the Luxembourg Defence will effecta transition that will see the Luxembourg army outgrow
its land dimension and that will furnish Luxembourg withan array of relevant and coherent tools for executing its
missions. The army will remain at the heart of defence.
Future capability developments will be effected in cooperation with the army and, as far as possible, army involvement in their implementation will be sought. Moredetailed studies will need to determine precisely the extent
of the armed forces’ ownership of capability development.
All capability acquisitions will be implemented followinginternal consultation between the Defence Directorate andthe armed forces.

***
The Luxembourg Defence must evolve. To that end, (a) the
defence effort must target capability sectors that shadow
technological evolutions and that fall within priority areas
for Luxembourg, (b) Luxembourg’s Army will contributeto implementing and deploying military capabilities while
preserving its social role, and (c) the Luxembourg Defence
must ensure that it has the necessary human resources toachieve its objectives.
In view of the security developments and objectives described in Chapter I, the Government intends to ensurethat the defence policy and the upscaling defence effort:

Luxembourg:- provides capabilities operated by its armed forces;• enable our country’s policy and security objectives tobe implemented and our national and international
levels of ambition to be achieved;- develops specialized capabilities and services drawing on industrial know-how;• develop new capabilities within the Luxembourg
armed forces, the Government wishing to seize theopportunity offered by a change in defence policy andan increase in the defence effort to permit the Luxembourg armed forces to grow, modernize, acquire
both new equipment and new skills, attract more

- contributes to multinational capability initiatives andto collective capability-related programmes.
An army, and military capability programmes, cannotchange overnight. The capability programmes will takeshape over a number of years. The troops must be reor-37

38
ganized, instructed and trained. We have made short andmedium-term commitments in the context of the NATODefence Planning Process (NDPP). However these commitments already point towards a new direction, and the
Luxembourg Defence has commenced planning in the lightof future developments.
***
In terms of capability investments and the organization of
its army, the Luxembourg Defence organization will focus
on ISR, a domain of action in which existing expertise can bebuilt on and which resonates with competencies in a number of fields that are key for our country: communications,information, the satellite industry and data management.
In general, the Luxembourg Defence will continue to recommend the development of support and sustainment capabilities whose implementation will take account of boththe structural parameters of our armed forces and of thenational and European technological and industrial base.
In particular, the Luxembourg Defence advocates capabilities that are relevant in the broadest possible range ofsituations, be it security crises, natural disaster impact
management or humanitarian crises such as large-scalemigratory movements. ISR capabilities help to provide
enhanced situational awareness in such varied circumstances and are thus essential for civilian and military decision-makers, particularly for the protection of deployed
forces. Timely provision of adequate information improves
the quality of decision-making and allows action to betaken in an appropriate, targeted and measured fashion,
avoiding exposure to risk and unnecessary harm while using available resources to the best possible effect.
A capability is far more than a material asset. It covers not
only equipments but also competent personnel – instructed and trained in their use – together with an organizationand infrastructure for their sustainment. The types of capabilities used by the armed forces and the conditions fortheir use are a matter of sovereign, national policy choices.
Our capability development is guided by national politicalpriorities, NATO defence planning and the EU capability
development process. Our key partnerships provide thecontext for operational deployment.
The purpose of developing military capabilities is to provide Luxembourg with a range of options for contributing
to missions and operations with more varied, technologicaland up-to-date equipment. The goal is to have tools thatare deployable – by the Luxembourg army, or with international partners, or through contractual arrangementswith private-sector partners – in support of international
military deployments.
The increased defence effort associated with a greater
assumption of responsibility on the part of Europe in thearea of security and defence must be reflected in terms ofactual relevance: capabilities that are relevant in the context of missions and operations, services that are relevant
to national requirements, and economic relevance throughthe development of a Defence Technological and Industrial Base generating employment and driving research andinnovation. Thus, within its means, Luxembourg contributes to eliminating critical European capability shortfalls,
for instance through the establishment of a European
air-to-air-refuelling capability. Luxembourg’s participationin the Alliance Ground Surveillance (AGS) programme andthe launch of a Government communications satellite bothcontribute to meeting critical strategic requirements in thefield of communications and observation and to consolidating technological know-how in this field in Luxembourg.

39

40

Minister

Defence Directorate

Army

Defence policy, planning and capability
development, legal advice, resource management

Instruction, training,
operational deployment

Air Component

Military
Medicine

Space Sector

Land
Component

DEFENCE

Research &Development

Cyber Defence,
National Strategy

Transitioning to capability diversification• The Land Component
The exercises, deployments and military operations in which Luxembourg military personnel will take part overthe coming years will employ land reconnaissance equipment already largely available. If required, this equipment will be supplemented and upgraded as necessary.
A BENELUX Letter of Intent provides for the establishment of a tactical observation RPAS capability. RPAS are thefuture of land reconnaissance. They allow comprehensive and extensive information on the military environment
and the attendant risks to be gathered without having to deploy military personnel to the front line. Land reconnaissance is performed in the air also, not just on the ground.
The armed forces will continue to evolve in the field of ISR by implementing capability modules that can integrate into a partner’s ISR environment. The army’s current reconnaissance capabilities will evolve over time with
the introduction of new technologies. A transition towards forces operating a broader range of ISR sensors willcommence without delay, based in particular on exchanges in the context of FNC cooperation with Germany, and
BENELUX cooperation.

• The Air Component
Luxembourg has extensive expertise in the field of aviation. In view of this expertise and of the international capability requirements in the area of ISR, airlift and medical evacuation, the Luxembourg Defence is consideringa more substantial expansion of the army’s Air Component:- The airlift capabilities acquired (A400M, MRTT) can be used to meet national and international militaryor humanitarian needs. These capabilities will be supplemented through the acquisition of other air platforms, e.g. tactical airlift and medical evacuation helicopters, which in due course could be piloted by
Luxembourg aircrews or used to transport medical teams constituted by the Luxembourg Defence, particularly in connection with the military medicine project described below.
- One of the promising areas in the ISR context is that of aerial observation. This can be performed with
RPAS, aircraft or satellites. Luxembourg will consider the merits of joining aerial observation programmes
to be conducted in cooperation with national players in the public and private sectors. Such programmes
may include various components such as the acquisition of aircraft or RPAS for observation, the development of a data analysis capability in Luxembourg, or the use of aircraft for both military and civilian missions. In addition to dedicated equipment, aerial observation requires satellite communication capabilities
to transmit, record and process the information gathered (see below under “The Space Sector”).
- In due course, the NATO Airborne Early Warning and Control System (NAEW&CS) capability, using AWACS
aircraft, will be replaced by the Alliance Future Surveillance and Control (AFSC) capability. The Luxembourg Defence will consider contribution options, particularly those involving potential participation in a
European RPAS programme.
- Currently, Findel airport is already used occasionally for military purposes. The Luxembourg Defence isconsidering setting up a Government facility within the Findel airport perimeter – possibly in the form offacilities for parking and servicing aircraft acquired by the Luxembourg Defence in the future – in cooperation with national partners.
- Aerial observation and airborne medical evacuation capabilities can also contribute usefully to the defence of our maritime interests, including the safeguard of the Luxembourg maritime flag, which is currently dependent upon on support from partner nations.

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• The Space Sector
Luxembourg has extensive expertise and know-how in the satellite field. In the area of defence and security,
there is a fast-growing demand for secure satellite capabilities for government use. The requirements are forcommunications, observation, and for the capture, storage, provision and analysis of data. The Luxembourg
army has fully embraced the field of satellite communications. That engagement already enables it to interveneoccasionally in response to critical requirements. Pursuance of this effort will see the establishment of a highly
valued capability that is easy to integrate into multinational units and can be deployed continuously in diverse
operational scenarios.
Secure satellite communications ensure an additional layer of resilience for critical national systems, provide
a secure, constant link with deployed forces in all circumstances and offer satellite link availability to other
Allies.
Considering the growing demand for these special requirements, the nations are seeking alternative multinational solutions, including with the private sector. Luxembourg has positioned itself to be able to meet theserequirements with the launch of a government satellite – GovSat-1 – under a public-private partnership. Depending on requirements, and once GovSat-1 is fully operational, the Luxembourg Defence will consider the
merits of gradually deploying a constellation of satellites over the coming decade.
The Luxembourg Defence will continue to actively explore opportunities in the space sector, from a European
and transatlantic perspective, particularly within the Wideband Global Satellite Communications System (WGS)
programme.
The defence organization will furthermore consider options for engaging in a space observation programme,in view of our national expertise in the field of space programmes, data processing and imagery interpretation.

• Military Medicine
Military medicine is one of the critical shortfalls within NATO and the EU. With every deployment, provision must
be made for medical protection, ranging from basic medical assistance to the deployment of fully equippedfield hospitals.
Luxembourg is developing a military medicine project designed to establish operationally deployable medical
teams, compliant with approved military standards, in partnership with national civilian players. The general
concept of the project provides for three key pillars:- trauma surgery and reanimation: establishment of a team of doctors and nursing staff. This team will be
operationally deployable and, when not deployed, be placed at the disposal of a national hospital facility,
particularly in the event of a major national crisis;- infectious diseases: a medical team will be established for deployment – for the UN, NATO or the EU – tocollect samples of biological agents or pathogens posing a safety hazard. This team will work closely withnational players such as the National Health Laboratory, and can be placed at the disposal of a national
hospital facility when not deployed. Under this project, the Luxembourg Defence will also contribute toreinforcing national care capacities for treating contagious patients;- a medical crisis response centre: an additional bed capacity for wounded military personnel or for use in
the event of a national or international crisis will be adjoined to an existing national hospital facility. This
crisis centre will also serve as a venue for training and exercises for the medical teams and will be open
to national and international partners.
The medical evacuation capabilities (fixed-wing aircraft or helicopters) implemented within the Air Component
can be used in conjunction with the military medical teams and equipment provided under this project, which is
being developed in close cooperation with the Ministry of Health and national health structures.

• Cyber Defence and Hybrid Threats
In the context of national and international cyber security policy, the Luxembourg Defence, alongside the relevant
national authorities, supports the “defence” component of the national cyber security strategy. The Luxembourg
Defence will help strengthen the resilience of national infrastructure, within the framework of EU and NATO-defined requirements and policies, and will provide cyber security for Luxembourg’s defence assets and ISR-relatedresources. The Luxembourg Defence will continue to recruit experts in the field of cyber defence, which is a critical area for the future and also a vector in respect of hybrid threats.

• Research & Development (R&D), Innovation
The defence organization aims to meet the target of allocating 2% of the defence effort to R&D projects andprogrammes, focusing on the development of dual-use technologies with potential applications in the areaof defence and consistent with the priority capability development pathways. Focus areas for the defence organization will be further detailed in a national strategy for developing a technological and industrial base for
defence, research and innovation.

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b. The Luxembourg Army
The mission of Luxembourg’s armed forces is clearly set out
in the legal framework. Engagement of the armed forces
aims to prevent conflict situations or to put an end to them.
In the current international context, and in the frameworkof our foreign and security policy, the relevance of the roleof competent and professional Luxembourg armed forces
is obvious. The armed forces’ personnel is the human faceof our action abroad in operations, and their deployment,with the risks inherent to presence in a conflict zone, is theultimate demonstration of our solidarity and risk sharing– its value is immeasurable.
The armed forces’ personnel must be able to face thesechallenges in the best possible conditions, with the necessary equipment, leadership, instruction and training thatare essential for their safety and for effective deployment.
This entails not only investments in more technology-oriented capabilities but also the provision of comprehensive,modern and up-to-date equipment at every moment andfor each soldier, for his or her everyday needs.
The armed forces will also take care to preserve and expand its social role, which remains a priority objective forour armed forces and our country. An analysis will be conducted to identify avenues for improving this social role
(more career prospects, varied and interesting duties,
training opportunities, etc.).
Luxembourg’s armed forces must be capable of respondingat any time to national requirements and of participatingin crisis management missions and in collective defence
and stability projection actions. Improving responsiveness(speed of deployment) and participating in rapid reactiongroupings are also key challenges. The number and the nature of military deployments has been changing for several
years and has come to involve more than just exercises andpeacekeeping operations. The armed forces have alreadyadapted its internal structures to enable Luxembourg toensure a military presence where necessary, in a mannercommensurate with its resources. Luxembourg’s international deployments will continue, but may change in nature: sending small, dedicated teams into the field to deploy
an essential capability (e.g. satellite communications) or
providing a team of data analysts can be just as relevant,strategic and visible as mobilizing a whole platoon.
The armed forces will develop new skills and acquireknow-how and a high level of professionalism in new domains. They will continue to deploy military personnel incrisis management exercises and operations, in line with
policy decisions.
Luxembourg’s armed forces will continue to develop coherent, relevant, effective and useful capabilities in thecontext of our partnerships and will acquire the technicalcompetence required to employ those capabilities. The
armed forces evolution cannot be dissociated from the evolution of the budget and capabilities of the Luxembourg De-

fence. Thanks to the new defence structures, the Defence
Directorate and the Army Staff will cooperate closely incapability planning, development and investment. Eachcapability project will entail an analysis of its implementation, performed either directly by the Luxembourg armed
forces or in partnership with national or international players. This analysis will, in particular, take into account policy priorities and human resources requirements/availability. The reinforcement of the capability pillars has alreadybeen taken into account in the new organizational chart of
the Defence Directorate and Army Staff.
The army will maintain its role as a ground force within
the Land Component, but its tasks will evolve in the other fields of action described above, in particular air, spaceand cyber. To this end, the armed forces will organize theirforces such as to perform their current tasks and take on
new ones. The land army will thus accentuate its evolution
towards an armed force with joint capabilities.
The Air Component, currently in its infancy, will be developed to take account of the capability developments described above.
Competencies will also be developed in the medical area,
to help complete the military medicine project currently in
preparation.
The Cyber Cell will continue working on the defence aspects of national and international strategies and will befurther developed.
The armed forces will assist in advancing defence in the direction of high-tech-oriented capabilities, while sustaining
its societal role.
Beyond investments and acquisitions, and in addition tointernal reorganization and the evolution of the Luxembourg Defence, a central and vital concern needs to be addressed: the diversification and extension of the armed
forces’ tasks and competencies cannot be effected without diversifying and augmenting its human resources.

c. Human resources

reau, creation of a Luxembourg Army preparatory course(COPRAL) in the Ettelbruck technical college, adjustments
to the recruitment of volunteer soldiers, introduction of direct career officer recruitment for candidates with a masters degree, etc.

The Luxembourg Defence must be able to rely on qualified
personnel capable of addressing the complex challengesof an army that is evolving and engaging at national andinternational levels.

Between now and the beginning of 2018, the Luxembourg
Defence will conduct an in-depth analysis of recruitment
procedures in the armed forces and will submit a recruitment strategy and plan for the short, medium and longterm to the Government in Council. This strategy will bebased on a consideration of demographic factors and thelabour market in particular, and will cover everything
touching on recruitment, attractiveness, status, training
and careers within the armed forces, including:

The 2007 Reform set the authorized ceiling for the army’s
establishment at nearly 1400. This ceiling is not a goal in itself: it sets a framework within which the army can evolve.
The personnel situation continues to demand sustained attention. To address the challenge of the human resources
needed to implement its policy, the Luxembourg Defence
must take account of the demographic realities and theconstraints of a competitive labour market in a dynamic
economy that is, to a very large extent, reliant on foreign,
essentially European manpower. Currently, the area of defence accounts for some 1% of the resident working population of Luxembourg nationals. A significant increasein the armed forces’ establishment can only be achieved
through decisive action on the attractiveness of a careerin the military and by occasionally extending recruitment
opportunities to European Union citizens.

- volunteer soldiers : ways of increasing the number ofvolunteer soldier recruits who complete their contracts,
more gradual integration of volunteer recruits in the
military environment, particularly in terms of attaining
physical fitness levels (longer support phase), analysisof duties and training for volunteer soldiers, preservation and expansion of the social role, provision for flexible periods of enlistment;

The armed forces are in competition with the private sector
in the labour market. The arrangements determining theattractiveness of enrolment since the abolition of compulsory military service in 1967 are continually adjusted in linewith societal change. This approach is no longer sure to
produce sufficiently long-term solutions. To prevent a rupture, we need to rethink our model, taking account of social realities and considering the requirements dictated by
the changing context and operational missions. Much has
been done already: creation of an Army Information Bu-- corporals and NCOs: steps to promote skill development in commanding soldiers to the highest standardsof leadership and in mastering the level of technicality
associated with new capabilities, by proposing suitablein-service training;- officers: greater recourse to direct recruitment. This
will be the preferred method for meeting specific requirements;

Copyright NATO

45

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- all career paths: improved planning of individualcareer paths, and development of decision-making
criteria to improve the transparency of selections, including in the area of managing rotations to postings
abroad, in respect of which planning will be more
systematic and longer-term, set in context with career plans and functional criteria; provision of opportunities for career mobility;- creation of new career paths to take account of thediversity of the duties to be performed, contract durations;- recruitment of experts on a case-by-case basis;- study into improving the attractiveness of the armed
forces: communication campaign, communication
through social media, increase in the number of female personnel, career management and advancement, training, skills management, deployment planning, relevance of new technical domains, work-lifebalance;- recruitment of career soldiers: revision of recruitment
conditions, occasional, restricted recruitment of foreign nationals, professional retraining, technologicaloccupations;- exchanges with, and secondment of personnel to ourbilateral partners.
The Luxembourg Defence will also systematically investigate innovative means of developing and implementing
capabilities based on partnerships with the private sector
and national players in Luxembourg. In future, the Luxembourg Defence will increasingly require dedicated personnel to temporarily perform specific duties in the context
of national emergencies and operational deployments, inorder to exploit complex, and often dual-use (civilian andmilitary) capabilities. Such dedicated personnel, from thepublic or private sector, are of permanent value to our society in performing professional functions and would becalled upon to assist the nation in the event of a crisis situation. To this end, a study will be conducted to explore
the merits and feasibility of creating a pool of specialized
personnel who could occasionally be made available to the
Luxembourg Defence on a voluntary basis. Participation insuch a service would, at all events, take place in cooperation with the employer, with a status to be defined. The
contribution of the Luxembourg Defence could involve, forinstance, investments in dual-use resources, coverage oftraining or subsidizing personnel costs.
In general, achieving synergies between the armed forces
and other State institutions will foster interdepartmental
mobility and improve the attractiveness of the armed forces, which will consequently open up to a broader population and gain access to more diverse personnel.
In this connection, consideration will also be given to making greater use of the possibilities of commissioning. In thecontext of cooperation with our key partners, the Luxembourg Defence will also pursue a policy of drawing on international expertise in joint projects, or seconding foreign
military personnel.
In order to attract the personnel it needs, the Luxembourg
Defence must also position itself as an attractive employer
by playing on its particular strengths: the armed forces as adynamic, forward-looking entity offering a motivating living
and working environment, personal and professional development opportunities (including in new specializations), andthe unique and rewarding experience of operations benefiting the security of the nation and its population.

Copyright: SIP / Emmanuel Claude

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III. Conclusions
The Luxembourg Defence has already moved forward. In
an environment of change, the Luxembourg armed forces
have shown that they can adapt and continue to make effective and highly valuable contributions both in Luxembourg
and on deployment. The Defence Directorate has prepareditself to plan and develop even larger and more complex
capability programmes, while pursuing its traditional mission of advising the Minister, defining defence policy andoverseeing the management of the armed forces.
The changes we are confronting are not temporary ones.
Consequently, these Guidelines trace the path to the future

and to a restructured and modernized defence apparatus
that has the human and material resources it needs andthat is a reflection of our country – open, reliable, dynamic,
innovative, technological, social and collaborative.
In the matter of defence, Luxembourg’s contributions cannot in all events make the difference through strength ofnumbers. It is by investing in dedicated, high value-added
areas that Luxembourg will honour its commitments. The
effort to diversify our capabilities while maintaining a specialized approach, drawing in particular on the competencies of national industry, will be continued.

49

These Guidelines will be supplemented with an implementation / investment Master Plan that will allow the defence
effort to be planned in detail. This plan projects beyond the2020 horizon without prejudice to any subsequent decisions taken in the medium term by future Governments.
A major challenge will be to maintain the flexibility and responsiveness required to be able to adapt to the demandsof a fluctuating and uncertain context in the short term,
while initiating the necessary transition to new structures
and the reorientation of the armed forces.

However, the main challenge will be that posed by humanresources. Without career soldiers, without volunteer soldiers and without civilian personnel, the Luxembourg Defence will not be able to achieve the ambition set forth inthese Guidelines. At stake is Luxembourg’s credibility as areliable partner and a contributor to security.

Strategic Planning

Capability Investment

International Relations

Strategic Planning and Capability
Investment Pillar

Deputy Director

Quality Assurance

Legal Department

Defence Policy / NATODefence Policy and International
Relations Pillar

Secretariat

Director of Defence

BudgetHuman Resources

Resources Pillar

52

ANNEXESANNEX A: Defence Directorate

CommandSgt Maj53

A Coy

Logistics
Services

D Coy

Retraining
Services

Capabilties

Training &Lessons
LearnedSpecialCapabilities
Support Coy
MedicalServiceC2 + Training
Coy

Chief
SurgeonBudget and
FinanceLand Component

Material
Resources

Human
Resources

Resources Division

Chief, Resources Division

Component Commander

Deputy CHOD

Chief of Defence (CHOD)

PublicAffairs
OfficeCentral
Office

A400M
Unit

Air Component

Protocol &Military Band

Planning…

Security

CIS

Air

…

…

Concepts

Safety(delegate)

Controlling… Component

Operations &Exercises

Employment Division

Chief, Employment DivisionInternational
Relations

Regimental
Sgt Maj

General Affairs Division

ANNEX B: Armed Forces Organizational Chart

54

ANNEXE C: Glossary
3D

Diplomacy, Development, Defence

AGS

Alliance Ground Surveillance

AWACS

Airborne Warning and Control System

Benelux

Intergovernmental cooperation between Belgium, the Netherlands andLuxembourg

CARD

Coordinated Annual Review on Defence

CBRN

Chemical, Biological, Radiological and Nuclear

CBSD

Capacity Building in support of Security and Development

CHOD

Chief of Defence Staff

COPRAL

Luxembourg Army preparatory course

Coy

Company

CSDP

Common Security and Defence Policy

DCBI

Defence Capacity Building Initiative

DTIB

Defence Technological and Industrial Base

EATC

European Air Transport Command

EDA

European Defence Agency

eFP

enhanced Forward PresenceEU

European Union

EUBG

European Union Battlegroup

FNC

Framework Nations Concept

GDP

Gross Domestic Product

GNI

Gross National Income

GovSatGovernment Satellite

3D

Diplomacy, Development, Defence

ISRIntelligence, Surveillance and Reconnaissance

KFOR

Kosovo ForceLuxGovSat

Luxembourg Government Satellite

MRTT

Multi-Role Tanker Transport

NAEW&CS

NATO Airborne Early Warning and Control System

NATO

North Atlantic Treaty Organization

NCIA

NATO Communications and Information Agency

NDPP

NATO Defence Planning Process

NRF

NATO Response Force

NSPA

NATO Support and Procurement Agency

OCCAR

Organization for Joint Armament Cooperation

OSCE

Organization for Security and Cooperation in Europe

RPAS

Remotely Piloted Aerial System

PESCO

Permanent Structured Cooperation

SatComSatellite Communications

TEU

Treaty on European Union

tFP

tailored Forward Presence

UAV

Unmanned Aerial Vehicle

UN

United Nations

VigilNat

Government plan for national vigilance against terrorist threats

VJTF

Very High Readiness Joint Task Force

WGS

Wideband Global Satellite Communications System