UK-France declaration on drones
At the UK-French summit in Paris today, David Cameron and President Sarkozy agree a new Declaration on security and defence. The relevant section on drones (paragraph 16) reads:
Unmanned air systems are crucial to success in the battlefield, as the Libya and Afghanistan campaigns have shown. We have agreed today to take forward our planned cooperation on UAS within a long term strategic partnership framework aimed at building a sovereign capability shared by our two countries. This framework will encompass the different levels from tactical to MALE in the mid term and UCAS in the long term:
Medium Altitude Longue Endurance (MALE) Drone: The Joint Program Office was launched in 2011. We will shortly place with BAES and Dassault a jointly funded contract to study the technical risks associated with the MALE UAV. We look forward to taking further decisions jointly in the light of the outcomes of this risk reduction phase to ensure that our respective sovereign requirements will be met in a cost effective manner.
- Watchkeeper drone: France confirms its interest for the Watchkeeper system recognising the opportunities this would create for cooperation on technical, support, operational and development of doctrine and concepts. An evaluation of the system by France will begin in 2012, in the framework of its national procurement process, and conclude in 2013.
- We affirm our common will to undertake in 2013 a joint Future Combat Air System Demonstration Programme that will set up a co-operation of strategic importance for the future of the European Combat Air Sector. This work will provide a framework to mature the relevant technologies and operational concepts for a UCAS operating in a high threat environment. We will begin as soon as 2012 the specification of this demonstrator with a jointly funded contract under the industrial leadership of our national fighter aircraft industries (Dassault-Aviation in France and BAE Systems in the UK).
Summary: Drones are the latest ‘must have’ weapon systems and the big military companies are desperate to be part of what is beginning to be called ‘the drones gold-rush’. While Cameron is keen to emphasize that only a ‘few tens of millions of Euros’ are being spent at this time, early figures from the MoD indicate that the new drone could cost the UK around £2 billion with other estimates much higher. The wider legal and ethical questions about the growing use of armed drones are simply being ignored.
Today’s announcement that the UK and France will jointly develop a new armed unmanned drone is seen by many commentators as inevitable. Drones are the latest ‘must have’ weapon system and it is important they say, that the UK keeps up with the US and Israel in this key market. In corporate speak, the ‘direction of travel’ is clear; while companies may squabble over particular contracts and deals it is important that the UK is part of what is beginning to be call ‘the drones gold-rush’.
Questions
Behind this ‘gold-rush’ however are many serious legal, ethical and moral questions which are not being properly addressed. And it is not just us who are saying so.
Last April the Ministry of Defence (MoD) published a Joint Doctrine Note examining the technological and scientific issues related to current and future use of armed and unarmed drones. The document agreed that there were significant moral, legal and ethical issues involved, and in a key passage (517) considers whether unmanned systems will make war more likely:
“It is essential that, before unmanned systems become ubiquitous (if it is not already too late) that we consider this issue and ensure that, by removing some of the horror, or at least keeping it at a distance, that we do not risk losing our controlling humanity and make war more likely.”
The passage concludes “What is needed is a clear understanding of the issues involved so that informed decisions can be made.”
Unfortunately, the last thing that the MoD or the drone industry wants at the moment is a public debate about the growing use of drones. The report when publicised by Drone Wars UK and the Guardian was withdrawn from the MoD website (although it did quietly return months later) and the authors were dispatched to Afghanistan. Instead the MoD decided to launch a “communication strategy” to win over public opinion in support of armed drones with the key message being to “stress the equivalence of RPAS [drones] to traditional combat aircraft.”
However there are clear differences between drones and manned aircraft, in particular the way there are being used to loiter over particular areas to seek ‘targets of opportunity’ and their increasing use in targeted killing away from any battlefield. Some of the questions that need to be asked are:
- Does the geographic and psychological distance between the operator and target make a positive or negative difference?
- Does using unmanned systems mean attacks happen more often?
- Does faith in the supposed accuracy of drone sensors and cameras mean that commanders are more willing to undertake ‘riskier’ strikes (in terms of possible civilian casualties) than they would previously have undertaken?
All of these questions and many more need to be debated openly and honesty and require careful analysis and clear-headed judgment based on the available evidence. Unfortunately, that evidence, is being kept strictly under wraps by the Ministry of Defence and they are refusing to engage in a debate on these issues.
While David Cameron is keen to stress that at this stage only (only!) ‘a few tens of millions of Euros’ are being allocated towards developing this new drone the costs will soon soar. Early figures from the MoD indicate that the new drone could cost the UK around £2 billion but other estimates are much higher.
Background
In November 2010 the UK and France signed a defence and security cooperation treaty which included a commitment to work together on nuclear issues and armed drones. The two countries have agreed to build a new armed drone and BAE Systems and Dassault have joined together to offer the proposed Telemos drone to fulfill this ‘need’. All indications are that the new drone will be based on BAE’s Mantis drone, although Dassault have also been working on a drone called ‘Neuron’.
EADS, meanwhile, the other giant of the European military industry is fighting its corner for its own drone; Talarion. Fox News reported that the EADS CEO was “furious” that France is apparently going to choose the BAE Systems/Dassault proposal.
EADS reaction is so strong because they do not want to be left out of what many see as the key market in the global arms trade over the next few years. While the new UK-France drone contract is estimated to be worth around £2bn, the global drone market over the next three years alone has recently been predicted to be worth around $14bn. With Israel companies and US drone giant General Atomics already firmly established in the market, winning funds to develop a future European combat drone is vital for these military corporations.
For more details see The Drone Wars Briefing
Professor Richard Falk
Richard Falk is an international law and international relations scholar who taught at Princeton University for forty years. In his recent article The Menace of Present and Future Drone Warfare, he places the growing use of drones in their historical and political context. The full article is highly recommended reading. Here we excerpt the final paragraphs, reproduced with his kind permission.
The U.S. reliance on attack drones to engage in targeted killing, especially in third countries (Yemen, Somalia, Ethiopia, Pakistan) has raised controversial international law issues of sovereign rights in interaction with lethal acts of war, especially those far removed from the zone of live combat. The increasing reliance on drones during the Obama presidency has produced unintended deaths, civilians in the vicinity of the target and attacks directed at the wrong personnel, as with the NATO helicopter attack that killed 24 Pakistani soldiers who had been deployed near the Afghan border on November 25, 2011, provoking a major international incident (although not a drone attack, it was linked by angered Pakistani officials to similar mis-targeting by drones). There are also unconfirmed reports of drone follow up raids at sites of targeted killing that seem directed at those who mount rescue operations or arrange funerals for prior victims. As with the Bush torture debate the political leadership in Washington has turned for justifications to government lawyers who have responded by developing drone legal briefs that seem somewhat analogous to the notorious Yoo ‘torture memos.’ There are, however, some differences in the two contexts that work against equating the two controversies about post-9/11 war making.
For one thing, torture has a long history, having been practiced by governments for centuries, and its relatively recent prohibition is embedded in a clear norm criminalizing torture that is contained in the International Torture Convention of 1984. Torture is also enumerated as one of the Crimes Against Humanity in the statute of the International Criminal Court. Drone technology adapted to serve as a battlefield weapon is, in contrast, of extremely recent origin. Nothing in international law exists that is comparably specific with respect to drone attacks to the legal repudiation of torture. There is some resemblance between efforts by Obama law officials to stretch the conception of self-defense beyond previously understood limits to justify targeted killing and the Bush lawyers who claimed that water boarding was not torture. Expanding the prior understanding of the legal right of self-defense represents a self-serving reinterpretation of this core international legal norm by the U.S. Government. It seems opportunistic and unpersuasive and seems unlikely to be generally accepted as a reframing of the right of self-defense under international law.
Perhaps, the most important difference between the torture and drone debates has to do with future implications. Although there are some loopholes involving extraordinary rendition and secret CIA operated overseas black sites, torture has been credibly prohibited by President Obama. Beyond this, the repudiation of torture has been understood in a manner that conforms to the general international consensus rather than the narrowed conception insisted upon by the Bush-era legalists. In contrast, drones seem destined to be central to operational planning for future military undertakings of the United States, with sharply escalating appropriations to support both the purchase of increasing numbers and varieties of drone. The government is engaging in a major research program designed to make drones available for an expanding range of military missions and to serve as the foundation of a revolutionary transformation of the way America will fight future wars. Some of these revolutionary features are already evident: casualty-free military missions; subversion of territorial sovereignty; absence of transparency and accountability; further weakening of political constraints on recourse to war.
Future war scenarios involve attacks by drones swarms, interactive squadrons of drones re-targeting while in a combat zone without human participation, and covert attacks using mini-drones. A further serious concern is the almost certain access to drone technology by private sectors actors. These musings are not science fiction, but well financed undertakings at or beyond the development stage. It is in these settings especially, where the analogy to nuclear weapons seems most pertinent, and discouraging. Given the amount invested and the anticipated profitability and utility of drones, it may already be too late to interrupt their development, deployment, and expanding sphere of use. Unlike nuclear weaponry, already some 50 countries reportedly possess drones, mainly adapted to surveillance. As with nuclear weaponry, the United States, and other leading political actors, will not agree to comprehensive prohibitions on the use of drones for lethal purposes.
If this line of reasoning is generally correct, there are two likely futures for attack drones: an unregulated dispersion of the weaponry to public and private actors with likely strategic roles undermining traditional international law limits on war making and public order; or a new non-proliferation regime for drones that permits all states to possess and use surveillance drones within sovereign space and allows some states to make discretionary use of drones globally and for attack purposes until a set on constraining regulations can be agreed upon by a list of designated states. That is, drone military technology will perpetuate the two-tier concept of world order that has taken shape in relation to nuclear weapons, and reflects the consensus that both nuclear disarmament and unrestricted proliferation of nuclear weaponry are unacceptable. In this regard, a counter-proliferation regime for drones is a lesser evil, but still an evil.
The technological momentum that has built up in relation to drones is probably too strong to be challenged politically. The military applications are too attractive, the technology is of a cutting edge fantasy quality, the political appeal of war fighting that involves minimum human risk is too great. At the same time, for much of the world this kind of unfolding future delivers a somber message of a terrifying unfolding vulnerability. At present, there seems to be no way to insulate societies from either intrusive and perpetual surveillance or the prospect of targeted killing and devastation conducted from a remote location. It may be contended that such an indictment of drones exaggerates their novelty. Has not the world lived for decades with weapons of mass destruction possessed by a small number of non-accountable governments and deliverable anywhere on the planet in a matter of minutes? This is superficially true, and frightening enough, but the catastrophic quality of nuclear weaponry and its release of atmospheric radioactivity operates as an inhibitor of uncertain reliability, while with drone their comparative inexpensiveness and non-apocalyptic character makes it much easier to drift mindlessly until an unanticipated day of reckoning occurs by which time all possibilities of control will have been long lost.
As with nuclear weaponry, climate change, and respect for the carrying capacity of the earth, we who are alive at present may be the last who have even the possibility of upholding the life prospects of future generations. It seems late, but still not too late to act responsibly, but we will not be able to make such claims very much longer. Part of the challenge is undoubtedly structural. For most purposes, global governance depends on cooperation among sovereign states, but in matters of war and peace the world order system remains resolutely vertical and under the control of geopolitical actors, perhaps as few as one, who are unwilling to restrict their military activities to the confines of territorial boundaries, but insist on their prerogative to manage coercively the planet as a whole. When it comes to drones the fate of humanity is squeezed between the impotence of state-centric logic and the grandiose schemes of the geopolitical mentality.
The drone lobby in the US has had a stunning success in pushing its agenda of enabling unmanned drones to fly freely in civil airspace. The Federal Aviation Administration (FAA) Bill has been passed by both Senate and Congress and now simply awaits President Obama’s signature before becoming law. The bill sets a deadline of 30 September 2015 by which the FAA must allow “full integration” of unmanned drones into US civil airspace
This deadline, along with several other provisions were pushed by the US drone lobby group, Association of Unmanned Vehicle Systems International (AUVSI). In fact AUVSI boast on its website about helping to draft some of bill.
Given that there is as yet no proven technology that would allow drones to ‘sense and avoid’ other aircraft, the deadline of just 3½ years before full integration is either incredibly ambitious – or just plain foolish. Already pilots are expressing their disquiet as Business Week reports:
Commercial airlines and pilots are less than thrilled with the idea of sharing the sky. They point out there’s no system that allows operators of unmanned aircraft to see and steer clear of piloted helicopters and planes. Nor are there training requirements or standards for the ground-based “pilots” who guide them. It’s also not clear how drones should operate in airspace overseen by air-traffic controllers, where split-second manoeuvring is sometimes required. Until unmanned aircraft can show they won’t run into other planes or the ground, they shouldn’t be allowed to fly with other traffic, says Lee Moak, president of the Air Line Pilots Assn.
Privacy issues also seem to have been ignored by the bill (and AUVSI, naturally). Hours before the bill was passed Jay Stanley of the ACLU urged Congress
“to impose some rules (such as those we proposed in our report) to protect Americans’ privacy from the inevitable invasions that this technology will otherwise lead to. We don’t want to wonder, every time we step out our front door, whether some eye in the sky is watching our every move…. The bottom line is: domestic drones are potentially extremely powerful surveillance tools, and that power — like all government power — needs to be subject to checks and balances.”
Despite these safety and civil liberties concerns, thanks to the drone lobbyists thousands of drones will soon be flying in US airspace. The question then is could it happen here? Will unmanned drones be allowed to fly freely in UK civil airspace too? While it may seem like science fiction at the moment, there are many vested interests working hard behind the scene to make it happen.
At the European level, the EU has been having a series of meetings over the past year to prepare a strategy document for the introduction of drones within European airspace as the Sunday Times recently reported last week (quoting us).
European and UK lobby groups acting on behalf of the drone industry are pushing the advantages of drones and talking up their usefulness in many news publications. New Scientist magazine reports how Unmanned Vehicle Systems International, a lobby group based in the Paris, says that drones will become “vital tools in many fields, from helping police track stolen cars to assisting emergency services in crisis situations such as fires, floods and earthquakes, to more prosaic tasks like advertising or dispensing fertiliser from the air.” (“High time to welcome the friendly drones” said the New Scientist editorial) . The BBC website also last week reported on how drones are cheaper and better at checking on whether farmers are complying with Common Agricultural Policy rules.
In the UK, as regular readers will know, the ‘industry-led consortium’ ASTRAEA, aims “to enable the routine use of UAS (Unmanned Aircraft Systems) in all classes of airspace without the need for restrictive or specialised conditions of operation.”
The programme is funded 50% by the taxpayer and 50% by some of the UK’s biggest military companies. According to the ASTRAEA website, the UK drone lobby group, Unmanned Aerial Vehicle Systems Association (UAVS) and the Ministry of Defence are also ‘stakeholders’ in the programme. As the UAVS website states on their website much of their representation takes place “behind closed doors”.
There are two main hurdles for the drone lobby to overcome before unrestricted drone flying will become the norm in the UK. First is the safety issue. At the moment the UK Civil Aviation Authority (CAA) which is responsible for UK civil airspace severely restricts the use of drones (but see our article here ). Their main objection comes from a safety perspective. At last years ASTRAEA conference, John Clark from the UK CAA told delegates that it is for industry and the UAV community to prove that it will meet standards – “whatever you propose it must be safe” he said. There is a long way to go before the drone industry will satisfy the CAA and the public that drones are at least as safe as ‘manned’ aircraft.
Second is public skepticism. The MoD and the drone industry are well aware that the public do not like the thought of drones flying above their heads in the UK. While there will be a lot of activity over the next year or twoby lobbyists focusing on reassuring the public that drones are neither frightening nor dangerous, there also needs to be discussion about what is acceptable to the British public. As Ben Hayes of the campaign group Statewatch says in the BBC piece mentioned above, while there are lots of things that drones can be useful for, ”the questions about what is acceptable and how people feel about drones hovering over their farmland or their demonstration – these debates are not taking place.”
Unlike the US, the debate on drones in civil airspace is still wide open. We need to make sure it is not just the industry lobbyists whose voices are heard.
Romancing the drone…
Anyone with even a passing interest in the military soon discovers the peculiar phenomenon of ‘military speak’, in which a spade can never quite be called a spade.
Bombs and bullets are called ’ordnance consumables’, a missile strike or bombing raid is known as a ‘kinetic event’, and despite its offensive purpose, the industry and its business must always be described as ‘defence’. Military speak is essentially about maintaining a psychological distance between the day-to-day sanitized business of planning, preparing (and profiting) from armed conflicts and the awful brutal reality of warfare.
The same coyness over language applies of course to drones. Over the past few years I‘ve lost count of the number of times I been told not to call drones ‘drones’. The current preferred term in the military is ‘Remotely Piloted Air System’ (RPAS) after they rejected ‘Unmanned Aerial Vehicle’ (UAV) as being ‘off message’ (“such a generic term can be unhelpful, particularly when working with an uninformed audience” said the MoD last year).
Pretty in Pink?
The term ‘drone’, though widely used and understood by the public and media alike, is snubbed both by the military and those wanting to get a civil drone industry of the ground. Not only is it seen as too dull a name for such a ‘sophisticated piece of kit’ but its association with death and destruction is of course problematic.
This week the Guardian revealed that the Unmanned Aerial Systems Association, a UK lobby group, is planning a public relations offensive to counter the negative image of drones. This website (Drone Wars UK) was cited by the lobby group as part of the problem to be overcome. They recommend that drones deployed in the UK “be decorated with humanitarian-related advertisements, and be painted bright colours to distance them from those used in warzones” As the guardian reports:
“John Moreland, the general secretary of UAVSA, said the industry was uncomfortable with the word “drones” and wanted to find new terminology. “If they’re brightly coloured, and people know why they’re there, it makes them a lot more comfortable,” he said.
The idea that the public could be persuaded to accept drones by painting them bright colours has rightly been mocked across the blogosphere.
A more serious strategy in the attempt to rebrand drones is for advocates to play up their potential to be used by green or human rights groups. Last week the New York Times carried a think piece arguing that drones should be used to monitor human rights abuses. Like many drones themselves however, the idea has come crashing down to earth after being comprehensively rubbished by human rights advocates (see the excellent post from Laurenist and also from Mark Kersten). Even one noted supporter of drones, @drunkenpredator, ridiculed the idea on twitter.
Drones do not have a negative image because of the work of Drones Wars UK, but because of the awful impact that they have in Afghanistan, Pakistan and elsewhere, and because of the serious concern that remote warfare will mean more warfare.
The public will not be reassured by any renaming or rebranding exercise. What is needed is for the legitimate concerns about drones in warfare and their impact on civil liberties to be taken seriously.
For the first time, the United States has confirmed that it is undertaking drone strikes in Pakistan.
Many may feel that this has long been an open secret as unnamed officials regularly take to the press about CIA drone strikes. However the admition by President Obama during a ‘Google online hangout’ will no doubt have legal and political implications. In september 2011 a Federal Judge dismissed an ACLU lawsuit seeking information about CIA drone strikes in Pakistan as the CIA would not confirm or deny the drone strikes took place.
Meanwhile a US drone strike killed between 12 and 15 people in Yemen overnight according to Reuters.
