The National Security Strategy 2021 contemplates 16 threats to National Security. These threats have varied in number and name since the first strategy approved in Spain: the Spanish Security Strategy 2011, and are inspired by European security strategies, both those dealt with in the field of Common Foreign and Security Policy of the European Union and those in the area of Justice and Home Affairs.

In Spain, national security regulations the term “risk” has been given a meaning that is associated with the concept of threat. This document will analyse how threats to national security are addressed in national security strategies and sectoral strategies and how threats to the security of the European Union are addressed in European security strategies.

Likewise, the use of the terms “threat”, “risk” and “challenge” which are included in Spanish and European regulations will be studied.

Introduction

In Spain, the bodies that deal with and develop concepts relating to threats, risks and challenges include those involved in national security, which is the subject of our study. In this field, the concepts of threat, risk and challenge are not normally defined, and their
use in the lengthy regulations governing national security is ambiguous.

National security strategies and European security strategies are the documents that consider the threats that may affect national security interests in Spain and the security interests of the European Union.

The first security strategy approved in Europe was the 2003 European Security Strategy1 , implemented within the framework of the Union’s Common Foreign and Security Policy, which, together with those developed in the area of Justice and Home Affairs of the European Union, influenced the content of the Spanish National Security strategies that have been approved since 2011.

The first chapter of this document focuses on the theoretical aspects of the concepts of «threat», «risk», «challenge» and «vulnerability», based on contributions from experts in the field and from national and international organisations.

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