This was a complex process, but a few general trends clearly emerged over the 1990s. Concern shifted away from traditional inter-state security issues and towards intra-state, trans-state and non-state security threats. Priority—at least declaratory priority—moved away from military capabilities towards other policy instruments, and from military capabilities optimised for major war between big states to those more suited to smaller-scale wars, and the operations other than war, that were rapidly becoming both more common and more complex.