Documents such as the General National Defence Policy typically circulate within government bureaucracy and rarely become the subject of public debate, he said. "What changed was not necessarily the policy itself, but the public attention it attracted," Agus said. Experts have questioned whether a national defence framework was an appropriate instrument for addressing issues such as sexual orientation and gender identity. As a result, issues beyond the traditional defence sphere are increasingly viewed as national security issues. "Because the definition is so broad, almost anything can be treated as a national security threat," Tangguh told CNA.