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B100147/2025
B100145/2025
European Parliament resolution on the white paper on the future of European defence
The European Parliament,
– having regard to itsArticles previous24(1), resolutions42, on43 Russia’sand war45 of aggressionthe againstTreaty Ukraine,on European Union (TEU),
– having regard its recommendation of 8 June 2022 to the Council and the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy on the EU’s Foreign, Security and Defence Policy after the Russian war of aggression against Ukraine,
– having regard to the national security strategies of the Member States,
– having regard to the UN Charter,
– having regard to Regulation (EU) 2023/1525 of the European Parliament and of the Council of 20 July 2023 on supporting ammunition production (ASAP),
– having regard to theRegulation Strategic(EU) Compass2023/2418 forof Securitythe andEuropean Defence,Parliament adoptedand byof the Council of 18 October 2023 on 21establishing Marchan 2022,instrument for the reinforcement of the European defence industry through common procurement (EDIRPA),
– having regard to the report by Sauli Niinistö, Special Adviser to the President of the European Commission, of 30 October 2024 entitled ‘Safer Together – Strengthening Europe’s Civilian and Military Preparedness and Readiness’,
– having regard to the Strategic Compass for Security and Defence,
– having regard to Commission Recommendation (EU) 2023/2113 of 3 October 2023 on critical technology areas for the EU’s economic security for further risk assessment with Member States,
– having regard to the joint communication from the Commission and the High Representative of the Union for Foreign Affairs and Security Policy of 10 March 2023 entitled ‘European Union Space Strategy for Security and Defence’ (JOIN(2023)0009),
– having regard to the report by Sauli Niinistö of 30 October 2024 entitled ‘Safer Together – Strengthening Europe’s Civilian and Military Preparedness and Readiness’,
– having regard to the report by Mario Draghi of 9 September 2024 entitled ‘The future of European competitiveness’,
– having regard to Special Report 04/2025 of the European Court of Auditors of 5 February 2025 entitled ‘EU military mobility: Full speed not reached due to design weaknesses and obstacles en route’,
– having regard to the three Joint Declarations on EU-NATO cooperation signed on 8 July 2016, 10 July 2018 and 10 January 2023,
– having regard to the Madrid Summit Declaration adopted by the NATO heads of state and government at the North Atlantic Council meeting in Madrid on 29 June 2022,
– having regard to the NATO 2022 Strategic Concept and the outcome of the 2023 NATO Summit in Vilnius,
– having regard to the opening remarks made by US Secretary of Defense Pete Hegseth in Brussels at the Ukraine Defense Contact Group meeting of 12 February 2025,
– having regard to the talks held in Riyadh on 18 February 2025 between US and Russian negotiators,
– having regard to Rule 136(2) of its Rules of Procedure,
A. whereas the PresidentCommission announced the release of a white paper on the future of European Commissiondefence, taskedco-authored theby Commissioner for Defence and Space Andrius Kubilius and Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy withKaja presentingKallas, aby white19 paperMarch on2025; whereas this document will be the futurefirst of Europeanits defence;kind produced by the EU and emulates similar documents published by Member States;
B. whereas Parliament and experts have called for a white paper on defence for more than a decade;
B. whereas the white paper must respect the limits set by the EU Treaties in terms of foreign policy and defence and it must take note of the international context and the strategic environment in order to provide a perspective and proposals that will enable the strengthening of Europe’s security;
C. whereas the Strategic Compass was mainly drafted and negotiated before 24 February 2022; whereas the Strategic Compass is a very broad strategy that provides little guidance with regards to the urgent need to accomplish defence readiness and provide deterrence and defence capabilities to prepare for the most urgent military contingency;
C. whereas the white paper on the future of European defence will provide the framework for future defence projects and regulations and will be a key point of reference for incoming negotiations on the next multiannual financial framework;
D. whereas there is an urgent need to strengthen parliamentary oversight of European defence in order to guarantee a sound democratic basis for this crucial policy area;
D. whereas the international order is profoundly destabilised and is restructuring; whereas the international rules and organisations that emerged from the Second World War and then from the end of the Cold War are in crisis; whereas international relations are increasingly characterised by uncertainty, and the tendency to resort to armed force to resolve international disagreements is growing;
E. whereas the European defence industrial actors not only face challenges but have also been able to profit from a much higher demand for defence products since February 2022, which has led to record profits, especially among prime contractors;
E. whereas Russia’s large-scale invasion of Ukraine in 2022 has profoundly destabilised the security order in Europe; whereas this unilateral aggression has accelerated the integration of Sweden and Finland into NATO; whereas this war has considerably deteriorated relations and exchanges between Russia and the rest of the countries of Europe;
F. whereas innovative defence and dual-use start-ups and small and medium-sized enterprises (SMEs) have not, in a comparable manner, been able to profit from relevant EU funds or orders from and funding by national governments compared to prime contractors;
F. whereas the war in Ukraine has highlighted the chronic underinvestment by Member States in their armed forces; whereas the stocks of arms and ammunition in Europe are largely insufficient; whereas certain critical military capabilities are not possessed by any European military; whereas the infrastructure that is essential for the security and proper functioning of European societies and economies is vulnerable; whereas some Member States have encountered significant difficulties in deploying and transporting military resources within the EU itself;
G. whereas the combined military spending efforts of EU Member States already exceed that of Russia but suffer from a lack of economies of scale and focus, highlighting the need for more efficiency and the streamlining of military expenses, in addition to the need for fresh investment;
G. whereas the relations between the United States and China will structure, to a large extent, the future of international relations in the 21st century; whereas the United States no longer has the will to maintain the same level of military involvement in Europe; whereas the US Secretary of Defence has expressly spoken of a ‘division of labour’ between allies, with the Americans prioritising the Pacific region, while emphasising that Europeans must be responsible for the defence of Europe and must increase their capabilities accordingly;
H. whereas the many concrete recommendations contained in the Niinistö report should guide the work on the white paper also because the report presents a comprehensive and holistic approach to preparedness and readiness that encompasses all civilian and military aspects; whereas the report underlines that the EU does not have a plan on what to do in the event of an armed attack against a Member State and that the EU currently lacks the comprehensive capacity to bring all necessary EU resources together in a coordinated manner across institutional and operational silos;
H. whereas the European Union is composed of 27 sovereign states, with each having the sovereign right to determine its own foreign and defence policy;
I. whereas hybrid threats are designed to operate in the grey zone between peace and war, combining conventional and unconventional methods such as sabotage, espionage and political infiltration to undermine the EU’s stability and resilience; whereas cyberattacks have become a central element of these campaigns, exploiting the increasing digitalisation of critical sectors such as healthcare, finance and energy, causing cascading disruptions with potentially severe economic and societal consequences; whereas foreign information manipulation and interference complements these operations through the spreading of disinformation and propaganda to erode trust in democratic institutions and polarise public opinion; whereas the growing complexity, frequency and intensity of these threats underscore the pressing need to identify and implement effective solutions for safeguarding the EU’s security and resilience;
I. whereas it is in the interest of the Member States to adopt a common policy on matters of common interest to them; whereas enhanced cooperation on defence matters is mutually beneficial if it improves the security of the Member States against any direct aggression or if it increases their capacity to respond to any threat to their territorial integrity, sovereignty or prosperity;
J. whereas the Russian war of aggression against Ukraine is a wake-up call for the EU, presenting an immediate threat to the European and global security order and to the security of the EU and its Member States; whereas this conflict shows the urgent need for the Member States to define a common perception of threats and demonstrate genuine solidarity with the frontline Member States;
J. whereas the European defence market is too fragmented; whereas for a single armament type, there can be several or even dozens of different models of the same equipment in the EU, representing a collective loss of resources because of duplication, and preventing economies of scale;
K. whereas the EU’s ability to take decisive action in response to external threats has been repeatedly hampered by the requirement for unanimity, with certain Member States blocking or delaying critical military aid to Ukraine and hence undermining European security;
K. whereas Article 24(1) TEU stipulates that decisions related to the common foreign and security policy and the common security and defence policy are taken unanimously by the Council; whereas Article 24(1) TEU also stipulates that the EU cannot adopt legislative acts on foreign affairs and defence; whereas Article 36 TEU stipulates that Parliament has a consultative role;
L. whereas the Trump administration is proposing a normalisation of ties with Russia, and has threatened to withdraw the US military from the European continent; whereas it appears that the US administration has ceased to be a reliable ally within NATO, which has negative repercussions for the collective territorial defence of its members;
L. whereas, on 30 January 2025, 19 EU countries sent a letter to the European Investment Bank calling for it ‘to play an even stronger role in providing investment funding and leveraging private funding for the security and defence sector’;
1. Stresses the seriousness of the threats to the security of the European continent, which have reached a level unprecedented since the Second World War; expresses deep concern at the rise of geopolitical fractures, also within the West, new and renewed imperialist ambitions for domination by authoritarian powers, systemic rivalry between great powers, nationalist unilateralism, the primary and growing use of force, and violence by certain states and non-state actors in order to promote their political and economic interests or to resolve disputes;
1. Stresses that diplomatic and defence policy issues are primarily the prerogative of the Member States, which remain the most relevant and the only legitimate political units in the international order; respects the right of every Member State to determine its own foreign and security policy; insists on the importance of maintaining the principle of unanimity in the Council for all decisions related to the common foreign and security policy and the common security and defence policy;
2. Recalls that the EU is a peace project and should strive towards peace and stability while condemning aggression; underlines that, in order to achieve peace and stability, we must support Ukraine and become more resilient ourselves;
2. Underlines that strengthening the Member States’ militaries, based on threats, is necessary to compensate for the security deficit caused by decades of underinvestment and the gradual disengagement of the United States; emphasises that this rearmament policy led by the Member States must not aim to escalate tensions in Europe, but rather aim to reach a level that will deter any hostile actions, establish a continental balance and maintain peace;
3. Believes that the war of aggression against Ukraine was part of Putin’s plan to reshape the Euro-Atlantic security architecture and that this plan has been thwarted thanks to the Ukrainian people’s heroic defence;
3. Notes that the United States remains the EU’s main military ally and is an essential member of NATO; insists that, irrespective of the political orientation of the White House, US foreign policy will continue to make the Asia-Pacific region a geostrategic priority and consider Europe a secondary concern; stresses that Member States must no longer subcontract their security and defence to other powers;
4. Underlines that Russian acts of sabotage against critical European infrastructure, and Russia’s manipulation of and interference in EU and NATO countries, have significantly increased; stresses that experts believe that Russia might further escalate its aggressive acts and also attack EU Member States with conventional armed forces during the coming years;
4. Underlines that NATO is a crucial partner in the collective defence architecture in Europe; takes note of the ambition of building a European pillar within NATO; considers that a greater contribution from European states within the alliance must, for the sake of consistency, result in a more balanced distribution of command posts in favour of European military personnel; stresses that stepping up the defence capabilities of European states can go hand in hand with the deepening of EU-NATO cooperation with due respect for the neutrality of the EU Member States that are not part of the NATO alliance;
5. Deplores the fact that the President of the United States has suggested that the US may attempt to annex Greenland, which would be in breach of international law, create considerable instability for the Greenland Government and people and the whole region, further exacerbating the deterioration of relations within the Atlantic Alliance;
5. Highlights the need to overcome the fragmentation of the EU’s internal market for defence products through greater cooperation between Member States and to collectively work on the interoperability of military capabilities; calls on the Member States to encourage cross-border defence procurement in order to strengthen intra-European industrial cooperation and achieve the objective of European strategic autonomy;
6. Calls, therefore, for the EU to increase its efforts to shift the trajectory of Russia’s war against Ukraine and set the conditions for a just, comprehensive and lasting peace on Ukraine’s terms; underlines that defeating Russia in Ukraine and ensuring Ukraine’s future success are the most effective and cost-efficient investments in European security for the short and medium term;
6. Stresses that greater cooperation in the defence sector must actively involve defence SMEs, not only large defence actors, and serve as a platform for SME development, providing greater opportunities for them to contribute to the EU’s technological base and enhance European strategic autonomy;
7. Urges the Member States to provide more arms and ammunition to Ukraine, in as large quantities and as quickly as possible, to enable Ukraine to liberate its territory and deter further Russian attacks;
7. Notes, however, that the strengthening of the European defence industry must not result in the attribution of new competences to the Commission, which would be in breach of the Treaties and would undermine the sovereignty of Member States without increasing efficacy; reiterates, therefore, that decision-making regarding military requirements, the prioritisation of capability development and the purchase of defence products should remain within the remit of Member States; underlines that, despite the need for increased cooperation in the field of defence, such as on joint procurement and joint production, the Member States must retain full sovereignty over their arms export policies;
8. Calls for making a fast and significant increase in the financing of military support for Ukraine a key and structural component of the white paper; calls on the Member States to scale up direct investments in the capacity of the Ukrainian defence industry to mass-produce essential defence products (Danish model), specifically drones, air defence systems, artillery and long-range strike capabilities; proposes the allocation of a specific multibillion euro budget to the European Defence Industry Programme’s (EDIP) Ukraine Support Instrument reserved exactly for this purpose; stresses the need to explore legal avenues for fully seizing the frozen assets of Russian individuals and the Russian Central Bank for use as grants for Ukraine’s expenditure on its defence and resilience needs and its reconstruction, in accordance with international law; condemns the veto imposed by the Hungarian Government on the European Peace Facility (EPF), which blocks more than EUR 6 billion and renders the EPF almost useless; stresses, further, the urgent need also to consider the option of creating an alternative ad hoc arrangement for those European countries that wish to support Ukraine militarily and finance that aid jointly;
8. Calls for the co-legislators to establish the principle of a European preference in future European defence regulations, including in the European defence industrial plan, so that European funds benefit European companies on European soil, which will enhance our industrial defence capabilities and will reduce our dependences on non-EU countries; recalls that these regulations must in no way restrict the freedom of the Member States to determine their own arms procurement and import/export policy;
9. Demands the inclusion of a plan in the white paper that describes how the integration of the Ukrainian defence industry into the EU defence technological and industrial base (EDTIB) can be operationalised in the fastest and most efficient manner; recalls the urgency to properly finance EDIP’s Ukraine instrument; further proposes the provision of war insurance for critical EDTIB projects inside Ukraine; proposes the regular inclusion of Ukrainian Defence Ministry officials with observer status at meetings of relevant Council configurations;
9. Calls on the NATO-affiliated Member States to cooperate in order to identify and fill critical capability gaps by building on and complementing NATO’s Defence Planning Process targets, highlighting that these gaps must be filled in order to conduct full-spectrum operations and noting that they exist in areas including space systems and launchers, long-range missiles, integrated air and missile defence systems, ammunition production, artificial intelligence (AI), maritime drone capability, command and control capability, electronic warfare systems and air-to-air refuelling capacity;
10. Expects the white paper on EU defence to define a new framework and the extent to which the EU must accomplish defence readiness and preparedness, and to make the EU ready, in view of the most severe military contingencies, to deter potential aggressors, defend itself and also assist NATO allies that are also EU Member States to become a credible European pillar in NATO;
10. Calls on non-neutral Member States to adequately invest in their infrastructure to guarantee optimal military mobility across Europe in line with their respective military agreements and alliances;
11. Stresses that the time has come to use the white paper process to clearly define what is meant by a true European defence union; recalls that the adoption of the Strategic Compass was only a starting point, but that its implementation remains necessary and requires an update to reflect the goals of deterrence and defence readiness;
11. Emphasises the importance for European states to have the capacity and a framework to act independently within the NATO framework where possible and outside of the NATO framework if necessary; points out that the Rapid Deployment Capacity, an inter-state initiative under the control of the Member States, only comprised of 5 000 troops, does not allow for the possibility of engagement in a context of intense combat; reaffirms that it is in the Member States’ interest to strengthen their ability to fight together by conducting joint training and exercises that enhance the interoperability of the various national instruments;
12. Deplores the reluctance of the Council and the EU Member States when it comes to addressing deep structural challenges of the European defence industrial landscape and the lack of ambition as regards cooperation between their armed forces at EU level; calls on the Member States to join forces and support a quantum leap towards a very ambitious and comprehensive framework on defence;
12. Expresses the need to consider European defence in all its dimensions, including land, air, naval, space and cybernetic; notes that contemporary strategic issues have a growing naval dimension and that the powers challenging the international order are deploying naval capabilities at regional level; stresses the importance of European cooperation at sea and welcomes the current progress of Operation Aspides, the lessons from which must be put to good use; stresses that European strategic autonomy has a maritime and naval dimension, and that European navies should cooperate more closely to ensure the protection of their maritime areas, as well as their underwater or surface infrastructure; stresses that the principle of freedom of navigation must be protected and calls, therefore, for an increase in surveillance to allow the Member States to be able to react more quickly in the event of threats arising in European seas;
13. Welcomes in principle the announcements made by the President of the Commission on 4 March 2025 regarding a ‘re-arm Europe’ initiative; stresses, however, that the planned investments should address the lack of cooperation and coordination between Member States, including measures guaranteeing full interoperability and making joint procurement the rule;
13. Notes that space will increasingly become a key aspect of power and sovereignty; underlines that the Member States must maintain and guarantee their independent access to space; welcomes the launch of Ariane 6, but is concerned by the accumulated delays; draws attention to the need for the space sector to be industrialised to increase the number of rockets launched to put European satellites into orbit; welcomes the launch of the European satellite constellation IRIS², which should enable secure communications solutions for sovereign and military issues by 2030; emphasises the need for the future EU space law not to hamper the competitiveness of European companies and to apply constraints on non-EU players; notes the importance of Galileo, Europe’s global navigation satellite system;
14. Urges the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy (VP/HR) and the Member States to use the white paper process for outlining a comprehensive framework that is composed of at least the following key components:
14. Underlines that, unlike the United States (Buy America Act) and China (Government Procurement Law), the European space industry is not shielded from international competition and does not benefit from a European preference; calls on the Member States and the Commission to implement a European preference in space industry procurement and promote innovation, research and development; stresses that the European Space Agency’s principle of geographical return hampers innovative European SMEs and start-ups from receiving adequate funding and contributes to the fragmentation of the European space industry; calls on the European Space Agency to abolish the principle of geographical return and adopt an innovative and efficiency-based approach to space procurement rather than a geographically driven one;
(a) a precise description of scenarios in which the EU and its Member States would use security and military instruments that include the latest risk and threat assessments and range from the most extreme military contingencies to crisis management abroad,
15. Underlines that the strengthening of European defence capabilities will require significant financing; calls on banks, pension funds, insurance companies and other actors in the Member States to simplify and significantly increase the financing of projects and companies operating in the field of defence; insists that in the context of the urgent need to increase defence spending, financial institutions should not consider investments in the field of defence to be damaging for their reputation; rejects, however, the idea of issuing joint debt, such as defence Eurobonds, to support defence spending;
(b) elements of a military doctrine which describe in detail the military tasks related to the different scenarios, including cooperation with NATO, in particular through a more precise operationalisation and routine exercises for scenarios under Article 42(7) of the Treaty on European Union (TEU),
16. Notes the growing importance of AI in warfare, particularly in the development of drones and autonomous weapons; recognises the AI advances in warfare made by Ukraine and Israel, demonstrating that the Member States are equally capable of developing similar capabilities; highlights that recent breakthroughs, such as the one made by the Chinese AI computing start-up DeepSeek, demonstrate the feasibility of cost-competitive AI systems; calls on the Member States to accelerate the development of AI capabilities; underlines that the AI Act, set to be implemented in 2025, creates uncertainty regarding the production and development of dual-use AI systems, an ambiguity that could hinder the development of essential defence industry products; calls for this issue to be clarified to ensure that the Member States’ defence industries are not disadvantaged compared to their American and Chinese counterparts;
(c) revised and adapted military headline goals, closely coordinated with the NATO Defence Planning Process, and a precise description of the necessary quantity and quality of military personnel, including training requirements and key military capabilities that are fully synchronised with the new NATO Force Model as regards EU NATO countries, such as strategic enablers, but also ammunition stocks, in order to fulfil current force generation targets,
17. Stresses that a strong civilian manufacturing industry, particularly in the steelmaking, automotive, aerospace and shipbuilding sectors, is essential for deterrence and for maintaining long-term military and industrial capabilities in the event of conflict; notes the decline of these industries since the 1990s, especially in western Europe; calls on the Commission and the Council to safeguard the manufacturing industries that are vital to national security, including through the use of tariffs; urges the Commission to revise the Green Deal and revoke the net-neutrality goal, since it destroys manufacturing competitiveness and is responsible for the deindustrialisation of key industries in the Member States; stresses that the relocation of essential manufacturing industries to non-EU countries is counterproductive both in terms of global environmental impact and national security;
(d) proposals regarding armed forces cooperation structures that go beyond ad hoc arrangements, such as EU Battlegroups, including a strengthened Rapid Deployment Capacity (RDC), multinationally crewed strategic enablers (based on the Airborne Warning and Control System – AWACS – model) at EU level and additional permanent multinational military units with sufficient capabilities to provide deterrence and defence,
18. Expresses concern over the growing dependence of the European defence industry on foreign components, particularly rare earths and semiconductors, which are essential for advanced military technologies; calls on the Member States to intensify efforts to develop domestic rare earth mining and semiconductor manufacturing capabilities to safeguard the autonomy of the European defence industry in the event of conflicts or severe supply chain disruptions;
(e) a description of the key parameters necessary for the establishment of an efficient and competitive single market for defence that would help Member States to reach the capability headline goals necessary for full defence readiness and equip our closest allies, such as Ukraine;
19. Welcomes the Dutch Government’s decision to tighten export control rules on advanced lithography systems, which are essential for semiconductor production; stresses that EU technological transfers to non-EU countries have significantly contributed to the rise of foreign competition and the deindustrialisation of Europe; encourages the Member States to impose stricter export controls on critical dual-use technologies and manufacturing products;
15. Underlines that the EU must adopt a holistic and horizontal approach to security and defence by taking into account the many societal and systemic challenges it faces, such as climate change; emphasises the need for an impact assessment of current and future EU policies in order to find out how they can better support EU security and defence, including through other strategic objectives of the Union, especially the transition to a green, digital and just economy;
20. Notes that 80 % of EU data is stored and managed in the United States and other non-EU countries, where it may be subject to extraterritorial intervention under the Foreign Intelligence Surveillance Act, the CLOUD Act, or China’s Data Security Law; stresses that protecting critical industrial and government data is essential to ensuring national security; welcomes the Swiss Government Cloud programme as a step toward cloud sovereignty and encourages the Member States to implement similar initiatives; encourages the Member States to strengthen regulations on telecommunications service providers, which are predominantly based outside Europe, creating a significant dependence on external actors;
16. States that major geopolitical shifts, amplified by the return of large-scale wars in our neighbourhood, have threatened and keep threatening the security of the EU and its citizens, that ‘business as usual’ is not an option, and that, to face the threats, the EU and its Member States must make EU-level cooperation of their armed forces and their defence industry the rule in order to create a capabilities-based EU defence union which can overcome threats and attacks against EU security;
21. Instructs its President to forward this resolution to Commissioner for Defence and Space Andrius Kubilius, Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy Kaja Kallas, the Commission, the Council and the parliaments and governments of the Member States.
17. Strongly believes that more substantial progress needs to be made in operationalising Article 42(7) TEU and that a plan is needed on how to operationalise this solidarity policy in the white paper with respect to the specific character of the security and defence policy of certain Member States;
18. Insists on the need to ensure better cooperation and coordination by taking stock of the will of the EU and the UK to become closer security partners; calls strongly for the creation of a European security council to coordinate actions between like-minded countries willing to form a vanguard in European defence cooperation and integration; calls for this European security council to serve as the foundation for a new European defence union, bringing together like-minded Member States and strategic partners that share a common security vision and mutual trust;
19. Considers that current strategic documents, legislative proposals and studies such as the Strategic Compass, the European defence industrial strategy and the Niinistö report should finally inspire a concrete and comprehensive vision for the future of European defence, including specific goals, targets and roadmaps, which the white paper should constitute;
20. Calls for the EU to better link common security and defence policy (CSDP) instruments with internal security tools and to strengthen dual-use and civil-military cooperation at EU level;
21. Strongly supports the many good recommendations put forward by the Niinistö report; fully supports the report’s aim, which is ‘not to limit our level of preparedness to what is politically convenient’ but to address what is needed in order to cope with the most severe scenarios; insists on the importance of the upcoming preparedness Union strategy to put the EU on track for comprehensive preparedness, including a definition of EU-level vital societal and governmental functions, the development of EU-level preparedness baseline requirements for these functions, and ensuring the coherence of sectoral crisis plans at EU level; recommends, in particular, the Niinistö report recommendations aimed at empowering citizens to make societal resilience work, inspired by the Finnish concept of total defence;
22. Calls for the EU to develop an EU risk assessment to identify cross-sectoral threats and the risks facing the EU as a whole, and supports the embedding of the ‘preparedness by design’ principle across the EU; insists on the need to develop a mandatory ‘security and preparedness check’ for future impact assessments and ‘stress-tests’ for current legislation as proposed by Niinistö; believes that there is a need to assess whether there are specific challenges that undermine the timely completion of projects identified as critical for effective military deterrence and the rapid arrival of capabilities to the eastern flank for military contingency;
23. Invites the Commission and the Member States to explore the feasibility of an EU preparedness act to align EU and national efforts when possible;
24. Calls for the EU and the Member States to set up and conduct an EU comprehensive preparedness exercise to test high-level decision-making and operational coordination;
25. Calls for the CSDP to be guided by a human security approach and committed to the Women, Peace and Security Agenda; underlines the importance of other multilateral frameworks that strive to build a peaceful and stable future;
26. Calls on the Member States to push for the deletion of the unanimity rule in foreign and security policy in the Council; asks for an amendment to Article 46(6) TEU to allow for qualified majority voting instead of unanimity in the management of permanent structured cooperation, with the exception of decisions leading to the creation of military missions or operations with an executive mandate under the CSDP, which must remain under unanimity;
27. Proposes the strengthening of Parliament’s oversight and scrutiny role in line with the EU expanding its role in defence, including via delegated acts for the work programmes of the current and future defence industrial programmes and instruments that would allow for their implementation to be scrutinised, in particular the priorities set by the Commission concerning projects on priority capabilities; calls for a Parliament representative to be appointed to the new defence industrial readiness board proposed in EDIP, where currently none is provided for;
28. Believes that the EU must acquire a clear understanding of what the actual gap is between the capability targets and defence capabilities of the Member States; stresses the need to ramp up defence industry production, as well as to have ever-ready production units to respond to foreign attacks or specific needs of its strategic partners;
29. Considers regular threat analyses to be an absolute necessity and proposes synchronising their planning cycle with similar regular threat analyses within NATO and by key non-NATO partners;
30. Reiterates its call to strengthen EU-NATO cooperation in order to build a more European NATO, particularly by fully aligning the EU’s Strategic Compass and NATO’s strategic concept, the EU’s Capability Development Plan and NATO’s Defence Planning Process capability targets, except for areas where there are clear special interests for the EU only; proposes the appointment of a permanent EU representative to NATO, including to the military committee on information exchange and the respective military operations;
31. Calls for the EU to address the critical defence capability gaps and shortfalls and focus efforts on specific projects of common European interest that are too expensive for a single Member State to procure, in particular strategic enablers, but also large stockpiles of critical equipment, in order to provide genuine EU added value, which could most efficiently be jointly procured and managed by an EU framework through a special off-budget instrument; proposes, in particular, the establishment of the following capabilities:
(a) integrated air defence and long-range strike systems, optimally by coordinating the ongoing development of the European Sky Shield Initiative (ESSI) with the European Long Range Strike Approach (ELSA),
(b) suppression of enemy air defences (SEAD),
(c) multi-type drone force (RPAS),
(d) electronic warfare,
(e) defensive and offensive cyber systems,
(f) AWACS, aerial refuelling and long-range transport,
(g) command, control, communications and computers (C4) and intelligence, surveillance and reconnaissance (ISR) capabilities and space assets critical for early warning, navigation, observation and communication,
(h) Main Ground Combat System (MGCS),
(i) Future Combat Aircraft System (FCAS);
32. Urges the EU and the Member States to move from a ‘flow’ approach to a ‘stock’ approach, with mandatory targets for critical defence equipment; points to the need to ensure the socially and environmentally sustainable provision of relevant raw materials and to implement policies to close gaps in production and the labour market; stresses the urgent need to make defence production and stocking of ammunition and other products more security-relevant by developing plans on how to have a more decentralised and resilient network and joint stocks building on ‘readiness pools’ in regions facing a higher threat level and the possibility of large-scale conventional warfare;
33. Calls for the EU to urgently adapt its tools to new realities by designing an administrative capacity to move much faster when faced with wars or other large-scale crises; stresses that this can be done by designing and putting in place binding rules, which can be triggered in emergency situations to accelerate administrative and legal procedures, and taking measures in the input side of the supply chain, for the quick production and delivery of military goods, or the construction of infrastructure projects for European mobility, identified as critical for defence;
34. Urges the EU to take immediate action to pool resources and expertise in the field of cybersecurity, recognising that individual Member States face limited capabilities in this domain; strongly advocates for the development of a unified European approach to cyber forces; further insists on the swift creation of joint European cyber capabilities to effectively address the common challenges faced by all Member States in the rapidly evolving threat landscape, thereby strengthening the EU’s collective resilience and strategic autonomy in the digital realm;
35. Calls for the EU to use the white paper to describe a plan that helps to remove unnecessary national regulatory obstacles that slow down military mobility without undermining public security; considers that the definition of military mobility should apply to dual-use infrastructures that cover all logistical aspects of mobility, and that for dual-use projects, adequate criteria should be properly applied in terms of funding provisions, in particular at EU level; stresses the need for significant investments in military mobility infrastructures to enhance cargo airlift capabilities, camps, depots, ports, air, sea and rail platforms, railway lines, railroad terminals, waterways, roads and bridges;
36. Reiterates its full support for the RDC to achieve full operational capability at the latest by mid-2025, with at least 5 000 troops available for rescue and evacuation tasks, initial entry and stabilisation operations or temporary reinforcement of missions; proposes upgrading the RDC by transforming it into a permanent multinational force with its own strategic enablers and command and control, learning from the failed experience of the ad hoc EU Battlegroups;
37. Calls on the VP/HR to launch a discussion with Member States in order to create additional permanent multinational units to respond to the changed threat landscape for the EU since the decision to create the RDC, especially in the light of Trump’s recent rapprochement towards Putin and comments regarding Greenland, which have increased the need for effective European deterrence and defence in line with the most extreme military contingencies;
38. Proposes strengthening the current Eurocorps and making it a multinational corps with its own strategic enablers and command and control to which national brigades can be permanently attached with standardised, jointly procured equipment; stresses that such a multinational European corps can enable smaller Member States to fulfil their current force-generation targets, provide industry with aggregate demand through standardised, large-scale equipment orders and provide the EU with its own capability focused on deterrence and defence, including for candidate countries;
39. Proposes to create jointly crewed and owned strategic enablers at EU level, based on the model of NATO’s AWACS, which are too expensive for individual Member States and important for the security of the EU as a whole;
40. Calls for the European Air Transport Command to be transformed into an ‘EU crisis-response air fleet’ comprising military transport aircraft held at European level and made available to Member States for deployments of equipment or troops, emergency evacuations or civil security missions;
41. Reiterates its call for the Military Planning and Conduct Capability (MPCC) to benefit from adequate premises, staff, enhanced planning, command and control, and effective communication and information systems;
42. Calls for a more ambitious concept for military training and relevant planning, command and control elements at EU level to be part of the white paper action plan, such as a fully equipped and well-staffed MPCC; believes that the EU must expand the training of Ukrainian forces in line with Ukrainian needs to enable a higher level of operational coordination between units, allow for the most effective force generation possible, and create conditions for European armed forces to learn lessons from them;
43. Urges the EU Member States to decide on a united and clear medium- and long-term vision for the European defence industry aimed at helping to meet the capability headline goals;
44. Stresses the urgent need to change the way defence industrial programmes are implemented across the EU; believes that it is of crucial importance to synchronise their work programmes with the revised headline goals in order to be able to focus on the most urgent and militarily important capability gaps; underlines the importance of overcoming a very broad distribution of scarce financial resources and the need to prevent any further ‘dual sourcing’ or similar duplications at EU level that would add to a high amount of duplications in Europe and to the low efficiency rate of the defence industrial base, which is still characterised by fragmentation;
45. Stresses that capabilities and resources must be increased, and that the fragmentation of the defence market must be overcome via the creation of a single market for defence, where binding common rules apply guaranteeing fair competition and full interoperability of defence products; shares the view contained in Mario Draghi’s report on the future of European competitiveness that the EU must urgently boost competitiveness in the sector by various means, such as mergers (inspired by best practice, such as that of Airbus), and more competition between traditionally nationally entrenched defence firms, and decide on incentives directed towards the EU defence industry for sufficiently large public and private investments in security and defence;
46. Believes that the white paper should build on the European defence industrial strategy (EDIS), in particular EDIP, and also develop a concept for a wartime economic cooperation contingency plan to prepare for mutual support in case of large-scale security crises, and deepen wartime economic communication to provide early warnings of hard, hybrid and cyber threats;
47. Stresses that a single European defence market is a priority, as fragmentation and a lack of competitiveness hamper the capacity of the EU to assume more responsibility as a security provider; deplores the fact that neither the EU defence industrial programmes nor the increasing national defence budgets have led to a surge in EU-level defence industrial cooperation that would have allowed Member States to reach their own 2007 cooperation targets as set in the European Defence Agency (EDA) framework; recalls the persistent low levels of European collaboration since 24 February 2022, which, for research and development (R&D), were 14 % in 2022 and 6 % in 2023, and for joint procurement 18 % in 2023, while the EDA was unable to provide data for 2023 (but stressed that there was ‘a temporary slowdown’); stresses the urgent need to analyse the reasons for the unwillingness of Member States to use EU-level cooperation and see it as the main tool for defence investment;
48. Strongly supports the idea to make EU-level cooperation the rule in the European defence industrial sector and commit to concrete numerical targets for cooperation as presented in EDIS, which focus in particular on joint procurement (at least 40 % by 2030), intra-EU trade (at least 35 % by 2030), and procurement of EU-made defence products (at least 50 % by 2030 and 60 % by 2035);
49. Urges the Commission and the Council to address the dual challenge of joint military equipment production and its effective utilisation across Member States; calls for a comprehensive strategy to guarantee increased interoperability through the promotion of agreed civil and military standards, such as NATO standardisation agreements, within EU defence industrial programmes; demands a commitment to tying the funding of current and future instruments to the standardisation of and convergence on certification by NATO member states and to make current standards more precise; calls on the Commission to present concrete plans to overcome interoperability obstacles and ensure the efficient utilisation of jointly produced equipment by all participating Member States;
50. Insists on the importance of European defence projects of common interest as presented in EDIP, which are critical to European defence readiness and preparedness; believes that these should support the industrial and technological capacities that underpin common capability priorities and that cannot be implemented alone, such as strategic enablers; proposes that, based on the capabilities’ headline goals, the Commissioner for Defence create a clear ‘output plan’ listing relevant quantified targets not just for strategic enablers but also for the most critical large-scale equipment needs, such as MGCS, FCAS and ESSI and ELSA, which would then be jointly procured and maintained throughout the life cycle of the product in order to achieve economies of scale and interoperability in the most effective and fastest way;
51. Believes that a competitive and resilient European defence industry will also lead to a restructuring of the industrial landscape, including through mergers, which would also reduce the number of parallel programmes that waste financial resources, as well as a better regional distribution of production sites; considers that our defence policies should encourage the growth of EU centres of excellence, also according to the criteria of decentralisation, security and resilience; stresses the need to massively boost start-ups, scale-ups and SMEs in the sector as a priority and as a structural element of the section of the white paper pertaining to the single market for defence; stresses that for well-established or systemic actors in the defence sector, public investment should be accompanied by additional safeguards to ensure that public money is reinvested and not used for the purpose of generating profits for their shareholders, such as by windfall profit taxes;
52. Proposes to create European regional EDTIB clusters uniting research, development, production and maintenance facilities to create regional economies of scale and focus areas of technological specialisation; calls for these clusters to be strategically spread throughout the EU to allow for continued manufacturing in times of crisis and to more evenly distribute the economic opportunities for SMEs and Member States with relatively small defence industries; calls for these clusters to be aligned with EDIP’s proposal for the Structure for European Armament Programme;
53. Calls for more coherence in support of companies by reducing unnecessary administrative burdens and cutting red tape, and ensuring much easier access for small- and mid-cap companies within the defence sector;
54. Calls for a comprehensive strategy to leverage current instruments such as the Defence Equity Facility and new initiatives such as EDIP’s Fund to Accelerate Defence Supply Chain Transformation; demands concrete commitments to increase the amount of funding per SME while ensuring transparency and accountability; requests the implementation of robust monitoring mechanisms to ensure that funds drive innovation and competitiveness among SMEs without distorting the market; demands, further, regular reporting on the impact and effectiveness of these financial instruments in supporting start-ups and SMEs in the defence industry and dual-use sector;
55. Calls on the Commission to design a successor to the European Defence Fund (EDF) that supports common research and innovation all along the supply chain and lay the conditions to address technological challenges and provide European solutions to key capabilities gaps; calls for the establishment of a Commission agency with a specific focus on R&D with dual-use potential, taking inspiration from the US Defense Advanced Research Projects Agency; stresses the need to put a strong emphasis on EU-level support for the most disruptive and innovative technology via the creation of an accelerator hub for researching, developing and testing new breakthrough defence technologies, which would also contribute to economic competitiveness, bringing together industry, governments and the expert community; underlines that this organisation should nurture a risk-taking culture and be highly flexible by design; proposes, as a first step, that funding allocation should focus on a limited number of critical projects, including decarbonised defence and novel deterrence capabilities;
56. Calls for the strengthening of energy resilience and the climate and environmental transition dimension under the successor to the EDF, and for the climate-proofing and decarbonisation (covering both adaptation and mitigation) of EU defence by design and across the five dimensions: operational, capability planning and development, multi-stakeholder engagement, governance, and R&D, for the benefit of the performance of military capabilities, the resilience of armed forces, and thus the competitiveness of the EDTIB;
57. Is deeply convinced that the EU-level instruments should prioritise and massively increase support for SMEs and start-ups in the dual-use and defence sector; stresses the need to support SMEs and start-ups in bringing successfully tested prototypes to the market, including the scaling up of production; underlines the need to bridge the current funding gap as regards these important steps that would strengthen the EDTIB, including in close cooperation with the Ukrainian technological and defence industrial base;
58. Insists on the need to remove barriers to market entry for defence products across the EU by reviewing the directives on the transfer of defence-related products and defence procurement; calls on the Commission to propose actions for better market access, smoother cross-border cooperation and increased security of supply, including by harmonising national export policies;
59. Stresses the need to develop an effective EU-level armaments policy that includes the establishment of a functioning and effective external trade dimension that aims to support partners that face threats from aggressive authoritarian regimes and prevents arms deliveries to undemocratic aggressive regimes and regimes that make illegal use of them as assessed under the relevant international human rights and humanitarian law, in line with the current eight criteria under the Council Common Position on arms exports; stresses the need to overcome the very narrow and national interpretation of Article 346 of the Treaty on the Functioning of the European Union (TFEU) in this respect;
60. Invites the Member States to actively participate in a priority-ordering mechanism for defence production which builds on security and defence capability mapping to help prioritise orders, contracts and the recruitment of employees in emergency situations;
61. Strongly believes that a European preference must be the cornerstone of EU policies related to the European defence market, as a strategic imperative aimed at protecting European know-how; underlines that the European preference principle must be reflected in EU defence regulations in clear and unambiguous eligibility criteria; underlines, however, that exceptions for emergency military contingencies and projects critical for ensuring defence readiness should be built into these criteria;
62. Calls for a crisis response instrument for securing European sovereignty based on the model of the US Defense Production Act, so that the EU has a tool which can be activated to react quickly to emergency wartime or crisis needs; calls for such a tool to include the following key components:
(a) joint procurement of specific defence products,
(b) prioritising the provision of critical materials, and prioritising orders, for specific supply chains, such as artillery munitions,
(c) fast-tracking administrative and legal procedures for moving military equipment and troops, and where possible the construction of (infrastructure) projects critical for military mobility or other military readiness priority areas, while avoiding the circumvention of environmental protection provisions and building in necessary safeguards;
63. Deplores the lack of willingness by Member States to invest in EU-level cooperation and urges them to reach the EU objectives on security and defence; highlights the fact that the cost of non-preparedness for the most extreme military contingencies would be higher than the cost of decisive EU preparedness; recalls that aggregate EU defence spending is insufficient and that very little national defence spending is coordinated or even pooled with other Member States or invested in European collaborative projects; calls for the EU and the Member States to work and agree on concrete measures and means for short- to long-term public and private investment;
64. Notes that, according to the Commission President, the defence spending gap currently stands at EUR 500 billion for the next decade, but that, if the EU needs to develop its own military capabilities, experts estimate that this amount will have to rise significantly; underlines that the EU budget alone cannot fill the gap, but has an important role to play;
65. Underlines that increases in defence investment should not compete with other public investment priorities, including social expenditure, territorial cohesion and climate transition, which are all relevant to our European security; reiterates that the most effective way to maintain such priorities is to release fresh investment for defence rather than repurpose already earmarked funding; further recalls that financing orientations should be anchored in a whole-of-society approach to resilience and therefore need to be broadly supported by European citizens, and that this support needs to be sustainable in the long term;
66. Opposes any proposal aimed at repurposing cohesion policy funds from their long-term objectives and recalls that only strengthening Europe’s social and economic fabric and reducing territorial disparities will contribute to the balanced development and stability of all EU regions, and will ultimately reinforce the EU’s ability to defend itself against disinformation and foreign influence;
67. Supports the Commission President’s announcement to create a new EU financial instrument to assist Member States in increasing their defence spending through loans backed by the EU budget; takes note of the intention to establish such a new instrument under Article 122 TFEU; recalls that while the EU Recovery Instrument, which allocated borrowed funds to various EU programmes, was established by a Council regulation under Article 122 TFEU, various EU programmes to which the resources were allocated, including the Recovery and Resilience Facility, were adopted through ‘codecision’, relying on Article 175 TFEU; calls on the Commission to adopt a similar legal structure, respecting the ordinary legislative procedure and ensuring the democratic legitimacy of any new EU financing instrument for defence;
68. Welcomes the further extension of the European Investment Bank (EIB) Group’s eligibility criteria to dual-use goods; welcomes the EIB Group’s 2022 Strategic European Security Initiative aimed at supporting innovation in dual-use technology; stresses that EIB investments should focus on innovative projects, but not expendable products such as ammunition; stresses that greater EIB investment in the defence sector can encourage commercial banks’ investment in the sector; calls on the EIB Group to review the impact of the extension of its new dual-use goods policy and insists that any further extension of lending in the sector should only take place if it has no negative impact on the overall financing costs of the bank or its investment pipeline, or on the contribution to financing the investment needed for enabling the EU to reach its climate goals;
69. Considers that, complementing joint debt, further defence lending should be dealt with in a separate bank, as investment in defence cannot in principle be considered an environmental, social and governance investment; calls, therefore, on the Commission and the Member States to establish, as a matter of urgency, a new defence bank modelled on the European Bank for Reconstruction and Development that could address the global perspective of securing defence lending, while protecting other investment and allowing for allies to join;
70. Takes note of the Commission President’s announcement on ‘activating the escape clause for defence investments’; underlines that, in view of other pressing policy priorities, the escape clause must be applied in a way that ensures that increases in defence expenditure do not lead to cuts in other areas and is conditional on being spent on developing common EU projects, including dual-use infrastructure such as railways, satellite systems and resilient power grids;
71. Stresses that the current political context demonstrates that the recently adopted EU economic governance framework deprives governments of the financial resources needed to respond to current and new challenges; underlines that prioritising one policy area over another exacerbates rather than mitigates the multiple crises the EU is facing; calls for a review of the EU fiscal rules framework that would provide the long-term funding certainty required for investment in promoting the just transition, expanding European defence production capabilities and developing dual-use infrastructure, thereby underpinning a truly coordinated EU approach to investment policy;
72. Insists that urgent needs cannot wait for the next multiannual financial framework (MFF); believes that, as long as Member States refuse to allocate more resources to a higher overall EU budget, including the creation of new own resources, and given the unanimity requirement to change both the MFF Regulation and the Council’s Own-Resources Decision, and given the urgency, solutions for alternative funding must be considered without delay, including:
(a) the urgent launch of a discussion with a view to establishing another off-budget financial facility which would sufficiently pool and Europeanise parts of national defence budgets at EU level and address the entire life cycle of military capabilities, from collaborative R&D and joint procurement to joint maintenance, training and security of supply, and which is, like the current off-budget EPF, open to non-EU countries such as Norway and the UK; stresses therefore the need to improve decision-making and oversight procedures compared to the current EPF governance model,
(b) the issuance of EU risk guarantees by the Commission to lower interest rates for participants in EU-level projects identified as critical for defence readiness,
(c) a new EU debt programme along the lines of the NextGenerationEU backed by genuine own resources to repay the borrowed funds,
(d) the creation of new genuine EU own resources to create additional revenue flows to finance security- and defence-related investments at EU level,
(e) greater mobilisation of equity and private capital; reiterates therefore its call for more private investment in EU defence,
(f) the creation of specific financial products so that private banks invest more in the defence sector,
(g) the development of emergency procedures for projects established in response to major crises or wars;
73. Believes that the next MFF should have a greater allocation of funds for common security and be more flexible in order to react to unforeseen crises and emergencies;
74. Welcomes the proposals made in the recent Niinistö report as regards the financing of European defence; supports the setting up of a defending Europe facility and a securing Europe facility; equally welcomes and supports the proposal to establish an investment guarantee programme based on the model of InvestEU with open architecture to trigger private sector investment and to issue a ‘European preparedness bond standard’;
75. Insists that robust mechanisms be implemented to ensure the efficient use of scarce EU budget resources and prevent any duplication of efforts in defence projects; requests a comprehensive review of current oversight procedures and the development of a transparent framework for monitoring and evaluating the effectiveness of EU-funded defence initiatives;
76. Instructs its President to forward this resolution to the Commissioner for Defence and Space, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy, the Council and the Commission.