Source: European Parliament
B10‑0144/2025
European Parliament resolution on the white paper on the future of European defence
The European Parliament,
– having regard to the common security and defence policy (CSDP) and the common foreign and security policy (CFSP) of the EU,
– having regard to the Treaty on European Union, and in particular Article 42 thereof,
– having regard to Title III, Article 3 of the Protocol on the concerns of the Irish people on the Treaty of Lisbon,
– having regard to the announced publication of the white paper on the future of European defence on 19 March 2025,
– having regard to the Helsinki Accords,
– having regard to the various European defence projects of recent years,
– having regard to Rule 136(2) of its Rules of Procedure,
A. whereas, in line with the Treaties, the CSDP is part of the CFSP and is considered a policy framework through which Member States can develop a European strategic culture of security and defence, address conflicts and crises together, protect the Union and its citizens and strengthen international peace and security;
B. whereas Article 42(2) TEU states that the Union’s CSDP must be compatible with the common security and defence policy established within the framework of the North Atlantic Treaty Organisation (NATO), under the North Atlantic Treaty;
C. whereas NATO is largely dominated by the United States, and NATO membership entails a mandatory complementarity and compatibility of European weapons systems with US systems, hence impeding the strategic and operational autonomy of Member States and other European countries;
D. whereas at the NATO Summit in Bucharest in 2008, the US Government pushed for Ukrainian NATO membership against the opinion of several Member States; whereas following the Russian invasion, the United States pushed EU Member States to systematically increase the quantity and quality of arms deliveries to Ukraine;
E. whereas different Member States have different military and security policies, including policies of military neutrality;
F. whereas the United States saw windfall benefits from the Ukraine war through an increase of US shale gas exports to the European Union; whereas the US Government now unjustly wishes to control Ukrainian mineral resources and negotiate an end to the war in Ukraine with Putin, without involving Ukraine and the European Union;
G. whereas unlike nuclear weapon states such as India and the People’s Republic of China, NATO and Russia refuse to commit to a ‘no first use’ policy, whereby they would formally refrain from using nuclear weapons, except in retaliation to an attack by an enemy power using weapons of mass destruction;
H. whereas the US Government has launched a high number of wars and military operations that violated international law and the principles of the Charter of the United Nations; whereas, in light of 2024 advisory opinions of the International Court of Justice, the United States’ ongoing military support for Israel might make it complicit in genocide and illegal occupation; whereas the participation of EU Member States in violations of international law, including in wars of aggression and military invasions contrary to international law against countries such as the former Yugoslavia, Afghanistan, Iraq and Libya, have undermined global adherence to the principles of international law;
I. whereas the United States has forwardly deployed new B61-12 gravity bombs on the territory of EU Member States, increasing the risk that these Member States will fall victim to preventive or retaliatory strikes related to US foreign policy;
J. whereas Russia’s repeated acts of war and aggression, starting with the war against Georgia in 2008, the annexation of Crimea in 2014 and the ongoing illegal war of aggression against Ukraine, as well as an increasing number of acts of sabotage on critical infrastructure, have been factors in creating and exacerbating tensions;
K. whereas Article 41(2) TEU prohibits charging expenditure arising from operations with military or defence implications to the Union budget;
L. whereas the Commission has nevertheless launched several European defence projects over the last few years, including the European Defence Industrial Development Programme (EDIDP), the Preparatory Action on Defence Research (PADR), the European Defence Fund (EDF), the European Defence Industry Reinforcement through common Procurement Act (EDIRPA), the Act in Support of Ammunition Production (ASAP) and, most recently, the European Defence Industrial Strategy (EDIS) and the European Defence Industry Programme (EDIP);
M. whereas according to 2023 Stockholm International Peace Research Institute figures, EU Member States, together with the United Kingdom, already spend more nominally on defence than all other countries in the world combined, with the exception of the United States;
N. whereas in April 2021, the Commission estimated that increased cooperation between Member States in the field of security and defence could save between EUR 25 billion and EUR 100 billion every year;
O. whereas the Commission’s Directorate-General for International Partnerships (DG INTPA) is planning to shut down more than four out of five of its hubs worldwide, reducing its diplomatic presence from around 100 delegations to 18 hubs;
P. whereas in 2024, EU leaders agreed to cut EUR 2 billion from the EU’s external action budget in the multiannual financial framework for 2021-2027; whereas several Member States, such as France and Belgium, have also made cuts and reforms to their diplomacy services;
Q. whereas Commission President Ursula von der Leyen has proposed a new common instrument to boost military spending across the EU to unlock up to EUR 800 billion of additional defence spending over the coming years;
R. whereas even the military spending of the United States, which maintains over 700 military installations in over 70 countries, does not exceed 3.46 % of its GDP;
S. whereas, nevertheless, the US Government, certain Member States and NATO and Commission officials are pushing for a further massive increase in defence expenditure, from an average of 1.9 % of GDP to 5 %;
T. whereas even the military-oriented Niinisto Report, entitled ‘Safer Together –Strengthening Europe’s Civilian and Military Preparedness and Readiness’ highlights the fact that threats to the security of European citizens, including increasingly frequent and intense extreme weather events, such as megadroughts, floods and heatwaves, and the risk of new pandemics, would require massive investment in public services;
U. whereas while the Draghi report on the future of European competitiveness highlights the need for massive investment in a variety of sectors, including energy, pharmaceuticals and transport, the Commission has placed seven Member States under an excessive deficit procedure, pushing for harsh austerity and structural reforms in social and public expenses;
V. whereas a further massive increase in military expenditure will instead lead to cuts in public services, and in social, climate and environmental spending throughout Europe, endangering the social and human security of European citizens;
W. whereas the Commission is nonetheless considering the suspension of economic governance rules for military expenses;
X. whereas the Commission has failed to present a fully autonomous assessment of European defence needs and priorities, relying instead on NATO assessments of critical gaps in defence capability;
Y. whereas Türkiye, a NATO member, illegally occupies 37 % of Cyprus, an EU Member State;
Z. whereas in international relations theory the ‘security dilemma’ refers to a phenomenon whereby actions, such as arms procurement, taken by a state actor to increase its own security provokes reactions from other states, such as increased arms procurement or preventive attacks, that ultimately lead to a decrease rather than an increase in the original state’s security;
AA. whereas the 1975 Final Act of the Conference on Security and Cooperation in Europe, concluded in Helsinki between the United States, Canada, the Soviet Union and all of the countries of Europe, except Albania, played an important role in easing tensions between East and West during the Cold War;
AB. whereas the Cold War collective security acquis has been systematically undermined by the United States’ withdrawal from the Anti-Ballistic Missile Treaty (ABM), the Intermediate-Range Nuclear Forces Treaty (INF) and the Open Skies Treaty, systematically followed by Russian withdrawals, and by the Russian withdrawal from the Treaty on Conventional Armed Forces in Europe and from the Comprehensive Nuclear Test Ban Treaty;
AC. whereas a new European security architecture will have to apply the principles of peaceful coexistence between countries with different political systems and offer security guarantees to all parties in order to avoid Europe being divided once again into two diametrically opposed blocs;
Towards a European collective security architecture
1. Recalls that the Treaties consider the CSDP part of the CFSP; asks, therefore, that any defence initiative at EU level be subordinated to a clear foreign and security policy and strategy for peace on the European continent;
2. Rejects the militarisation of the EU and any belligerent objectives of the CSDP;
3. Notes with great concern the diminishing respect for international and humanitarian law by parties all around the world, with Israel, Russia and the United States being flagrant examples; reiterates the need for European independence in shaping foreign and defence policy;
4. Considers that in light of the United States’ past and ongoing violations of international law and the negative impact of US military interventions on neighbouring regions, the foreign, security and defence policy of the Union and Member States can no longer be aligned with the framework of the North Atlantic Treaty Organisation (NATO); calls, therefore, on the European Council to start the process of revising the EU Treaties to remove this requirement from the TEU;
5. Recalls that NATO and the EU are distinct organisations which serve very different purposes and whose membership is not even identical; regrets the conflation of NATO, a military alliance, with the EU;
6. Is extremely worried by the fact that there are still more than 13 000 nuclear weapons scattered around the world, many of which can be deployed within minutes and could cause the end of humankind; notes with concern that despite a stated commitment to the Non-Proliferation Treaty, NATO’s nuclear member states invested USD 271 billion in nuclear weapons modernisation and maintenance between 2019 and 2023, while in 2023 China and Russia were the second and third largest spenders, with budgets of USD 11.9 billion and USD 8.3 billion respectively;
7. Believes that NATO’s refusal to commit to a ‘no first use’ policy on nuclear weapons and the forward deployment of US nuclear weapons in Europe increases the risk of Europe becoming a target of nuclear strikes; demands, therefore, the withdrawal of US nuclear weapons from the territory of Member States; is deeply concerned about nuclear threats to European security, including veiled warnings about the use of tactical nuclear weapons and Russia’s lowering of its threshold for using nuclear weapons;
8. Urges the Member States to work on a new long-term collective security architecture for Europe inspired by the principles of the Helsinki process and including the concept of mutual security guarantees; notes that a fundamental aspect of such an approach is respect for the sovereignty and territorial integrity of all nations and a commitment to international law;
9. Insists that a new European security architecture apply the principles of peaceful coexistence between countries with different political systems, and offer security guarantees to all parties;
10. Calls on the Commission, in light of multiple threats ranging from climate-related catastrophes to pandemics, to abandon a narrow focus on military security and develop a policy centred on human security as defined in United Nations General Assembly resolution 66/290, which states that ‘human security is an approach to assist Member States in identifying and addressing widespread and cross-cutting challenges to the survival, livelihood and dignity of their people’ and calls for ‘people-centred, comprehensive, context-specific and prevention-oriented responses that strengthen the protection and empowerment of all people’;
11. Calls on the Commission and Member States to seek inspiration from Austria, which has enshrined neutrality in its constitution, committing not to join military alliances and not to permit the establishment of any foreign military bases on its territory;
12. Calls on the Commission and Member States to also look to the example set by Ireland, with its tradition of military neutrality; recalls that this tradition includes an active approach towards peace support operations and crisis management, contributions to conflict resolution and peacebuilding, work for human rights and development, and efforts to promote disarmament and the elimination of weapons of mass destruction;
13. Regrets the attacks on Irish neutrality and recalls that the people of Ireland were guaranteed continued military neutrality, underpinned by a commitment to only undertake operations with a United Nations mandate, ahead of their ratification of the Lisbon Treaty;
14. Reiterates its call on Türkiye, a NATO member, to withdraw its troops from Cyprus, an EU Member State, and to work constructively towards finding a viable and peaceful solution based on the relevant UN resolutions;
15. Calls for unanimity voting on defence issues to be maintained within the Council to promote consensus-based solutions that foster much-needed unity;
Diplomacy as the cornerstone of European security
16. Believes that diplomacy should remain a cornerstone of EU foreign policy;
17. Recalls that conflict prevention is paramount to any security and defence strategy; underlines the fact that diplomacy prevents and ends wars, and that every euro invested in conflict prevention saves around EUR 16 later on;
18. Believes that, given the deteriorating security situation on several fronts and increasing geopolitical tensions, preventive diplomacy requires sustained and enhanced attention; calls, therefore, on the Commission and Member States to immediately reverse the cutbacks made to diplomatic representations;
19. Believes that its systematic alignment with US foreign policy, most recently with regard to Israeli war crimes, ethnic cleansing and genocidal practices against Palestinians, has dramatically reduced the EU’s global diplomatic credibility and therefore worsened its security situation;
20. Recalls that the participation of EU Member States in illegal military operations and the support for violations of international law abroad gravely endangers the security of EU citizens; urges the Commission and Member States to explore a non-aligned foreign and security policy stance based on the principles of the UN Charter, including peaceful conflict resolution, diplomacy and multilateralism;
21. Believes that Europe has much to gain from diversifying its relations and maintaining diplomatic connections with as many countries as possible around the world;
Arms control, disarmament and non-proliferation
22. Is deeply concerned that world military expenditure continues to rise to new record levels; highlights the fact that an arms race will not create security for European citizens, but instead, in line with the security dilemma, heighten the risk of violent conflict; calls on the Commission to actively promote new arms control treaties;
23. Recalls that the EU strategy against the proliferation of weapons of mass destruction made non-proliferation a central goal of the EU’s CFSP, stating that ‘our objective is to prevent, deter, halt and, where possible, eliminate proliferation of concern worldwide’; calls, therefore, on Member States to sign and ratify the Treaty on the Prohibition of Nuclear Weapons;
24. Notes that arms exports, also of small and light weapons, can fuel conflict and global terrorism and destabilise entire regions, states and societies, thereby thwarting sustainable development and crisis management efforts; calls on the Commission and Member States to strictly apply Council Common Position 2008/944/CFSP of 8 December 2008 defining common rules governing control of exports of military technology and equipment in order to avoid a worsening of the security situation in the EU’s immediate neighbourhood;
25. Calls for the creation of a Directorate-General for Disarmament and Arms Control at the Commission;
26. Demands an immediate arms embargo against Israel and any other country directly or indirectly involved in armed conflict, except in the case of those that are the victim of invasion by others, in order to stop EU complicity in war crimes, ethnic cleansing and genocidal practices, whether perpetrated by Israel or any other country; calls on the Commission and Member States to base their foreign and security policy on the principles of the Charter of the United Nations and international law;
Defence expenditure
27. Urges the Commission and Member States to offer full transparency and a critical audit of the current defence expenditure within the Union, detailing why it estimates that European countries would be unable to defend themselves with budgets already vastly superior to those of most of the world’s countries;
28. Notes with concern that the Commission has presented a new EUR 150 billion common defence fund; believes that an increase in defence spending is not the solution to finding a lasting peace and that cuts in the EU structural funds should not be used for this purpose, given how vital these funds are to the development of local communities across the EU;
29. Notes that the share of GDP is not an adequate measure for the efficiency and impact of defence expenditure; calls on the Commission and Member States not to enter an arms race through a massive increase in defence budgets at the expense of both human and social security;
30. Regards the NATO demand for complementarity and compatibility of European weapons systems with US systems as incompatible with European strategic autonomy; regrets that the Commission and the Council have failed to present a detailed assessment of European critical defence capability gaps; calls on both institutions to present such an assessment, including specific priorities, before considering increased defence expenditure; recalls that these should focus on defensive tasks, not on building capacities for military intervention all over the world;
31. Recalls Commission estimates that increased cooperation between Member States in the field of security and defence could save up to EUR 100 billion every year; calls, in this regard, for inspiration to be drawn from existing intra-European cooperation structures, such as BACA, the Belgian-Dutch Naval cooperation BeNeSam and the Nordic Defence Cooperation, including Denmark, Finland, Iceland, Norway and Sweden, which have increased the efficiency of the participating nations’ national defence, and to explore common synergies and facilitate efficient common solutions;
32. Considers that the military cooperation commitments that may be assumed in collective security organisations should be considered in light of strict respect for the UN Charter;
33. Rejects the allocation of appropriations on the EU budget to the EU’s militarisation; calls for the reallocation of EU budget funds earmarked for the ongoing militarisation of the EU and its programmes to respond to the social and economic needs of citizens and promote cohesion between Member States;
34. Highlights the fact that there can be neither autonomy nor security without digital sovereignty; calls on the Commission to prioritise the development of a democratic, public-led digital stack that includes digital infrastructure as a service, and universal platforms, such as search engines and foundation AI models, governed by new public institutions with public and civil society representation;
35. Calls for heightened cooperation between Member States on sectoral issues of critical infrastructure protection, such as submarine cables;
Defence industry
36. Recalls that over the past three years, the EU has adopted a number of new initiatives on defence, and that the new Commissioner for Defence and Space believes that an additional investment of EUR 500 billion is needed in the coming decade, though other sources speak of EUR 700 billion;
37. Recalls that the previous EU programmes have been implemented with a lack of transparency with regard to the application of EU ethical guidelines, and that decision-making is extremely opaque and heavily influenced by arms industry lobbyists;
38. States that without ethics in investment choices, the EU will contribute to the creation of a more dangerous and lawless world order, where imperialist powers can disregard international law without facing consequences, while countries of the global south are exploited for their resources;
39. Calls, in addition, for the EU to adopt a policy of transparent, mission-oriented military spending, with more conscious spending at the service of a defined foreign policy to ensure greater efficiency;
40. Recalls that under Article 41(2) TEU expenditure arising from operations having military or defence implications may not be charged to the EU budget; calls for a strict application of this article; demands a retroactive review of corresponding defence funds and budget lines and for their termination where needed;
41. Expresses deep concern about the increased subsidies and public support for the military-industrial complex amid record total global military expenditure of USD 2 443 billion in 2023, making 2023 the ninth consecutive year in which military expenditure increased;
42. Demands that European public money go to European companies and emphasises that public European companies should, by definition, remain in Europe, while private companies can relocate their activities if they so wish;
43. Observes that leading arms companies have benefited shamelessly from the war in Ukraine; notes that Lockheed Martin alone distributed USD 6.8 billion of cash to shareholders in dividends and share repurchases in 2024; demands that windfall profits be taxed to finance climate adaptation, public health and housing, which are also components of a broader understanding of security;
44. Considers that the use of public money should systematically correspond to a proportional public return on investment and not finance corporate profit;
45. Stresses that focusing our resources, notably research and development spending, on the military sector will also slow down the development of other strategic industries with civilian purposes, such as renewable energy or pharmaceuticals;
46. Adds that military spending does not address any of the major social or environmental challenges, and that, worse still, it reinforces polluting and energy-consuming industrial models, thus increasing pressure on resources and the climate, particularly critical materials;
47. Believes that a massive increase in purchases of US-made goods would not only be detrimental to the European economy but would equally prolong Europe’s military dependence on the United States, while creating new industrial and technological constraints;
48. Demands that the defence industry continue to be excluded from qualifying for the sustainability criteria with regard to investment;
49. Calls for EIB financing to be strictly limited to civilian projects, excluding dual-use items;
Reprioritising public services and social spending
50. Is deeply concerned that militarisation, and specifically the ReArm Europe plan, is being used to further attack public services across the EU, which are already facing the suffocating effects of austerity measures imposed by the Commission;
51. Is appalled by the fact that the Commission is willing to bend fiscal rules such as the Stability and Growth Pact to finance military spending, but considers it impossible to raise spending to fund crumbling public services and support social and economic upward convergence in Member States;
52. Firmly insists that health, education, green mobility, climate adaptation, climate mitigation, biodiversity, food security and digital transition are elements of human security and should be considered priorities that require investments rather than budgetary cuts;
53. Calls, in line with the concept of human security, for a reprioritisation of public services and social welfare spending, as well as for investments in fighting climate change, as imperative prerequisites for guaranteeing that people live in a safe and secure environment;
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54. Instructs its President to forward this resolution to the Council, the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy and the European External Action Service.