Common Security and Defence Policy

Structure

The CSDP involves military or civilian missions being deployed to preserve peace, prevent conflict and strengthen international security in accordance with the principles of the United Nations Charter. Military missions are carried out by EU forces established with contributions from the member states' armed forces. The CSDP also entails collective self-defence amongst member states as well as a Permanent Structured Cooperation (PESCO) in which 26 of the 27 national armed forces pursue structural integration. The CSDP structure, headed by the Union's High Representative (HR/VP), Kaja Kallas, comprises:

• the Defence Industry Directorate-General of the European Commission
• relevant sections of the External Action Service (EEAS) — including the Military Staff (EUMS) with its so-called Military Planning and Conduct Capability (MPCC)
• a number of Foreign Affairs Council (FAC) preparatory bodies – such as the Military Committee (EUMC)
• four agencies, including the European Defence Agency (EDA).

While the EU has a command and control (C2) structure, it has no standing permanent military structure along the lines of the North Atlantic Treaty Organization's (NATO) Allied Command Operations (ACO), although it has been agreed that ACO resources may be used for the conduct of the EU's CSDP missions. The MPCC, established in 2017 and to be strengthened in 2020, does however represent the EU's first step in developing a permanent military headquarters. In parallel, the newly established European Defence Fund (EDF) marks the first time the EU budget is used to finance multinational defence projects. The CSDP structure is sometimes referred to as the European Defence Union (EDU), especially in relation to its prospective development as the EU's defence arm.

Decisions relating to the CSDP are proposed by the HR/VP, adopted by the FAC, generally requiring unanimity, and then implemented by the HR/VP. The EU command and control (C2) structure is directed by political bodies composed of member states' representatives, and generally requires unanimous decisions. As of April 2019:

Liaison: Advice and recommendations Support and monitoring Preparatory work

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¹ In the event of a CSDP Civilian Mission also being in the field, the relations with the Civilian Planning and Conduct Capability (CPCC) and its Civilian Operation Commander (Civ OpCdr), as well as the subordinate Head of Mission (HoM), are coordinated as shown.

² Other Component Commanders (CCs) and service branches which may be established.

³ The MPCC is part of the EUMS and Dir MPCC is double-hatted as DGEUMS. Unless the MPCC is used as Operation Headquarters (OHQ), either a national OHQ offered by member states or the NATO Command Structure (NCS) would serve this purpose. In the latter instance, Deputy Supreme Allied Commander Europe (DSACEUR), rather than Dir MPCC, would serve as Operation Commander (OpCdr).

⁴ Unless the MPCC is used as Operation Headquarters (OHQ), the MFCdr would be known as a Force Commander (FCdr), and direct a Force Headquarters (FHQ) rather than a MFHQ. Whereas the MFHQ would act both on the operational and tactical level, the FHQ would act purely on the operational level.

⁵ The political strategic level is not part of the C2 structure per se, but represents the political bodies, with associated support facilities, that determine the missions' general direction. The Council determines the role of the High Representative (HR/VP), who serves as Vice-President of the European Commission, attends European Council meetings, chairs the Foreign Affairs Council (FAC) and may chair the Political and Security Committee (PSC) in times of crisis. The HR/VP proposes and implements CSDP decisions.

⁶ Same composition as Committee of Permanent Representatives (COREPER) II, which also prepares for the CSDP-related work of the FAC.

Strategy

The European Union Global Strategy (EUGS) is the updated doctrine of the EU to improve the effectiveness of the CSDP, including the defence and security of the members states, the protection of civilians, cooperation between the member states' armed forces, management of immigration, crises etc. Adopted on 28 June 2016, it replaces the European Security Strategy of 2003. The EUGS is complemented by a document titled "Implementation Plan on Security and Defense" (IPSD). Deterrence theory is applied to deter aggressors as one of the core mandates of Common Security and Defence Policy, yet lacks credibility due to insufficient resources.

Forces

A new Action Plan on military mobility and cyber resilience was released 10 November 2022.

National

The CSDP is implemented using civilian and military contributions from member states' armed forces, which also are obliged to collective self-defence based on Treaty on European Union (TEU).

Five EU states host nuclear weapons: France has its own nuclear programmes, while Belgium, Germany, Italy and the Netherlands host US nuclear weapons as part of NATO's nuclear sharing policy. Combined, the EU possesses 300 warheads, and hosts between 90 and 130 US warheads. Italy hosts 70-90 B61 nuclear bombs, while Germany, Belgium, and the Netherlands 10-20 each one. The EU has the third largest arsenal of nuclear weapons, after the United States and Russia.

Expenditure and personnel

The following table presents the military expenditures of the members of the European Union in euros (€). The combined military expenditure of the member states amounted to €223.4 billion in 2018. This represents 1.4% of European Union GDP. European military expenditure includes spending on joint projects such as the Eurofighter Typhoon and joint procurement of equipment. The European Union's combined active military forces in 2016 totaled 1,410,626 personnel.

In a speech in 2012, Swedish General Håkan Syrén criticised the spending levels of European Union countries, saying that in the future those countries' military capability will decrease, creating "critical shortfalls".

In May 2025, EU member states agreed to launch a €150bn loans-for-arms fund backed by the bloc’s shared budget. The initiative will allow EU countries to borrow from Brussels and spend on weapons systems and platforms through joint procurement.

Guide to table:

• All figure entries in the table below are provided by the European Defence Agency for the year 2017, except for Germany's personnel figure, which is for 2016. Figures from other sources are not included.
• The "operations & maintenance expenditure" category may in some circumstances also include finances on-top of the nations defence budget.
• The categories "troops prepared for deployed operations" and "troops prepared for deployed and sustained operation" only include land force personnel.

Naval forces

The combined component strength of the naval forces of member states is some 514 commissioned warships. Of those in service, 4 are fleet carriers. The EU also has 4 amphibious assault ships and 20 amphibious support ships in service. Of the EU's 49 submarines, 10 are nuclear-powered submarines while 39 are conventional attack submarines.

Operation Atalanta (formally European Union Naval Force Somalia) is the first ever (and still ongoing) naval operation of the European Union. It is part of a larger global action by the EU in the Horn of Africa to deal with the Somali crisis. As of January 2011, twenty-three EU nations participate in the operation.

France and Italy have blue-water navies.

Guide to table:

• Ceremonial vessels, research vessels, supply vessels, training vessels, and icebreakers are not included.
• The table only counts warships that are commissioned (or equivalent) and active.
• Surface vessels displacing less than 200 tonnes are not included, regardless of other characteristics.
• The "amphibious support ship" category includes amphibious transport docks and dock landing ships, and tank landing ships.
• Frigates over 6,000 tonnes are classified as destroyers.
• The "patrol vessel" category includes missile boats.
• The "anti-mine ship" category includes mine countermeasures vessels, minesweepers and minehunters.
• Generally, total tonnage of ships is more important than total number of ships, as it gives a better indication of capability.

Land forces

Combined, the member states of the European Union maintain large numbers of various land-based military vehicles and weaponry.

Guide to table:

• The table is not exhaustive and primarily includes vehicles and EU-NATO member countries under the Conventional Armed Forces in Europe Treaty (CFE treaty). Unless otherwise specified.
• The CFE treaty only includes vehicles stationed within Europe, vehicles overseas on operations are not counted.
• The "main battle tank" category also includes tank destroyers (such as the Italian B1 Centauro) or any self-propelled armoured fighting vehicle, capable of heavy firepower. According to the CFE treaty.
• The "armoured fighting vehicle" category includes any armoured vehicle primarily designed to transport infantry and equipped with an automatic cannon of at least 20 mm calibre. According to the CFE treaty.
• The "artillery" category includes self-propelled or towed howitzers and mortars of 100 mm calibre and above. Other types of artillery are not included regardless of characteristics. According to the CFE treaty.
• The "attack helicopter" category includes any rotary wing aircraft armed and equipped to engage targets or equipped to perform other military functions (such as the Apache or the Wildcat). According to the CFE treaty.
• The "military logistics vehicle" category includes logistics trucks of 4-tonne, 8-tonne, 14-tonne or larger, purposely designed for military tasking. Not under CFE treaty.

Air forces

The air forces of EU member states operate a wide range of military systems and hardware. This is primarily due to the independent requirements of each member state and also the national defence industries of some member states. However such programmes like the Eurofighter Typhoon and Eurocopter Tiger have seen many European nations design, build and operate a single weapons platform. 60% of overall combat fleet was developed and manufactured by member states, 32% are US-origin, but some of these were assembled in Europe, the remaining 8% being Soviet-made aircraft. As of 2014, it is estimated that the European Union had around 2,000 serviceable combat aircraft (fighter aircraft and ground-attack aircraft).

The EU's airlift capabilities evolved with the introduction of the Airbus A400M (another example of EU defence cooperation). The A400M is a tactical airlifter with strategic capabilities. Around 140 were initially expected to be operated by 5 member states (Luxembourg, France, Germany, Spain and Belgium).

Guide to tables:

• The tables are sourced from figures provided by Flight International for the year 2020.
• Aircraft are grouped into three main types (indicated by colours): red for combat aircraft, green for aerial refueling aircraft, and yellow for strategic and tactical transport aircraft.
• The two "other" columns include additional aircraft according to their type sorted by colour (i.e. the "other" category in red includes combat aircraft, while the "other" category in grey includes both aerial refueling and transport aircraft). This was done because it was not feasible allocate every aircraft type its own column.
• Other aircraft such as trainers, helicopters, UAVs and reconnaissance or surveillance aircraft are not included in the below tables or figures.

Fighter and ground-attack

Aerial refueling and transport

Multinational

Established at Union level

The Helsinki Headline Goal Catalogue is a listing of rapid reaction forces composed of 60,000 troops managed by the European Union, but under control of the countries who deliver troops for it.

Forces introduced at Union level include:

• The battle groups (BG) adhere to the CSDP, and are based on contributions from a coalition of member states. Each of the eighteen Battlegroups consists of a battalion-sized force (1,500 troops) reinforced with combat support elements. The groups rotate actively, so that two are ready for deployment at all times. The forces are under the direct control of the Council of the European Union. The Battlegroups reached full operational capacity on 1 January 2007, although, as of January 2013 they are yet to see any military action. They are based on existing ad hoc missions that the European Union (EU) has undertaken and has been described by some as a new "standing army" for Europe. The troops and equipment are drawn from the EU member states under a "lead nation". In 2004, United Nations Secretary-General Kofi Annan welcomed the plans and emphasised the value and importance of the Battlegroups in helping the UN deal with troublespots.
• The Medical Command (EMC) is a planned medical command centre in support of EU missions, formed as part of the Permanent Structured Cooperation (PESCO). The EMC will provide the EU with a permanent medical capability to support operations abroad, including medical resources and a rapidly deployable medical task force. The EMC will also provide medical evacuation facilities, triage and resuscitation, treatment and holding of patients until they can be returned to duty, and emergency dental treatment. It will also contribute to harmonising medical standards, certification and legal (civil) framework conditions.
• The Force Crisis Response Operation Core (EUFOR CROC) is a flagship defence project under development as part of Permanent Structured Cooperation (PESCO). EURFOR CROC will contribute to the creation of a "full spectrum force package" to speed up provision of military forces and the EU's crisis management capabilities. Rather than creating a standing force, the project involves creating a concrete catalogue of military force elements that would speed up the establishment of a force when the EU decides to launch an operation. It is land-focused and aims to generate a force of 60,000 troops from the contributing states alone. While it does not establish any form of "European army", it foresees an deployable, interoperable force under a single command. Germany is the lead country for the project, but the French are heavily involved and it is tied to President Emmanuel Macron's proposal to create a standing intervention force. The French see it as an example of what PESCO is about.

Provided through Article 42.3 TEU

This section presents an incomplete list of forces and bodies established intergovernmentally amongst a subset of member states. These organisations will deploy forces based on the collective agreement of their member states. They are typically technically listed as being able to be deployed under the auspices of NATO, the United Nations, the European Union (EU) through Article 42.3 of TEU, the Organization for Security and Co-operation in Europe, or any other international entity.

However, with the exception of the Eurocorps, very few have actually been deployed for any real military operation, and none under the CSDP at any point in its history.

Land Forces:

• The Eurocorps is an army corps of approximately 1,000 soldiers stationed in Strasbourg, France. Based in the French city of Strasbourg, the corps is the nucleus of the Franco-German Brigade.
• The I. German/Dutch Corps is a multinational formation consisting of units from the Dutch and German armies. Due to its role as a NATO High Readiness Forces Headquarters, soldiers from other NATO member states, the United States, Denmark, Norway, Spain, Italy, the United Kingdom amongst others, are also stationed at Münster.
• The Multinational Corps Northeast, a Danish-German-Polish multinational corps
• The European Gendarmerie Force, an intervention force with militarised police functions which specializes in crisis management.

Aerial:

• The European Air Transport Command exercises operational control of the majority of the aerial refueling capabilities and military transport fleets of its participating nations. Located at Eindhoven Airbase in the Netherlands, the command also bears a limited responsibility for exercises, aircrew training and the harmonisation of relevant national air transport regulations. The command was established in 2010 to provide a more efficient management of the participating nations' assets and resources in this field.

Naval:

• The European Maritime Force (EUROMARFOR or EMF) is a non-standing, military force that may carry out naval, air and amphibious operations, with an activation time of 5 days after an order is received. The force was formed in 1995 to fulfill missions defined in the Petersberg Declaration, such as sea control, humanitarian missions, peacekeeping operations, crisis response operations, and peace enforcement.

Participation, relationship with NATO

The memberships of the EU and NATO are distinct, and some EU member states are traditionally neutral on defence issues. Out of the 27 EU member states, 23 are also members of NATO. Four non-NATO member states are members of the EU: Austria, Cyprus, Ireland, and Malta. Another four NATO members are EU applicants—Albania, Montenegro, North Macedonia and Turkey. Two others—Iceland and Norway—have opted to remain outside of the EU, however participate in the EU's single market. Several EU member states were formerly members of the Warsaw Pact. Denmark had an opt-out from the CSDP, however voted in a referendum in 2022 to begin to participate in the policy area.

Non-European countries Transcontinental countries

The Berlin Plus agreement is the short title of a comprehensive package of agreements made between NATO and the EU on 16 December 2002. These agreements were based on conclusions of NATO's 1999 Washington summit, sometimes referred to as the CJTF mechanism, and allowed the EU to draw on some of NATO's military assets in its own peacekeeping operations.

EUCAP Somalia

The EUCAP Somalia is an example of an unarmed, non-executive, civilian Common Security and Defence Policy (CSDP) Mission. aimed at strengthening maritime security capacities, police sector, as well as promoting the Rule of Law in Somalia. It provides strategic level advice, mentoring and training, on issues ranging from coast guard and police functions to police-prosecution cooperation and the drafting of laws. Initially launched as EUCAP Nestor in 2012, the mission was reconfigured to focus on Somalia, thus renamed by the Council of the European Union, EUCAP Somalia in 2016.

In December 2024, the Council of European Union extended the Mission’s mandate to February 2027.

The most prominent goals of the Mission are to help Somalia to generate well trained police forces in line with the Somali Transition Plan, contribute to secure one of the EU’s vital maritime trade routes, and assist to draft and implement sound legislative frameworks, including accountability systems.

Background

The mission was established in response to the persistent challenges posed by maritime insecurity in the Western Indian Ocean, particularly piracy, illegal fishing, human trafficking, and arms smuggling. These issues severely impacted both the security and economic stability of Somalia and the surrounding region. Somalia’s extensive coastline (the longest in mainland Africa) was unprotected for years due to the collapse of the government in the early 1990s. Piracy flourished in the absence of effective maritime governance, leading to international efforts to assist the country in reclaiming control over its waters. EUCAP Somalia emerged as part of these efforts, complementing other international missions such as Operation Atalanta and EUTM Somalia.

Mandates

From 2012 to 2016

EUCAP Nestor's mandate is divided into two objectives: strengthening the maritime capacities of the beneficiary countries (excluding Somalia) and training a coastal police force and judges in Somalia, the primary aim being to get the countries in the region to work together to strengthen action at sea. EUCAP Nestor operates in five countries: Djibouti, Kenya, Seychelles, Somalia (Puntland/Somaliland) and Tanzania. This is why it is relatively large in terms of staff numbers, with almost 200 people spread across the different countries. These experts provide legal, strategic and operational advice on maritime safety.

From 2016 to 2021

When the name was changed in December 2016, so too was the mandate. EUCAP Somalia will drop its regional ambitions and focus solely on Somalia, and more specifically on the Coast Guard, with a view to strengthening ‘Somali maritime law enforcement capabilities’. The mandate is not limited to piracy, but covers any criminal activity or offence committed on the coast or in the sea.

From 2021 to 2024

In December 2020, the Council of the European Union extended EUCAP's mandate until 31 December 2024. From 2021 onwards, the mission will also be helping Somalia to strengthen its police capabilities, in particular by developing the Federal Darwish police force and reinforcing the INTERPOL National Central Bureau in Mogadishu. The EU's budget for the period 2023-2024 allocated is 81 million €.

Current mandate from 2025 to 2027

In December 2024, the Council of European Union extended the Mission’s mandate to February 2027. EUCAP Somalia is tasked to advise, train, and equip the Somali Police Force and to support the development of a legal framework for Somalia’s internal security architecture. The mission’s work also includes providing monitoring support to regional maritime police forces, including the Somaliland and Puntland Maritime Police Forces, to bolster maritime law enforcement and security. The Mission’s budget for its current mandate is €110 million and total staff of 169 members.

Three pillars of EUCAP Somalia

1. Support the development of Somali Police Forces by enhancing their capabilities through advising, training and equipping Somali Police Forces in line with the Somali Security Sector Development Plan, ensuring the police are better prepared to maintain security and stability across the country.
2. Strengthen Maritime Police Capacities in and around the three main Somali ports (Mogadishu, Berbera and Bossaso) by providing capacity building on coast guard functions.
3. Promote the rule of law by working with Somali authorities to enhance accountability within the police force and across the criminal justice chain. This includes supporting the development of legal frameworks necessary for the effective functioning of law enforcement, and security actors in both land and maritime domains, fostering governance and accountability.

Achievements

Since its reconfiguration in 2016, EUCAP Somalia has made significant strides in enhancing Somalia’s maritime security capabilities. Recent achievements include improving the Somali Police Force's (SPF) command, control, and communication capabilities, as well as enhancing their ability to manage security incidents in Mogadishu. EUCAP has deployed a specialized multinational team to support the SPF's Maritime Police Unit and has played a key role in the development of Somaliland’s Coast Guard, conducting joint exercises with EUNAVFOR Operation ATALANTA. The mission also trained and equipped the Puntland Maritime Police Force, enhancing their capacity to enforce maritime law. Additionally, EUCAP has supported the Somali Attorney General’s Maritime Crimes Unit by providing training in internal procedures and investigations and launching an internship program for young lawyers. Despite the progress, Somalia continues to face challenges in maritime governance due to political instability and resource limitations, but EUCAP remains committed to addressing these issues with Somali authorities and international partners.

Mission's achievements during mandate 2022 - 24

• Increased the Somali Police Force command, control and communication capability.
• Trained Somali Police Force trainers for co-training activities.
• Enabling the establishment of the Maritime Rescue and Coordination Center in Mogadishu to enhance maritime security coordination along the Somali coastline and in regional waters.
• Supported the development of Somaliland Coast Guard, including through joint exercises with EUNAVFOR Operation ATALANTA and the provision of maritime equipment.
• Trained mobile training units for Somaliland Coast Guard and Somaliland Police.
• Trained and equipped the Puntland Maritime Police Force - Maritime Police Unit, enhancing their law enforcement capabilities.
• Supporting the maritime crimes unit of the Somali Attorney General's Office in internal procedures and maritime crimes investigations as well as an internship program for young lawyers in Mogadishu and Puntland.