Relations with the European Union

 

 

• Membership and participation
• Framework for cooperation
• Towards a more strategic partnership
• Key areas of cooperation
• Milestones

 

Membership and participation

NATO and the EU have 23 member countries in common: Belgium, Bulgaria, Croatia, Czechia, Denmark, Estonia, Finland, France, Germany, Greece, Hungary, Italy, Latvia, Lithuania, Luxembourg, the Netherlands, Poland, Portugal, Romania, Slovakia, Slovenia, Spain and Sweden.

Furthermore, a number of countries that are members of NATO but not of the EU participate in all NATO-EU meetings. This includes Albania, Canada, Iceland, Montenegro, North Macedonia, Norway, Türkiye, the United Kingdom and the United States. 

Austria, Ireland and Malta, which are members of the EU and of NATO’s Partnership for Peace (PfP) programme, also participate in all NATO-EU meetings. Cyprus – which is an EU member but does not participate in the PfP programme and does not have a security agreement with NATO on the exchange of classified documents – participates in informal NATO-EU meetings involving all members of NATO and the EU. This is a consequence of decisions taken by NATO in December 2002.

 

Framework for cooperation

An exchange of letters between the NATO Secretary General and the EU Presidency in January 2001 defined the scope of cooperation and modalities of consultation on security issues between the two organisations. Cooperation further developed with the signing of the NATO-EU Declaration on European Security and Defence Policy (ESDP) in December 2002 and the agreement, in March 2003, of a framework for cooperation.

NATO-EU Declaration on ESDP: The NATO-EU Declaration on ESDP, agreed on 16 December 2002, reaffirmed the EU assured access to NATO’s planning capabilities for its own military operations and reiterated the political principles of the strategic partnership: effective mutual consultation; equality and due regard for the decision-making autonomy of the EU and NATO; respect for the interests of EU and NATO member states; respect for the principles of the Charter of the United Nations; and coherent, transparent and mutually reinforcing development of the military capability requirements common to the two organisations.

The “Berlin Plus” arrangements: As part of the framework for cooperation adopted on 17 March 2003, the so-called “Berlin Plus” arrangements provide the basis for NATO-EU cooperation in crisis management in the context of EU-led military operations that make use of NATO's collective assets and capabilities, including command arrangements and assistance in operational planning. In effect, they allow the Alliance to support EU-led operations in which NATO as a whole is not engaged.

Joint Declarations on EU-NATO Cooperation: Since the 2016 NATO Summit in Warsaw, NATO and the EU have issued three Joint Declarations (in 2016, 2018 and 2023). These declarations have outlined a series of actions for the two organisations to take together in concrete areas, strengthening and expanding the NATO-EU strategic partnership in light of common challenges. All three declarations were signed by the NATO Secretary General, the President of the European Council and the President of the European Commission.

NATO and the EU meet on a regular basis to discuss issues of common interest. Meetings take place at different levels including at the level of Defence and Foreign Ministers, ambassadors, military representatives and defence advisors. There are regular staff-to-staff talks at all levels between NATO’s International Staff and International Military Staff, and their respective EU interlocutors (the European External Action Service, the European Defence Agency, the European Commission and the European Parliament).

Permanent military liaison arrangements have been established to facilitate cooperation at the operational level. A NATO Permanent Liaison Team has been operating at the EU Military Staff since November 2005 and an EU Cell was set up at SHAPE (NATO’s strategic command for operations in Mons, Belgium) in March 2006.

 

Towards a more strategic partnership

Strengthening the NATO-EU strategic partnership is particularly important in the current security environment, in which both organisations and their members are facing the same challenges to the east and south.

NATO-EU cooperation stretches back more than two decades, and has significantly expanded in recent years, building on three Joint Declarations (in 2016, 2018 and 2023), as well as the NATO Strategic Concept and EU Strategic Compass in 2022.

At the July 2016 NATO Summit in Warsaw, the NATO Secretary General, the President of the European Council and the President of the European Commission issued the first Joint Declaration, outlining a series of actions for the two organisations to take together in concrete areas. As a follow-up, in December 2016, NATO Foreign Ministers endorsed 42 specific measures to advance how NATO and the EU work together in seven key areas of common interest: countering hybrid threats; cooperation in operations, including in the maritime domain; cyber security and defence; development of defence capabilities; defence industry and research; exercises; and defence and security capacity building for partners. Building on this positive momentum, in December 2017, further steps were taken to boost NATO-EU cooperation through the addition of 32 new measures, including in three new areas: military mobility to facilitate the movement of forces and equipment across Europe; information-sharing in the fight against terrorism and coordination of counter-terrorism support in partner countries; and promoting the role of women in peace and security.

At the July 2018 Brussels Summit, Allied Leaders welcomed the second Joint Declaration and the tangible results achieved in a range of areas, underlining their determination to develop and deepen cooperation by fully implementing the common set of 74 proposals. They recognised that the development of coherent, complementary and interoperable defence capabilities, avoiding duplication, is key to joint efforts to make the Euro-Atlantic area safer. NATO Leaders also welcomed the call for deeper NATO-EU cooperation by the European Council in June 2018 and recognised that the ongoing distinct strategic processes within NATO and the EU offer an opportunity for further intensification of consultations and cooperation between the two organisations. 

The third Joint Declaration was signed by the NATO Secretary General, the President of the European Council and the President of the European Commission on 10 January 2023 at NATO Headquarters. Following the adoption of the 2022 NATO Strategic Concept and the EU Strategic Compass, the third Joint Declaration aims to strengthen and expand the strategic partnership between NATO and the EU, building on unprecedented progress in cooperation between the two organisations since the previous declarations were signed in 2016 and 2018. The heads of the two organisations resolved to address growing geostrategic competition, resilience issues and the protection of critical infrastructure. Other priority areas of work include emerging and disruptive technologies, space, the security implications of climate change, and countering foreign interference and information manipulation. 

The NATO Secretary General and the EU High Representative for Foreign Affairs and Security Policy/Vice President of the European Commission regularly report to NATO Allies and EU member states on progress in cooperation. (See progress reports under Official Texts.)

Non-EU European Allies make a significant contribution to these efforts. For the strategic partnership between NATO and the EU, their fullest involvement in these efforts is essential.

The range of subjects discussed between NATO and the EU has expanded considerably over the past several years. Political dialogue covers the full spectrum of issues relevant to both organisations, including cyber and hybrid threats, strategic challenges posed by Russia and China, and the security situation in the Western Balkans, the Middle East and Afghanistan. Since Russia’s illegal annexation of Crimea in 2014, and especially since Russia escalated its war of aggression with its full-scale invasion of Ukraine in 2022, both organisations have clearly demonstrated commonality of approach and complementarity, especially with regard to their respective assistance to Ukraine.

 

Key areas of cooperation

Combatting human trafficking in the Aegean and the Central Mediterranean

NATO Defence Ministers decided on 11 February 2016 to launch the Alliance’s Aegean Activity, deploying ships to the Aegean Sea to support Greece and Türkiye, as well as the European Union's border agency Frontex, in their efforts to tackle the refugee and migrant crisis. Standing NATO Maritime Group 2 (SNMG2) is conducting reconnaissance, monitoring and surveillance in the territorial waters of Greece and Türkiye, as well as in international waters. The deployment in the Aegean Sea aims to support international efforts to cut the lines of human trafficking and illegal migration. NATO ships are providing real-time information to the coastguards and relevant national authorities of Greece and Türkiye, as well as to Frontex, helping them in their efforts to tackle this crisis.

In October 2016, Defence Ministers extended NATO's deployment in the Aegean Sea and decided that NATO's new Operation Sea Guardian would support the EU's Operation Sophia in the Central Mediterranean with NATO ships and planes, help increase the EU's situational awareness and provide logistical support. (Operation Sophia ended on 31 March 2020.)

The Western Balkans

In July 2003, the EU and NATO published a "Concerted Approach for the Western Balkans". Jointly drafted, it outlines core areas of cooperation and emphasises the common vision and determination both organisations share to bring stability to the region.

• The Republic of North Macedonia

  On 31 March 2003, the EU-led Operation Concordia took over the responsibilities of the NATO-led mission, Operation Allied Harmony, in the country at the time known as the former Yugoslav Republic of Macedonia. This mission, which ended in December 2003, was the first "Berlin Plus" operation in which NATO assets were made available to the EU.

• Bosnia and Herzegovina

  Building on the results of Concordia and following the conclusion of the NATO-led Stabilisation Force (SFOR) in Bosnia and Herzegovina, the EU deployed a new mission called Operation Althea on 2 December 2004. The EU Force (EUFOR) operates under the "Berlin Plus" arrangements, drawing on NATO planning expertise and on other Alliance assets and capabilities. The Vice-Chief of Staff SHAPE is the Commander of Operation Althea. The EU Operation Headquarters (OHQ) is located at SHAPE (NATO’s strategic command for operations, located in Mons, Belgium).

• Kosovo

  NATO has been leading a peacekeeping force in Kosovo (KFOR) since 1999. The EU has contributed civil assets to the UN Mission in Kosovo (UNMIK) for years and agreed to take over the police component of the UN Mission. The European Union Rule of Law Mission (EULEX) in Kosovo, which deployed in December 2008, is the largest civilian mission ever launched under the Common Security and Defence Policy (CSDP). The central aim is to assist and support the Kosovo authorities in the rule of law area, specifically in the police, judiciary and customs areas. EULEX works closely with KFOR in the field.

Cooperation in other regions

• Iraq

  Both NATO and the EU are increasing their presence in Iraq. The EU is focusing on the civilian security sector. NATO is helping build the capacities of the Iraqi defence and security structures, and is scaling up these efforts with a non-combat advisory mission launched at the Brussels Summit in July 2018, at the request of the government of Iraq. NATO Mission Iraq complements the ongoing efforts of the Global Coalition to Defeat ISIS and other international actors.

• Afghanistan

  NATO and the EU played key roles as part of the international community's efforts in Afghanistan. The NATO-led International Security Assistance Force (ISAF) helped create a stable and secure environment in which the Afghan government as well as other international actors could build democratic institutions, extend the rule of law and reconstruct the country. Both ISAF and its successor Resolute Support Mission (RSM) cooperated with the EU's Rule of Law Mission (EUPOL), which operated in Afghanistan from June 2007 to December 2016. EUPOL Advisers at the Afghan Ministry of Interior and the Afghan National Police supported the reform of the ministry and the development of civilian policing. The EU also initiated a programme for justice reform and helped to fund civilian projects in NATO-run Provincial Reconstruction Teams that were each led by an EU member country. In April 2021, the Allies decided to start the withdrawal of RSM forces by 1 May 2021 and the mission was terminated in early September 2021.

• Darfur

  Both NATO and the EU supported the African Union's mission in Darfur, Sudan in particular with regard to airlift rotations.

• Piracy

  For several years NATO’s naval forces deployed under Operation Ocean Shield (2009-2016) and EU naval forces (Operation Atalanta) worked side by side with other actors, off the coast of Somalia for anti-piracy missions.

Development of defence capabilities

Twenty-two NATO Allies are also EU Member States, each of which has finite resources and a single set of forces. Ensuring the coherence of NATO and EU defence capability development efforts is therefore a priority for both organisations. Work is under way to ensure consistency between the output of the EU’s Capability Development Plan (CDP), Headline Goal Process (HLGP) and Coordinated Annual Review on Defence (CARD), and the respective NATO processes – such as the NATO Defence Planning Process (NDPP) and the Partnership for Peace Planning and Review Process (PARP) – in particular through cross-participation in meetings and staff-to-staff contacts.

NATO and EU staff also work together in the context of multinational capability development within the EU defence initiatives and NATO’s multinational High Visibility Projects. In view of Russia’s war of aggression against Ukraine, cooperation on munitions – in the land and air domains particularly – has become a special focus to sustain support to Ukraine and replenish EU Member States’ and NATO Allies’ stocks. Overall, expert meetings at staff level continue to ensure awareness and complementarity of efforts as well as avoid unnecessary duplication.

Military mobility

NATO-EU cooperation on military mobility is also essential. Both organisations strive to ensure that their respective approaches are coherent and seek synergies wherever possible. A Structured Dialogue on Military Mobility, bringing together key stakeholders of both organisations, is crucial in this respect. Set up in 2018, it allows staffs to discuss shared priorities such as military requirements, transport infrastructure, transport of dangerous goods, customs, cross-border movement permissions and relevant exercises, as well as mutual updates on respective work. Since 2018, NATO has been contributing to the development and updates of the EU’s Military Requirements for Military Mobility within and beyond the EU, in particular with regard to critical transport infrastructure.

Countering hybrid threats

NATO and the EU continue to strengthen their cooperation and coordination on countering hybrid threats. NATO and EU staff-to-staff consultations have intensified in order to complement the two organisations` work and to avoid any duplication. The European Centre of Excellence for Countering Hybrid Threats located in Helsinki, Finland functions as an arena for exchanges between NATO and the EU, bringing the two organisations closer together.

Cyber security and defence

NATO and EU staff regularly engage on strategic, policy and legislative cyber security and defence developments to achieve shared situational awareness and promote further complementarities. They continue to engage on cyber crisis management and response mechanisms. In addition, staffs continue to consult on cyber capacity building for partners.

NATO and EU staff also observe and participate in each other’s cyber defence exercises, including exercises organised by the NATO Cooperative Cyber Defence Centre of Excellence (CCDCOE) in Tallinn, Estonia. Exchanges continue on concepts and doctrines as well as training and education, including between the EU Military Staff and NATO International Military Staff. The Technical Arrangement on Cyber Defence between the NATO Computer Incident Response Capability (now known as the NATO Cyber Security Centre) and the Computer Emergency Response Team for the EU institutions, bodies and agencies (CERT-EU) provides a framework for exchanging information and sharing best practices between emergency response teams.

Exercises

NATO and the EU have stepped up their efforts and close interaction in the field of crisis management exercises, which contribute to increasing the resilience and preparedness of both organisations and their respective memberships. For example, in 2022-2023, NATO and the EU followed the Plan for Implementation of Parallel and Coordinated Exercises (PACE). This saw NATO staff participating in the relevant planning and conduct phases of the EU Integrated Resolve Exercise (under PACE22). In a reciprocal fashion, staff from the European Commission, the Council of the European Union and the European External Action Service participated in the planning and conduct of NATO’s Crisis Management Exercise 2023 (under PACE23).

Terrorism and WMD proliferation

Both NATO and the EU are committed to combatting terrorism and the proliferation of weapons of mass destruction (WMD). They have exchanged information on their activities in the field of protection of civilian populations against chemical, biological, radiological and nuclear attacks.

Resilience, civil preparedness and critical infrastructure protection

The current unpredictable security environment has led to a renewed focus on civil preparedness and resilience. Modern societies are highly complex, with integrated and interdependent sectors and vital services. They rely on supporting critical infrastructure, such as power or Internet-based communication, to function. While such a high level of interconnectedness is more efficient and allows for economies of scale, greater interdependencies also increase the risk of cascading effects in the event of a disruption. This makes critical infrastructure attractive targets for hybrid tactics.

NATO and the EU have stepped up their cooperation to address vulnerabilities in critical infrastructure as well as to improve transport and regulatory aspects of military mobility, with a focus on coordinated border-crossing legislation, regulations and procedures, including for the transportation of dangerous goods.

In January 2023, the NATO Secretary General and the President of the European Commission agreed to create a Task Force on resilience and critical infrastructure protection. The Task Force focused on mapping out current security challenges, and the particular importance of resilience in energy, transport, digital infrastructure and space. It released its Final Assessment Report in June 2023, making a number of key recommendations to deepen NATO-EU cooperation, including through more information exchanges, work to identify alternate transport routes for civilian and military mobility, and closer ties in security research.

 

 

Milestones