AT A GLANCE

Plenary – February II 2024

Annual report on implementation of the

common security and defence policy, 2023
During the second February plenary session, the European Parliament will vote on its 2023 annual report on
implementation of the common security and defence policy (CSDP). This year's report reflects ground-breaking
developments in EU defence since 2022. Its main areas of focus include Russia's war on Ukraine and the EU's
response, the situation in the Middle East, implementation of the Strategic Compass and EU defence initiatives.

Background
According to Article 36 of the Treaty on European Union (TEU), the High Representative for Foreign Affairs
and Security Policy/Vice-President of the Commission (HR/VP) must consult Parliament 'regularly' on the
main aspects of the CSDP and inform it on developments in this area, ensuring that Parliament's views are
'duly taken into consideration'. The TEU also states that Parliament must hold debates on progress on CSDP
implementation twice a year. Parliament's Subcommittee on Security and Defence (SEDE) prepares an
annual report on CSDP implementation for the Committee on Foreign Affairs (AFET), covering a wide range
of security and defence issues. The 2023 report comes against the backdrop of the most ground-breaking
developments in EU defence in decades. The return of war to Europe has been a wake-up call for Member
States when it comes to making progress on European defence. Importantly, the Versailles Declaration was
adopted in March 2022, and Member States also adopted the Strategic Compass the same month, an
actionable framework for the EU's security and defence up to 2030. The first progress report on the latter
was adopted in March 2023, outlining substantial progress. An update of the EU's maritime security strategy
and the first ever EU space strategy for security and defence were also adopted in March 2023. After years
of under-investment, many Member States have raised their defence budgets significantly: the annual
combined defence budgets of Member States hit €240 billion in 2022 and are set to rise to €290 billion
annually by 2025. In 2021, the figure was €214 billion, excluding Denmark.
On top of this, legislation to support the ramping-up of the EU's production capacities in ammunition and
missiles (ASAP) has been passed, and a new short-term funding instrument to incentivise the joint
procurement of defence equipment (EDIRPA) established. Early in 2024, the Commission is expected to
table a longer-term European defence investment programme (EDIP) to encourage joint defence
procurement as part of a broader European defence industrial strategy. Moreover, the EU has deepened its
cooperation with partners such as the North Atlantic Treaty Organization (NATO), the United Nations, the
United States and the United Kingdom. For instance, a third joint EU-NATO declaration was signed in
January 2023. Significantly, EU Member State Finland joined NATO in April 2023 and Sweden is expected to
follow suit very soon, following Turkey’s ratification of its accession. Hungary is the last ally holding up
Swedish accession, due to alleged disparaging Swedish remarks about Hungarian democracy. However,
Hungary has said it will ratify the accession ‘as soon as possible’. Timing remains unclear. The inaugural
meeting of the Schuman Security and Defence Forum, an EU initiative to facilitate dialogue on security and
defence with its partners, took place in March 2023.
The EU has continued its financing of the provision of lethal arms to Ukraine with funds from the European
Peace Facility (EPF) – an off-budget financing instrument now worth €12 billion in current prices,
operational since July 2021. The EU contribution under the EPF to support the Ukrainian army has reached
€5.6 billion (in current prices), including €2 billion for ammunition. This follows a pledge in March 2023 by
the EU to provide Ukraine with 1 million rounds of artillery ammunition by March 2024, a commitment that
Josep Borrell, the HR/VP, has admitted the EU will fail to deliver, with only slightly more than half set to be
delivered by the deadline. A further 630 000 rounds are set to be delivered by the end of 2024. Borrell
presented a proposal in October 2023, requesting €5 billion annually from 2024 to 2027 in military aid to
Ukraine under the EPF. This developed into a proposal for a single, non-repeatable top-up of €5 billion for

EPRS | European Parliamentary Research Service

Author: Sebastian Clapp, Members' Research Service
PE 759.593 – February 2024
EPRS Annual report on implementation of the CSDP, 2023
the EPF in January 2024. The purpose of this was to create a 'Ukraine Assistance Fund' within the EPF. At the
time of writing, no agreement has been reached on this matter, as Member States disagree on how to
modify the fund to best suit Ukraine's needs. The eighth tranche of military assistance under the EPF is also
being held up by Hungary. The EU launched an EU Military Assistance Mission in support of Ukraine
(EUMAM Ukraine) in November 2022. Almost 40 000 Ukrainian soldiers have been trained as of February
2024; following Member State agreement this is expected to reach 60 000 by the end of summer 2024.
2023 annual report on implementation of the CSDP
The AFET committee adopted its 2023 annual report on implementation of the CSDP on 28 November 2023,
by 42 votes to 8, with 6 abstentions. Following the report's adoption, rapporteur Sven Mikser (S&D, Estonia)
highlighted that 'for sustainable security in Europe and worldwide, it is absolutely crucial that the Russian
aggressor be denied victory in Ukraine … we must make sure the EU emerges as a strong and united
security actor capable of defending its own Member States and standing by the victim of aggression and
providing it with all the necessary support. The EU and Member States should provide adequate resources
for our common security and defence and make sure that the necessary institutional arrangements are in
place for the Union to be able to respond to any crisis in its neighbourhood'.
The AFET report focuses on the implications of Russia's illegal, unprovoked, unjustified war of aggression
against Ukraine for the EU's security and defence, as well as for global security and stability. AFET MEPs
strongly condemn Moscow's aggression and are concerned about Belarus, China, Iran and North Korea's
support for the Kremlin's war machine. The report affirms that the EU must continue to provide Kyiv with
the military means necessary 'for Ukraine to have a decisive military victory to end Russia's illegal war of
aggression', including through the European Peace Facility, the act in support of ammunition production
(ASAP), the European defence industry reinforcement through common procurement act (EDIRPA), and its
CSDP missions (EUMAM Ukraine and EUAM Ukraine). It also demands more and faster EU financial and
military support, emphasising that Ukraine's military victory and its future accession to the EU and NATO
are essential for overall security, stability, and lasting peace on the European continent.
Reiterating Israel's right to self-defence in accordance with international law and international
humanitarian law, the report denounces the heinous attacks carried out against Israel by the terrorist
organisation Hamas. It demands the unconditional and immediate release of all hostages as well as
continuous, quick, safe, and unimpeded delivery of humanitarian aid to those in need. The AFET MEPs
express their condolences and unwavering support for the innocent victims on both sides and demandthat
those accountable for terrorist attacks and transgressions of international law be held accountable.
The report makes the case that the EU's Strategic Compass should be updated on a regular basis to take
into account lessons learned, for example from the war in Ukraine and the most recent events in the Middle
East. It calls on the EU and its Member States to fulfil their commitment made in the Versailles Declaration
by expediting the Strategic Compass's full implementation and significantly enhancing European military
cooperation at the level of both armed forces and industry. In order to maintain interoperability and
complementarity with NATO, this is necessary to make the European Union a more powerful and capable
security provider. The report also demands an evaluation of the EU's numerous CSDP operations and
missions, emphasising that each mission must be successfully adapted to the requirements and preferences
of each host nation and guarantee the establishment of the prerequisite conditions for the mission to
accomplish its objectives. It asks for steps to be taken to support the European defence sector, such as the
creation of a long-term, comprehensive European defence investment programme (EDIP).
Finally, the report calls for increased parliamentary scrutiny of the CSDP, especially given the recent
increases in spending on defence policies and programmes at EU level and among Member States. AFET
MEPs call for the appointment of a Defence Union Commissioner (DUC) within the next Commission, and
once again call for the establishment of a fully fledged Security and Defence Committee with full legislative
and budgetary responsibilities on European defence matters, including measures for strengthening the
EDTIB. The report further stresses that until such a committee is established, SEDE should be included in all
legislative procedures relating to European defence. It also calls on the European External Action Service
(EEAS) to report 'regularly and comprehensively' on implementation of the Strategic Compass.
Own initiative report: 2023/2119(INI); Committee responsible: AFET; Rapporteur: Sven Mikser (S&D, Estonia).

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