Guiding the EU’s shift in military posture for an unstable world

The phrase “a civilian power in an uncivil world,” generally attributed to Dutch political scientist Alfred Pijpers, captures the view in the 1980s and 1990s that the European Union was a force for stability through diplomacy, aid and economic cooperation – not hard power.

With his long career in both Austria and in international EU-led operations, General Robert Brieger remembers a time when even walking between EU institutions in military uniform was ominous. “But now we are part of the system,” says the highly decorated general whose military advice is regularly sought by the EU’s leadership.

Having served in command roles with Austria in NATO’s Kosovo Force (KFOR) and with the EU in EUFOR Althea in Bosnia and Herzegovina, Brieger has, perhaps more than many in the defence community, lived the evolution of the EU’s international role. With a military career that began in 1975, he witnessed the breaking of a long-standing taboo that the EU, as a trading bloc, should stay out of defence.

Nothing, however, marked a turning point quite like Russia’s war of aggression in Ukraine. “We’ve had to learn that conventional warfare in Europe is back,” he says from his office in Brussels’ European Quarter. “European institutions and decision-makers have had to acknowledge that there is a new challenge which demands the full attention of the Union.”

Shelter from the storm  

After decades of EU military, police and border assistance missions from the Balkans to Sub-Saharan Africa, not to mention anti-terrorism operations, the question is now inevitably: should the EU also be doing territorial defence? French President Emmanuel Macron has been a long-standing advocate for Europe’s collective defence and “strategic autonomy.”

Brieger is adamant that NATO is, and will remain, the cornerstone of European defence. But, there is an important role for the EU, he believes, whether that is in the form of a ‘European Defence Union’ as suggested by European Commission President Ursula von der Leyen, or under some other name.

The Coordinated Annual Review on Defence (CARD) certainly points to a shift in posture (see EDM page 8) highlighting the “resurgence of protracted, high-intensity wars with operations spanning all domains.” The last Capability Development Plan (CDP) revision took place in 2023, leading to the definition of EU priorities, which include:

• Next generation, multi-layered air and missile defence

• Space services for better situational awareness

• Full spectrum cyber defence

• Military mobility and strategic air - and sealift capabilities

• Autonomous systems and AI

• Chemical, Biological, Radiological, and Nuclear (CBRN) defence

“There is no NATO army, there is no EU army. We have a single set of forces, and Member States – NATO allies or not – are sovereign,” says Brieger. “So by working together in the EU, by enhancing our capabilities, our infrastructure and our readiness, we contribute to European defence, including territorial defence. Given the risk of conventional attack against the continent, then we need both the EU and NATO to be ready to secure our democratic way of life.”

At a time of growing great power rivalry, few would disagree that the world is more unstable and dangerous. Russia’s war in Ukraine, Iranian missile strikes and the Hamas attack on Israel all highlight instability near the EU’s border. Authoritarian regimes across the globe are pushing aggressive policies worldwide, using political, economic, and military power – along with disinformation and cyber attacks – to undermine democratic societies.

U.S. President Donald Trump could test NATO’s unity.

“We don’t yet know what incoming President Trump’s new policies will be, but we know that U.S. priorities lie not only in Europe,” Brieger says. “It’s an additional incentive to do more in Europe in a more cooperative way with strategic autonomy.”

Has there been a shift in the European defence mindset, after decades of relying on the United States for European protection? “I am not sure if it has been fully adopted across all areas of government, but the process has clearly begun since Russia’s aggression against Ukraine. There are many other pressing issues, such as the economy, healthcare, and social demands. But security must be prioritised, as without it, nothing else can function.”

Military diplomacy, a tool of statecraft 

Brieger concedes that even with the momentum created by Russia’s invasion of Ukraine, it has not been easy to act swiftly as Chairman of the European Union Military Committee (EUMC).

“My role is to provide advice and expertise; EUMC is an advisory body representing the national chiefs of defence,” Brieger says. “It can be challenging. You need partners to be successful by fostering the EU’s own autonomy.“

With all major decisions requiring unanimity, each military representative must return to their home capital to negotiate support from their political masters, which complicates reaching timely agreements. “We are a union of independent nations with diverse interests, and yet the crises we face demand a strong, unified European response.”

Brieger, as former chief of defence in Austria before his assignment as Chairman of the EUMC, knows full well that each country will defend its national interests “The highest art remains: finding a viable compromise – for everyone”.

Following Russia’s invasion of Ukraine, European countries have allocated an unprecedented amount of military support to Kyiv over the last three years. The EU Military Assistance Mission in support of Ukraine (EUMAM Ukraine) demonstrates that the EU has been able to act decisively, training more than 65,000 Ukrainian soldiers so far.

But despite directly funding arms through the European Peace Facility for Ukraine, questions for the EU remain. Should the EU train Ukrainian soldiers directly in Ukraine? Should the EU have first-hand contact with Ukrainian commanders through a special liaison cell in Kyiv? How can the EU become a more capable and stronger ally in supporting Ukraine?

“The EUMC handles all military activities within the EU framework, which means everything from planning to actually running missions. So we’ve got to be able to take quick decisions,” he says.

• Established in 2001, EUMC directs all military activities within the EU framework

• EUMC gives military direction to the EU Military Staff (EUMS), which plans and executes EU missions

• EUMC also provides military advice and makes recommendations directly to the Political and Security Committee (PSC), which is made up of EU ambassadors who are specialised in defence and security