EU's Military Assistance to Ukraine: Analysing the Impact of the European Peace Facility

The full-scale invasion of Ukraine by Russia in February 2022 became an existential challenge for European security. It exposed critical vulnerabilities in the EU’s defence mechanisms and underscored the urgency of coordinated military support. The European Peace Facility (EPF), created in 2021, has since become a cornerstone of the EU’s security response, enabling the EU Member States to provide critical assistance to Ukraine. Unlike traditional EU instruments, the EPF operates outside the EU budget, circumventing legal restrictions on military spending and allowing for direct support to partner countries. This publication examines the EPF’s role in strengthening Ukraine’s defence, evaluates its broader impact on European security policy, and discusses challenges and future directions.

A New Role for the EU in Defence

The EPF represents a significant evolution in the EU’s approach to defence, transitioning from a focus on economic aid and diplomacy to active military assistance. Since 2022, over €11 billion has been allocated through the EPF to support Ukraine, enabling the provision of ammunition, advanced weaponry, and logistical support. This assistance has addressed critical shortages in Ukraine’s military resources while simultaneously exposing gaps in European stockpiles and production capacities. The EU Member States have also been reimbursed for their contributions to Ukraine’s defence, encouraging greater participation and fostering unity within the bloc. Initially designed to support only EU Member States’ defence and security capabilities Ukraine became first third country to benefit from the EPF.

This military support underscores a shift in the EU’s geopolitical identity. Traditionally reliant on NATO for security, the EU is now taking on greater responsibility for its neighbourhood’s stability. By supporting Ukraine, the EU not only strengthens its partner’s sovereignty but also reinforces its own commitment to strategic autonomy. However, this shift has also highlighted tensions between the EU Member States, particularly regarding priorities for defence spending and procurement. Countries with strong defence industries, such as Germany and France, have led contributions, while others have been more hesitant, reflecting longstanding challenges in achieving cohesion.

Strategic and Political Implications

The EPF’s success in supporting Ukraine has bolstered the EU’s international credibility as a geopolitical actor. By facilitating coordinated military assistance, the EU has demonstrated its ability to respond decisively to crises. This marks a departure from its historically fragmented approach to defence, signalling a new era of strategic collaboration. At the same time, the EPF has reinforced the EU’s solidarity with Ukraine, laying the groundwork for deeper political and security ties. These developments are not only vital for Ukraine’s immediate defence needs but also for its long-term integration into European structures.

However, the EPF’s implementation has also raised important questions. First, the reliance on external suppliers for much of the equipment delivered to Ukraine exposes vulnerabilities in the EU’s defence industry. Approximately 78% of defence acquisitions by the EU Member States between February 2022 and mid-2023 originated from non-EU sources, undermining the coherence of the internal market. Second, while the EPF has successfully addressed immediate challenges, its sustainability remains uncertain. The current funding model relies on voluntary contributions and ad hoc decisions, which may not suffice in future crises.

Challenges and Opportunities Ahead

To maximize the EPF’s impact and ensure its long-term viability, the EU must address several critical issues. Strengthening the European Defence Technological and Industrial Base (EDTIB) is a priority, as it will reduce dependencies on external suppliers and enhance the EU’s strategic autonomy. Investment in dual-use technologies, joint stockpiles, and streamlined procurement processes can improve readiness and resilience. Moreover, the EU should explore integrating the EPF into a more stable and predictable financial framework, such as the Multiannual Financial Framework (MFF), to ensure consistent funding.

Coordination among Member States is another essential factor. While reimbursement mechanisms have encouraged participation, disparities in contributions risk undermining solidarity. Binding commitments or financial incentives for intra-EU procurement could help mitigate these imbalances. Finally, the EU must draw lessons from Ukraine’s experience to prepare for future challenges. The conflict has underscored the value of adaptability, collaboration, and strategic foresight in addressing rapidly evolving threats.

Conclusion: Building a Resilient Europe

The European Peace Facility has proven to be a transformative tool in supporting Ukraine and strengthening the EU’s role in global security. Its success demonstrates that Europe can act decisively when confronted with geopolitical challenges, marking a critical step toward greater strategic autonomy. However, the EPF’s achievements should not obscure the structural issues within the EU’s defence framework. Addressing these challenges is essential to ensuring the EU’s readiness for future crises.

By investing in its defence industry, enhancing coordination among Member States, and building sustainable financing mechanisms, the EU can position itself as a leader in promoting stability and security. The lessons of the EPF extend beyond Ukraine, offering a blueprint for how Europe can adapt to an increasingly volatile world. In doing so, the EU not only safeguards its values and borders but also redefines its role as a global actor in the 21st century.

The EPF faces increasing hurdles from several EU Member States who started to block military assistance to Ukraine (mainly Hungary) but, still, it remains most effective and expedient tool to support security and military resilience of a third country willing to defend its pro-European aspirations and its choice to European common values.

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