Inför NATO-toppmötet i Haag 2025 har frågan om höjda försvarsutgifter väckt starka reaktioner bland flera medlemsländer. Spanien hör till de mest kritiska och har bland de lägsta försvarsutgifterna i alliansen. Landet vill prioritera cybersäkerhet och andra satsningar framför traditionell militär upprustning, och en ökning till 3,5 procent av BNP skulle innebära stora ekonomiska påfrestningar. Italien har liknande invändningar. Med en redan hög statsskuld och en försvarsbudget på cirka 1,5 procent av BNP menar den italienska regeringen att ytterligare höjningar är svåra att motivera, särskilt eftersom hotbilden skiljer sig mellan länderna.
Tyskland har nyligen nått tvåprocentsmålet men anser att en ökning till fem procent är orealistisk. Det skulle kräva antingen kraftiga skattehöjningar eller omfattande nedskärningar i välfärden, vilket regeringen inte vill genomföra. Luxemburg och Belgien, som båda har mycket låga försvarsutgifter i förhållande till BNP, menar att det är orimligt att jämföra deras budgetar med större länders och vill hellre bidra på andra sätt inom alliansen. De vill också ha större inflytande över hur gemensamma resurser används.
Ungern har använt frågan om höjda försvarsutgifter som ett förhandlingsverktyg i andra politiska diskussioner och kräver eftergifter i andra frågor innan man går med på nya ekonomiska åtaganden. Grekland, som redan har höga försvarsutgifter, varnar för att ytterligare ökningar skulle förvärra landets ekonomiska situation. Med en mycket hög statsskuld och ett arv av försvarskorruption är regeringen tveksam till nya bindande mål och vill istället att de som redan satsar mycket på försvaret ska få rabatter i NATO:s gemensamma budget.
Sammantaget menar de mest kritiska länderna att höjda försvarsutgifter riskerar att skapa ekonomiska problem, att samma krav inte passar alla och att politiska kompromisser ibland krävs. Samtidigt finns det andra länder, framför allt i östra Europa, som redan satsar stort på försvaret och gärna ser högre gemensamma mål. Förhandlingarna inför toppmötet väntas därför leda till någon form av kompromiss eller särskilda regler för vissa länder.

NATO Foreign Ministers Meeting in Brussels: Outcomes and International Perspectives – an AI take
The NATO Foreign Ministers meeting held in Brussels on April 3-4, 2025, concluded with reaffirmations of alliance unity amid visible tensions over defense spending, Ukraine support, and peace negotiations. Secretary-General Mark Rutte emphasized NATO's continued relevance while US Secretary of State Marco Rubio delivered mixed messages of commitment alongside pressure for increased European defense contributions. The meeting revealed deepening divisions over approaches to Russia and highlighted the delicate balancing act between diplomatic efforts and military deterrence as the Ukraine conflict continues into its fourth year.
Meeting Context and Key Participants
The two-day ministerial gathering in Brussels brought together foreign ministers from all 32 NATO member states, with particular attention focused on US Secretary of State Marco Rubio attending his first NATO ministerial meeting since the Trump administration took office15. The meeting was chaired by NATO Secretary-General Mark Rutte and included special participation from Ukrainian Foreign Minister Andrii Sybiha and EU High Representative for Foreign Affairs and Security Policy Kaja Kallas78. This gathering took place against a backdrop of increasing global tensions, renewed Russian aggression in Ukraine, and growing uncertainty about the transatlantic alliance's future direction.
Main Outcomes and Discussions
The ministerial meeting focused on several critical areas, including preparations for the upcoming NATO Summit in The Hague, defense investment, burden sharing among allies, and support for Ukraine7. A significant outcome was the announcement that NATO allies have pledged more than 20 billion euros in military assistance to Ukraine in the first quarter of 2025 alone7. This demonstration of continued support comes as NATO seeks to maintain a unified front amid Russia's ongoing invasion.
 
The meetings also featured discussions on defense spending targets, with NATO members debating whether to raise the current minimum threshold of 2% of GDP1. The Trump administration has proposed an ambitious 5% of GDP minimum, while Rutte has advocated for at least 3.7% of GDP "as quickly as possible and with regular progress reports"1. This push for increased military expenditure reflects growing concerns about European security in an increasingly volatile global environment.
American Perspective on NATO's Future
US Secretary of State Marco Rubio used the meeting to reaffirm America's commitment to NATO while simultaneously pressing European allies to increase their defense spending5. "The United States is in NATO," Rubio stated, adding that America "is as active in NATO as ever, and some of this hysteria and hyperbole that I see... is unwarranted"5. However, he also emphasized that President Trump is not against NATO but rather "against a NATO that does not have the capabilities it needs to fulfill the obligations that the treaty imposes upon each and every member state"2.
 
On the Ukraine peace process, Rubio indicated that the US would know "in a matter of weeks, not months" whether Putin is serious about peace negotiations13. He clarified that if Russia's engagement proves to be merely a delay tactic, "the president's not interested in that"11. These statements reflect the Trump administration's dual approach of maintaining its NATO commitment while demanding more from European allies and pursuing a potentially controversial peace deal with Russia.
European Responses and Positions
European NATO members showed both unity and concern during the ministerial meeting. Secretary-General Rutte insisted that "we are united in our commitment to each other in this alliance" and that the "transatlantic relationship remains the cornerstone of European security and of global stability"9. He acknowledged European worries about US commitment but emphasized that "the Americans have stated again and again, 'We are committed to NATO. We are committed to Article 5'"9.
 
European ministers took a stronger stance against Russia than their American counterpart. British Foreign Minister David Lammy directly criticized Putin, stating he "continues to obfuscate, continues to drag his feet" and that "he could accept a ceasefire now, he continues to bombard Ukraine, its civilian population, its energy supplies"311. German Foreign Minister Annalena Baerbock similarly characterized Putin's talk of negotiations as "nothing by empty promises" and accused him of "playing for time by raising ever new demands"11.
 
EU High Representative Kaja Kallas noted that the European Union and NATO are "natural partners" and that EU defense initiatives align with NATO goals: "We have the White Paper on Defence, which talks about how we can unblock funds to do more for defence, to do more for capabilities, to do more for cooperation, and eventually make NATO stronger"8.
Ukraine's Position and Appeals
Ukrainian Foreign Minister Andrii Sybiha used the platform to emphasize Ukraine's readiness for peace, noting that they had "accepted the US proposal for a full interim 30-day ceasefire without any conditions"14. However, he expressed frustration that "instead of accepting it, Putin talks about demands and conditions"14. Sybiha called for increased pressure on Moscow, stating that "now is the time for diplomacy, but also pressure and deterrence"14.
 
The Ukrainian minister also emphasized the ongoing severity of the conflict, reminding NATO allies that "every single day in Ukraine means Russian bombs, drones, constant missile threats, hundreds of Shahed every night"14. While Ukraine continues to push for NATO membership, Rutte clarified that Ukraine was never promised NATO membership as part of any peace deal6. This clarification came despite Ukraine's renewed efforts to secure an invitation to join the alliance10.
Tensions and Challenges
Despite outward displays of unity, the ministerial meeting revealed significant tensions within the alliance. European members expressed concerns about the US approach to Russia, particularly regarding peace negotiations that might involve territorial concessions from Ukraine1. These worries were compounded by the Trump administration's simultaneous trade actions against European allies, including a recently announced "Liberation Day" tariff plan with a 20% "reciprocal" tariff2.
The meeting also highlighted ongoing disagreements about defense spending targets, with European allies reluctant to commit to the ambitious figures proposed by the US due to "low growth and ballooning budget deficits"1. Additionally, there appears to be uncertainty about the US role in coordinating military support for Ukraine, as "the United States is no longer chairing the Ukraine Defense Contact Group," with the UK and France potentially co-chairing future meetings1.
Implications for Ukraine-Russia Peace Process
The ministerial meeting revealed divergent approaches to ending the conflict in Ukraine. While the US under Trump has made ending Russia's invasion "a top priority," European allies expressed skepticism about Russian sincerity in negotiations3. The US has proposed a 30-day ceasefire that Ukraine has accepted, but Russia has yet to respond definitively, suggesting any end to its invasion would be "a drawn-out process"1113.
 
France and the UK are leading a "coalition of the willing" that seeks to put NATO soldiers on the ground in Ukraine to potentially police a future peace deal and act as a security guarantee11. French Foreign Minister Jean-Noël Barrot noted that "at some point, military support or reassurance will be necessary once peace is established"13. This initiative reflects European concerns about ensuring Ukraine's security in any potential settlement.
Conclusion
The NATO Foreign Ministers meeting in Brussels represented a critical moment for transatlantic relations and the alliance's approach to the Ukraine conflict. While NATO leaders emphasized unity and commitment, the discussions revealed significant tensions over defense spending, approaches to Russia, and the future of Ukraine. As NATO prepares for its summit in The Hague in June 2025, these issues will likely continue to challenge alliance cohesion.
 
The meeting highlighted a fundamental tension: while the US pushes for a potentially quicker resolution to the conflict and demands greater European defense spending, European allies remain skeptical of Russian intentions and concerned about the implications of any peace deal. Ukraine, meanwhile, continues to seek both immediate support for its defense and long-term security guarantees. How NATO navigates these competing priorities will profoundly shape European security and the future of the transatlantic relationship in the months and years ahead.
 

[1] Rubio Reiterates US Commitment To NATO At Foreign Ministers Meeting In Brussels https://www.rferl.org/a/nato-rutte-rubio-ukraine-russia-foreign-ministers/33370655.html
[2] World Insights: Rubio's NATO visit exposes mounting tensions ... https://english.news.cn/20250405/3c904e72f2fc4f51b4e5f1985eac49ab/c.html
[3] Ukraine Again Calls For Full Membership As NATO Ministers Meet ... https://www.rferl.org/a/ukraine-nato-membership-brussels-meeting/33224835.html
[4] NATO, Russia in a standoff after talks in Brussels - Politico.eu https://www.politico.eu/article/nato-russia-in-a-standoff-after-talks-in-brussels/
[5] Rubio reassures allies on US commitment to NATO - Politico.eu https://www.politico.eu/article/rubio-reassures-allies-on-us-commitment-to-nato/
[6] Ukraine's NATO membership never guaranteed in peace deal, Rutte ... https://www.euractiv.com/section/defence/news/ukraines-nato-membership-never-guaranteed-in-peace-deal-rutte-clarifies/
[7] Secretary General reaffirms security through strength and support to Ukraine, as NATO Foreign Ministers lay groundwork for The Hague Summit https://www.nato.int/cps/en/natohq/news_234134.htm
[8] NATO: Press remarks by High Representative/Vice-President Kaja Kallas ahead the Ministers of Foreign Affairs Ministerial meeting https://www.eeas.europa.eu/eeas/nato-press-remarks-high-representativevice-president-kaja-kallas-ahead-ministers-foreign-affairs_en
[9] Rutte smiles and Rubio flees as NATO survives a summit - Politico.eu https://www.politico.eu/article/rutte-smiles-and-rubio-flees-as-nato-survives-a-summit/
[10] Ukraine asks NATO for membership invite next week, letter shows https://www.voanews.com/a/ukraine-asks-nato-for-membership-invite-next-week-letter-shows/7881774.html
[11] Nato: Europe scolds Russia for rejecting Trump's truce push https://timesofindia.indiatimes.com/world/europe/nato-europe-scolds-russia-for-rejecting-trumps-truce-push/articleshow/120008007.cms
[12] NATO Secretary General with the Minister of Foreign ... - YouTube https://www.youtube.com/watch?v=oxYjPnbaOQg
[13] US says Putin will make decision on ceasefire in 'weeks, not months' https://www.bbc.com/news/articles/c209w7g049wo
[14] Remarks by NATO Secretary General Mark Rutte and the Minister of ... https://www.nato.int/cps/en/natohq/234089.htm?selectedLocale=en
[15] Topic: Relations with Ukraine - NATO https://www.nato.int/cps/en/natohq/topics_37750.htm
[16] NATO presses Russia to accept Ukraine ceasefire without delay - EFE https://efe.com/en/latest-news/2025-04-04/nato-defense/
[17] NATO Secretary General with 🇺🇸 US Secretary of State ... - YouTube https://www.youtube.com/watch?v=CYI3d8nEaA4
[18] NATO Meets in Brussels https://www.cfr.org/article/nato-meets-brussels
[19] NATO Foreign Ministers to discuss building a 'stronger, fairer, more ... https://www.nato.int/cps/en/natohq/news_234132.htm
[20] At NATO meeting, Europe demands part in Ukraine peace talks - DW https://www.dw.com/en/at-nato-meeting-europe-demands-part-in-ukraine-peace-talks/a-71594447
[21] Secretary of State Marco Rubio and NATO Secretary General Mark ... https://www.state.gov/secretary-of-state-marco-rubio-and-nato-secretary-general-mark-rutte-before-their-meeting/
[22] NATO foreign ministers gather in Brussels after Trump and Putin ... https://www.youtube.com/watch?v=JA_4_7dH9qk
[23] At Brussels Foreign Ministers Summit, All Eyes Will Be On Marco ... https://www.rferl.org/a/brussels-foreign-ministers-rubio-nato/33365613.html
[24] Ukraine will not accept Russia's demand to give up NATO ... https://www.pravda.com.ua/eng/news/2025/04/4/7506014/
[25] Does the US really agree with NATO that Russia is its biggest threat? https://www.youtube.com/watch?v=EWM8TwiMkig
[26] LIVE: Marco Rubio and NATO chief give remarks in Brussels https://www.youtube.com/watch?v=9EIDxX14JqU
[27] Press conference by NATO Secretary General Mark Rutte following ... https://www.nato.int/cps/en/natohq/opinions_234095.htm
[28] Pre-ministerial press conference https://www.nato.int/cps/en/natohq/opinions_234072.htm
[29] Ukraine and NATO reaffirm commitment to long and lasting peace https://www.euronews.com/my-europe/2025/04/04/ukraine-and-nato-reaffirm-commitment-to-long-and-lasting-peace
[30] Doorstep statement at Foreign Ministers Meeting, 03 APR 2025 https://www.youtube.com/watch?v=3gpB8x_SAFg
[31] 'Russia does not want a ceasefire', Zelenskyy says after 14 killed in ... https://news.sky.com/story/ukraine-war-latest-we-see-you-vladimir-putin-uk-and-france-call-out-russia-for-dragging-feet-over-peace-12541713
[32] Hegseth says Ukraine cannot expect return to old borders, NATO ... https://www.reuters.com/world/europe/us-defense-chief-hegseth-says-return-ukraines-pre-2014-borders-not-realistic-2025-02-12/
[33] The Ministry of Foreign Affairs of the Russian Federation https://mid.ru/en/foreign_policy/rso/1574140/
[34] Remarks by NATO Secretary General Mark Rutte and the Minister of Foreign Affairs of Ukraine, Andrii Sybiha at the meeting of NATO Ministers of Foreign Affairs in Brussels https://www.nato.int/cps/en/natohq/opinions_234089.htm?selectedLocale=en
[35] Comments on the Brussels Summit Communique - RIAC https://russiancouncil.ru/en/analytics-and-comments/comments/comments-on-the-brussels-summit-communique/?sphrase_id=179858750
[36] US will know in weeks if Russia serious about Ukraine ceasefire, Rubio says https://www.aljazeera.com/news/2025/4/4/us-will-know-in-weeks-if-russia-serious-about-ceasefire-rubio-says
[37] NATO Expansion: What Gorbachev Heard - National Security Archive https://nsarchive.gwu.edu/briefing-book/russia-programs/2017-12-12/nato-expansion-what-gorbachev-heard-western-leaders-early
​

General Christopher Cavoli, Supreme Allied Commander Europe (SACEUR), testified before the U.S. Senate Armed Services Committee on April 3, 2025, addressing key issues related to NATO leadership, the war in Ukraine, and Russia's military capabilities. His remarks sparked varied reactions from American, European, Ukrainian, and Russian sources.
Key Points from Cavoli's Testimony

1. NATO Leadership:

• Cavoli argued against relinquishing U.S. leadership of NATO's SACEUR position, citing concerns about nuclear command and control and operational integration. He emphasized that an American SACEUR ensures seamless coordination between NATO and U.S. forces, particularly in nuclear operations during conflicts16.
• He warned that placing large numbers of U.S. troops under non-American command in an Article 5 situation could be problematic6.

1. Ukraine's Military Position:

• Cavoli highlighted improvements in Ukraine's defense capabilities, including resolving some manpower shortages and effectively utilizing Western weapons like Patriot missile systems and long-range missiles. He described Ukrainian strikes on Russian territory as "extremely effective"23.
• However, he cautioned that Ukraine remains heavily dependent on external support, particularly from the U.S., for artillery shells and air defense systems7. Without continued aid, Ukraine risks losing ground to Russia5.

1. Russia's Military Capabilities:

• Cavoli noted that Russia has replenished its military losses faster than anticipated, with its army now larger than when the invasion began5. Despite significant losses (e.g., over 4,000 tanks), Russia retains advantages in geography and combat readiness79.
• He expressed skepticism about any deal with Russian President Vladimir Putin ending Russia’s territorial ambitions8.

Reactions
American Sources

• U.S. lawmakers were divided on the issue of NATO leadership. While some Republicans supported maintaining an American SACEUR due to strategic advantages, others downplayed its importance, arguing that the American public is indifferent to such symbolic roles16.
• Cavoli’s warnings about Ukraine’s dependence on U.S. aid resonated strongly amid debates over stalled funding packages for Ukraine57.

European Sources

• European officials largely echoed Cavoli’s concerns about NATO leadership changes. They emphasized the importance of American leadership for maintaining cohesion within the alliance and ensuring robust nuclear deterrence6.
• European observers praised Ukraine’s effective use of Western weaponry but expressed concerns about its reliance on external support for sustained defense efforts3.

Ukrainian Sources

• Ukrainian officials welcomed Cavoli’s acknowledgment of their military improvements and effective use of Western aid. They viewed his comments as validation of their resilience against Russian aggression23.
• However, concerns were raised about Cavoli’s cautious outlook on Ukraine’s ability to launch major counteroffensives without increased external support28.

Russian Sources

• Russian state media highlighted Cavoli’s remarks about Russia’s successful replenishment of military losses and advantages in geography and readiness as evidence of their enduring strength despite Western sanctions and military aid to Ukraine9.
• They dismissed his warnings about Russian territorial ambitions as typical Western rhetoric aimed at justifying continued support for Ukraine89.

Conclusion
General Cavoli’s testimony underscored critical challenges facing NATO and Ukraine while highlighting Russia’s ongoing military resilience. His remarks have fueled debates across geopolitical lines regarding NATO leadership, the efficacy of Western aid to Ukraine, and the broader implications of the war for global security.

 
Citations:
[1] https://www.military.com/daily-news/2025/04/03/top-us-general-argues-against-giving-command-of-nato-senate-hearing.html
[2] https://www.eurointegration.com.ua/eng/news/2025/04/4/7208772/
[3] https://newsukraine.rbc.ua/news/nato-calls-ukrainian-long-range-strikes-on-1743710330.html
[4] https://www.youtube.com/watch?v=KJxXZneKick
[5] https://www.politico.com/news/2024/04/11/christopher-cavoli-russian-military-losses-00151718
[6] http://breakingdefense.com/2025/04/a-non-american-as-supreme-allied-commander-of-nato-thatd-be-problematic-cavoli-says/
[7] https://defence-industry.eu/general-christopher-cavoli-russian-army-has-lost-over-four-thousand-tanks-in-ukraine/
[8] https://united24media.com/latest-news/us-general-cavoli-any-deal-with-putin-wont-end-russias-territorial-ambitions-7347
[9] https://tass.com/defense/1938571
[10] https://www.nato.int/cps/en/natohq/opinions_232213.htm?selectedLocale=en
[11] https://www.twz.com/sea/greenland-absolutely-critical-for-hunting-russian-submarines-top-u-s-general-in-europe
[12] https://www.armed-services.senate.gov/imo/media/doc/Cavoli%20APQ%20responses.pdf
[13] https://eadaily.com/en/news/2025/04/03/russia-has-an-advantage-general-cavoli-told-the-senate-about-the-future-war
[14] https://www.defense.gov/News/News-Stories/Article/Article/4145268/eucom-africom-leaders-testify-on-lethality-global-deterrence/
[15] https://www.reuters.com/world/us/merging-us-military-commands-africa-europe-would-be-stretch-us-general-says-2025-04-03/
[16] https://www.eucom.mil/about-the-command/2024-posture-statement-to-congress/2023-posture-statement-to-congress/video-gen-christopher-g-cavoli-delivers-testimony-to-the-house-armed-services-committee
[17] https://www.hoover.org/news/general-christopher-cavoli-visits-hoover-institution
[18] https://www.dvidshub.net/webcast/35943
[19] https://www.defense.gov/News/News-Stories/Article/Article/3737446/us-commander-in-europe-says-russia-is-a-chronic-threat-to-world/
[20] https://www.armed-services.senate.gov/hearings/to-receive-testimony-on-the-posture-of-united-states-european-command-and-united-states-africa-command-in-review-of-the-defense-authorization-request-for-fiscal-year-2026-and-the-future-years-defense-program
[21] https://apnews.com/article/europe-trump-american-troops-military-russia-nato-d340fdaad69b5503320a4e09bfbc85cd
[22] https://www.euronews.com/my-europe/2025/04/03/senator-criticises-pentagon-officials-on-alleged-us-troop-drawdown-in-europe
[23] https://www.eucom.mil/topic/cavoli
[24] https://www.armed-services.senate.gov/imo/media/doc/cavoli_statement.pdf
[25] https://www.eucom.mil/about-the-command/2024-posture-statement-to-congress/2023-posture-statement-to-congress
[26] https://www.rferl.org/a/united-states-cavoli-general-ukraine-aid-testimony/32899313.html
[27] https://www.eucom.mil/about-the-command/2024-posture-statement-to-congress
[28] https://www.pravda.com.ua/eng/news/2025/04/4/7505980/
[29] https://www.pravda.com.ua/eng/news/2025/04/4/7505994/
[30] https://www.euronews.com/my-europe/2025/04/04/ukraine-and-nato-reaffirm-commitment-to-long-and-lasting-peace
[31] https://www.instagram.com/ukraine_defence/reel/DIBOOHXsqRT/
[32] https://www.linkedin.com/posts/nataliia-i-50624071_better-not-decline-activity-7313893190883774484-Lo3f
[33] https://securitynews.ro/saceur-i-did-not-anticipate-ukraine-to-be-able-to-destroy-so-much-of-russias-warfighting-capability/
[34] https://english.almayadeen.net/news/politics/russia-a-highly-strategic-negotiator--us-general-tells-senat
[35] https://www.armed-services.senate.gov/download/testimony/general-cavoli-opening-statements?download=1
[36] https://tass.com/defense/1938515
[37] https://www.nationaldefensemagazine.org/articles/2024/6/19/eurosatory-news-russia-to-threaten-nato-for-years-supreme-allied-commander-says
[38] https://news.yahoo.com/russia-track-build-artillery-shell-044653523.html
[39] https://www.businessinsider.com/russia-artillery-ammo-stockpile-triple-us-europe-combined-chris-cavoli-2025-4
[40] https://www.cfr.org/event/conversation-supreme-allied-commander-europe-saceur-christopher-g-cavoli-0
[41] https://www.stripes.com/theaters/us/2025-04-03/senate-cavoli-langley-eucom-africom-17356867.html
[42] https://www.youtube.com/watch?v=ycXN6yiUVoc
[43] https://sarajevotimes.com/supreme-commander-of-nato-we-are-increasing-forces-in-bih-and-kosovo-we-are-also-bringing-in-heavy-equipment/
[44] https://www.youtube.com/watch?v=4CFE3D1Iajw
[45] https://www.usnews.com/news/world/articles/2025-04-03/merging-u-s-military-commands-in-africa-europe-would-be-a-stretch-u-s-general-says
[46] https://defensescoop.com/2025/04/03/ukraine-russian-tanks-destroyed-attack-drones-cavoli/
 
---

Europe and Canada have multiple avenues to rapidly scale up their defense cooperation, driven by converging strategic interests and complementary capabilities. The integration of Canada into the EU's ReArm initiative provides the most immediate opportunity, supported by concrete procurement projects and deeper industrial integration.
 
These efforts reflect a broader reconfiguration of transatlantic security relationships, as traditional U.S. allies deepen their ties independently of Washington in response to shifting American policies[4]. For both Europe and Canada, enhanced cooperation offers not only immediate security benefits but also long-term strategic resilience in an increasingly unpredictable global environment.
 
To move forward expeditiously, both sides should prioritize finalizing the legal framework for Canada's participation in the ReArm initiative, advancing specific procurement projects like fighter aircraft and submarines, and establishing deeper industrial partnerships that leverage Canada's resources and technological capabilities.
 ​