In a deteriorating security landscape, the space environment is becoming increasingly contested and congested, with space warfare capabilities developing rapidly and putting sovereign assets at risk. This is driving a sharp growth in global government space defense and security budgets, which have doubled in the past decade from just under $25 billion in 2013 to over $50 billion in 2023.
Meanwhile, many governments have made space a cornerstone of their defense strategies, including NATO and EU, two of the largest international frameworks in the West. Both have begun cooperating over security in space but how far can integration go between organizations with such different objectives, one military and security-focused and the other, inherently civilian and commercial? Increased collaboration between the two paves the way for mutual benefit but may cause friction given the profound differences in their finality and culture.
EU and NATO: divergent yet complementary perspectives
The EU and NATO approach space from distinct perspectives shaped by their foundational principles and priorities. The EU was traditionally a civilian power only, distinguished from NATO’s security mandate and mission. Indeed, the space program Galileo was touted as the world’s only civilian-controlled GNSS. Moreover, with its roots in economic integration and the single market, the EU mostly recognizes space as an economic enabler. This perspective is reflected in its policies that enhance competitiveness and innovation in the space sector such as the CASSINI initiatives, Horizon and Fundamental Elements Calls. It is increasingly cemented in the upcoming EU Space Law designed to make a true single market for space. This stance has slowly eroded over time, and the EU now openly embraces its dual-use and security role. The EU increasingly highlights the sector’s growing significance in national and collective security, required for its ambitions to act as a Global Actor. In practice, it means for instance that the EU extends protections to critical infrastructure for space, indicating a shift towards a more security-conscious posture. Meanwhile, the EU’s IRIS2 project (Infrastructure for Resilience, Interconnectivity and Security by Satellite) aims to develop a European multi-orbit satellite constellation for secure communication services, continuing the GOVSATCOM program intended for both defense and commercial purposes. Despite current uncertainties around the consortium and future implementation of the project, the ongoing efforts underscore the EU’s commitment to secure and resilient SatCom infrastructure, relevant to the commercial and defense sector.
In contrast, NATO’s approach to space is driven by threat assessments and security considerations, without the same financial flexibility and infrastructural capabilities as the EU. NATO does not possess its own capabilities but requires the sharing and pooling of its MS’ capabilities. Yet, NATO’s focus is firmly set on leveraging space for defense and strategic advantages. NATO’s recognition of space as its “fifth domain” of operations in 2019 marked a significant milestone in its strategic evolution. This decision elevated space alongside land, sea, air, and cyberspace, underscoring its criticality for modern defense and security. NATO outlined four roles of space: integrating space into the delivery of NATO military tasks, serving as a forum for political-military consultations, ensuring the provision of space support to NATO operations, and facilitating interoperability (e.g., through the new space center at NATO’s Allied Air Command in Germany). In fact, NATO’s Allied Space Command in Ramstein and initiatives like the NATO APSS (Alliance Persistent Surveillance from Space) and the new Space Center of Excellence in Toulouse are geared towards pooling and coordinating space capabilities among member states to address shared threats.
Bridging the gap: current areas of cooperation and friction
Despite these differing orientations, there are significant areas where EU and NATO cooperation in space is mutually beneficial. The EU’s strategic autonomy in space, characterized by semi-federated capabilities and an increasingly comprehensive security policy framework, can be complemented by NATO’s security-oriented approach. In fact, both organizations have repeatedly stressed the importance of cooperation in addressing common threats. The Ninth progress report on the implementation of the common set of proposals endorsed by EU and NATO Councils established a structured dialogue on Space in 2023 to explore cooperation in space situational awareness, surveillance, tracking, standardization, and responsible behaviors for and between the EU and NATO members.
While the potential and ambition for cooperation are growing, several challenges from political to information sharing need careful management. Both organizations have a member-state-based structure, with national governments precariously guarding their sovereignty. As security and defense cooperation requires pooling and sharing capabilities, MS can be reluctant to engage in such activities they perceive as giving up sovereignty. The same pattern can be observed for information sharing, where MS are often hesitant to disclose their capabilities due to concerns over sovereignty and security. Additionally, the transatlantic relationship, influenced by the political climate in the United States, adds a layer of complexity to EU-NATO collaboration. Overcoming this reluctance requires building trust and establishing frameworks that protect sensitive information while allowing for effective collaboration.
Key axis to improve cooperation
To further existing cooperation between the EU and NATO, focus could be set on three key areas: diplomatic and operational coordination, join exercises and simulations, and industrial and technological cooperation.
First, establishing robust diplomatic channels between the EU and NATO is essential for understanding each organization’s capacities and limitations. This could involve enhanced use of the EU Satellite Centre (SatCen) and EUSPA for shared situational awareness and intelligence. The European Defence Agency (EDA) and the European Defence Fund (EDF) which represent MS defense interests could also increasingly support interoperability between the EU and NATO. Strong diplomatic channels will ensure that both organizations can align their strategies and respond cohesively to emerging threats.
Second, conducting joint exercises to simulate space-related emergencies can enhance preparedness and operational coordination. These exercises should focus on protecting critical infrastructure and responding to space-based threats. In fact, the APSS initiative, launched by 16 NATO MS, involves a virtual constellation of national and commercial space assets, with Luxembourg pledging €16.5 million to lay the groundwork and enable participating countries to contribute their assets. This could be stretched to wider cooperation on space defense and security for instance including the NATO Space CoE and the EU’s European Security and Defence College (ESDC).
Finally, aligning industrial ambitions, such as NATO’s Defense Innovation Accelerator for the North Atlantic (DIANA) and various EU accelerators, can foster innovation while mitigating friction for industrial development. Coordinated investments in space technology can leverage the strengths of both organizations, enhancing overall capabilities. Opportunities abound in areas such as satellite technology, space-based surveillance, and cybersecurity, offering significant market potential for innovative companies. Expert consultancies can play a crucial role by identifying key technological trends and advising on strategic investments, helping to align the industrial efforts of both NATO and the EU and ensuring that collaborative projects maximize their innovative and economic potential.
Conclusion
As space becomes an increasingly contested domain, the need for international cooperation such as the initiatives proposed for EU-NATO cooperation is more pressing than ever. By leveraging their complementary strengths, both organizations can enhance their collective security and strategic advantages. Diplomatic efforts, joint operational planning, and industrial collaboration will be key to realizing the full potential of this and other partnerships and will allow the EU and NATO to move beyond just a political flirtation. By establishing robust diplomatic channels for shared situational awareness, both organizations can align their strategies and anticipate and respond to common threats thereby approaching a meaningful integration of capabilities.
Yet, the path remains challenging. Whilst joint exercises in space can improve preparedness and operational coordination, overcoming the fear of losing the grip on sovereignty for states may persist. Thus, aligning industrial ambitions and leveraging coordinated investments in space technology is a good first step to head in the direction as it will foster integrated innovation in space and drive industrial development for NATO and EU Member States.
Looking ahead, the collaboration between NATO and the EU in the space sector holds promise not only for enhancing their own security and strategic capabilities but also for setting a precedent for international cooperation in an increasingly contested domain. Addressing the current and upcoming challenges in space defense with a focus on building trust and aligning strategic objectives will be crucial for navigating the upcoming complexities of space security for both organizations.
