Permanent Structured Cooperation (PESCO)
PESCO provides a framework for the 26 participating member states to jointly plan, develop and invest in shared capability projects, and enhance the operational readiness and contribution of their armed forces.
Deepening defence cooperation
The possibility for EU member states to engage – on a voluntary basis – in Permanent Structured Cooperation (PESCO) in the area of defence was introduced by the Lisbon Treaty in 2009. PESCO provides a framework and a structured process to gradually deepen defence cooperation in order to deliver the capabilities needed for the most demanding missions and thereby improve EU citizens’ security.
In December 2017, the Council adopted a decision establishing PESCO and determining the list of the 25 participating member states. In May 2023, the Council confirmed the participation of Denmark as the 26th member of PESCO.
Decisions on the new membership or the suspension of membership of member states are taken by the Council of the EU by a qualified majority of the members participating in the permanent structured cooperation.
Under the responsibility of the High Representative for Foreign Affairs and Security Policy, the European External Action Service, including the EU Military Staff, and the European Defence Agency form the PESCO Secretariat.
PESCO commitments and projects
PESCO is mainly implemented through commitments and collaborative projects.
The key difference between PESCO and other forms of cooperation is the legally binding nature of the commitments undertaken by the participating member states. Through PESCO, the participating member states notably commit to boosting their defence spending and investment, increasing joint and collaborative strategic defence capability projects, and enhancing the availability, deployability and interoperability of their forces, including contributions to CSDP operations and missions.
The Council is responsible for the overall policy direction and decision making and provides recommendations on the fulfilment of the commitments.
Every year, the High Representative presents a report to the Council on the status of PESCO implementation. On that basis, the Council assesses the contributions of participating member states and reviews whether they continue to fulfil the binding commitments.
Participating member states are working on 75 collaborative projects in various areas including training facilities, land, maritime, air, cyber, and strategic enablers. These projects bring participating member states together to develop new capabilities, to train and exercise together or pool their expertise in certain areas.
Each of the projects is carried forward by different groups of PESCO participating member states and is coordinated by one or more PESCO participating member states.
While membership of PESCO is open only to EU member states, in November 2020, the Council established the general conditions under which non-EU countries could exceptionally be invited to participate in individual PESCO projects.
For example Canada, Norway and the United States were invited to take part in the Military Mobility project in 2021, as were the United Kingdom in 2022 and Switzerland in 2025.
This decision paved the way for stronger and more ambitious defence cooperation with EU partners.
PESCO strategic review
On 19 November 2024, the Council approved conclusions on the PESCO strategic review. The review was launched in November 2023 with the aim of strengthening PESCO, making it more strategic and effective, and adapting it to the new geopolitical reality beyond 2025.
The conclusions confirm the key role of PESCO as an ambitious framework to deepen defence cooperation among the participating member states, and stress that PESCO’s principles and goals remain valid. At the same time, the conclusions also highlight that, for PESCO to remain at the centre of EU defence efforts, it needs to be updated in light of the new EU initiatives and policies, especially those stemming from the EU Strategic Compass.
To this end, the current list of 20 binding PESCO commitments should be updated and streamlined. In the future, the revised set of commitments may be structured around key areas such as defence spending and investment, capability development, armament and industrial cooperation, and the operational dimension.
The conclusions underline the importance of bringing Ukraine closer to EU defence initiatives, in line with the EU-Ukraine joint security commitments signed on 27 June 2024. Against this background, PESCO should contribute to the wider EU efforts aimed at addressing Ukraine’s military needs.
Last review: 27 May 2025