Europe's varied artillery munitions complicate support for Ukraine

As the chief executive of the European Defence Agency, former Czech Defense Minister Jiří Šedivý plays a key role in shaping the European Union’s stance on defense and security issues, a voice that has grown more prominent since Russia's full-scale invasion of Ukraine in 2022.

The agency, which previously served as a facilitator of collaboration among member states with sometimes unclear outcomes, has since evolved into a more proactive broker of critical military equipment urgently needed in Ukraine. In an interview with the foreign media, Šedivý discussed the complexities of organizing procurement for 155-millimeter artillery shells and enhancing cooperation between the EU and NATO. This cooperation has been challenged by a longstanding dispute between Türkiye and Cyprus, Caliber.Az reports.

More than two years after the onset of Russia's invasion, how willing are member states to cooperate on defense issues?

The appetite for cooperation has definitely accelerated and increased. This is evident in numerous activities aimed at supporting Ukraine and at replenishing and reinforcing national stockpiles.

In November of last year, defense ministers approved a new capability development plan that sets out European defense priorities. Compared to the previous plan from 2018, the new plan is much more focused on higher-end capabilities and high-intensity operations, incorporating lessons learned from the Ukraine conflict and ensuring compatibility with NATO. The plan includes capability priority roadmaps to deliver concrete capabilities across various domains.

Feedback has been very positive, indicating that this will significantly boost cooperation, even among member states that were previously hesitant about collaborative projects within the EU context.

Member states that are NATO allies are generally more accustomed to NATO's framework. However, there is now a growing recognition that the EU’s incentives—such as joint procurement and defense innovation funding—can provide additional value. This combination of EU frameworks and incentives is seen as enhancing capabilities that are also relevant for NATO.

What are those incentives?

Incentives range from funding through the European Defence Fund and reimbursements for equipment donated to Ukraine via the European Peace Facility to the forthcoming European Defense Industrial Program. Ultimately, the main incentive is financial support, but economies of scale achieved through collaborative programs also play a significant role.

There seemed to be a reflex in Europe, following Russia’s invasion of Ukraine, towards national decision-making and protectionism. Did you observe this trend?

When the war began, our member states quickly started delivering military material to Ukraine. We soon realized that this was an unprecedented high-intensity war in Europe, not seen since World War II, and it had the potential to become a prolonged attritional conflict. The consumption volumes of military material, particularly ammunition, were very high, leading to the rapid depletion of national stocks as member states provided support to Ukraine.

Initially, there was a nationalistic instinct to secure whatever was available on the market to replenish these stocks. However, with the introduction of incentives for joint procurement, we observed a shift in behavior. For instance, in the case of 155mm ammunition, we now have 60 framework contracts with 10 member states participating. The estimated volume of orders is around 350 million euros, which is substantial given the global demand for 155mm ammunition. Additionally, we have significant spare capacity within the framework contracts with the industry.

So, while there was an initial instinct toward individualism, the development of new frameworks and incentives has encouraged member states to collaborate more than before.

Is the 155-millimeter ammunition procurement mandate your largest current task?

There are still many bilateral or national activities ongoing, as well as the lead nation concept where Germany, Sweden, and France have opened their national framework contracts to interested member states. There are also activities in NATO and NSPA, among others. It's crucial to understand that we are just one part of the larger picture.

Joint procurement is not our primary role at the European Defence Agency (EDA). We are not procurement agents and do not have a dedicated directorate for procurement. When a member state asked us to handle one track of the European Union’s 155mm ammunition initiative, we had to internally reshuffle to meet this need. Despite requesting temporary deployment of experts from member states several times without success, we managed to deliver those framework contracts with industry by issuing requests for information and engaging relevant industrial actors. This initiative covers four types of howitzers: the French Caesar, Polish Krab, Slovak Zuzana, and German Panzerhaubitze 2000. There is no 'one-size-fits-all' solution, and within these types, there are two kinds of projectiles: longer range and higher explosive. Additionally, there are four components, as few producers can deliver complete, all-up rounds.

When you combine all these factors, you get a matrix of 36 slots. For these slots, we have concluded 60 framework contracts, all handled by a team of around 12 people.

 It's similar to member states receiving a menu with starters, main courses, etc., including prices, delivery times, and other details. Member states now have access to this information and it's up to them to pick up and use these framework contracts.