The US is demanding that Europe takes full responsibility for conventional deterrence and defence. For the first time in the history of NATO, European allies must assume that in case of large scale war they will not receive the support of the US Army. Although the Russian threat has been escalating for years, and the US has long communicated that it will focus on China, Europe remains unprepared for the situation in which it should defend itself against a Russian agression and support Ukraine at the same time. The only thing it can do in such situation is to increase defence spending, and strengthen the European pillar of NATO as soon as possible, without antagonising Trump’s Administration.
Three years after Russia’s full scale invasion of Ukraine, it became clear that Europe is unprepared to face a major strategic threat coming from Russia’s agressive, revisionist policy and U.S. determination to limit its contribution to European security. Russia has not given up on its strategic goal, which is a full subjugation of Ukraine and is fighting the war of attrition, which favours the country with greater resources. It issues the maximalist demands, which if accepted would not only neutralize Ukraine keeping it out of NATO, but also would lead to complete demilitarization of the country (demands on limits on the size of the armed forces) and left it in the Russian sphere of influence (objection to any presence of Western troops on Ukraine’s territory). This would allow Kremlin to use intimidation, coercion and renewed agression to achieve the full subjugation of Ukraine. Even though Russian military is losing some 30 tousand killed and wounded a month, it is able to encourage between 30 thousand to 40 thousand people during the same period to sign contracts and fight in Ukraine. Russia is likely to meet its plans to increase its armed forces to 1.5 million active duty troops (around 900,000 in 2022) already by 2026. With the deployment of new military units near the borders with Finland and the Baltic states, Russia’s ability to threaten the Alliance but also to carry out limited aggression against NATO will increase. The deployment of troops and the ongoing expansion of rail infrastructure will reduce the time needed to launch an attack and may make it more difficult for the Alliance to assess what Russian intentions are. The possible conclusion of a ceasefire or peace agreement with Ukraine will free up some of Russia’s military capabilities, which may be further concentrated in the Kaliningrad exclave and Belarus. As the regime may be worried that NATO will finlly strengthen its military potential while sanctions imposed on Russia may lead to social and political destabilisation, the Russian government may feel that time is not in its favour. Therefore, despite the high losses Russia suffers in Ukraine, there will be an increased risk of limited aggression against NATO even in the short term perspective. The Political aim of such agression, would be to enforce the concessions on the demands contained in the 2021 ultimatum issued to NATO and the US. Kremlin demanded the withdrawal of foreing troops from the countries bordering Russia, signing of the legally binding treaties, which would limit NATO the ability to send reinforcements to the eastern flank countries and the renunciation of NATO’s open door policy.
At the same time U.S. administration is determined to limit American involverment in European security and demonstrates readiness to negotiate with Russia a deal on Ukraine over the heads of the Europeans. If U.S. decided to withdraw its troops from Europe, it would be susceptible to Russian intimidation and probably unable to defend itself effectively. Many years of being in denial about the reality that Russia is a threat to European security system and may try to achieve its goals through a major war, has put Europe in a position of strategic weakness and vulnerability, which can be exploited by enemies and allies alike. The Trump administration has the option to reduce its military presence in Europe under various pretexts. It can accuse Europe of not supporting the US approach to negotiations to end the war in Ukraine. It can try to blackmail Europe to force concessions on economic issues. It can accuse Europe of not sufficient spending on defence. The withdrawal of US troops from Europe, may further undermine the credibility of deterrence and encourage Russia to launch an agression, especially if the US were engaged in the conflict against China in the Indo-Pacufic.
The Russian aggression against Ukraine in February 2022 showed that the West’s attempts to build a stable relationship with Russia has failed. Russia is determined not only to subjugate Ukraine but wants to create a system in which it would be able to exert influence both in Europe and globally. That is why together with China it aims at building the so called multi-polar international system, and tries to undermine the credibility of U.S. led alliances. As former Kremlin ideologue Vladislav Surkov admits in a March 2025 interview (available in several languages), Russian influence has no borders. Russia is prepared to expand it until it encounters a real resistance. This is especially visible in attempts to increase influence in Europe, where Russia wants to be perceived as a superpower that does not have to reckon with the interests of small and medium-sized states. The similarities of Soviet and Russian approaches to European security are striking. Since the end of the II world war Moscow has remained determined to push the U.S. out of Europe, which is why it is in its strategic interest to undermine the credibility of NATO. After the end of the Cold War it was not interested in coperation with the EU and NATO, but rather in their weakening and traditionally has tried to drive a wedge between the US and Europe. Russian elites see the possibility of the U.S. engagement in the defence of Europe as the main obstacle to promote its expansionist goals. The U.S. maintains greatest military and nuclear potential in NATO, which provides a credible nuclear deterrent capability against Russia. American conventional potential, logistical support and technological superiority provides NATO with the possibility of winning a conventional conflict with Russia quickly, before Kremlin is able to turn it into the war of attrition, which favours authoritarian state with vast resources and greater resilience then demiocratic states. American political leadership also enables the building of a much stronger coalition than potentially any other European power or a group of states.
Europe started slowly to accept the fact that Russia is determined to subjugate Ukraine and will pose a long term threat for NATO and the EU. They had to aknowledge that the reason for war, was not the „legitimate security interests of Russia”, but Russia’s deep rooted revanchism against Ukraine and the determination to subjugate it. On 1 December 1991, in a referendum on independence, more than 90% of the Ukrainian population voted to break away from Russia. In the eastern regions of Ukraine, which Russia now occupies and recognises as its territory, this support exceeded 80%. The lowest was in Crimea, although there too it exceeded 50%. The fact that it was Ukraine, presented by Russian propaganda as the craddle of Russian statehood, took the first opportunity to demand independence and was against any form of a new federal state was treated by the Russian elite as a betrayal and fuelled the sense of revanchism.
At the same time Russia saw the extension of Western Political, economic and military structures to the East primarily as a threat to its ambitions to reintegrate at least the core elements of the USSR (Belarus and Ukraine) and maintain ability to exert influence in Central and Eastern Europe and across the continent. The West could not accept such policy but nevertheless tried to acommodate some of Russian interests, short of approving new dividin lines in Europe. NATO completely changed its strategy and started to depart form the policy of deterrence. In 1997 the Alliance adopted a political declaration that it would not deploy significant combat troops (as long as the security environmnet remains unchanged) on the territory of the new members and respected this principle until Russia became a real threat. Despite political declarations on the part of NATO regarding Ukraine and Georgia’s future membership, individual states were not ready to initiate any practical steps in such direction, which was clearly signalled to Moscow. The US reduced its military presence in Europe and the EU deepened its reliance on Russian energy. In response Russia only increased its agressive policy. It effectively exploited the myth of the ‘betrayal of the West’, which supposedly promised that NATO would not enlarge. Even though the existence of such a promise was denied by Mikhail Gorbachev, Russian elites used the myth as a pretext for their revisionist and revansicht policy towards neighbours and the West. In 2014, at a time when Ukraine was a neutral state and did not seek NATO membership but wanted closer economic cooperation with the EU (initially supported even by pro-Russian president Viktor Janukovich), Russia annexed Crimea and fuelled conflict in the eastern part of the country.
At the same time, Russia used NATO’s self-imposed restrictions on defence and deterrence to exploit this weakness and to demonstrate that it is capable of attacking the Alliance from several directions simultaneously. As NATO did not have sufficient forces and capabilities to repel such an attack, Russia was able to intimidate Europe. Most notable effect was NATO’s rapid return to cooperation with the Kremlin after the Russian agression on Georgia in 2008. This was facilitated by effective Russian propaganda, which convinced Western public opinion that Georgia had provoked the agression and limited the Political cost of returning to „business as usual” with the agresor.
After the Russian annexation of Crimea in 2014, NATO began to take steps in response to Kremlin’s increasingly agressive policy. However, from todays perspective it is quite clear that there was no political will to build a credible potential and defence and deterrence mechanisms, which would prepare Europeans for quickly approaching strategic threats. A number of states continued their traditional policy of deepening dependence on Russian gas. Germany decided to build the second line of the Nord Stream 2 pipeline, which made it easier for Russia to send gas to Europe, bypassing Ukraine. The defence spending was increasing but not fast enough. This only encouraged Russia to increase military pressure on both Ukraine and NATO, with demonstrations of its ability to attack Europe and employ nuclear weapons, while NATO had no plans and cabapilities neccessary for effective defence. It was only in 2022, after Russia’s full scale invasion of Ukraine, that NATO decided to adopt a new strategy, which describes Russia as the main military threat. Although decisions to approve operational plans and to develop necessary capabilities followed, it will take at least a decade of serious investments to develop a credible warfighting capability by the Europeans.
The Russian aggression showed clearly that Western policy was based on false assumptions, that by offering Russia concessions, it will be able to stabilize relations and avoid major investments in defence. The West was unable to comprehend fully Russia’s strategic goals and determination to achieve them, especially in lack of real resistance. NATO’s weakness must have influenced Putin’s calculations about the potential benefits of the full scale invasion of Ukraine. He probably assumed that he will be able to intimidate the West and dicourage it from offering Ukraine a meaningful support. Even though he was unable to achieve its strategic goals quickly and the costs of the agression may be higher than he anticiopated, he clearly expects that Russia will be able to achieve them in the longer term. He pretends to be ready to negotiate but in fact his demands demonstrate he expects Ukraine’s capitualtion. Putin may be closer to realize his goals as the new U.S. administration seems not interested in continuing American support for Ukraine. The U.S. seems also determined to limit its support for NATO and European security, because it wants to Focus on the threats from China The strategic threat for NATO and the EU could not have been more clear, than it is now. Even though European leaders had at least a decade to prepare for such scenario, the lack of neccessary determination left Europe unable to protect its strategic interests, for example through offering Ukraine security guarantees without American support.
Former German Chancellor Angela Merkel in her memoirs defends previous policy. In her view, Germany pursued a rational policy for which there was no alternative, while the states to the East of Germany would like Russia to simply disappear. This is a classic attempt to portray the states of the region as irrational Russophobes who cannot recognise that it is necessary to get along with Russia. However, the problem is not the calls of the Baltic states and Poland to strengthen defence and deterrence policy but inability of some other leaders and countries to make neccessary sacrifices and investments. To develop stable relations with Russia, one cannot be vulnerable to Russian economic and military threats. For Western leader sit was easier to exploit economic and political benefits from the cooperation with Russia, instead of trying to convince public opinion to suuport costly investments in military potential.
After Donald Trump’s re-election for the President of the United States, the administration gave an explicit warning that U.S. troops would not stay in Europe forever. Behind the scnenes the message was more blunt: U.S. will no longer support conventional defence and deterrence in NATO and will provide only nuclear umbrella for its allies. It should not come as a surprise. It has long been known that the U.S. regarded China as a major threat. The U.S. strategy states that the US will only develop the capability to win a war against China, while in Europe it is to help deter Russian agression and the use of nuclear weapons.
Even without Trump’s pressure strategic and political realities indicate that Europe must be able to take responsibility for conventional defence and deterrence. The problem is that Europe needs time to build it. A rather general calculation shows that without US contribution, NATO is short of 200,000 to 300,000 troops (50 brigades), thousands of air defence systems, long-range missiles for deep precision strike, ect. The Europeans also rely on U.S. satellite intelligence, surveillance and reconeissance (ISR) and logistical support. According to European Commission estimates, filling the main gaps requires at least an additional EUR 500 billion of investment in military capabilities. Taking full responsibility would probably cost even more. As european NATO member states spend on average 2% of their GDP on defence, they would have to increase the spending to at least 3,5% to take over from the US within a decade.
The problem is that Europe may not have a decade. Russia is learning from its initial failures in Ukraine and has regained the strategic initiative. Depending on the assessment of the credibility of NATO’s defence and deterremce it may decide whether to decide for a direct military confronation with the Alliance. Moscow does not need to carry put a full scale aggression to achieve its political goals included in the 2021 ultimatum. It would enough if Russia, under the pretext of stopping NATO from supporting Ukraine, would start attacking military targets on the Polish or Romanian territory with drones and missiles and threatened further escalation. How would NATO behave then? Will Italy and other states that are militarily and politically unprepared for a confrontation with Russia decide to activate Article 5 of the Washington Treaty (one for all, all for one)? Would NATO target Russian launchers that would attack Alliance territory, or would the US president decide that a third world war should be avoided at all cost and it is better to negotiate and accept Russian terms?
To this day, some experts are convinced that if the West handed over Ukraine to Russia, it would succeed in stabilising relations with Moscow. The effects of the policy of concessions so far demonstrates clearly that Kremlin will take this as only another signal of weakness and lack of determination, and as an invitation to increase pressure on NATO, with the risk of agression growing substantially. If there was a war, the same experts in such a situation would probably argue that if concessions are made on the status of Poland or the Baltic states, then peace would surely be secured.
The withdrawal of US troops and air defence systems from the base in Jesionka, Poland, which is used to send support to Ukraine, has increased the risk of a black case scenario. Russia may feel encouraged to launch a limited attack on the base, hoping that it will devide the Alliaince over the neccessary response.
Europe must now demonstrate its strategic responsibility and strengthen European pillar of NATO, without creating a false expectations that Europe can go on its own without America.
Firstly, Europe does not have a large enough nuclear capability to provide a credible deterrent to Russia. The capabilities of France and the UK are too small to threaten escalation or provide a credible extension of the nuclear umbrella over allies. Even though their strenghtening might be desirable in the longer term, today it would consume resources that both powers should be devoting to expanding their conventional forces.
Secondly, because Russia sees the threat of US involvement in a conflict as a major deterrent, it is in Europe’s interest to exploit such a threat and not to undermine it. Therefore, as long as the US remains a member of NATO, the Alliance should be the main mechanism for collective defence and deterrence in Europe. European leaders understand this and talk about strengthening the European pillar of NATO instead of European strategic autonomy, which can be understood as a willingness to pursue a defence and deterrence policy independent of the US.
Even if the US decided to withdraw from NATO, which is unlikely, an important element of deterrence would be a US presence maintained in various countries on a bilateral basis. A complete withdrawal of US forces from Europe is unlikley, if only because of the need for credible nuclear deterrence. Should there be a decisions on the reduction of US conventional presence, it would still be in the interest of countries such as Italy, Germany or Poland to maintain strong bilateral relations and strengthen the alliance as a whole by working to maintain the US troops on their territory.
The reduction of American military presence in Europe seems inevitable. regardless of whether Trump or another president sits in the White House. However, if the proces is coordinated in NATO and Europeans have time to fill the gaps in military capabilities, the negative effects of U.S. decisions can be minimized.
Wojciech Lorenz, Head of International Security Program at the Polish Institute of International Affairs