Benelux Countries: Defence Policy Transformation in View of Conflict in Ukraine

The Benelux countries often used to be called “free rider member states” of NATO both in the analytical literature and by politicians for being less generous defense spenders since early 1990s, and even after all NATO members committed to defense expenditures at 2% GDP. Since the beginning of Russia’s Special Military Operation in Ukraine, however, the Benelux countries’ approaches have changed: the Netherlands’ defense spending reached 2% GDP in 2024, and that of Belgium and Luxembourg has significantly increased and is aiming at reaching 2% in the 2030s. Despite the relatively low level of defense spending, the Benelux provide ample military, financial, and humanitarian aid to Ukraine. The article builds upon research of burden sharing in the alliance, and attempts to outline the factors driving the change in the Benelux countries’ approach to defense cooperation. This change means a step away from the their earlier “geoeconomic” – i. e., economic interests-driven – foreign policy as militarization and degradation of relations with Russia (whose economic impact prior to the recent escalation was not to be overlooked) undermines the three economies. At the same time, “routinization” of the conflict in Ukraine nudges the Netherlands, Belgium and Luxembourg to look for benefits that can be acquired against the current security situation’s backdrop. Greater defense spending and aid to Ukraine, namely, bring the three countries image benefits (assistance to Kiev is aimed to exemplify the countries’ role as reliable partners in NATO and EU) as well as economic gain, i. e., increased opportunities for the defense industries, and greater efficiency of defense investments through joint purchases.