Secret plan “Operations Plan Germany”: War-ready by 2029? Who pays for preparations for a potential emergency?
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Published on: January 30, 2026 / Updated on: January 30, 2026 – Author: Konrad Wolfenstein
Secret plan “Operations Plan Germany”: War-ready by 2029? Who pays for preparations for a worst-case scenario? – Image: Xpert.Digital
Billion-dollar hole vs. defense: The risky dispute over Germany's new security infrastructure
Who pays for civilian support of the armed forces? A funding dispute over Germany's defense preparations
The "Operations Plan Germany" (OPLAN DEU) is a comprehensive, largely classified document designed to prepare the Federal Republic of Germany for a potential national emergency by 2029. The objective is clearly defined: Germany must be able to function as a logistical hub for NATO. In a crisis, this would mean the deployment and supply of up to 800,000 allied soldiers and heavy equipment across Germany within a few months.
But while military planning progresses, a highly explosive dispute over financing is raging behind the scenes. At the heart of the conflict is the so-called civilian support for the armed forces. From providing massive fuel depots and emergency shelters to upgrading transport routes, supplying medical care, and protecting critical infrastructure – the list of tasks for cities, counties, and municipalities is long.
The Federal Ministry of the Interior maintains that these measures are part of general threat prevention and therefore there is no general entitlement to cost coverage by the federal government. This is triggering massive resistance from German municipalities: faced with a historic funding shortfall of €25 billion and an investment backlog of over €215 billion, they consider themselves unable to bear the burden of national defense preparation alone. The legal and political battle over the interpretation of old federal-state agreements has begun and now calls into question the ambitious timetable for achieving German "war readiness" by 2029.
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What is the German Operations Plan and why is it necessary?
The German Operations Plan is a comprehensive, highly classified document of over 1,400 pages, serving as the central document for Germany's preparations for a potential military conflict. Developed across multiple government departments, the document is continuously updated. The first version was completed in early 2024, and the second is expected to be finalized by mid-2026. The plan responds to the deteriorating security situation in Europe, particularly following Russia's attack on Ukraine, and aims to ensure that Germany is fully prepared for a potential defense scenario by 2029.
The core element of the operational plan is the integration of the central military components of national and collective defense with the necessary civilian support services along the escalation levels of peace, hybrid threat, crisis, and war. Due to its geostrategic location in the heart of Europe, Germany plays a key role as NATO's logistical hub. In a crisis, up to 800,000 soldiers, along with equipment and weapons systems, must be transported, supplied, and coordinated across the country within just six months. The Bundeswehr (German Armed Forces) must be able to provide these troops with continuous logistical and medical support and protection.
What specific civilian support measures are planned?
Civilian support for the armed forces encompasses a broad spectrum of services essential for a functioning national defense. Specific support measures include the protection and security of infrastructure, traffic management, transport and transshipment by road, rail, and at sea and airports, troop accommodation and catering, refueling and maintenance of vehicles and equipment, medical care, and even legal advice. These tasks can only be guaranteed quickly and over extended periods with the services of civilian commercial partners.
A key aspect is the so-called Host Nation Support (HNS) services, in which Germany, as the host country, coordinates transit and supply services for allied forces. This includes providing rest areas, accommodation, workshops, food, fuel, medical care, and security against disruption and sabotage. These tasks involve not only military authorities but also civilian authorities, emergency services, and commercial enterprises.
At the municipal level, this translates into concrete requirements: counties and municipalities might, for example, have to establish larger fuel depots, provide emergency shelters, upgrade their infrastructure for military transport, or create additional disaster relief capacities. Implementing the operational plan also requires strengthening resilience and protecting critical infrastructure such as energy networks, power plants, and water supplies.
Why is there now a dispute about the financing of these measures?
The core of the conflict lies in the question of who should bear the costs of civilian support services. In a document obtained by Der Spiegel, the Federal Ministry of the Interior has taken a position that is causing considerable resentment among local authorities: The comprehensive support of the armed forces by civilian authorities has always been a central pillar of national defense, and therefore the federal government has no general obligation to cover the costs.
According to this interpretation, the states, as representatives of the municipalities, would have to prove to the federal government in each individual case that an additional expenditure is specifically related to a national emergency. However, measures for hazard prevention or disaster relief are already the responsibility of the states and municipalities. The ministry emphasizes that the requirements of the German Operations Plan do not constitute new tasks and is now examining the cost-sharing arrangement between the federal government, the states, and the municipalities.
This position contradicts the financial reality of local authorities. In 2024, German cities, towns, and districts recorded the largest funding deficit in history, amounting to approximately €25 billion. The backlog of municipal investments reached a record high of €215.7 billion in 2024, with school buildings (€67.8 billion) and road and transport infrastructure (€53.4 billion) accounting for the largest shortfalls.
What legal basis do the municipalities cite for their position?
The municipalities' main argument is based on an interpretation of a 1997 federal-state agreement. The German Association of Rural Districts, the umbrella organization for rural districts, argues that according to this agreement, only the highest state authorities should play a role in civil emergency planning, not the municipalities. The Federal Ministry of the Interior vehemently rejects this interpretation.
Civilian emergency planning is regulated by the Federal Ministry of the Interior and Community through the Civilian Emergency Planning Directive (ZAPRL). The ZAPRL summarizes the tasks that must be triggered by appropriate alerts in cases of approval, tension, defense, alliance conflicts, and foreign policy-military crises. The directive is relevant for the federal government, the states, and, in principle, also for the municipal level, with its implementation being facilitated by emergency calendars.
The German Association of Rural Districts has announced a legal review and stated in an internal statement that, based on its initial assessment, the blanket statements regarding cost allocation, in particular, need to be examined. The legal dispute concerning the correct interpretation of the 1997 agreement could have far-reaching consequences for overall defense planning.
How is the constitutional distribution of powers between the federal government and the states regulated?
The Basic Law regulates responsibilities in the event of defense in Articles 115a to 115l, as well as in further provisions concerning national defense. The Federal Government has exclusive jurisdiction over legislation concerning defense, including the protection of the civilian population. Military defense is carried out by the Federal Government under its own authority.
In the field of civil defense, each federal ministry is responsible for all civil defense tasks and measures within its remit, with the Federal Ministry of the Interior and Community additionally handling coordination. The federal states are responsible for planning, preparing, and implementing necessary measures in accordance with the overall civil defense concept established by the federal government.
The Länder (federal states) oversee the planned preparation and implementation of individual measures down to the municipal level, with the general administrative authorities at the district level generally responsible, and in some cases also at the district level, at the municipal level. In the event of defense, Article 115c of the Basic Law allows for federal law, with the consent of the Bundesrat (Federal Council), to regulate the administration and finances of the Federation and the Länder differently, while ensuring the viability of the Länder, municipalities, and municipal associations, particularly in financial terms.
What is the state of the financial resources of the municipalities and their ability to invest?
The financial situation of German municipalities has deteriorated dramatically. After ten years of surpluses, all cities and towns together recorded a deficit of €24.8 billion in 2024. Municipal expenditures rose by ten percentage points, while revenues increased by only five percentage points. The reasons for this include high inflation, rising social welfare expenditures, negotiated wage increases and the associated personnel costs, as well as higher energy prices.
Social spending jumped by a quarter within two years, reaching €85 billion. Local authorities bear a wide range of social responsibilities, which are largely regulated by federal law but often insufficiently funded by the federal government. Operating expenses also increased due to inflation, rising by a quarter in two years.
The investment backlog of €215.7 billion clearly demonstrates that municipalities are already overwhelmed by their existing responsibilities. The situation is particularly problematic with regard to school buildings and road infrastructure, where 56 percent, or a significant proportion, of municipalities report a notable or serious investment deficit. Added to this are the necessary investments in the transformation of municipal infrastructure, which are estimated to amount to over €1 trillion in the coming decade.
What resources are available for defense and infrastructure?
The German government has significantly increased its defense spending in recent years. Compared to the 2024 budget, the defense budget for 2025 rose by approximately ten billion euros to around 62.43 billion euros. An additional 24.06 billion euros are available for 2025 from the special Bundeswehr fund, which was established in 2022 following the Russian invasion of Ukraine. This brings the total resources available to the Bundeswehr in 2025 to more than 86 billion euros.
The key figures for the coming years stipulate that budget line 14 is to increase to €82.69 billion in 2026, €93.35 billion in 2027, €136.48 billion in 2028, and €152.83 billion in 2029. According to the plans, the actual defense budget is expected to total €162 billion in 2029.
With the special fund for infrastructure and climate neutrality, the German government has also approved a €500 billion investment package. Of this total volume, €100 billion is earmarked for the federal states in annual installments, which are to pass on a large portion of the funds to the municipalities. Another €100 billion will flow into the Climate and Transformation Fund. Approximately €58.9 billion from the special infrastructure fund is expected to be spent in 2026.
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Germany's defense plan: The federal government plans for emergencies, and the municipalities are supposed to pay
Why are the existing funds insufficient for the defense preparation of municipalities?
Although substantial sums are allocated for defense and infrastructure, the funds from the special fund are not specifically earmarked for the requirements of the Operational Plan Germany. The special infrastructure fund focuses on general investments in transportation, energy infrastructure, digitalization, research, health, social services, and education, such as the renovation of schools and hospitals. Additional investments for the military-related development and expansion of municipal infrastructure at military bases, as well as for implementing the requirements of the Operational Plan Germany, must be financed with additional federal funds from outside the special fund.
Municipal investment barriers further exacerbate the situation. Not all planned investments are being implemented: In 2024, municipalities are projected to spend only €30 billion on investments, although €47 billion had been planned. This discrepancy is due to investment barriers that are not necessarily related to the financial situation, but also to insufficient staffing in building departments, complex documentation requirements, or lengthy approval processes.
The financial situation varies considerably across the German states. Only eight out of 70 municipalities in eastern Germany reach the national average in terms of tax revenue. Cities and towns in Bavaria and Hesse finance more than 40 percent of their budgets from taxes, while in the east it is less than 25 percent. This disparity would lead to significant regional differences in the feasibility of implementing municipal financing for defense measures.
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What role does civil defense and disaster relief play in this debate?
The distinction between civil defense and disaster relief is crucial for the question of funding. In Germany, disaster relief is a matter for the individual states and is generally implemented by the municipalities. In the case of particularly large-scale disasters, the states can request assistance from other states or the federal government. Only in the event of war is the federal government directly responsible for civil protection, in which case it is called civil defense.
In Germany, the federal government is responsible for civil protection; the states, including municipalities, act on behalf of the federal government. The Federal Office of Civil Protection and Disaster Relief (BBK) carries out federal tasks in the areas of civil protection and disaster relief. The BBK is financed through the federal budget.
According to the current federal equipment concept, the federal government procures and maintains vehicles and supplementary equipment for the disaster relief authorities in the states, as stipulated in Section 13 of the Civil Protection Act (ZSKG). The federal government supplements the disaster relief equipment of the states for civil protection purposes. Disaster relief at the state level is financed through various models, mostly using the fire protection tax.
The Federal Ministry of the Interior now argues that measures serving hazard prevention or disaster relief are the responsibility of the federal states and municipalities. However, this distinction is not clear for many measures in Germany's Operational Plan: infrastructure that can be used for both military purposes and civil disaster relief falls into a gray area. While the principle of dual use for civil protection and disaster relief is enshrined in the plan, it complicates the clear allocation of financial responsibility.
How does the German Armed Forces' assistance work and who bears the costs?
The German Armed Forces' assistance in disasters and emergencies is regulated by Article 35 of the Basic Law. All federal and state authorities are obligated to provide mutual assistance, including the German Armed Forces. For the German Armed Forces to be deployed, a request from another authority is always required. The German Armed Forces use only available personnel and equipment for assistance, without providing special equipment or training, provided their own mission allows it.
The requesting authority bears overall responsibility and reimburses the expenses later. The costs for administrative assistance from the German Armed Forces vary considerably. For administrative assistance under Article 35 of the Basic Law, the costs can range from a few thousand euros to over one million euros, depending on whether the German Armed Forces declare the deployment as a training measure and only charge for materials, or bill for full operating costs.
For the year 2024, the German Armed Forces (Bundeswehr) requested a total of €2,203,006.50 in reimbursement from ten German states for administrative assistance provided. This sum appears moderate, but illustrates the principle: civilian authorities must pay for support from the Bundeswehr. For larger operations within the framework of Operation Germany, the costs would be significantly higher.
The Federal Performance Act enables the federal government to procure in-kind services and to request services from natural and legal persons in the event of defense and in preparation for such a defense. The entities requiring services and the procedures are determined by statutory order of the federal government. Compensation provisions are included in the law; however, the question remains open as to whether and how municipalities will be compensated for necessary preparatory measures.
What political and practical consequences could the financing dispute have?
The dispute over who bears the costs has the potential to jeopardize the entire defense planning process. It is telling that while politicians grandly approve a special fund of 500 billion euros for infrastructure and defense, they then pass the costs down the line when it comes to implementation. Municipalities, which are already chronically underfunded, are expected to finance millions more for fuel depots, emergency shelters, and other defense infrastructure from their already depleted coffers.
Political credibility is at stake. Federal Interior Minister Nancy Faeser and Defense Minister Boris Pistorius have repeatedly emphasized the need for close cooperation between all levels of government and the close integration of military and civil defense. However, if the financing issue remains unresolved and is passed on to local authorities, this could lead to significant delays and uneven implementation in financially weak and strong regions.
Local authorities face a dilemma: Should they invest in defense infrastructure while schools are dilapidated, roads are crumbling, and the investment backlog amounts to €215 billion? The question of political priorities thus becomes a question of local capacity to act. If local taxes are increased or investments in other important areas are neglected, it will ultimately be the citizens who foot the bill.
Experts are therefore calling for clarity on the financing issue. The Bertelsmann Foundation warns that, given the current financial situation, municipalities cannot raise the necessary funds for transformation and infrastructure on their own. The special fund for infrastructure and climate neutrality will also only partially cover these needs, which is why further long-term financing approaches are necessary. A joint federal-state special fund or a public-private future and transformation fund are being discussed.
How is civil defense financed in other areas?
The framework guidelines for comprehensive defense, adopted by the Federal Cabinet in 2024, describe the necessary measures and structures to safeguard Germany's independence and sovereignty in times of crisis and conflict. Civil defense is fundamentally strengthened within the framework of comprehensive defense, which is intended, among other things, to ensure civilian and logistical support for the armed forces.
To protect critical infrastructure, the German Federal Government has passed the Critical Infrastructure Protection Act (Kritis-Dachgesetz). This establishes, for the first time, a uniform nationwide framework for the physical protection of vital supply facilities. Responsible companies and hospitals are now obligated to develop stricter security concepts and emergency plans. The costs are initially borne by the affected companies and institutions, although there are growing calls for suitable regulations and prerequisites for financing these new security systems.
The German states have called on the federal government to invest ten billion euros in protecting the population from disasters and crises. This sum should be provided over the next ten years in addition to the states' own investments in disaster relief. This demonstrates that the question of adequately financing protective measures is also being hotly debated at other levels.
What does the financing issue mean for the implementation of the operational plan until 2029?
Germany's operational plan stipulates that the country should be ready for war and capable of sustaining operations by 2029. Planning began in March 2025 and is scheduled for completion by autumn 2025. The third step of the operational plan, to be finalized in spring 2026, will involve defining the implementation of security measures.
Without a resolution to the financing issue, this ambitious timetable is in danger of failing. Municipalities will be unable to make necessary investments in fuel storage facilities, protective infrastructure, transport routes, and other support services if it remains unclear whether and to what extent they will receive federal funding. The German Association of Rural Districts has already announced its intention to scrutinize the blanket statements regarding cost sharing and have them legally reviewed.
The German Armed Forces have already visited local officials and advised them to prepare for the threat of war on German soil. However, this preparation can only succeed if the necessary financial resources are provided. The federal government must quickly find a solution that takes local realities into account and enables the uniform implementation of defense measures throughout Germany.
What are the prospects for resolving the conflict?
Several approaches are conceivable for resolving the financing conflict. First, the federal government could establish a specific special fund for the implementation of the Operational Plan Germany, from which the necessary municipal investments would be financed. This would follow the approach of the special fund for the Bundeswehr (German Armed Forces) and clearly underscore the defense relevance of the measures.
Secondly, a binding agreement could be reached between the federal government, the states, and municipalities, clearly stipulating which measures must be financed by the federal government and to what extent. A revision or clarification of the 1997 agreement on civil emergency planning would be one possible approach. This would need to be supported by sufficient budgetary resources.
Thirdly, the principle of mixed financing could be expanded, whereby the federal government assumes a basic share and the states and municipalities contribute a supplementary share. However, it would have to be ensured that financially weak municipalities are not disadvantaged and that uniform standards of defense capability are achieved throughout Germany.
Fourth, greater involvement of private actors could be considered, for example through public-private partnerships for certain infrastructure projects. However, this carries the risk that critical defense infrastructure will fall into private hands and state control will be weakened.
It is crucial that the German government recognizes the urgency of the financing issue and acts swiftly. The security situation in Europe demands that Germany credibly fulfill its role as a NATO hub. This is only possible if all levels of government are financially enabled to contribute to overall defense. The alternative would be defense planning on paper that fails in practice due to the financial realities at the local level.
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