Billions for weapons, but no way to the front? The EU's dangerous logistics gap
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Published on: August 31, 2025 / Updated on: August 31, 2025 – Author: Konrad Wolfenstein
Billions for weapons, but no way to the front? The EU's dangerous logistics gap – Creative image: Xpert.Digital
The invisible backbone: Developing a dual-use logistics strategy for European defense readiness
“Strategic cacophony”: Why Europe is standing in its own way when it comes to defense – and logistics is the solution
Europe is at a strategic turning point. The return of conventional warfare on the continent has dramatically highlighted the need for robust collective defense. In response, we are witnessing a wave of political "activism": defense spending is increasing, new strategies are being announced, and the procurement of tanks, ammunition, and soldiers is dominating the headlines. But these visible measures risk overlooking a fundamental and dangerous gap—the ability to rapidly deploy, effectively supply, and sustainably support these forces.
This article highlights the invisible backbone of European defense: an integrated, resilient, and efficient dual-use logistics network. This involves far more than simply controlling individual assets. It is the strategic use of civilian infrastructure—ports, rail networks, airports, and digital systems—for military purposes. This is not a theoretical abstraction, but rather a proven practice, as the strategic hubs in Rostock, Split, and Rijeka impressively demonstrate. These ports act as force multipliers for NATO and the EU by combining economic interests with military requirements, thus reducing costs, increasing resilience, and strengthening strategic autonomy.
However, the analysis does not shy away from the massive obstacles that stand in the way of Europe-wide implementation: deep-rooted political fragmentation, known as "strategic cacophony," a labyrinth of national regulations, decades of investment backlog in critical infrastructure, and the constant threat of cyberattacks. These factors create a vicious cycle of stagnation that deepens the gap between political ambition and logistical reality. True European defense readiness is an illusion without a functioning logistical foundation. It is time to make this invisible backbone visible and make the fundamental investments that will underpin Europe's security in the 21st century.
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From Baltic port to NATO fortress: How Germany is quietly becoming the most important logistics hub
Europe is at a strategic inflection point. The return of conventional warfare on the continent has made the need for robust collective defense unmistakable. In response, policymakers have announced a series of high-level initiatives and strategies designed to usher in a new era of European defense preparedness. However, this report argues that this wave of political "activism"—however necessary as a statement of intent—risks overlooking the most fundamental and critical element of defense capability: logistics. The focus on acquiring military hardware and increasing troop strength is insufficient without the ability to rapidly deploy, effectively supply, and sustainably support those forces.
This report reveals the invisible backbone of European defense—an integrated, resilient, and efficient dual-use logistics network. It deconstructs the concept of dual-use logistics and expands it from the traditional control of individual assets to the strategic use of entire infrastructures and supply systems for civilian and military purposes. Using concrete case studies of the ports of Rostock, Split, and Rijeka, it demonstrates that this concept is not a theoretical abstraction but a proven practice that acts as a strategic force multiplier for NATO and the EU. These hubs demonstrate how the synergy between civilian economic interests and military requirements leads to cost savings, increased resilience, and strengthened strategic autonomy.
However, the analysis also identifies significant frictions that stand in the way of Europe-wide implementation: deep-rooted political fragmentation, known as "strategic cacophony," a maze of national regulations, decades-long investment backlogs in critical infrastructure, and the growing threat of cyberattacks. These challenges create a vicious cycle of stagnation that deepens the gap between political ambition and logistical reality.
To break this cycle, the report proposes a concrete strategic roadmap. This includes the creation of integrated civil-military planning structures, the mobilization of targeted investments through EU instruments and public-private partnerships, the implementation of pilot projects to promote technical interoperability, and the development of human capital through specialized training programs.
The conclusion is unmistakable: genuine European defense preparedness without a functioning logistical foundation is an illusion. The necessity has been made visible. It is now up to Europe's policymakers to recognize the need, create the demand for change, and make the long-term, fundamental investments required to forge the invisible backbone of European defense.
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The strategic imperative: From political “activism” to logistical reality
This section lays out the core problem: the dangerous gap between the political rhetoric of European defense preparedness and the neglected logistical reality on the ground. It argues that the current focus on materiel and troop numbers is insufficient when the resources to deploy, sustain, and reinforce them are lacking.
The modern European security landscape: A paradigm shift
Russia's all-out invasion of Ukraine in 2022 marked a profound paradigm shift for European security. After decades characterized by a crisis management mindset and foreign deployments, the continent now faces the need for credible collective defense. This new security environment is characterized not only by conventional military threats but also by a wide range of hybrid tactics. These include the sabotage of critical infrastructure, targeted disinformation campaigns, and the exploitation of economic dependencies, such as Russia's gas supplies. In this context, resilience—the ability to withstand shocks and maintain operability—becomes a central component of national and alliance-wide defense.
In response to this change, a political "actionism" can be observed. Governments are announcing increased defense spending and presenting new, ambitious strategies. While these visible actions are important political signals, they risk serving as a substitute for the substantive, fundamental development of capabilities. The public and political debate focuses on the "what"—more tanks, more soldiers, more ammunition—and criminally neglects the "how": how will these troops and materiel be delivered to and supplied at the front quickly, efficiently, and safely? The term "actionism," rooted in critical theory, describes activity for its own sake, which often masks a lack of deeper strategic reflection—a critique that aptly describes the current situation.
This activism leads to a paradoxical effect. While the announcement of new strategies and funds signals the intention to act, it simultaneously consumes political attention and media resources. Focus is diverted from the unglamorous, long-term, and technically complex work of building logistical capacity. The process typically begins with a security crisis, which creates political pressure for action. Decision-makers respond with politically easily communicable, high-level strategies such as the EDIS or the White Paper. This satisfies the immediate demand for action and creates the narrative of decisive leadership. But while the political focus already turns to the next crisis or announcement, multi-year, cross-border work—such as upgrading a railway bridge or harmonizing customs forms for military transport—falls behind because it lacks a compelling political narrative and is thus underfunded and deprioritized. The result is a cycle of strategic announcements without corresponding logistical implementation, steadily widening the gap between stated ambition and actual capability.
The gap between politics and reality: Analysis of key strategic frameworks
A critical review of the EU's key defense policy documents reveals how logistics is treated – often as a necessary but secondary issue.
Joint White Paper on European Defence Preparedness 2030: This document presents an ambitious framework that correctly identifies the urgency of logistical improvements. It explicitly calls for the creation of an EU-wide network of land corridors, airports, seaports, and supporting elements to enable the "seamless, rapid transport of troops and military equipment across the EU and partner countries." The White Paper identifies the "what"—for example, 500 hotspot projects and the need for strategic stockpiles. However, a closer analysis shows that the "how"—the governance structures, sustainable financing, and political unity required to implement this vision—remains underdeveloped.
European Defence Industrial Strategy (EDIS): The EDIS aims to strengthen the European Defence Technological and Industrial Base (EDTIB) in order to transition from a crisis response mode to a "war economy." It sets ambitious targets, such as a 40% share of joint procurement by 2030 and a 35% share of intra-European defence trade. However, these targets are fundamentally dependent on logistics—both for supplying the industrial base with raw materials and components and for delivering the finished systems to the armed forces. This dependency is not given due priority in the strategy's public narrative.
Defense Readiness Omnibus & SAFE Instrument: These initiatives aim to simplify regulations, reduce regulatory hurdles, and provide funding for defense projects, including dual-use infrastructure (e.g., through the SAFE Instrument). These tools are necessary but not sufficient. They treat the symptoms—bureaucratic slowness, funding gaps—without addressing the root cause: the lack of a unified, politically supported, and integrated logistics strategy.
Redefining European Defence: Logistics as a Strategic Enabler
The synthesis of the preceding analysis leads to a key conclusion: genuine European strategic autonomy is a strategic impossibility without a coherent, resilient, and integrated logistics network. The classic military aphorism "Amateurs discuss tactics, professionals discuss logistics" underscores the political neglect of this critical area at the highest levels.
A crucial conceptual flaw in current EU thinking is the inadequate distinction between "mobility" and "logistics." The EU's focus on "military mobility"—the movement of armed forces—while an important step forward, is dangerously incomplete. It neglects the static infrastructure (bases, depots, maintenance facilities) and the complex supply chains that make mobility possible in the first place. Logistics is not merely a supporting secondary function that reactively responds to requirements; it is a primary strategic enabler that determines the pace, scale, and sustainability of any military operation.
The failure to develop a coherent logistics strategy is not a mere oversight, but a direct symptom of Europe's "strategic cacophony"—the deep-rooted divergence in threat perceptions and national interests. Logistics is the physical manifestation of a military strategy; supply lines are built to support a specific operational plan. However, because EU member states exhibit "deep, continent-wide divergences" in their defense policies, there is no consensus on a common operational plan. A frontline state like Poland has different priorities than Spain. Without a truly common threat analysis, it is impossible to agree on a single, prioritized, Europe-wide logistics network. Military mobility projects thus become a collection of national priorities under an EU umbrella rather than a top-down, strategically coherent system. The political neglect of logistics is thus a rational, albeit dangerous, outcome of deeper political fragmentation. Making this “invisible backbone” visible is the first and most important step towards true defense readiness.
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The hub for security and defense offers well-founded advice and current information in order to effectively support companies and organizations in strengthening their role in European security and defense policy. In close connection to the SME Connect working group, he promotes small and medium -sized companies (SMEs) in particular that want to further expand their innovative strength and competitiveness in the field of defense. As a central point of contact, the hub creates a decisive bridge between SME and European defense strategy.
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Dual-use logistics: Strategic infrastructure between civil economy and military defense
Deconstructing Dual-Use Logistics: A Fundamental Skill
This section provides the clear, authoritative definition and value proposition needed to move from “Why it is needed” in Part I to “What it is” and “What it does.”
Core concepts: From goods to networks
The term "dual-use" has its origins in the legal framework of export control. EU Regulation (EU) 2021/821 defines dual-use goods as goods, software, and technology that can be used for both civilian and military purposes. The primary objective of this regulation is to control the proliferation of sensitive technologies, particularly those related to weapons of mass destruction.
The strategic leap to dual-use logistics, however, represents a decisive conceptual expansion. It's not about individual products, but rather the "strategic use of infrastructure, systems, and capacities for both civilian and military purposes." This concept encompasses "entire supply systems and transport networks." It is this comprehensive understanding that policymakers must internalize. It means planning and building bridges, rail networks, ports, airports, and digital communications systems from the outset to meet the requirements of both worlds—the civilian economy and military defense.
A more advanced concept is "dual-use logistics" (Du-Logistics²). This advanced variant describes the integration of different modes of transport (e.g., rail and road) for civil and military purposes to create a resilient, multi-layered overall system. This approach underscores the need for systemic rather than piecemeal thinking.
The Value Proposition: A Matrix of Strategic Advantages
The dual-use approach offers several advantages that make it attractive to policymakers and society at large. These can be presented systematically to make the concept convincing and understandable.
Economic efficiency & cost savings: Instead of maintaining expensive, redundant, and parallel systems for civilian and military purposes, shared infrastructure allows for the distribution of fixed costs. This avoids massive misinvestments in purely military systems, which often remain unused in peacetime, and significantly eases the burden on national budgets.
Increased resilience & redundancy: A dual-use network is inherently more resilient. In the event of a crisis, military needs can be met by leveraging the capabilities of the civilian sector. Conversely, civil society benefits from infrastructure built to higher military standards in terms of durability, security, and especially cyber protection. This is crucial for both military defense and civilian crisis response (e.g., in the event of natural disasters or pandemics).
Scalable Responsiveness & Flexibility: In peacetime, the infrastructure can be used primarily for commercial purposes. However, in a crisis, it can be quickly scaled up to handle military surge capacity without the delay that would be caused by activating dormant, purely military assets. This flexibility is essential for modern, responsive defense planning.
Innovation & Technological Synergies: The dual-use model acts as a powerful driver of innovation. Military requirements for robust cybersecurity can strengthen civilian networks, while civilian sector advances in artificial intelligence, automation, and efficiency optimization can be adapted to improve military logistics.
Strengthening strategic autonomy: By building robust, interoperable European capabilities, the EU reduces its dependence on external logistics service providers (including non-EU/NATO allies) and strengthens its ability to act autonomously in a crisis.
The dual-use concept offers a politically viable way to achieve deeper defense integration. Instead of asking member states to relinquish control over purely military assets, which would meet considerable resistance, they are encouraged to jointly invest in shared infrastructure that delivers tangible economic benefits to their civilian economies. This reframes a sensitive defense issue as a smart economic and infrastructure policy. The military requirement is limited to ensuring that this infrastructure meets certain specifications (e.g., bridge load-bearing capacity, runway length) to enable military use in a crisis. This represents a much lower political hurdle. Dual-use logistics is therefore not just a technical solution but a political strategy to circumvent long-standing obstacles to European defense cooperation.
At the same time, the attractiveness of the concept comes with a risk. Without strict, universally accepted definitions of what constitutes a genuine dual-use project, there is a danger of "dual-use washing." This involves relabeling purely civilian projects to gain access to defense- or security-related funding. This could lead to a misallocation of resources, with funds intended to strengthen defense readiness being diverted to projects with marginal security benefits. Therefore, the development of a clear, rigorous EU-wide framework for certifying and auditing dual-use infrastructure projects is essential to ensure they deliver genuine military benefits.
The dual-use approach
The dual-use approach – Image: Xpert.Digital
The dual-use approach is a strategic concept that fully leverages the benefits of integrated civil-military infrastructure and technology development. In the economic domain, this approach enables significant cost efficiencies by sharing fixed costs for infrastructure projects between the civil and military sectors. At the same time, it promotes economic competitiveness through the expansion of transport infrastructure such as ports and railways, which strengthens commercial trade.
In the military field, the dual-use approach offers decisive strategic advantages. It allows for scalable responsiveness, allowing commercial systems to be quickly adapted to military requirements in times of crisis. It also improves military mobility by reducing bureaucratic hurdles and enabling faster deployment of troops and equipment.
At the strategic level, this approach creates resilience and redundancy in networks that benefit both national security and civilian crisis response. It reduces dependence on external logistical support and increases Europe's strategic autonomy.
In the technology sector, the dual-use approach acts as a driver of innovation. It promotes synergies between military research and civilian technology development, for example in areas such as cybersecurity, artificial intelligence, and automation. Furthermore, it supports standardization and improves technical interoperability between different national and civil-military systems.
Dual-use logistics in action: Strategic hubs as force multipliers
This section provides the concrete evidence to make the abstract concept of dual-use logistics tangible and to demonstrate its impact indisputably.
Case Study: The Port of Rostock – NATO’s Baltic Gateway
The transformation of the port of Rostock into a central military hub is a direct response to the changing security situation in the Baltic Sea following Russian aggression and the NATO accession of Finland and Sweden. Today, it is a front-line logistical base for the defense of NATO's eastern flank.
Rostock's dual-use capability is manifested in the perfect symbiosis of its civilian strength and military integration. As the largest universal port on the German Baltic coast, with massive cargo handling, 47 berths, and the ability to handle very large ships, its civilian capabilities form the foundation for its military role. Critical military functions have been established on this foundation. The port is home to the new multinational naval headquarters, Commander Task Force Baltic (CTF Baltic), which is led by the German Navy and monitors the Baltic Sea around the clock. It serves as the primary staging and launching point for major NATO exercises such as BALTOPS and National Guardian, which involve the deployment of thousands of troops and hundreds of vehicles, including main battle tanks. In addition, critical military equipment such as Patriot air defense systems are shipped from Rostock to allied partners.
A prime example of a pioneering dual-use project is the planned deployment hub at the Warnow shipyard. A NATO deployment hub is being developed here in collaboration with private investors who will also produce converter platforms for offshore wind farms at the same site. This project directly links military needs with the civilian energy transition and demonstrates how modern defense planning can harmonize with economic and ecological goals.
The port's effectiveness is made possible by its excellent multimodal connections. Direct connections to the A19 and A20 motorways and an extensive, expandable rail network enable the rapid relocation of troops and equipment from the port to other parts of Europe. Its enormous storage capacity is another key factor that makes the port ideal for large-scale military operations.
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Case Study: The Ports of Split & Rijeka – Securing the Mediterranean Flank
This case study demonstrates that dual-use logistics is not a new concept, but a long-standing, proven practice. Croatian ports are important NATO resources for projecting power and ensuring security in the Mediterranean and the Balkans.
The Port of Rijeka has served as a critical transit hub for US Army and NATO equipment since at least 1998, supporting operations such as SFOR in Bosnia and Herzegovina. The handling of helicopters, vehicles, and supplies is a concrete example of its military logistics function. Civil-military synergy is particularly pronounced here: US Navy ships regularly use Croatian ports, especially Rijeka, for maintenance and repair work. These contracts have generated hundreds of millions of dollars for the local economy. This is a perfect example of mutual benefit: the Navy gains access to world-class shipyards, and the local economy benefits.
The Port of Split serves as a command and cooperation center. It regularly hosts high-level NATO units, including the U.S. 6th Fleet flagship, the USS Mount Whitney, and NATO's Standing Maritime Task Force-2 (SNMG2). Split is also a key venue for leadership conferences, such as those of NATO Special Forces, which promote interoperability and strengthen Alliance partnerships.
Crucially, the modernization of the Port of Rijeka, particularly the improvement of rail infrastructure and connections to Central European transport corridors, was co-financed with EU funds from the Connecting Europe Facility (CEF). This impressively demonstrates how civilian EU infrastructure funds directly improve a critical, NATO-relevant dual-use capability.
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Network expansion: The untapped potential of rail and air
Beyond seaports, the dual-use concept is applicable to the entire transport system and unfolds its full potential there.
Airports: Examples such as Rzeszów-Jasionka in Poland, which became a crucial NATO logistics hub for supporting Ukraine; Cologne/Bonn in Germany, with its mix of cargo and military transport aircraft; and Pisa in Italy, with its civilian terminal alongside a military air transport brigade, demonstrate the diverse application possibilities. A pioneering major project is the planned Central Communications Port (CPK) in Poland, designed from the ground up as an integrated dual-use hub for air, rail, and road transport.
Rail networks: With an estimated 94% overlap between civil and military networks, rail is the most critical land-based dual-use system. There is an urgent need to upgrade key corridors for the transport of heavy military equipment (e.g., 70-ton tanks), ensure the load-bearing capacity and clearance of bridges and tunnels, and implement interoperable signaling systems such as ERTMS across the board. The identification of four strategic multimodal corridors and 500 "hotspot" projects in the EU White Paper is an important, but only initial, step.
These case studies demonstrate that dual-use hubs are more than just transit points. They become anchor points for Alliance activities—joint exercises, multinational headquarters, shared maintenance facilities. Constant interaction in a port like Rostock or Split builds trust, institutional knowledge, and interoperability among Allied forces in a way that sporadic field exercises cannot. Establishing a facility like CTF Baltic in Rostock requires personnel from 13 nations to work together on a daily basis. An investment in a physical dual-use hub is thus also an investment in NATO's political and military cohesion.
At the same time, the Rijeka case reveals a crucial, often unspoken synergy. EU civilian infrastructure funding from the CEF directly enhances NATO's defense capability, which uses the port as a key logistics hub. This creates a highly efficient, de facto partnership. The EU provides the resources and framework for infrastructure development, and NATO benefits from significant security gains. This insight is crucial for advocating for greater alignment between EU infrastructure planning and NATO's defense requirements.
NATO port strategies: Military and economic synergies in Rostock and Split/Rijeka
NATO port strategies: Military and economic synergies in Rostock and Split/Rijeka – Image: Xpert.Digital
The NATO port strategies in Rostock and Split/Rijeka demonstrate remarkable military and economic synergy between German and Croatian ports. Rostock serves as NATO's strategic gateway to the Baltic Sea and is a key defense hub for the eastern flank. Its infrastructure includes deep-water berths, extensive storage areas, and the Warnow Shipyard operational hub, where innovative projects such as the co-development of offshore wind power platforms are taking place.
In contrast, the Croatian ports of Split and Rijeka secure NATO's Mediterranean flank and serve as logistics hubs for the Balkans and the Mediterranean region. Their world-class shipyards benefit from maintenance contracts with the US Navy, generating significant economic benefits for local industry. Both port locations have multimodal connections – Rostock via highways and international rail lines, and the Croatian ports via modernized transport corridors developed with EU funds.
Military functions include multinational exercises such as BALTOPS, troop movements, material transit, and ship maintenance. German and US forces jointly use these strategic hubs, underscoring close cooperation within NATO while simultaneously promoting local economic development.
Your dual -use logistics expert
Dual -use logistics expert - Image: Xpert.digital
The global economy is currently experiencing a fundamental change, a broken epoch that shakes the cornerstones of global logistics. The era of hyper-globalization, which was characterized by the unshakable striving for maximum efficiency and the “just-in-time” principle, gives way to a new reality. This is characterized by profound structural breaks, geopolitical shifts and progressive economic political fragmentation. The planning of international markets and supply chains, which was once assumed as a matter of course, dissolves and is replaced by a phase of growing uncertainty.
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From fragmentation problems to strategic integration: Dual-use networks between obstacles and solutions
The friction points: Overcoming the barriers to a coherent network
This section directly addresses the obstacles to the widespread adoption of a dual-use logistics strategy and provides a sober assessment of the political, legal, and technical landscape.
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Political and institutional inertia
The core problem is the aforementioned "strategic cacophony." Analyses show that despite increased spending, European defense cooperation is declining, with much of the investment going toward readily available US equipment. This is driven by differing threat perceptions and a deep-rooted "procurement nationalism" that prioritizes national industrial bases over collective capabilities.
This political fragmentation leads to a "deliberate neglect of logistics." In the absence of a compelling political narrative, the focus remains on prestigious hardware rather than the unglamorous but essential infrastructure. The EU's institutional structure, in which member states retain primary responsibility for defense and security, exacerbates this problem. The EU can propose and fund, but cannot mandate, a unified logistics plan, making the system vulnerable to the veto or non-participation of individual member states.
Regulatory and legal labyrinths
The cross-border nature of logistics is encountering a wall of divergent national regulations. This requires a massive effort to harmonize rules for everything from military transport permits to customs clearance. The concept of a "military Schengen" is the stated goal, but its implementation is slow and fraught with bureaucratic obstacles.
The complexity of dual-use controls themselves presents another hurdle. The regulations governing dual-use goods controls (EU Regulation 2021/821) can lead to complexity when applied to entire logistics systems. The lack of a universal classification system, differing interpretations by customs officials, and the risk of diversion create significant compliance challenges for private sector partners. Enforcement is inconsistent across the EU, which lacks a unified enforcement structure.
Infrastructural and technical deficits
Many European infrastructure networks, especially rail, suffer from decades of investment backlog. The German network, a critical transit country, is in a "catastrophic state." This means that bridges cannot support heavy tanks, tunnels are too small, and there is a shortage of special rail cars.
In addition to the deficits, capacity bottlenecks exist. Key transport corridors and terminals are already operating at or close to their capacity limits for civilian traffic. Adding military "peak" requirements risks gridlock and pits military prioritization against the just-in-time logic of modern civilian supply chains. Finally, the lack of standardization and interoperability presents a formidable technical challenge. Systems—civilian and military, and across different nations—must be able to communicate and interoperate. While NATO standards exist, they must be integrated into civilian and industry standards, a massive and complex undertaking.
The cybersecurity front
The integration of civilian infrastructure (ports, railway signaling, air traffic control) into military logistics networks dramatically increases the attack surface for cyber threats from state and non-state actors. Cybersecurity and physical security cannot therefore be afterthoughts. The infrastructure must be designed from the ground up to be resilient to physical and cyber attacks, which requires redundancy and robust security protocols—an approach known as "design for resilience."
The friction points are not only technical or political, but also cultural. The military demands security, redundancy, and the ability to override normal procedures in the event of a crisis ("just-in-case"). The private logistics sector, on the other hand, prioritizes speed, cost-effectiveness, and predictability ("just-in-time"). This fundamental clash of operating philosophies is a major barrier. A successful dual-use model must therefore include clear governance frameworks, communication protocols, and financial compensation mechanisms to bridge this cultural and operational gap.
These challenges are intertwined, creating a self-reinforcing, negative cycle. Political fragmentation prevents a unified plan. Without a plan, there is no clear business case for industry to invest in standardized equipment. The resulting technical gaps complicate cross-border military movements, reinforcing the tendency of nations to focus on national solutions and further deepening political fragmentation. Breaking this vicious cycle requires a forceful intervention that addresses the political, industrial, and technical dimensions simultaneously.
Strategies to overcome civil-military challenges in EU infrastructure development
Strategies to overcome civil-military challenges in EU infrastructure development – Image: Xpert.Digital
The development of EU infrastructure faces complex civil-military challenges that require a multidimensional approach. In the political sphere, a "strategic cacophony" and procurement nationalism dominate, which can be addressed by establishing integrated civil-military planning bodies and a new perspective on dual-use as an economic and infrastructure policy.
Legal and regulatory obstacles are evident in inconsistent cross-border procedures and complex export controls. Solutions include the implementation of a "military Schengen" and the development of a uniform EU certification system for dual-use infrastructure.
The technical infrastructure is characterized by investment backlogs, especially in the rail sector, capacity bottlenecks, and a lack of standardization. Strategies such as the mobilization of targeted funding, pilot projects on key corridors, and the introduction of binding interoperability standards such as ERTMS can enable progress here.
In the commercial and industrial sectors, a civil-military cultural conflict and a lack of business models for the private sector are hampering development. Clear governance and compensation frameworks, as well as bundled procurement strategies, can help create market size and generate investment incentives.
Forging the Backbone of European Defence: A Strategic Roadmap
This final section provides a set of concrete, actionable recommendations that synthesize the findings of the entire report to provide a clear path forward.
Integration of planning and governance: From ad hoc to institutionalized
The current ad hoc integration of logistical considerations is inadequate. A fundamental change in planning culture is needed.
Recommendation: Establish permanent, integrated civil-military planning structures at EU and national levels. These bodies must include representatives from defense ministries, transport ministries, infrastructure agencies, and the private sector.
Implementable step: Creation of multi-stakeholder "dual-use logistics councils." Their task would be to ensure that logistics considerations are embedded in strategic planning from the outset and not treated as an afterthought. This would ensure institutionalized coordination among all relevant stakeholders.
A new investment and financing paradigm: Mobilizing capital
Financing the necessary infrastructure upgrades exceeds the capabilities of traditional defense budgets. A new approach is needed that intelligently combines public and private resources.
Recommendation: Fully utilize and expand existing EU financial instruments. This includes earmarking a larger portion of the Connecting Europe Facility (CEF) for dual-use projects and ensuring that the new SAFE instrument is agile and accessible.
Actionable step: Advocate for a higher EU co-financing rate for certified dual-use projects to encourage member state participation. At the same time, innovative public-private partnership (PPP) models with clear risk-sharing and compensation frameworks should be promoted to attract private capital.
Promoting technical and operational cohesion: Building the network
The identification of problems must lead to the implementation of solutions. Practical progress is the best way to overcome political and technical hurdles.
Recommendation: Launch highly visible pilot projects on one or two of the most critical strategic corridors (e.g., North Sea-Baltic Sea or Rhine-Danube). These projects are intended to test and refine operational models for civil-military cooperation in real time.
Actionable step: Use the EU's regulatory power to mandate key interoperability standards for all new transport infrastructure projects receiving EU funding. These include the use of ERTMS for rail, standardized communication protocols, and physical specifications for handling military loads.
Building human capital: The people behind logistics
A 21st-century logistics network requires a 21st-century workforce. Technology and infrastructure are only as good as the people who operate them.
Recommendation: Recognize that talent development is an essential part of the strategy.
Implementable step: Support and expand initiatives such as the "Pact for Skills in the Defense and Aerospace Industries" to create dedicated "dual-use academies." These would focus on training a new generation of logisticians, engineers, and planners skilled in cybersecurity, digital twin technology, AI-driven logistics, and smart energy systems.
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From recognized necessity to realized ability
This report returns to the original analogy. Its purpose was to demonstrate the need for a dual-use logistics network. It has outlined the strategic imperative, defined the concept, demonstrated its real-world successes, identified the obstacles, and presented a clear roadmap for action. The analysis has shown that the neglect of logistics is not merely a technical oversight, but a symptom of deeper political fragmentation and a dangerous blind spot in the European security architecture.
The final appeal is directed to Europe's political leaders. They must move beyond short-term "actionism" and commit to the long-term, fundamental work of building the invisible backbone of European defense. The case studies of Rostock, Split, and Rijeka prove that the concept works and delivers immense strategic and economic benefits. The roadmap demonstrates that the challenges, while enormous, are not insurmountable.
The need has been made visible. The time is ripe to mobilize political will, create demand for change, and build the capability that will underpin Europe's security in the 21st century.
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