The Secretary General’s Annual Report 2023
On 14 March 2024, NATO Secretary General Jens Stoltenberg released his Annual Report for 2023.
It details NATO’s work and achievements throughout the year, including the Alliance’s welcoming of Finland as its 31st Ally, the Vilnius Summit, where the Alliance strengthened its collective defence and brought Ukraine closer to NATO, and the deepening cooperation with NATO’s partners in the Indo-Pacific.
The Report contains the results of NATO’s annual public perception polls.
Below you will find short descriptions of – as well as direct links to – the elements of the Annual Report.
- Foreword
- NATO at a Glance
- For Those Who Serve
- NATO in 2023: Adapting at a Critical Time
- Deterrence and Defence: Protecting our Citizens
- Investing in Defence: Resourced for the Future
- NATO's Comprehensive Approach to Resilience
- Engaging with NATO Citizens, Building Awareness
- Adapting the Alliance to a World of Strategic Competition
- Crisis Prevention and Management
- Partnerships: Shared Security through Cooperation and Dialogue
- Human Security and Women, Peace and Security
- Organisation
- Annexes
You can also download the full Annual Report (PDF)
Thirty-one national flags fly at NATO Headquarters after Finland’s accession to the Alliance. Brussels, Belgium, April 2023.
Foreword
Russia’s war of aggression against Ukraine rages on, there is a new war in the Middle East, and Allies face greater competition from authoritarian states, including China. In addition, we still face a range of other threats to our security, including terrorism, cyber attacks and climate change. The world has become more dangerous, but NATO is stronger.
In 2023, NATO grew bigger and more capable. Finland became a NATO Ally, and we have just welcomed Sweden as well. We continued to strengthen our defences. At our Summit in Vilnius, we agreed robust new plans to defend every inch of Alliance territory. These plans are backed by hundreds of thousands of troops and highly capable air and naval forces at a high state of readiness – and with eight battlegroups on our eastern flank, stretching from the Baltic to the Mediterranean Sea, scalable to brigade size.
In 2023, defence spending increased by an unprecedented 11% across Europe and Canada. Since we agreed the Defence Investment Pledge in 2014, European Allies and Canada will have spent more than USD 600 billion extra on defence.
In 2024, we expect two-thirds of Allies to meet or exceed the target of investing 2% of Gross Domestic Product in defence. At the Vilnius Summit, we agreed the Defence Production Action Plan, to ramp up production and replenish our stocks of weapons and ammunition. Billions of dollars of contracts have already been signed with defence industry. This will mean more security for Allies, more supplies for Ukraine, and more highly skilled jobs across Europe and North America.
In addition to strengthening our own collective defence, NATO continues to support Ukraine. Ukraine must prevail as an independent, sovereign nation. If Putin wins, this would send a dangerous message to authoritarian leaders around the world that they can achieve their objectives through war and violence. Supporting Ukraine is not charity, it is in our own security interest.
At the Vilnius Summit, we brought Ukraine closer to NATO than ever before. We established the NATO-Ukraine Council where we meet to discuss and take decisions on our common security interests, as equals. We are helping to transition Ukraine from Soviet-era to NATO equipment and standards.
We have also removed the requirement for a Membership Action Plan, significantly shortening Ukraine’s path to membership. All Allies agree that Ukraine will become a member of NATO.
China is watching our actions closely. China does not share our values, it challenges our interests, and Beijing is increasingly aligned with Moscow. We will continue to trade and engage with China, but we must manage the risks and prepare for enduring competition.
NATO is a regional alliance that faces global challenges, so our partnerships around the world are essential for our security. We continue to work closely with the European Union on a wide range of security issues. We are also deepening our cooperation with our partners in the Indo-Pacific – Australia, Japan, New Zealand and the Republic of Korea – and I have appointed a group of experts to review NATO’s approach to our southern neighbourhood.
2024 marks the 75th anniversary of the NATO Alliance. In all those years, the bond between Europe and North America has kept our nations secure and our people safe. At the Washington Summit in July, we will send a powerful message of unity, solidarity and resolve – to prevent war and preserve peace.
Jens Stoltenberg
NATO Secretary General
Meeting of the NATO-Ukraine Commission involving NATO Deputy Secretary General Mircea Geoana and Deputy Prime Minister for European and Euro-Atlantic Integration of Ukraine Olha Stefanishyna. Brussels, Belgium, June 2023.
NATO at a Glance
Why was NATO founded?
The North Atlantic Treaty Organization was founded in 1949 in the aftermath of the Second World War. Its purpose is to safeguard the freedom and security of all its members by military and non-military means. The principle of collective defence is central to NATO’s founding document – the North Atlantic Treaty. This principle, enshrined in Article 5 of the Treaty, binds NATO Allies together, declaring an armed attack against any one of them ‘an attack against them all’. NATO strives to secure a lasting peace in Europe, based on common values of democracy, individual liberty, human rights and the rule of law.
NATO Member States
In 2023, NATO’s Allies represent one billion people and roughly half the world’s economic and military might.
Together, NATO Allies are stronger and safer together than they would be alone.
Twelve founding members signed the North Atlantic Treaty in 1949: Belgium, Canada, Denmark, France, Iceland, Italy, Luxembourg, the Netherlands, Norway, Portugal, the United Kingdom and the United States.
The Treaty also allows for other European countries to join the Alliance, if all existing Allies agree. Any prospective member is required to share NATO’s core values and have the capacity and willingness to contribute to security in the Euro-Atlantic area.
Since 1949, a further 20 countries have joined NATO: Greece and Türkiye (1952), Germany (1955), Spain (1982), Czechia, Hungary and Poland (1999), Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia and Slovenia (2004), Albania and Croatia (2009), Montenegro (2017), North Macedonia (2020), Finland (2023) and Sweden (2024).
In 2022, Finland and Sweden submitted official letters of application to become NATO Allies. In July of that year, after completing accession talks, NATO Allies signed the Accession Protocols for both countries, which then became Invitees with the right to attend NATO meetings. After Allies had ratified Finland’s Accession Protocol according to their national procedures, Finland became NATO’s 31st member country in April 2023. At the time of printing, the accession process for Sweden was also complete.
Flight Surgeon Samantha M. of the German Air Force during exercise Rapid Viking 2023. Iceland, August 2023 (left) and a Finnish soldier during exercise Northern Forest. Northern Finland, May 2023 (right).
For Those Who Serve
NATO’s ambitions, clearly expressed in the North Atlantic Treaty, are simple: ‘to safeguard the freedom, common heritage and civilisation of [its] peoples, founded on the principles of democracy, individual liberty and the rule of law’.
Achieving that mission since the signing of the Treaty in 1949 has required immense hard work and sacrifice.
In 2023, the security and freedom of NATO’s one billion citizens continued to rely on the endeavours of the Alliance’s soldiers, sailors and aircrew. Their willingness to put themselves in harm’s way on our behalf, day after day, is an extraordinary gift. Whether it is patrolling the North Atlantic Ocean, NATO’s land borders or the skies over the Alliance’s eastern flank, their skill and professionalism make peace and security possible.
There can be no security without strong defences. And no strong defences without capable armed forces.
As we prepare for the Alliance’s 75th anniversary, and at a time of great change, the men and women of our armed forces are what allow us to look to the future with confidence. Without them, there would be no NATO.
We thank them and honour them.
Official family portrait of NATO’s Heads of State and Government at the Vilnius Summit. Vilnius, Lithuania, July 2023.
NATO in 2023: Adapting at a Critical Time
2023 was a challenging but successful year for the Alliance. NATO welcomed its 31st Ally, Finland, and took important decisions to strengthen the Alliance’s collective defence and adapt to the new security reality.
In 2023, Moscow continued its brutal war of aggression against Ukraine, bringing violence and death to the heart of Europe while, at the same time, seeking to divide NATO. In doing so, it underestimated both the determination of the people of Ukraine and Allied unity. Ukraine has steadfastly defended its population, and liberated more than half of the territory occupied by Russia in the early stages of the war.
Throughout 2023, Allies have been unwavering in their solidarity with Ukraine. Together with the majority of members of the United Nations, they remain fully committed to Ukraine’s sovereignty, independence and territorial integrity within its internationally recognised borders. During his visits to Kyiv in April and September, the Secretary General agreed on the importance of a just and sustainable peace, and reaffirmed that NATO stands with Ukraine, now and for the long term. NATO has continued to support Ukraine’s right to self-defence and brought Ukraine closer to NATO, with strengthened political relations and enhanced practical support.
Shattered Peace: Responding to Russia’s Aggression
NATO tried to build a partnership with Russia for decades. Over the past decade, however, Russia has continuously violated the norms and principles that have contributed to a stable and predictable European security order. Russia's brutal and illegal war of aggression against Ukraine, launched in February 2022, has shattered the hard-earned peace in Europe.
As NATO’s 2022 Strategic Concept makes clear, the Russian Federation is the most significant and direct threat to Allies’ security, and to peace and stability in the Euro-Atlantic area. Russia seeks to establish spheres of influence and direct control through coercion, subversion, aggression and annexation. It uses conventional, cyber and hybrid means against NATO and its partners. Its coercive military posture, rhetoric and proven willingness to use force to pursue its political goals undermine the rules-based international order. The Russian Federation is modernising its nuclear forces and expanding its novel and disruptive dual-capable delivery systems, while employing coercive nuclear signalling. It aims to destabilise countries to our East and South. In the High North, its capability to disrupt Allied reinforcements and freedom of navigation across the North Atlantic is a strategic challenge to the Alliance. Moscow’s military build-up, including in the Baltic, Black and Mediterranean Sea regions, along with its military integration with Belarus, challenge the Alliance’s security and interests.
In light of its hostile policies and actions, NATO cannot consider Russia to be a partner. Any change in the relationship depends on Russia halting its aggressive behaviour and fully complying with international law. NATO remains willing to keep open channels of communication with Moscow to manage and mitigate risks, prevent escalation and increase transparency. NATO does not seek confrontation and poses no threat to Russia.
At the Vilnius Summit in July, Allies agreed to continue to consult on and assess the implications of Russia’s policies and actions for Allied security, and respond to Russian threats and hostile actions in a united and responsible way.
NATO’s Practical Support for Ukraine at a Glance
As Ukraine exercises its right to self-defence, enshrined in Article 51 of the United Nations Charter, NATO Allies have provided unprecedented support.
Thanks to considerable financial support from Allies and partner countries, NATO has taken on a crucial role providing non-lethal assistance to Ukraine. This support takes the form of short-term material assistance and longer-term projects designed to rebuild the Ukrainian defence and security sector, helping Ukraine in its transition towards interoperability with NATO.
NATO has delivered assistance since the beginning of Russia’s war of aggression. This support is typically based on urgent requirements identified by Ukraine, which are then communicated to NATO. In 2023, the Comprehensive Assistance Package and its Trust Fund coordinated the delivery of EUR 117 million in non-lethal material aid to Ukraine. An additional EUR 117 million worth of material aid is under contract and will be delivered to Ukraine in the near future.
Aid delivered in 2023 included fuel, medical kits, counter-drone systems, chemical, biological, radiological and nuclear protective equipment, Starlink systems, shelters, power generators and bridging systems. By repurposing the Afghan National Army Trust Fund, Allies and partners transferred around USD 24 million to the Comprehensive Assistance Package Trust Fund and provided Ukraine with EUR 10 million in-kind contributions of equipment, including clothing and medical supplies.
The Comprehensive Assistance Package also continued to coordinate NATO’s medium- and long-term assistance to Ukraine. The medium- and long-term efforts – defined as requiring between two and five years for completion – support Ukraine’s efforts to transform its defence and security sector, moving away from Soviet-era systems towards NATO standards. Projects are developed in close coordination with Ukraine, and implemented thanks to substantial financial and political support from Allies and partners.
Croatian Army Panzerhaubitze 2000 mobile artillery units open fire during exercise Griffin Shock 2023. Bemowo Piskie, Poland, May 2023.
Deterrence and Defence: Protecting our Citizens
NATO is modernising for a new era of collective defence – and continuing to build on steps taken following Russia’s illegal and illegitimate annexation of Crimea in 2014. Since 2020, adaptation has been guided by the implementation of two major military concepts: the Concept for Deterrence and Defence of the Euro-Atlantic Area, focusing on the present; and the NATO Warfighting Capstone Concept, offering a guide over the long term. Following the onset of Russia’s war of aggression against Ukraine in 2022, the Alliance has further accelerated the adaptation of its deterrence and defence posture.
At the 2022 Madrid Summit, and with the adoption of the 2022 Strategic Concept, NATO set a new baseline for its deterrence and defence posture in line with its 360-degree approach, across the land, air, maritime, cyberspace and space domains, and against all threats and challenges.
The Royal Danish Navy frigate HDMS Triton in the waters around Greenland, November 2023.
Investing in Defence: Resourced for the Future
The reality of a war being fought in Europe has given new urgency to the Alliance’s defence investment efforts. Allies cannot afford to be complacent. At the Vilnius Summit, Heads of State and Government recognised the importance of continuing to invest in defence and meeting their commitments, including by fulfilling longstanding major equipment requirements and the NATO Capability Targets. They also acknowledged the importance of resourcing NATO’s new defence plans and force model, and contributing to NATO operations, missions and activities.
In 2023, Allies continued to increase their defence spending, further develop their forces and capabilities, and contribute to Allied operations, missions and activities. European Allies and Canada increased defence spending for the ninth consecutive year. Defence spending increased by 11% in real terms compared to 2022.
In 2023, 11 Allies met the guideline of spending 2% of their GDP on defence and in early 2024 this number increased to 18 – this, in contrast, to only three Allies meeting the guideline in 2014.
The United States accounted for 53% of the Allies’ combined GDP and 67% of combined defence expenditure. Total NATO military spending in 2023 is estimated to have been around USD 1.1 trillion.
Allies also made progress on their commitment to allocating 20% or more of their defence expenditure to major capabilities. Twenty-eight Allies met the NATO-agreed 20% guideline compared to seven in 2014.
Allies’ accelerated investment strengthens the deterrence and defence of the Alliance. It allows the delivery of more of the heavier, high-end capabilities NATO needs, and improves the readiness, deployability, sustainability and interoperability of Allied forces. Continuing to invest in the right capabilities will be critical in the years ahead.
A United Kingdom Mobile Air Operations Team preparing an ‘underslung’ load for a Merlin helicopter during exercise Joint Viking. Norway, March 2023.
NATO's Comprehensive Approach to Resilience
Deterrence and Resilience: Two Sides of the Same Coin
Resilience is a key element of the Alliance’s deterrence and defence. Recognising that, in 2023, Allied Leaders agreed to adopt a set of Resilience Objectives. The first of their kind, these objectives will help to strengthen NATO’s and Allied preparedness against strategic shocks and disruptions in a coordinated way, while accounting for the needs of individual Allies. Among other things, the objectives aim to boost both Allies’ and NATO’s ability to ensure continuity of government and essential services, and provide civil support to military operations in peace, crisis and conflict. Allies intend to use these objectives to guide the development of national resilience goals and implementation plans.
Doorstep statement by NATO Secretary General Jens Stoltenberg at the start of the meetings of NATO Defence Ministers at NATO Headquarters. Brussels, Belgium, June 2023.
Engaging with NATO Citizens, Building Awareness
A strong and successful Alliance depends on the support and understanding of its citizens. NATO pursues this through tailored communications and engagement with a wide range of international media and key opinion formers, through digital outreach on multiple platforms, and through a clear and consistent brand identity.
As well as explaining to citizens what NATO is and does, NATO also works to counter Foreign Information Manipulation and Interference, including disinformation. NATO’s approach relies on fact-based and credible public communications.
Royal Netherlands Air Force F-35 Lightning II fighters fly in formation with French Air and Space Force Rafales during a training sortie as part of NATO’s Baltic Air Policing mission. Skies over Poland, March 2023.
Adapting the Alliance to a World of Strategic Competition
Investing in Cutting-Edge and Interoperable Capabilities
Interoperability is the ability to operate collectively to achieve common goals, including by using standardised equipment. Interoperability is what makes coordination and cooperation by multinational forces possible – and, as such, is crucial to NATO’s ability to do its job.
The Alliance carries out a vast range of multinational missions and tasks, for which it requires cutting-edge and interoperable capabilities. At the Vilnius Summit, Allies renewed their commitment to improving the interoperability of their forces, including by boosting investment in the right capabilities.
To support this endeavour, NATO has developed a flexible, scalable and adaptable multinational instrument called High Visibility Projects. These projects seek to address one or more key NATO defence planning priorities and provide Allies with dedicated staff support across the full project lifecycle. This multinational approach has enabled Allies — and, in some instances, partners — to close key capability gaps, save money and ensure interoperability by design.
In 2023, several projects achieved key milestones and significantly contributed to NATO’s strengthened deterrence and defence posture.
Parachute drills during exercise Hemex-Orion. Frontignan, France, February 2023. Photo credit: Thomas Prudeleux, French Armed Forces.
Crisis Prevention and Management
Crisis prevention and management is one of NATO’s three core tasks. The 2022 Strategic Concept stresses that Allies have a shared interest in contributing to stability and managing conflicts together, through NATO. The Alliance is committed to preventing and responding to crises when these have potential to affect Allied security.
Prevention of crises and conflicts is a sustainable way to contribute to stability and Allied security. NATO is committed to crisis prevention, including through training and capacity-building programmes. These programmes support partners in their efforts to become more capable, more secure and better prepared to respond to crises at home and abroad. The Alliance has decades worth of accomplishments in building defence institutions and capacity with partners in NATO’s neighbourhood and beyond.
NATO also has unique capabilities and expertise in crisis management, including coordinating, conducting, sustaining and supporting multinational crisis response operations.
A Swedish soldier and a United States marine shake hands at a distinguished visitors day of exercise Aurora 23. Southern Sweden, May 2023.
Partnerships: Shared Security through Cooperation and Dialogue
NATO’s partnerships are essential to the way NATO works. They play an important role in supporting NATO’s three core tasks and its 360-degree approach to security. In a more complex and unpredictable strategic landscape, it is even more important that NATO and its partners work together to address common security challenges, protect the global commons and enhance resilience. NATO’s partnerships are based on mutual respect and interest.
NATO has active partnerships with 35 countries worldwide and several international organisations. Partners are engaged in a number of core activities, from sharing expertise to building capacity, developing interoperability, and contributing to crisis prevention and management. In 2023, 18 partners took part in 16 NATO-led exercises while 11 contributed over 30 military personnel to the NATO Command Structure and International Military Staff. Partners also supported NATO missions in Iraq and Kosovo, contributed financially to NATO-led Trust Funds, and offered in-kind support through NATO’s Partnership Training and Education Centres.
NATO maintains liaison offices in Belgrade, Chisinau, Kuwait, Kyiv, New York, Tbilisi and Vienna, as well as at the NATO Headquarters in Sarajevo.
A Danish soldier in the woods during exercise Crystal Arrow 2023. Latvia, March 2023.
Human Security and Women, Peace and Security
NATO’s 2022 Strategic Concept highlighted that the Women, Peace and Security and Human Security agendas are key cross-cutting areas of work that must be integrated in all three core tasks of the Alliance – and Allies reaffirmed this principle at the 2023 Vilnius Summit. To achieve this goal, they stressed the importance of supporting the operationalisation of both agendas through robust policies and guidelines, and through continued cooperation with partners, international organisations and civil society.
Partnerships continue to be indispensable to implement both agendas at NATO and beyond. In 2023, tailored goals on Women, Peace and Security and Human Security were included in NATO’s Individually Tailored Partnership Programmes with Ireland, Japan, the Republic of Korea and Switzerland. In addition, Colombia associated itself with NATO’s Policy on Women, Peace and Security, illustrating the country’s strong commitment to this agenda as part of its partnership with NATO. Recent missions by the Secretary General’s Special Representative for Women, Peace and Security have included visits to Australia, Georgia, the Republic of Korea and Ukraine, which provided scope to improve synergies between NATO and partners.
NATO Staff and their families and friends participate in the Run for All race, an event advocating an inclusive work environment for racial minorities, LGBTQ+ staff and working parents. Brussels, Belgium, October 2023.
Organisation
NATO Headquarters
NATO Headquarters in Brussels houses the Alliance’s International Staff and International Military Staff, along with 31 Allied delegations and military representations, 18 partner missions and staff from several NATO agencies. It is the central forum for the discussions and consultations that shape NATO policy and practice.
Kosovo Force (KFOR)
The NATO-led KFOR mission is to contribute to maintaining a safe and secure environment and freedom of movement for all communities in Kosovo, as mandated by United Nations Security Council Resolution 1244 of 1999. In carrying out its activities, NATO cooperates with and assists the United Nations, the European Union and other international actors, as appropriate, to support the development of a stable and peaceful Kosovo. KFOR also supports the development of professional, democratic and multi-ethnic security structures in Kosovo.
Read this annex in the Annual Report (PDF)
Defence Expenditure of NATO Countries (2014–2023)
NATO collects defence expenditure data from Allies and publishes it on a regular basis. Each Ally’s Ministry of Defence reports current and estimated future defence expenditure according to an agreed definition. The amounts represent payments by a national government that have been or will be made during the course of the fiscal year to meet the needs of its armed forces, those of Allies or of the Alliance. In the figures and tables that follow, NATO also uses economic and demographic information available from the Directorate-General for Economic and Financial Affairs of the European Commission and the Organisation for Economic Co-operation and Development.