European Union foreign and defence ministers have given their backing to further development of a new protocol designed to coordinate responses to hybrid threats, while insisting that the mechanism must work alongside NATO rather than replicate its structures. The discussion took place during a foreign affairs council meeting in Brussels on Monday, where the bloc's foreign policy chief, Kaja Kallas, briefed reporters afterwards.
“Many stress that it has to be absolutely complementary with NATO,” Kallas said. “We don't create anything additional, but this has to work hand in hand.” She acknowledged that the conversation was still at an early stage, noting that not all 27 member states had voiced their views during the session. “Today was a very initial discussion, which means that we take this forward,” she added.
The proposed “emergency security protocol” was first floated by European Commission President Ursula von der Leyen in her State of the European Union address in mid-September. The aim is to give member states a rapid coordination mechanism when a hybrid threat—such as sabotage, cyberattacks, or disinformation campaigns—is detected. The protocol is expected to fall under the broader Security Strategy that Kallas and von der Leyen are preparing, with publication anticipated by the end of the year.
Von der Leyen has described the initiative as “Europe’s own Article 4,” a reference to the NATO clause that triggers consultations when an ally feels its territorial integrity, political independence, or security is under threat. Article 4 is a precursor to Article 5, the collective defence principle that an attack on one member is an attack on all. However, Kallas was keen to distinguish the EU mechanism from NATO’s approach. “It's not any kind of action plan,” she said, explaining that the emergency protocol would focus on practical tools for responding to aggression that falls below the threshold of armed attack.
The push for a hybrid threat playbook comes as European nations grapple with a rise in suspected Russian sabotage and other destabilising activities. Recent incidents, including a fire at a Starlink station in Poland and warnings from NATO Secretary General Mark Rutte about Moscow's tactics, have underscored the urgency. The EU has been working on a joint response to such threats, as outlined in earlier discussions among ministers.
Ukraine's air defence needs remain unmet
In a separate session, Ukraine’s Defence Minister, Evgeniy Khmara, briefed EU ministers via video link on the situation at the front. Kallas said Khmara made it “very clear” that air defence support is Kyiv’s top priority. She had entered the meeting urging member states to consider donating Patriot interceptor missiles from their own stockpiles to help Ukraine counter Russian ballistic missile attacks.
Ukraine has repeatedly called for more US-made Patriot systems, but supplies are stretched. The war in Iran has further depleted American stocks, and experts estimate it could take around three years for the US to rebuild its arsenal of advanced interceptors. Ukrainian President Volodymyr Zelenskyy has said the country needs hundreds more interceptors to survive the coming winter, noting that Washington has provided only about 1% of what is required.
Despite the urgency, Kallas confirmed that no new pledges were made during the meeting. “On the interceptors, unfortunately, there were no new pledges made today,” she said. The lack of commitments highlights the broader challenge of sustaining military aid to Ukraine, a topic that has dominated recent EU defence talks, as seen in discussions on funding shortfalls.
The EU’s focus on hybrid threats and support for Ukraine comes at a time of heightened geopolitical tension, with NATO allies also stepping up their own preparations. The protocol, once finalised, is expected to provide a clear framework for member states to act collectively in the face of non-military aggression, without stepping on NATO’s toes. As Kallas put it, the goal is to ensure the EU and NATO work “hand in hand” to protect European security.
