By Marius Guderjan (Centre for British Studies, Humboldt-Universität zu Berlin) and Mario Kölling (Department of Political Science, Spanish National Distance Education University)
Although the COVID-19 pandemic seems something of the past and meanwhile overshadowed by other crises, we should still remember its profound impact on public health, people, employment and businesses. In 2020, the real GDP in the EU fell by more than 6%, which was higher than during the 2008 financial crisis. The management of the crisis was clearly dominated by national as well as by regional and local governments. Nevertheless, the EU also introduced massive economic and fiscal measures and departed from the austerity policy following the 2008 financial crisis. The EU amended its budget, created new loans, activated the general escape clause of the Stability and Growth Pact and expanded the lending capacity of the European Stability Mechanism. Most importantly, the Member States agreed the largest stimulus package in the history of the EU: Next Generation EU (NGEU), which was worth €750 billion financed by joint borrowing. The key instrument of NGEU was the Recovery and Resilience Facility (RRF), providing €672.5 billion in loans and grants to support reforms and investments undertaken by the Member States.
Given the scale and multilevel nature of the EU’s intervention, our recent JCMS article takes a close look at the EU’s socio-economic responses to the COVID-19 crisis. By analysing existing decision-making procedures and democratic practices, principles of good governance and effective performance, we draw conclusions about the political legitimacy of the RRF and we discuss how the legacy of this measure may shape future governance arrangements.
There is a strong rationale for governments to take fast and extraordinary actions during crises, circumventing and even breaking existing conventions, procedures and rules. However, crisis management may not only challenge the political legitimacy of these actions but may also result in permanent changes to a system of governance. Therefore, we considered who took and authorised decisions and whether this was in line with existing democratic practices, and whether the input legitimacy of the EU’s crisis response (as conceptionalised by Schmidt 2022) was compromised. Similar to previous crises (as discussed in the literature on new intergovernmentalism, e.g. Puetter 2016 and Bickerton et al. 2014), decisions were dominated by the European Council and the Commission and negotiated behind closed doors. The latter set the RRF’s policy objectives and governance structure to which the former agreed. During 2021 and 2022, Member States then had to submit national Recovery and Resilience Plans (RRP) with detailed targets, milestones, estimated costs and proposals for structural reforms. The RRPs were designed in close bilateral cooperation with the Commission, which gained the authority to decide together with the Council over their implementation.
As during previous crises (see e.g. White 2022 and Kreuder-Sonnen 2016), the newly introduced EU measures lacked transparency, accountability and judicial scrutiny. To capture these, our article also focuses on the RRF’s so-called throughput legitimacy: namely, on its compliance with rules, efficient governance, public engagement and access to information about decision-making processes, and the inclusion of (territorial) interest groups. The RRF is a performance-based instrument that is assessed and disbursed based on the fulfilment of specific milestones and targets outlined in the RRPs. Various criteria (e.g., population size, GDP per capita and unemployment levels) and formats (e.g., the Recovery and Resilience Scoreboard, performance audits by the European Court of Auditors, Recovery and Resilience Dialogues, evaluation reports) were introduced to enhance the accountability and transparency of allocation of RRF funding. Yet, our article traces various issues regarding the transparency of policymaking. Only two thirds of Member States committed to publishing detailed information about the implementation of the RRPs.
It is often suggested (e.g. by Lindgren and Persson 2010) that the EU’s legitimacy relies largely on its output legitimacy, meaning on its ability to deliver effective results to the satisfaction of its Member States and citizens. It is fair to say that the RRF has supported substantial reforms within the Member States, but rather than stimulating new innovations many RRPs have not dealt with structural challenges and only supported outstanding reforms that would have been carried out anyway. The scope of the RRPs has also varied considerably. While RRPs in Italy, Spain and Greece were ambitious targeting structural challenges of labour markets or tax systems, in northern Member States RRF funding is relatively small in comparison to GDP (less than 1%) and reforms played a minor role in their RRPs. Whereas the RRF financed measures to support employment, living standards and social protection, the funding was insufficient and too short-termed to drive a sustainable green and digital transformation. Inflation and supply shortages increased the costs of investment substantially, and the administrative workload undermined the distribution of funding and delayed the delivery of milestones and targets. We conclude in our article that due to the exclusion of subnational governments in the development of the RRPs in many Member States, the delivery of the RRPs was often inefficient and failed to meet local and regional priorities and needs.
Despite some shortcomings, we suggest that the legitimacy of European crisis governance rests on its ability to deal with complex, transnational issues to the satisfaction of the Member States rather than on its democratic credentials. Whereas this may not come as a big surprise, it is particularly significant to highlight that exceptional provisions introduced during crisis are subsequently adopted and normalised within future governance frameworks. While the Commission and Member States have empowered themselves, place-based principles and multilevel partnerships with subnational governments, which were strengthened during previous decades in areas such as Cohesion Policy, are currently under threat. In its proposal for the new Multiannual Financial Framework 2028-2034, the Commission has adopted the RRF’s approach and seeks to maintain performance-based policy programmes and centralised planning with targets, milestones and structural reforms. This fosters exclusive top-down policymaking at the cost of inclusive bottom-up approaches. Two years of complex negotiations lie ahead, during which adjustments to budget items, the EU’s institutional design and the redistribution of power between the European, national and subnational levels are at stake. We do not know for sure yet what the outcome will be and to what extent it will be the legacy of the crisis.
Marius Guderjan is a Fellow at the Centre for British Studies at Humboldt-Universität Berlin, and used to work at the Otto Suhr Institute of Political Science at Freie Universität Berlin. His research interests include European integration, multilevel governance, intergovernmental relations and territorial politics; including the book Local Government in the European Union.
Website: https://www.polsoz.fu-berlin.de/en/polwiss/forschung/systeme/polsystem/Team/Marius-Guderjan.html
Mario Kölling is Professor in the Department of Political Science at the Spanish National Distance Education University (UNED), Madrid, and Senior Researcher at the Fundación Manuel Giménez Abad. His research focuses on methodological issues related to territorial decentralisation and multilevel governance. He has published extensively on the European Union budget.
Website: https://www.uned.es/universidad/docentes/politicas-sociologia/mario-kolling.html
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A U.S. THAAD battery deployed in Seongju, South Korea. Credibly deterring Chinese coercion would require additional THAAD batteries integrated into a regional missile defense network. (Source: BBC)
On February 5, 2026, the New Strategic Arms Reduction (New START) Treaty will expire, ending the last legally binding limits on U.S. and Russian strategic nuclear forces. With it goes a framework that capped deployed warheads at 1,550 and delivery vehicles at 700—and, more importantly, the verification regime that anchored strategic stability for over a decade. Russia’s 2022 suspension, followed by repeated violations ranging from INF-style prohibited systems to novel delivery vehicles like the nuclear-powered Burevestnik missile, made renewal politically and strategically untenable. China, never a party to New START, has exploited this vacuum, accelerating a nuclear buildup from roughly 500 warheads in 2025 toward an estimated 1,500 by 2035.
The United States now confronts, for the first time, two near-peer nuclear competitors simultaneously; thus Washington’s response—preparing for nuclear “uploads” and reinforcing the credibility of the strategic triad—is necessary yet insufficient. Without ceilings on strategic arsenals, stability will increasingly hinge on whether escalation can be managed below the nuclear threshold, thereby making conventional deterrence in the Indo-Pacific—especially land-based missile defense and forward-deployed resilience—decisive. Yet this task cannot be carried by the United States alone. Allied burden‑sharing—particularly through alliance modernization that builds interoperable Command, Control, Communications, Computers, Intelligence, Surveillance, and Reconnaissance (C4ISR) networks atop ground‑based air and missile defense systems—is no longer optional; it is a prerequisite for credible integrated deterrence in the post–New START era, and a pathway toward a Pacific architecture deliberately designed to blunt Chinese coercion—modular, mobile, and resilient enough to deny Beijing the ability to localize risk or exploit allied hesitation, while pairing denial with calibrated punishment across cyber, space, and information domains to impose costs for grey‑zone aggression without crossing nuclear thresholds.
Strategic Unraveling: A Triangular Arms Race Begins
With New START gone, an unconstrained triangular arms race is already underway. Russia has modernized roughly 90 percent of its nuclear triad and can sustain a deployed arsenal near former treaty limits while diversifying delivery systems. China, meanwhile, represents the more destabilizing variable. It is constructing hundreds of new missile silos, deploying DF-41 intercontinental ballistic missiles, expanding dual-capable DF-26 systems, and fielding hypersonic glide vehicles designed to compress U.S. decision time and overwhelm regional defenses.
According to an Atlantic Council expert, U.S. strategy must adapt to this new reality: in the short term, Washington should upload additional warheads onto Ohio-class SSBNs, reintroduce multiple independently targetable reentry vehicles (MIRVs) on portions of the Minuteman III force, and deploy the Long-Range Stand-Off (LRSO) weapon aboard B-52 bombers to restore counterforce leverage against two near-peer competitors simultaneously; in the medium term, rely on the Columbia-class SSBN, B-21 Raider bomber, and nuclear-armed sea-launched cruise missile (SLCM-N) to ensure the strategic triad’s survivability and credibility through the 2040s; and diplomatically, keep trilateral arms-control talks viable while investing in NC3 resilience and missile-defense architectures, including exploratory concepts like a continental “Golden Dome.”
The costs of adapting to the post–New START environment, however, are staggering. Congressional Budget Office estimates place U.S. nuclear modernization at roughly $946 billion by the mid‑2030s. Yet nuclear spending alone cannot manage escalation. INDOPACOM still faces an estimated $27 billion shortfall in conventional capabilities—especially missile defense, strike, and sustainment—leaving U.S. forces exposed in the opening phases of a crisis. Without resilient conventional forces, nuclear investments risk becoming instruments of last resort rather than tools of stability.
U.S. Typhon MRC (ground-launched SM-6/Tomahawk system for 1,500km precision strikes) launcher and C2 vehicle at Marine Corps Air Station (MCAS) Iwakuni, Sept. 15, 2025 (Source: Asahi Shimbun).
The Indo-Pacific Front: Why Alliance Modernization—Especially Conventional Forces—Anchors Stability
Indo-Pacific allies routinely affirm their commitment to a “free and open Indo-Pacific,” yet capability gaps remain stark. Japan’s planned increase to 2 percent of GDP by 2027 masks persistent delays in force integration and C4ISR interoperability—revealing structural gaps that hardware spending alone cannot bridge. South Korea spends roughly 2.7 percent of GDP on defense, but much of that investment remains concentrated on peninsula-specific contingencies rather than scalable regional stabilization.
In the post–New START environment, burden-sharing defined merely as cost-sharing is no longer sufficient. What deterrence now requires is shared risk and shared resolve: allied decisions that visibly place national territory, forces, and political capital inside the same escalation ladder faced by the United States. Ground-based deployments, forward rotations, and interoperable data fabrics that turn disparate sensors into unified battle management matter precisely—converting alliances from siloed hardware buyers into networked deterrence partners.
This logic aligns with a growing body of strategic scholarship, most notably the work of James Fearon and Andrew Lim. They argue that the erosion of U.S. conventional superiority—driven by China’s A2/AD architectures and Russia’s precision-strike capabilities—has produced a destabilizing overreliance on nuclear deterrence. Their core claim, however, is not that nuclear forces have become obsolete, but rather that strategic stability increasingly depends on restoring a software-orchestrated conventional triad in which penetrating strike platforms, precision fires, and mobile retaliation function as intelligent nodes within JADC2-enabled data ecosystems. Within this framework, missile defense should not be understood as a standalone pillar of deterrence but as a survivability enabler—a means of preserving offensive forces long enough to execute credible second-strike conventional operations.
Building on this strategic imperative to reinforce the conventional triad, alliance modernization in Northeast Asia could acquire tangible form. Enhanced trilateral coordination among the United States, South Korea, and Japan would allow THAAD and SPY-7 sensors to feed advanced data-fusion layers into Typhon and HIMARS effectors, thereby transforming missile defense from a purely protective measure into the foundation of software-defined second-strike precision.
In December 2025, U.S. M270A2 MLRS units stationed at Camp Casey demonstrated rapid counterfire against DPRK artillery, while HIMARS rotations from Okinawa maintained continuous availability. Yet such precision fires are credible only insofar as their survivability is assured by layered defenses, since DPRK missiles or Chinese DF-26 strikes could saturate critical hubs—such as Pyeongtaek—thereby degrading the very conventional triad Fearon and Lim prescribe. To function as a true survivability enabler against high-altitude threats, therefore, South Korea’s single THAAD battery—deployed in 2017—must be augmented through PAC-3 integration, ensuring that HIMARS forces remain preserved for follow-on strikes.
Such augmentation, however, cannot occur in isolation. Effective trilateral cooperation requires orchestration through federated C4ISR networks, complemented by Japanese contributions. In this regard, Typhon basing on Japanese territory completes the Fearon–Lim precision‑strike leg. Despite the withdrawal from Iwakuni and persistent political opposition in Okinawa, the system remains central to the trilateral alliance’s mid‑range strike capability, particularly when reinforced by Tokyo’s mobile SPY‑7 radars paired with SM‑3 Block IIA interceptors—introduced after Japan’s 2020 pivot from the canceled Aegis Ashore program—which add agile command‑and‑control enablers to the overall architecture.
The resulting theater sequence is coherent and continuous: SPY-7 tracks Chinese launches, Korean THAAD defends critical bases, HIMARS suppresses transporter-erector-launchers, Type-12 missiles secure the littorals, and Typhon targets Shanghai–Beijing command-and-control nodes—all unified through software-defined battle management.