Agreement on Security Cooperation and Long-term Support between Ukraine and Estonia

Preamble

Ukraine and Estonia (hereinafter jointly referred to as “the Participants” or “Ukraine and Estonia”) condemn in the strongest terms Russia’s full-scale war of aggression against Ukraine. Russia has flagrantly violated international law, including the Charter of the United Nations and undermined the foundation of the international rules-based order as well as the security and stability of Europe. The sacrifice and bravery of the Ukrainian people for their freedom, their European and Euro-Atlantic choice is unprecedented.

The Participants,

reaffirming the principles of international law and the unwavering commitment to Ukraine’s sovereignty, territorial integrity, the inviolability of its internationally recognised borders as of 1991, including the territorial sea, and the right of Ukraine to choose its own path and security arrangements;

reiterating their demand that the Russian Federation immediately, completely and unconditionally withdraw all of its military forces, proxies and military equipment as well as civilian and law enforcement authorities from the territory of Ukraine;

reaffirming their support to Ukraine’s right and ability to defend itself and to rebuild and reconstruct Ukraine;

recognising that a free, strong, independent and prosperous Ukraine, as part of the Euro-Atlantic family and as a member of the EU and NATO, is essential for the future of European security;

continuing to seek ways to raise the cost of aggression for Russia, including through new sanctions and working towards finding ways to use frozen and immobilised Russian assets to support Ukraine’s reconstruction and for the purposes of reparation;

underlining their firm commitment to bringing to justice those responsible for the crime of aggression, war crimes, crimes against humanity and other international crimes committed in connection with Russia’s war of aggression against Ukraine;

recognising that recovery and reforms are essential parts of Ukraine’s path to the EU and NATO and reinforce Ukraine’s resilience and capability to defend itself;

Have jointly determined to strengthen their security cooperation by pursuing the long-term bilateral security commitments and measures set out in this Agreement.

Part I. Scope

1. This Agreement is intended to further the Joint Declaration of Support for Ukraine adopted by the Group of Seven (G7) and the EU in Vilnius on 12 July 2023, the Joint Statement by Estonia, Latvia and Lithuania on Support for Ukraine adopted on 17 August 2023, and the Joint Declaration between Ukraine and Estonia signed on 24 April 2023.
2. Hereby, Ukraine and Estonia will deepen their cooperation to help Ukraine win the war of aggression that Russia is waging as soon as possible, to prevent the significant escalation of the ongoing aggression and future attacks, and to defend itself against future attacks, to support Ukraine’s economic stability, reconstruction, resilience, and reform agenda as well as to advance, facilitate, and accelerate Ukraine’s European Union accession and NATO membership process.
3. The main components of the security commitments to Ukraine by Estonia in this Agreement are:

1. Comprehensive support to Ukraine for it to defend itself and restore its territorial integrity within its internationally recognised borders and to secure its free and democratic future;
2. Support for reconstruction, humanitarian aid and reforms;
3. Political support and bringing Russia to justice;
4. Support for Ukraine’s integration into the European Union and NATO that will make a strong contribution to peace and stability in Europe and beyond.

Part II. Defence and Security

1. Estonia was one of the first countries to provide Ukraine with military support even before the beginning of Russia’s full-scale war of aggression on 24 February 2022. Ever since, Estonia’s total military aid to Ukraine has been EUR 500 million, which amounts to more than 1.3% of GDP. In 2024, Estonia’s military support to Ukraine is over EUR 100 million.
2. Estonia’s focus has been on Ukraine’s most urgent military needs: contribution has included 122 mm and 155 mm towed howitzers with significant amount of ammunition, Milan anti-tank missile systems with ammunition, Javelin anti-tank missiles, anti-tank mines, Carl-Gustaf recoilless rifles with ammunition, Instalaza C90 disposable grenade launchers, and various other lethal equipment with ammunition. Estonia has donated various road and water vehicles, communications equipment, medical equipment etc. Estonia, with the help of Allies, has donated four ROLE 2 field hospitals with necessary equipment. Estonia has contributed to providing Ukraine with non-lethal aid through NATO’s Comprehensive Assistance Package (CAP) for Ukraine.
3. Since 2022, Estonia has provided, for Ukraine to defend itself, military training in Estonia to over 1500 Ukrainian servicemen in the fields of basic training, artillery, sniper, military medicine, cyber and strategic communications and has increased the education of Ukrainian mid- and higher-level officers at the Baltic Defence College.
4. The Participants recognise that Estonia’s focus in terms of military support must continue to be on Ukraine’s most critical needs on the battlefield in order to help them push the aggressor out from Ukraine’s territory.
5. The Participants underline the need to ensure that the same level of support will be sustained. Therefore, the Estonian Government has set the target to allocate for military support to Ukraine at least 0.25% of GDP annually from 2024 to 2027.
6. Estonia will continue its multifaceted support to Ukraine for the ten-year duration of this Agreement.
7. The Participants will seek to ensure that in the event of external military aggression against Estonia, Ukraine's military capabilities are sufficient for the provision by Ukraine of effective military support to Estonia. The terms, format and scope of such support will be determined by the Participants.
8. Ukraine will ensure that the Estonian military support is used exclusively for Ukraine’s self-defence and is to be used by the security and defence forces of Ukraine in accordance with international law, including international humanitarian law.
9. Taking into account Ukraine’s short- and long-term needs, the Participants will continue cooperation in the following fields:

Regular Strategic Dialogue and Lessons Learned

1. The Participants will establish a regular Strategic Dialogue in order to discuss security and defence related issues of mutual interest, increase bilateral cooperation, exchange experience and build a deeper understanding of the enemy and security situation more broadly. These exchanges will boost the security of the Euro-Atlantic community and further isolate the aggressor who has not changed its strategic aim to upend the current security structure in Europe and beyond.
2. The Participants recognise that Ukraine has unique and highly relevant experience and expertise of the modern conventional battlefield that is necessary for Estonia and other Allies in developing their security and defence forces. This applies to both capability development and defence planning, whilst information sharing is critical in fields ranging from air defence and electromagnetic warfare systems to situational awareness and battle management systems.

Military Equipment

1. Estonia will continue to provide Ukraine with lethal and non-lethal equipment and ammunition from Estonia’s national stocks as well as new procurements in various areas to help improve Ukraine’s military capabilities to restore its territorial integrity.
2. The focus will stay on Ukraine’s most urgent needs such as artillery and strike systems with ammunition, unmanned systems, electronic warfare, information and communication technology (ICT), and other capabilities that shape the battlefield.

Training

1. The Participants agree that the basis of sustainable and successful Ukrainian security and defence forces is the quantity and quality of trained Ukrainian servicemembers.
2. Estonia will continue to contribute with instructors to the UK-led Operation Interflex as well as to the EU Military Assistance Mission in support of Ukraine (EUMAM). Additionally, Estonia will continue to provide specialist training, including train-the-trainer programmes, in the fields of military medicine, cyber, and sniper training in Estonia.
3. The long-term training support to Ukraine will be based on Ukraine’s needs and experience on the battlefield, and will be discussed and agreed through future Strategic Dialogue.

The Participants will explore the opportunities to provide military training and education to the Ukrainian defence forces to familiarise them with NATO principles and standards.

IT-Coalition and other Ukraine Defence Contact Group Capability Coalitions

1. The Participants agree that Information and Communication Technology (ICT) serves as a significant enabler and force-multiplier for warfighting capabilities. For that reason, Estonia together with Luxembourg continues to co-lead the IT Coalition in the framework of the Ukraine Defence Contact Group (UDCG) Capability Coalitions. The aim of the IT Coalition is to help build reliable and secure ICT infrastructure for the Ukrainian Ministry of Defence and the security and defence forces.
2. Estonia will participate in the UDCG Demining and Drone Coalitions to provide Ukraine support, expertise and training in those fields. In particular, Estonia’s contribution to the Drone Coalition will be linked with the experience of Estonian defence industry companies in producing drones, their components, and other necessary equipment. Estonia will contribute to the Demining Coalition mainly with training for combat demining.
3. Estonia supports the Ukraine Future Forces Initiative and joins other possible Capability Coalitions in the framework of the UDCG, to which it is capable of contributing to meet Ukraine’s current and future military needs.

Defence Industry Cooperation

1. The Participants recognise that defence industrial output decisively impacts the outcome of the war. Estonian defence companies have supported Ukraine with various equipment, ranging from drones and unmanned ground vehicles to specific software for military systems, and this cooperation will continue.
2. The Participants are exploring opportunities of how Estonia could support Ukraine in the field of procurement with its considerable expertise and experience, including in conducting joint procurements between various countries and procuring equipment and ammunition using Ukrainian, Estonian, EU and other funds. Estonia will work with Ukraine to identify the most impactful areas for implementing co-production and other partnerships in Ukraine’s defence industry, including addressing critical defence materials supply chain bottlenecks. Accelerated and scaled-up investments into defence industrial production will not only support Ukraine, but also provide economic opportunities and benefits for companies and directly strengthen NATO’s deterrence and defence.
3. The Participants will promote information exchange and transfer technology on their respective defence related research and development efforts in order to implement joint high-tech projects and programs to produce new armament and equipment.
4. The Participants will work together to facilitate the protection of any transferred technologies and intellectual property rights in accordance with the laws and regulations of the Participants.
5. Estonia will support Ukraine’s efforts to integrate its defence industry into NATO and EU security and defence frameworks.

Intelligence Cooperation

1. The Participants will continue and will strive to deepen their cooperation in the field of intelligence based on bilateral agreements.

Part III. Political Cooperation and Accountability

Just peace

1. The Participants recognise that Ukraine is not only defending its territory but also their shared values, the UN Charter, and the fundamental principles of international law. They reiterate their firm conviction that in order to ensure peace, security and stability on the European continent, Ukraine’s territorial integrity must be restored.
2. A just and sustainable peace can only be based on the core principles of the UN Charter. Full accountability forms an important prerequisite for just and lasting peace in Ukraine. Ukraine and Estonia will work together for a just and lasting peace that has broad global support, based on Ukraine’s Peace Formula.
3. Estonia underlines Ukraine’s sovereign decision on the peace process and welcomes Ukraine’s efforts to achieve a just and sustainable peace. Estonia expresses its strong support for Ukraine’s Peace Formula, and will continue to actively contribute to its implementation, based on the UN Charter and fundamental principles of international law.
4. Estonia is participating in the working groups of Ukraine’s Peace Formula’s points and will continue to be actively involved in its implementation.

Sanctions

1. The Participants reiterate the importance of both economic sanctions as a means to impose severe consequences on Russia for its actions and to effectively thwart Russia's and other aggressor states’ ability to continue its aggression as well as individual sanctions to target people responsible for supporting, financing or implementing actions which undermine the territorial integrity, sovereignty and independence of Ukraine or those who benefit from such actions.
2. The Participants will continue to seek ways to raise the cost of aggression for Russia, including through sanctions and export controls. Estonia will make efforts to strengthen the EU sanctions regime as well as strong and comprehensive anti-circumvention measures to tackle Russia’s evasion of sanctions.
3. Ukraine and Estonia will exchange up-to-date appropriate information on the grounds for sanctions and other relevant information in that regard, in compliance with relevant obligations and national laws.

Accountability

1. The Participants underline their firm commitment to bringing to justice those responsible for war crimes, crimes against humanity and other international crimes committed in connection with Russia’s war of aggression against Ukraine. Ukraine and Estonia acknowledge the work and international cooperation of the Office of the Prosecutor General of Ukraine in ensuring full and fair investigation of allegations of war crimes. The Participants welcome the arrest warrants of the International Criminal Court and see this as the beginning of the process of securing accountability and of holding Russia’s military and political leaders to account for the crimes and atrocities that they are ordering, enabling and/or committing in or against Ukraine.
2. The crime of aggression is the supreme international crime and the origin of all the other international crimes committed in or against Ukraine. Russia’s leadership must be held fully accountable for the crime of aggression.
3. The Participants will continue to work to establish an international special tribunal for the crime of aggression with broad international support, since it provides maximum legitimacy while ensuring the prosecution of Russia’s leadership. The Participants will continue their engagement in the “Core Group on options for the establishment of a tribunal on the crime of aggression against Ukraine”.
4. Ukraine and Estonia reaffirm that the Russian Federation must bear the legal responsibility, including by making reparation for any damage caused by such an act, which will also help deter future attacks and support Ukraine’s recovery.

Compensation for losses, injuries and damages caused by Russian aggression

1. Ukraine and Estonia reaffirm their commitment to holding the Russian Federation accountable for causing losses or damage to individuals and entities, as well as to Ukraine, as a result of its internationally wrongful acts in or against Ukraine, including its aggression in violation of the Charter of the United Nations.
2. The Participants reaffirm the Russian Federation must pay for the long-term reconstruction of Ukraine. Estonia seeks to ensure that Russian sovereign assets remain immobilised until the Russian Federation has paid for damage it has caused to Ukraine.
3. Estonia, working with its partners, will continue to look for all lawful ways consistent with applicable contractual obligations and in accordance with EU and international law through which Russian immobilised and frozen assets could be used to support Ukraine’s reconstruction and for the purposes of reparation.
4. The Participants will continue to work together with other partners, towards the establishment of a compensation mechanism to provide compensation for damage, loss, or injury caused by Russian aggression, as envisaged by the Statute of the Register of Damage Caused by the Aggression of the Russian Federation against Ukraine adopted by the Resolution of the Committee of Ministers of the Council of Europe CM/Res(2023)3. In this regard, the Participants will explore appropriate options for the financing of a compensation mechanism to provide prompt and adequate compensation to victims of Russian aggression.

Part IV. Non-military cooperation

European and Euro-Atlantic integration

1. The future of Ukraine and its people lies within the EU. Estonia strongly supports Ukraine’s accession process and its efforts in implementing related reforms for its future EU membership. Estonia will continue supporting Ukraine’s aspirations to link reconstruction with reforms on its EU path, working towards full alignment with the EU acquis.
2. Ukraine belongs in the Euro-Atlantic family and will become a member of NATO. Estonia is committed to supporting Ukraine’s path to NATO membership by advancing practical and political cooperation inter alia through NATO’s Comprehensive Assistance Package, Ukraine’s adapted Annual National Programme, and the NATO – Ukraine Council.

Commitment to implement reforms

1. Ukraine has made impressive progress under extremely difficult conditions to carry out reforms in the field of good governance, justice, and rule of law as well as in the security and defence sector.
2. Ukraine will continue this ambitious reform process on its path to EU and NATO membership. Estonia will continue supporting Ukraine’s implementation of enhancements to its democratic, economic, defence and security institutions in line with commitments taken under the EU accession process; the NATO adapted Annual National Programme as well as obligations under agreements with the International Monetary Fund (IMF).
3. Estonia will support Ukraine in delivering its reform agenda, sharing its experience of reforms and European and Euro-Atlantic integration, especially in the areas of digital transformation and rule of law.

Digital, Cyber, Tallinn Mechanism

1. Ukraine’s digital resiliency and use of innovative digital tools even throughout the most severe military campaigns and Estonia’s long-term e-governance development make Ukraine and Estonia natural partners for promoting digital governance in the world. The participants will continue to develop their cooperation in this sphere.
2. The Participants will continue to work together to reinforce Ukraine’s systematic preparedness and resilience to counter Russian and any other cyberattacks in the long term. This entails regular information exchanges between respective authorities in both countries as well as providing cyber security related support.
3. The support is channelled through the Tallinn Mechanism established in 2023 with the aim to coordinate and match Ukraine’s needs with the possibilities of donors in such a way that support from various countries forms a coherent whole and Ukraine is able to defend itself in the cyber sphere.
4. The Participants will continue to work closely on cyber diplomacy issues in order to promote accountability and responsible behaviour of states in cyberspace. To this end, the Participants will coordinate closely their national positions on various legal matters, co-organise events within international organisations as well as promote better situational awareness of the consequences of the cyberattacks by actors linked to Russia's military aggression.

Countering Disinformation and Propaganda

1. The Participants will continue to mutually support each other’s efforts to counter Russian and any other foreign information manipulation, disinformation campaigns, propaganda and interference including, but not limited to, through information sharing, joint actions, exchange of experience and lessons learned.
2. Estonia will contribute to improve Ukraine’s capabilities to resist information security threats on a bilateral basis and within international initiatives.

Development cooperation and reconstruction

1. Estonia is one of the first countries to embark on recovery and reconstruction in Ukraine and is fully committed to continuing its support to Ukraine’s reconstruction, in particular in its focus region – the Zhytomyr Oblast, including the city of Zhytomyr.
2. Estonia will allocate EUR 56 million for development cooperation and humanitarian support to Ukraine in 2024 – 2027.
3. Estonia will continue early recovery activities in priority sectors, including digital transition, education, construction, and healthcare.
4. The Participants will work together to increase Ukraine’s institutional and socio-economic resilience, with a focus on reforms that will facilitate modernisation and integration to the Euro-Atlantic structures.
5. The Participants recognise that lasting security and prosperity for Ukraine must be underpinned by a good governance and private sector-led economy. Estonia will seek to assist in the creation of a modern e-governance system based on strong and accountable institutions and respect for the rule of law, as well as in building a resilient and sustainable Ukrainian economy that is integrated into global markets.
6. The Participants recognise the need to unite efforts aimed at socio-psychological rehabilitation of the affected population and most vulnerable groups on de-occupied territories of Ukraine from the negative consequences of ongoing war as a result of the Russian Federation’s armed aggression and alleviating the devastating consequences after its completion.
7. The Participants will promote the further development of partnership in the field of basic school and university education and the accumulation, analysis, exchange and application of practical experience in the field of vocational education.
8. Estonia will undertake to work with other donors to improve coordination, identify and implement innovative finance vehicles that bring new sources of funding into the reconstruction activities. Estonia will work closely within the mechanisms set up by the Ukrainian Government to support the implementation of the Ukraine Recovery Plan.

Humanitarian Aid

1. Since the start of the full-scale Russian war of aggression, the Estonian people, the public and private sectors and civil society have shown immense solidarity with Ukraine and its people and have provided EUR 26 million in humanitarian aid, including EUR 7 million from the public sector.
2. Estonia is committed to supporting Ukraine with humanitarian aid for as long as necessary based on the most acute humanitarian needs of the people of Ukraine. Estonia’s humanitarian aid is aimed at the most vulnerable groups, such as women, children and IDPs in the areas close to the frontline. In addition, Estonia prioritises humanitarian demining and responding to the attacks on civilian infrastructure.
3. Estonia will work in close coordination with all humanitarian partners and with the aim of close alignment between humanitarian and recovery and reconstruction efforts.

Part V. Cooperation in Internal Security and Civil Protection

1. The Participants recognise the significant threat that organised crime, hostile intelligence and influence activities, and all its forms and manifestations, pose to international peace and security, as well as political, economic, and social stability, and acknowledge the critical importance of civil protection and resilience in safeguarding civilians. Therefore, Ukraine and Estonia commit to further enhance their collaboration in the following areas:

Cooperation in Combating Serious, Organized and Cross-Border Crime

1. The Participants agree to strengthen their joint efforts in fighting all types of serious, organised, and cross-border crime as well as illicit finance aimed at undermining Ukraine’s sovereignty, territorial integrity and internal stability, respond to the activities of SOC groups and individuals that are trying to infiltrate across Ukrainian society and are actively used as a tool of hybrid warfare to destabilise the process of recovery in Ukraine. This will involve sharing intelligence, best practices, and strategies for the prevention, investigation, prosecution of crimes, providing legal support under existing instruments for international cooperation in criminal matters, and creation of joint working groups.

Cooperation in Internal Security

1. The Participants agree to strengthen their joint efforts and cooperation in the counterintelligence sphere in accordance with existing framework based on bilateral agreements in order to protect Ukraine and Estonia from Russian and any other hostile intelligence and influence activities. This will involve sharing data, intelligence and best practices.

Cooperation in Civil Protection and Resilience

1. Acknowledging the importance of protecting civilians and ensuring the resilience of societies against natural and man-made crises and sabotage, the Participants commit to enhancing cooperation in civil protection. This will encompass sharing knowledge, technologies, and resources to improve disaster preparedness, response, recovery, and mitigation efforts, thereby safeguarding lives, property, and the environment.

Resilience of Energy and other Critical Infrastructure

1. Acknowledging that energy supply security remains crucial for Ukraine’s resilience, Estonia will seek any possibilities to support Ukraine’s overall energy sector.
2. Estonia will also explore opportunities to support Ukraine in enhancing the resilience of its critical infrastructure in various sectors.

Cooperation in the Field of Training and Qualification of Officials

1. Recognizing the critical role of skilled and knowledgeable officials in ensuring the effectiveness of efforts to combat crime and enhance civil protection, the Participants will collaborate in the development and implementation of training and qualification programs. These programs will aim to enhance the competencies of the authorities involved in the prevention and response to crime and disasters, focusing on the exchange of expertise, joint training exercises, and capacity-building initiatives.

Part VI. Cooperation in the event of future armed attacks

1. In the event of a future Russian armed attack against Ukraine, at the request of either of the Participants, Ukraine and Estonia within 24 hours will ensure the immediate exchange of information and will consult, bilaterally or via other channels they both deem suitable, on measures needed to counter the aggression and appropriate next steps.
2. Estonia affirms that in those circumstances, and acting in accordance with its legal and constitutional requirements, it would provide Ukraine, as appropriate, with swift and sustained political, economic and military support; impose economic and other costs on Russia, including through seeking agreement to that end in the EU and other international fora; and consult with Ukraine on its needs as it exercises its right of self-defence enshrined in Article 51 of the UN Charter.
3. In order to ensure consistency and a strong and swift collective response, the crisis consultation mechanism of the NATO – Ukraine Council, as well as similar mechanisms of other partners will be taken into account. Ukraine and Estonia may amend these provisions in order to align with any mechanism that Ukraine may subsequently agree with its other international partners, including the participants of the Joint Declaration of Support for Ukraine of 12 July 2023.

Part VII. Final Provisions

Implementation of cooperation

1. The Participants will, if necessary, designate authorised bodies for the development and implementation of bilateral executive and technical agreements in accordance with the areas of cooperation specified in this Agreement.
2. Any disputes between the Participants arising out of the interpretation and/or implementation of this Agreement will be settled amicably through negotiation or consultation between the Participants.

Timeframe of the Agreement

1. This Agreement is valid for ten years from the date of its signature.
2. In the event that Ukraine becomes a member of NATO before the expiry of this Agreement, the Participants will decide on its future status.
3. This Agreement is not a substitute to Ukraine’s future membership in NATO, but supports Ukraine’s path towards membership.
4. The Participants can jointly decide to extend this Agreement, for the period to be agreed separately, through notification no later than six (6) months prior to the lapse of the ten-year period.

Amendments

1. This Agreement may be amended and supplemented, including by adding annexes thereto, by mutual agreement of the Participants, which will be made in writing.

Termination

1. This Agreement may be terminated by either Participant by giving written notice to the other. The Agreement will be terminated six months from the date of receipt of such notice.
2. The termination will not affect the implementation of ongoing activities or projects, which have been decided prior to the date of its termination, unless the Participants decide otherwise.

Entry into effect

1. The provisions of this Agreement will come into effect immediately upon signature.

Signed in Brussels on 27 June 2024, in duplicate in English, Ukrainian and Estonian languages, the English version of which shall prevail in the event of any discrepancy.

For Ukraine: President Volodymyr Zelenskyy

For Estonia: Prime Minister Kaja Kallas