I. Introduction
1. Ukraine and the Grand-Duchy of Luxembourg (“Luxembourg”) (hereafter jointly “the Participants”), condemn in the strongest possible terms the illegal, unjustified and unprovoked war of aggression by Russia against Ukraine, in violation of international law, including the Charter of the United Nations (“UN Charter”).
2. The Participants reaffirm the principles of the UN Charter, the Helsinki Final Act, and the Charter of Paris, including the independence, sovereignty and territorial integrity of states, and the inviolability of borders, which are essential for European and worldwide security.
3. The Participants reaffirm their commitment to shared common values, namely democracy, respect for human rights and fundamental freedoms, and the rule of law as enshrined among others in the European Convention on Human Rights.
4. Luxembourg reiterates its unwavering support for Ukraine’s independence, sovereignty and territorial integrity within its internationally recognised borders as of 1991, including the territorial waters, and its inherent right of self-defence against Russia’s aggression under Article 51 of the UN Charter.
5. The Participants recognise that Russia’s war of aggression against Ukraine is a threat to international peace and security and that the security of Ukraine is an integral part of European security and that of the Euro-Atlantic region. Together they will continue to strive for a comprehensive, just and lasting peace in Ukraine as well as for peace, security and stability on the European continent.
6. The Participants take note that Luxembourg provided Ukraine with military assistance worth a total value of 74,4 million euro in 2022 and 96 million euro in 2023. At the time of signature of the present agreement, Luxembourg has allocated 80 million euro in military support to Ukraine for 2024. Luxembourg will continue with the same dynamics to provide military assistance and support to Ukraine for the duration of this Agreement, subject to parliamentary approval.
7. The Participants also acknowledge that Luxembourg has provided since February 2022 over 29 million euro of humanitarian assistance and recovery support, including through UN agencies, NGOs and the International Red Cross and Red Crescent Movement, as well as in-kind support.
8. The Participants reaffirm that Ukraine is part of the European and Euro-Atlantic family and that its future is within the EU and NATO. They recall that Ukraine will continue to implement an ambitious reform programme and that Luxembourg is dedicated to supporting Ukraine’s reform efforts. They recognise that Ukraine’s defence, recovery, reforms, and European and Euro-Atlantic ambitions are mutually reinforcing and must move forward in a coordinated manner.
II. Scope
9. This Agreement is intended to further implement the Joint Declaration of Support for Ukraine (“G7 Declaration”) adopted by the Group of Seven and the EU on the margins of the NATO Summit in Vilnius on 12 July 2023 and subsequently joined by additional States, including Luxembourg.
10. With this Agreement, the Participants have jointly determined to deepen and strengthen their cooperation and partnership by pursuing bilateral security commitments and support measures, which are based on common interests in upholding peace, the rules-based international order, multilateralism, and the protection of human rights and fundamental freedoms.
11. Luxembourg, in accordance with its constitutional and legal requirements, and together with partners, intends to ensure long-term support for Ukraine’s needs and to strengthen Ukraine’s resilience in order to support its inherent right of self-defence against Russia’s full-scale war of aggression, to deter future aggression, as well as to prevent escalation of the ongoing aggression against Ukraine, and to uphold a functioning Ukrainian economy.
12. Luxembourg will continue to provide its support for the duration of this Agreement.
III. European and Euro-Atlantic Integration
13. The Participants reaffirm that Ukraine is part of the European family and that its future is within the EU. Luxembourg acknowledges Ukraine’s efforts to strive for the implementation of necessary reforms under extremely challenging circumstances. The Participants recall the merit-based nature of the EU accession process. They reaffirm their commitment to work constructively on Ukraine’s progressive European integration, with a view to its future EU membership.
14. The Participants reaffirm that Ukraine’s security is integral to Euro-Atlantic and global security. Luxembourg is dedicated to supporting Ukraine’s reform efforts on its path towards future NATO membership by, but not limited to, advancing practical and political cooperation through NATO’s Comprehensive Assistance Package, Ukraine’s adapted Annual National Programme and the newly established Ukraine-NATO Council. Luxembourg recalls that Ukraine belongs in the Euro-Atlantic family and will become a member of NATO.
IV. Comprehensive security and military assistance
15. The Participants will work together on ensuring that Ukraine’s security and defence forces are capable of defending Ukraine now and in the future. Luxembourg will continue to provide military support to Ukraine across all relevant domains, including land, air, and cyber-electromagnetic domains, in close coordination and cooperation with relevant international partners and institutions. The Participants share the aim to facilitate the modernisation of the Ukrainian security and defence forces, including according to the Future Defence Force design, and a greater degree of interoperability with NATO standards and other relevant international organisations.
16. The Participants acknowledge that the military support provided by Luxembourg will only be used in compliance with international law, including international humanitarian law. The Participants agree that the illicit diversion and illegal circulation of military equipment provided to Ukraine must be avoided and acknowledge the prevention efforts of the Ukrainian side and international partners.
17. The Participants recognise that Luxembourg has taken over the co-lead role with Estonia and Ukraine in the Capability Coalition “IT” and contributes to the “Air Force Capability” Coalition and the “ground to ground artillery” Coalition. Luxembourg may identify opportunities to extend its participation to other coalitions, taking into account its capacities and Ukraine’s military needs. All the Capability Coalitions are designed to provide Ukraine with the means to deter Russian aggression and increase the interoperability of Ukrainian and NATO forces.
18. Luxembourg will support Ukraine through the provision of intelligence, surveillance and reconnaissance (ISR) capabilities, including in the space domain, and cyber-electromagnetic capabilities in addition to other key capabilities, and by promoting increased interoperability with Euro-Atlantic partners. As co-lead nation of the Capability Coalition “IT”, Luxembourg will continue to support the strengthening of Ukraine’s security and defence forces’ information technology infrastructure and capabilities.
19. Luxembourg will continue providing long-term assistance in equipping and training, including train-the-trainers programmes, Ukraine’s security and defence forces with the capabilities they need, in particular under the framework of the EU Military Assistance Mission in support of Ukraine (EUMAM Ukraine).
20. Luxembourg will support Ukraine in increasing its training capabilities in the cyber domain, including by putting Luxembourg’s training facilities at the disposal of Ukraine, such as the Cyber Range.
21. Luxembourg will make use, where appropriate, of multilateral instruments, including NATO’s Ukraine Comprehensive Assistance Package (UCAP) and the EU’s European Peace Facility (EPF), to channel military support to Ukraine, as well as exploring options for assistance in the constituting of strategic stockpiles.
22. The Participants will seek to ensure that in the event of external military aggression against Luxembourg, Ukraine's military capabilities are sufficient for the provision by Ukraine of effective military support to Luxembourg. The terms, format and scope of such support will be determined by the Participants.
23. To take stock of these objectives, Ukraine and Luxembourg will hold a regular senior-level Strategic Defence and Security Policy Dialogue.
V. Defence industry cooperation
24. Ukraine and Luxembourg will work to transform Ukraine’s defence industry into a powerful capability enabling Ukraine to restore its territorial integrity, serving as a major driver in economic recovery and an essential part of effective deterrence against the future attempts of aggression to ensure peace and prosperity for both Ukraine, Luxembourg, and the whole Europe.
25. The Participants will work together to identify opportunities for closer and mutually beneficial defence industry partnership and cooperation. The Participants commit to including, to the extent possible, Luxembourg and Ukraine based SMEs in the production chains of newly acquired military equipment and defence industry capability.
26. The Participants will evaluate the possibility of including financial structures domiciled and administered in Luxembourg in development of defence industrial capabilities.
27. Luxembourg will work with Ukraine to strengthen the protection of transferred technologies and intellectual property rights.
28. Luxembourg will support Ukraine’s efforts to integrate its defence industry into NATO and the EU defence and security frameworks. In particular, Luxembourg will consider options to promote Ukraine’s defence industry integration into the European defence technological and industrial base, where possible and in line with the opportunities provided by the European Defence Industrial Strategy and European Defence Industry Programme.
VI. Intelligence and security cooperation
29. The Participants will establish their cooperation in the field of intelligence and security in accordance with the national legislation of each Participant and without prejudice to their national interest.
30. The Participants will explore the possibility to conclude an Agreement on the Protection of Classified Information between their respective countries that will facilitate information sharing between competent Ukrainian and Luxembourgish government agencies.
VII. Cyber security and hybrid activities
31. The Participants will cooperate to enable Ukraine to prevent, detect and counter Russian and any other cyber aggression, cyber espionage and hybrid activities, providing technical assistance to Ukraine, as well as to enhance its cyber resilience through information and experience sharing. The Participants will cooperate within their means towards deepening Ukraine’s cooperation with NATO structures on cybersecurity within the legal boundaries and upon the availability of information and expertise.
32. The Participants will explore cooperation in the field of countering Russian and any other actor’s disinformation and hostile information in order to mutually support each other’s efforts to counter Foreign Information Manipulation and Interference (FIMI). They will jointly promote the development of Ukraine’s capabilities to counter hybrid threats, Russian and any other malign propaganda and disinformation campaigns affecting national security and work towards organising joint education and training programmes for experts within international institutions, including through regular exchanges of best practices.
VIII. Protection of critical infrastructure
33. The Participants will cooperate to jointly develop Ukraine's capabilities to detect, deter and respond to cyber threats on critical infrastructure by facilitating the availability of modern technology for critical infrastructure protection, including through the provision of international technical assistance to Ukraine.
34. The Participants will strengthen their cooperation in the field of improved resilience and preparedness of critical entities, including through information sharing, exchanges of best practices and experience feedback.
35. In view of Ukraine’s European perspective, Luxembourg will assist Ukraine in harmonising its regulations with EU standards in the field of critical infrastructure protection. The Participants will explore joint educational and training programmes for critical infrastructure protection specialists.
36. The Participants reiterate their strong support for the work of the International Atomic Energy Agency (IAEA) and its Director General following Russia’s illegal seizure and occupation of Ukraine’s Zaporizhzhia Nuclear Power Plant (ZNPP). During its membership in the Board of Governors of the IAEA, Luxembourg will support the Agency’s continued efforts for ensuring nuclear safety and security in Ukraine and in particular in avoiding a nuclear accident at the ZNPP or at any other nuclear facility in Ukraine.
37. The participants will further bolster their collaboration to ensure a secure, sustainable and efficient energy supply for Ukraine. Building on existing frameworks such as the Energy Community, the European Network of Transmission System Operators for Electricity, the International Advisory Council to Ukraine of Energy Ministers, and the Union Civil Protection Mechanism, this collaboration may include technical and financial support as well as capacity building by means of investments, science, research and innovation, particularly in the field of decentralised and resilient renewable energy systems.
IX. Humanitarian aid and resilience
38. Since the beginning of Russia’s full-scale war of aggression, Luxembourg has provided civilian support for Ukraine’s resilience and relief for the war-affected populations.
39. The Participants reaffirm that, as Ukraine begins early recovery and reconstruction, they will ensure the continuation of well-coordinated life-saving humanitarian and civil protection in-kind assistance aid where it is needed. The Participants will work together to ensure a better prioritised, targeted humanitarian response which delivers to those most in need.
40. Luxembourg will continue to provide humanitarian financial contributions and in-kind support to Ukraine, including in the health, shelter, food security, energy, education, connectivity, protection, water, sanitation and hygiene sectors, as long as humanitarian needs persist.
41. The Participants recognise the need to unite efforts aimed at protecting the population and territories of Ukraine from the negative consequences caused by Russia’s massive contamination of Ukrainian soil through ammunition, mines and other remnants of war. Luxembourg has provided support to humanitarian mine action in Ukraine and aims to reinforce its support to humanitarian demining efforts and to develop institutional capacity in mine action alongside partners, including through the NGO HALO Trust, the Organization for Security and Co-operation in Europe (OSCE) Support Programme for Ukraine, as well as other multilateral and bilateral initiatives.
X. Long-term recovery support and economic cooperation
42. Luxembourg, in collaboration with its international and European partners, will continue to support a sustainable recovery and reconstruction of Ukraine geared towards addressing urgent and long-term needs. The Participants concur that these efforts need to be transparent and will be aligned with Ukraine’s European perspective and its status as an EU candidate country and member State of the Council of Europe.
43. Luxembourg will continue to work actively within the EU to ensure macro-financial support for Ukraine and to further international coordination in all relevant fora. Luxembourg will continue to support existing international and European frameworks and institutions in their endeavours to provide regular and predictable financial support to Ukraine.
44. Luxembourg will actively engage through its bilateral development agency Lux-Development to support recovery, resilience and economic development in Ukraine in priority sectors, including education, technical and vocational education and training, and local business development.
45. Luxembourg strives to support capacity-building in Ukraine with a particular focus on Micro, Small and Medium Enterprises (MSME) finance, including through existing initiatives such as the Business Development Fund.
46. The Participants underline the importance of the involvement of the private sector, civil society and municipalities as drivers of an ambitious, inclusive, decentralised recovery process. The Participants aim to promote business-to-business as well as civil society exchanges between the two countries.
47. Luxembourg will further the involvement of private companies in the recovery process. Luxembourg will seek to facilitate access for Ukraine to Luxembourg’s private finance companies and institutions, insurance industry, technology sectors and other areas of expertise in order to strengthen bilateral trade and investment.
48. To that end, the Participants will intensify cooperation in areas such as the construction and steel industry, cybersecurity, business and finance advisory services and in the space sector.
49. Luxembourg will continue to support the Ukrainian innovation scene through exchanges between start-up ecosystems, including the “Seeds of Bravery” project, and bilateral cooperation between universities and research institutions.
50. The Participants will strive to collaborate with local enterprises in Ukraine’s recovery and reconstruction process, as their input plays a vital role in supporting the local economy of Ukraine and bolstering the resilience of affected communities.
51. The Participants encourage cooperation at local level, including through municipalities to develop people-to-people contacts through collaboration and the exchange of best practices across various fields, including recovery efforts, ecological transition, resilience, good corporate governance, cultural and sports exchanges, and commend existing collaborations and initiatives.
XI. Protection and support to Ukrainian displaced persons
52. Luxembourg will continue to welcome displaced persons from Ukraine under the European Temporary Protection Directive for as long as necessary. Luxembourg is supporting the extension of the European Temporary Protection Directive beyond March 2025 and advocates for a single and common European approach to the protection of Ukrainian nationals.
53. The Participants recognise the support and solidarity of Luxembourg’s municipalities for Ukraine, which have been instrumental in welcoming Ukrainian displaced persons and providing assistance to meet their needs from the outset of Russia’s aggression against Ukraine.
54. Since February 2022, Luxembourg's public schools have enrolled more than 1250 Ukrainian students. Luxembourg will continue to enhance educational opportunities and foster the integration of Ukrainian students within Luxembourg's school system.
55. Luxembourg will support Ukraine within its means to facilitate the immediate release and return of all unlawfully detained, forcibly transferred and illegally deported civilians, primarily Ukrainian children, including within the International Coalition for the Return of Ukrainian Children, and contribute to international efforts to bring those responsible for organising the illegal deportation and displacement of Ukrainian children and civilians to justice in line with international law and the decisions of international judicial institutions.
XII. Support for a comprehensive, just and lasting peace in Ukraine
56. The Participants recognise that Ukraine and the whole of Europe will not be secure until there is a comprehensive, just and lasting peace, which respects Ukraine’s rights under international law and in particular the UN Charter.
57. The Participants will work together for a comprehensive, just and lasting peace in Ukraine with broad international support, based on the principles of Ukraine’s Peace Formula and UN General Assembly resolution A/RES/ES-11/6. Luxembourg will continue its diplomatic efforts to promote Ukraine’s Peace Formula, in particular point 7 on the restoration of justice.
XIII. Promoting accountability
58. The Participants will remain firmly committed to ensuring full accountability for war crimes and other international crimes committed in connection with Russia’s war of aggression against Ukraine.
59. The Participants will continue to promote effective domestic and international investigation and prosecution of international crimes in or against Ukraine. The Participants will continue supporting the work of the Office of the Prosecutor General of Ukraine and the International Criminal Court to ensure that allegations of war crimes and other international crimes are fully and fairly investigated by independent, effective and robust legal mechanisms.
60. The Participants reiterate their commitment to holding Russia accountable for its actions before international jurisdictions, including the International Court of Justice for violations of general international law and the European Court of Human Rights for violations falling under the European Convention on Human Rights.
61. The Participants agree on the need to use and support all international investigation mechanisms available in order to document widespread human rights abuses and violations of international humanitarian law by the Russian Armed Forces on the territory of Ukraine. These include the OSCE Moscow Mechanism, and the Independent International Commission of Inquiry on Ukraine established by the UN Human Rights Council.
62. The Participants agree to ensure effective accountability for the crime of aggression against Ukraine, including when it comes to Russia’s leadership. The Participants will continue their work, in particular in the “Core Group”, which Luxembourg hosted on 19 January 2024, to establish a special tribunal for the prosecution of the crime of aggression against Ukraine.
63. During its Presidency of the Committee of Ministers of the Council of Europe, from November 2024 to May 2025, Luxembourg will ensure that Russia’s war of aggression against Ukraine remains high on the agenda of the Council of Europe, in particular to ensure full accountability for violations of human rights, international crimes and other serious violations of international law, as well as for providing compensation to the victims of Russia’s aggression.
XIV. Compensation for damage, loss and injury caused by Russian aggression
64. The Participants reaffirm that the Russian Federation is to be held accountable for causing losses or damage to individuals and entities, as well as to the state of Ukraine, as a result of its internationally wrongful acts committed in connection with Russia’s war of aggression against Ukraine. Luxembourg, working with its partners, will continue to explore all lawful routes through which Russian assets could be used to support Ukraine in line with applicable contractual obligations and in accordance with EU and international law.
65. As a priority, the Participants will continue to work together, alongside international partners, towards the establishment of a compensation mechanism to provide compensation for damage, loss or injury caused by Russia's 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 in line with international law for the financing of a compensation mechanism to provide prompt and adequate compensation to victims of the Russian aggression.
XV. Restrictive measures (Sanctions)
66. The Participants will continue to work together to ensure that the costs to Russia for its aggression continue to rise, including through restrictive measures (sanctions) and robust export controls. The Participants recognise the value of restrictive measures (sanctions) in restricting the Russian Federation’s access to finance, goods, technology and services in its war of aggression, in reducing Russia's revenue streams and deterring future attacks.
67. While the Russian Federation's aggression towards Ukraine continues, Luxembourg will remain committed, in the framework of the European Union, to pursuing robust restrictive measures (sanctions) against sectors of the Russian economy and those in the Russian Federation and outside which are supporting or profiting from the war, or assisting in sanctions circumvention in third countries. Luxembourg will take determined action to tackle all forms of sanctions circumvention with other EU partners and the European Commission.
68. The Participants will provide each other with up-to-date appropriate information on the grounds for restrictive measures (sanctions) and other relevant information, in compliance with relevant obligations and national laws.
XVI. Support to culture, the arts and cultural heritage in Ukraine
69. Based on the bilateral cultural cooperation agreement signed in 1994 and considering that culture and the arts are essential for democratic societies, for preserving the freedom of expression as a fundamental European value, and for maintaining Ukrainian identity and traditions, Luxembourg supports artists and cultural professionals in Ukraine with a view of restoring and reinforcing the resilience of cultural and artistic activities in the country.
70. Luxembourg will do its utmost to support the actions and initiatives launched in the context of UNESCO, the European Union and the Council of Europe to tackle the consequences Russia’s war against Ukraine is having on its cultural and creative sectors and to accompany its future recovery.
XVII. Ukraine’s reform process
71. The Participants reaffirm that reforms are indispensable to support and strengthen Ukraine’s democracy, rule of law and resilience as well as for Ukraine’s European and Euro-Atlantic aspirations. Luxembourg recognises the significant progress Ukraine has made in implementing reforms and encourages Ukraine to continue its ambitious reform process.
72. Ukraine reiterates its continued commitment to implementing reforms as defined by the EU, Council of Europe, International Monetary Fund (IMF), Organisation for Economic Co-operation and Development (OECD), and NATO covering inter alia governance, rule of law and fundamental rights, justice, law enforcement, transparency, anti-corruption, public administration, business environment and democratic control over the security and defence forces.
73. Ukraine commits to advancing anti-corruption efforts at all levels of society across the public sector, the private sector and civil society. This includes ensuring sufficient resources for the independent anti-corruption institutions, which will benefit society as a whole.
74. Luxembourg, in cooperation with the EU and its Member States, will continue to fully support Ukraine’s accession to the EU, once the conditions are met, including through technical assistance and training for the implementation of necessary reforms.
75. Ukraine commits to advancing and developing comprehensive democratic control and oversight over its security and defence forces and within the wider security and defence sector by focusing on further improving accountability and transparency across its security institutions, as well as advance defence reforms and modernisation.
76. Luxembourg will continue to assist and advise, bilaterally and multilaterally, the reforms and further development of Ukraine’s security and defence forces, including through the EU Common Security and Defence Policy (CSDP) missions and other international activities in support of Ukraine.
XVIII. Cooperation in the event of a future armed attack
77. In the event of a future armed attack against Ukraine, at the request of either Participant, the Participants will consult, within 24 hours bilaterally or via other channels they both deem suitable, on Ukraine’s needs as it exercises its right of self-defence enshrined in Article 51 of the UN Charter in order to determine appropriate next steps.
78. Luxembourg affirms that in those circumstances and acting in accordance with its constitutional and legal requirements, including European and international law, it would provide Ukraine with support in the field of security and defence, relevant military equipment across relevant domains within means and capabilities, economic assistance, and seek agreement in the EU to impose economic and other costs on the aggressor.
79. In order to ensure the widest and most effective collective response to any future armed attack, the Participants may amend these provisions to align with any mechanism that Ukraine may subsequently agree with its other international partners.
XIX. Consultation and coordination
80. In order to facilitate the implementation of this Agreement and to ensure an ongoing strategic dialogue, appropriate consultation structures between the Participants will be arranged.
81. The Participants will, if necessary, designate authorised bodies for the development and implementation of bilateral arrangements in accordance with the areas of cooperation specified in this Agreement.
XX. Final provisions
82. This Agreement will come into effect upon signing and is valid for ten years from the date of its signature.
83. This Agreement may be amended and supplemented, including by adding annexes thereto, at any time, with the written consent of the Participants.
84. Any disputes between the Participants arising from the interpretation and/or implementation of this Agreement will be settled amicably through negotiation or consultation between the Participants.
85. The Participants can jointly decide to extend this Agreement through notification no later than 6 (six) months prior to the lapse of the ten-year period.
86. At the same time and in accordance with the G7 Declaration, the Participants share the opinion that this Agreement is without prejudice to Ukraine pursuing membership in the Euro-Atlantic Community. In the event that Ukraine becomes a member of NATO before the expiry of this Agreement, the Participants will decide on its future status.
87. This Agreement may be terminated by either Participant at any time by giving written notice to the other Participant. The Agreement will be terminated 6 (six) months from the date of receipt of such notice. The termination will not affect the implementation of ongoing activities or projects, which have been decided prior to the date of its termination, unless Luxembourg or Ukraine decide otherwise.
Signed in Washington, D.C. on 10 July 2024 in duplicate in the English and Ukrainian languages, all texts are being equally authentic. The English version shall prevail in the event of any discrepancy.
For Ukraine: Volodymyr Zelenskyy, President
For Luxembourg: Luc Frieden, Prime Minister