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**Report: Analysis of Council Decision CFSP 2025/967 Regarding Swiss Participation in the PESCO Project Cyber Ranges Federations**
**1. Executive Summary:**
This report analyzes Council Decision CFSP 2025/967, which approves Switzerland's participation in the Permanent Structured Cooperation (PESCO) project "Cyber Ranges Federations." The decision concludes that Switzerland meets the conditions for participation as a third state, as stipulated in prior Council Decisions. Key findings indicate that Switzerland's involvement offers substantial added value to the project and aligns with the EU's security and defense interests. This decision facilitates increased collaboration in cybersecurity initiatives between the EU and Switzerland.
**2. Introduction:**
This report provides an informative analysis of Council Decision CFSP 2025/967 of 20 May 2025, concerning the participation of Switzerland in the PESCO project "Cyber Ranges Federations." The analysis is based solely on the text of the provided Council Decision.
**3. Policy Overview:**
This is a *new* policy, specifically a decision regarding the participation of a third state in an existing PESCO project.
* **Core Objective(s):** The core objective, based on the text, is to formally approve Switzerland's participation in the PESCO project "Cyber Ranges Federations," having determined that Switzerland meets the established criteria for third-state involvement in PESCO projects. The policy aims to facilitate cooperation between the EU and Switzerland in the specific area of cyber ranges and cybersecurity.
**4. Background and Rationale:**
This policy addresses the issue of expanding PESCO projects to include third-state participants under specific conditions. The rationale is that the EU recognizes the potential value and contributions that certain third states, like Switzerland, can bring to collaborative defense and security initiatives. Allowing Switzerland to participate in "Cyber Ranges Federations" can enhance the project's effectiveness and promote broader international cooperation in cybersecurity. The policy builds on existing frameworks for PESCO and third-state participation, codifying the decision-making process and ensuring alignment with EU security interests.
**5. Key Provisions / Changes:**
As this is a *new* policy, the key provisions are as follows:
* **Article 1:** Formally states that Switzerland's participation in the PESCO project "Cyber Ranges Federations" meets the conditions set out in Article 3 of Decision CFSP 2020/1639. This is the core decision being made.
* **Article 2:** Specifies that the Decision enters into force on the date of its adoption (20 May 2025).
* The policy also references an administrative arrangement to be entered into by Switzerland and the project members, specifying that Switzerland will join the project on the date specified in that arrangement, in accordance with Article 27 of Decision CFSP 2020/1639.
* The Council will maintain oversight in accordance with Article 52 of Decision CFSP 2020/1639 and can take further decisions in accordance with Articles 62 and 3 thereof.
* The decision is contingent upon Switzerland's compliance with various conditions outlined in Article 3 of Decision CFSP 2020/1639, including:
* Sharing the EU's values and objectives in foreign and security policy.
* Not contravening the security and defense interests of the EU.
* Providing substantial added value to the PESCO project.
* Contributing to strengthening the Common Security and Defence Policy (CSDP).
* Ensuring consistency with PESCO commitments.
* Having a security agreement for the exchange of classified information.
* Seeking to conclude a project-specific administrative arrangement.
**6. Target Audience and Stakeholders:**
The target audience and stakeholders directly affected by this policy include:
* **Switzerland:** As the participating third state, Switzerland is directly affected by the terms and conditions of its involvement in the "Cyber Ranges Federations" project.
* **EU Member States Participating in the "Cyber Ranges Federations" Project:** These member states are stakeholders as they will be collaborating with Switzerland in the project.
* **The European Council:** As the decision-making body, the Council is a key stakeholder.
* **The Political and Security Committee (PSC):** The PSC provided an opinion on Switzerland's participation, making them a stakeholder.
* **The High Representative of the Union for Foreign Affairs and Security Policy:** The High Representative put forth the proposal for this decision.
* **The Coordinator of the PESCO project Cyber Ranges Federations:** The coordinator notified the Council and the High Representative of the Union for Foreign Affairs and Security Policy regarding the project members' unanimous agreement.
**7. Implementation Aspects (Inferred):**
* **Responsible agency/bodies:** The Council of the European Union is responsible for the overall decision. The coordinator of the "Cyber Ranges Federations" project plays a key role in facilitating Switzerland's integration. Switzerland itself is responsible for fulfilling the conditions for participation and entering into the administrative arrangement.
* **Timelines/procedures:** The decision enters into force immediately. The specific date of Switzerland's project participation is contingent upon the completion of the administrative arrangement between Switzerland and the project members. Further Council decisions can be made as required.
**8. Expected Outcomes / Impact of Changes:**
The likely intended outcomes of this policy, based on its provisions, are:
* **Enhanced Cybersecurity Cooperation:** Increased collaboration between the EU and Switzerland in the development and utilization of cyber ranges.
* **Strengthened PESCO Project:** The PESCO project "Cyber Ranges Federations" is expected to benefit from Switzerland's contributions and expertise.
* **Improved EU Security and Defense Capabilities:** By allowing for qualified third-state participation, the EU seeks to enhance its overall security and defense capabilities.
* **Positive Impact on EU-Swiss Relations:** This cooperation can serve to strengthen the broader relationship between the EU and Switzerland.
**9. Conclusion:**
Council Decision CFSP 2025/967 is a significant step towards fostering cooperation in cybersecurity between the EU and Switzerland through the PESCO framework. It formally approves Switzerland's participation in the "Cyber Ranges Federations" project, subject to its compliance with established conditions and the conclusion of an administrative arrangement. This decision reflects the EU's willingness to engage with third states in specific areas of defense and security, enhancing its capabilities and promoting broader international collaboration. This decision is deemed to be significant as it sets a precedent for future collaborations with non-member states within the PESCO framework, particularly in sectors like cybersecurity that transcend national borders.
Key Entities Referenced
European Union: A political and economic union of member states located primarily in Europe.
Official Journal EN of the European Union L series 2025/967: Official Journal publication reference.
20 May 2025: Date of Council Decision CFSP 2025/967.
COUNCIL DECISION CFSP 2025/967: Council Decision on the participation of Switzerland in the PESCO project Cyber Ranges Federations.
Switzerland: A third state participating in the PESCO project Cyber Ranges Federations.
PESCO project Cyber Ranges Federations: A Permanent Structured Cooperation (PESCO) project focused on cyber ranges federations.
Treaty on European Union: The Treaty on European Union, referred to in Article 46(6).
Article 46(6): Article of the Treaty on European Union.
Council Decision CFSP 2017/2315: Council Decision establishing permanent structured cooperation (PESCO).
11 December 2017: Date of Council Decision CFSP 2017/2315.
Article 9(2): Article of Council Decision CFSP 2017/2315.
Council Decision CFSP 2020/1639: Council Decision establishing the general conditions under which third States could exceptionally be invited to participate in individual PESCO projects.
5 November 2020: Date of Council Decision CFSP 2020/1639.
Article 2(4): Article of Council Decision CFSP 2020/1639.
High Representative of the Union for Foreign Affairs and Security Policy: Position responsible for proposal.
TEU: Treaty on European Union.
6 March 2018: Date of adoption of Decision CFSP 2018/340.
Council Decision CFSP 2018/340: Council Decision establishing the list of projects to be developed under PESCO.
Estonia: Project coordinator for Cyber Ranges Federations.
Political and Security Committee PSC: Committee providing an opinion on the participation of third states in PESCO projects.
3 October 2024: Date when Switzerland sent its request for participation in the PESCO project Cyber Ranges Federations.
14 February 2025: Date of notification to the Council and the High Representative regarding Switzerland's participation.
15 April 2025: Date the PSC agreed on an opinion regarding Switzerland's request to participate.
European Defence Agency EDA: The European Defence Agency.
Article 2 TEU: Article of the Treaty on European Union regarding the values on which the Union is founded.
Article 21(1) TEU: Article of the Treaty on European Union regarding the principles.
CFSP: Common Foreign and Security Policy.
Article 21(2): Article of the Treaty on European Union regarding the objectives of CFSP.
CSDP: Common Security and Defence Policy.
Capability Development Plan: Plan related to capability development.
Coordinated Annual Review on Defence CARD: Annual review related to defence.
European Defence Technological Industrial Base EDTIB: The European Defence Technological Industrial Base.
Agreement between the Swiss Confederation and the European Union on the security procedures for the exchange of classified information: Agreement concerning the exchange of classified information between Switzerland and the EU.
1 June 2008: Date when the agreement between the Swiss Confederation and the European Union on the security procedures for the exchange of classified information entered into force.
Council Decision CFSP 2018/909: Council Decision establishing a common set of governance rules for PESCO projects.
25 June 2018: Date of Council Decision CFSP 2018/909.
Brussels: Location where the decision was adopted.
K. KALLAS: The President of the Council.
Official Journal EN
of the European Union L series
2025/967 21.5.2025
COUNCIL DECISION (CFSP) 2025/967
of 20 May 2025
on the participation of Switzerland in the PESCO project Cyber Ranges Federations
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on European Union, and in particular Article 46(6) thereof,
Having regard to Council Decision (CFSP) 2017/2315 of 11 December 2017 establishing permanent structured
cooperation (PESCO) and determining the list of participating Member States(1), and in particular Article 9(2) thereof,
Having regard to Council Decision (CFSP) 2020/1639 of 5 November 2020 establishing the general conditions under
which third States could exceptionally be invited to participate in individual PESCO projects(2), and in particular
Article 2(4) thereof,
Having regard to the proposal from the High Representative of the Union for Foreign Affairs and Security Policy,
Whereas:
(1) Article 9(2) of Decision (CFSP) 2017/2315 provides that the Council is to decide, in accordance with Article 46(6) of
the Treaty on European Union (TEU), whether a third State, which the participating Member States taking part in
a permanent structured cooperation (PESCO) project wish to invite to take part in that project, meets the
requirements to be established by the Council.
(2) On 6 March 2018, the Council adopted Decision (CFSP) 2018/340(3), which established the list of projects to be
developed under PESCO. Article 1 of that Decision provides for a project entitled ‘Cyber Ranges Federations’, which
has eight project members, including Estonia as project coordinator.
(3) On 5 November 2020, the Council adopted Decision (CFSP) 2020/1639, which established the general conditions
under which third States could exceptionally be invited to participate in individual PESCO projects. Article 2(4) of
that Decision provides that, based on a notification by the coordinator or coordinators of a PESCO project, and
following an opinion by the Political and Security Committee (PSC), the Council is to take a decision in accordance
with Article 46(6) TEU and Article 9(2) of Decision (CFSP) 2017/2315 as to whether the participation of the third
State in that project meets the conditions set out in Article 3 of Decision (CFSP) 2020/1639.
(4) On 3 October 2024, Switzerland sent to the coordinator of the PESCO project Cyber Ranges Federations its request
for participation in that PESCO project, in accordance with Article 2(1) of Decision (CFSP) 2020/1639. The project
members then assessed, on the basis of the information provided by Switzerland, whether it complies with the
general conditions set out in Article 3 of Decision (CFSP) 2020/1639, in accordance with Article 2(2) thereof.
(5) On 14 February 2025, the coordinator of the PESCO project Cyber Ranges Federations notified the Council and the
High Representative of the Union for Foreign Affairs and Security Policy, in accordance with Article 2(3) of Decision
(CFSP) 2020/1639, that the project members of that PESCO project had unanimously agreed: that they wish to invite
Switzerland to participate in that project; on the scope, form and relevant stages of the participation of Switzerland
in that project; and that Switzerland complies with the general conditions set out in Article 3 of Decision (CFSP)
2020/1639.
(1) OJ L 331, 14.12.2017, p. 57, ELI: http://data.europa.eu/eli/dec/2017/2315/oj.
(2) OJ L 371, 6.11.2020, p. 3, ELI: http://data.europa.eu/eli/dec/2020/1639/oj.
(3) Council Decision (CFSP) 2018/340 of 6 March 2018 establishing the list of projects to be developed under PESCO (OJ L 65,
8.3.2018, p. 24, ELI: http://data.europa.eu/eli/dec/2018/340/oj.
ELI: http://data.europa.eu/eli/dec/2025/967/oj 1/3EN
OJ L, 21.5.2025
(6) On 15 April 2025, the PSC agreed on an opinion on the notification from the coordinator of the PESCO project
Cyber Ranges Federations regarding the request by Switzerland to participate in that project (the ‘notification’). In
particular, the PSC took note of the description of the PESCO project Cyber Ranges Federations as provided in the
notification, including its objectives, organisation and decision making as well as focus areas of work. It also noted
that no EU classified or sensitive information is shared within the project and that the project is not implemented
with the support of the European Defence Agency (EDA) within the meaning of Article 3, point (g), of Decision
(CFSP) 2020/1639. Furthermore, it noted that the PESCO project Cyber Ranges Federations does not involve
armament procurement, research and capability development, or the use and export of arms or capabilities and
technology. It also noted that it does not involve entities, investments or funding from Member States participating
in PESCO or requests for Union funding for project activities.
(7) The PSC agreed with the proposed scope, form and extent of the participation of Switzerland in the PESCO project
Cyber Ranges Federations as described in the notification. It acknowledged that Switzerland had expressed that it
fully supports the scope of that project as defined in the notification.
(8) In the same opinion, the PSC confirmed the view unanimously agreed by the project members that Switzerland
complies with the general conditions set out in Article 3 of Decision (CFSP) 2020/1639, as follows:
— Switzerland meets the condition set out in Article 3, point (a), of Decision (CFSP) 2020/1639, which requires:
sharing of the values on which the Union is founded, as laid down in Article 2 TEU, and the principles referred to
in Article 21(1) TEU, as well as the objectives of the common foreign and security policy (CFSP) as laid down in
Article 21(2), points (a), (b), (c) and (h), TEU; not contravening the security and defence interests of the Union
and its Member States, including respect for the principle of good neighbourly relations with the Member States;
and having a political dialogue with the Union, which should also cover security and defence aspects when
participating in a PESCO project;
— as regards the condition set out in Article 3, point (b), of Decision (CFSP) 2020/1639 on the substantial added
value of Switzerland to the PESCO project Cyber Ranges Federations, the notification provides a detailed outline
of Switzerland’s contribution, including on the scope, form and extent of its participation in the project, which
substantiates the fulfilment of that condition;
— as regards the condition set out in Article 3, point (c), of Decision (CFSP) 2020/1639, Switzerland’s participation
in the PESCO project Cyber Ranges Federations will contribute to strengthening the common security and
defence policy (CSDP) and the Union’s level of ambition, including in support of CSDP missions and operations,
as also specified in the notification;
— as regards the condition set out in Article 3, point (d), of Decision (CFSP) 2020/1639, the PESCO project Cyber
Ranges Federations does not involve armament procurement, research and capability development, or the use
and export of arms or capabilities and technology; it does not develop any capability or technology.
Consequently, Switzerland’s participation in the project will not lead to dependencies on it or to restrictions
imposed by it against any Member State of the Union;
— the condition set out in Article 3, point (e), of Decision (CFSP) 2020/1639 as regards the consistency of
Switzerland’s participation with the relevant more binding PESCO commitments, as specified in the Annex to
Decision (CFSP) 2017/2315, is also met, as further detailed in the notification. As the PESCO project Cyber
Ranges Federations is not a capability-orientated project, the condition concerning the contribution of
Switzerland’s participation to fulfilling priorities derived from the Capability Development Plan and the
Coordinated Annual Review on Defence (CARD) or having a positive impact on the European Defence
Technological Industrial Base (EDTIB) is not applicable in this context;
— the requirement set out in Article 3, point (f), of Decision (CFSP) 2020/1639 is fulfilled as the Agreement
between the Swiss Confederation and the European Union on the security procedures for the exchange of
classified information(4) has been in force since 1 June 2008;
(4) Agreement between the Swiss Confederation and the European Union on the security procedures for the exchange of classified
information (OJ L 181, 10.7.2008, p. 58, ELI: http://data.europa.eu/eli/agree_internation/2008/568/oj).
2/3 ELI: http://data.europa.eu/eli/dec/2025/967/ojEN
OJ L, 21.5.2025
— the condition set out in Article 3, point (g), of Decision (CFSP) 2020/1639 is not applicable in this case, as the
PESCO project Cyber Ranges Federations is not implemented with the support of the EDA and therefore an
administrative arrangement which has taken effect with the EDA is not required;
— as regards the condition set out in Article 3, point (h), of Decision (CFSP) 2020/1639, Switzerland has
committed to seeking to conclude a project-specific administrative arrangement and any other necessary
documentation in accordance with Decision (CFSP) 2017/2315 and Council Decision (CFSP) 2018/909(5)
concerning PESCO governance rules.
(9) In its opinion, the PSC recommended that the Council take a positive decision as to whether the participation of
Switzerland in the PESCO project Cyber Ranges Federations meets the conditions set out in Article 3 of Decision
(CFSP) 2020/1639.
(10) The Council should therefore decide that the participation of Switzerland in the PESCO project Cyber Ranges
Federations meets the conditions set out in Article 3 of Decision (CFSP) 2020/1639. Switzerland will join that
project on the date specified in the administrative arrangement to be entered into by Switzerland and the project
members, in accordance with Article 2(7) of Decision (CFSP) 2020/1639. The Council will exercise its oversight in
accordance with Article 5(2) of Decision (CFSP) 2020/1639 and can take further decisions in accordance with
Article 6(2) and (3) thereof,
HAS ADOPTED THIS DECISION:
Article 1
The participation of Switzerland in the PESCO project Cyber Ranges Federations meets the conditions set out in Article 3 of
Decision (CFSP) 2020/1639.
Article 2
This Decision shall enter into force on the date of its adoption.
Done at Brussels, 20 May 2025.
For the Council
The President
K. KALLAS
(5) Council Decision (CFSP) 2018/909 of 25 June 2018 establishing a common set of governance rules for PESCO projects (OJ L 161,
26.6.2018, p. 37, ELI: http://data.europa.eu/eli/dec/2018/909/oj).
ELI: http://data.europa.eu/eli/dec/2025/967/oj 3/3