How we got here
The history behind the risk
Demand aggregation precedes industrial delivery
NATO’s February 2025 Defence Production Action Plan built on the 2023 Vilnius plan, emphasising clearer demand signals, multiyear multinational procurement, capacity and common standards. Its industrial logic separates spending commitments from procurement, contracts, investment and delivery. Aggregated orders can strengthen the investment case, but workforce shortages, components and incompatible requirements can still limit output. This provides the structural benchmark for assessing later bilateral production agreements: a defined assembly function is more concrete than a general partnership, but still precedes demonstrated production.128
Supply availability and access are different constraints
The IEA’s 2025 outlook found that supply growth in 2020–2024 remained concentrated among established producers, especially in refining, even as several battery-metal prices fell in 2024. It also recorded expanding export controls, including China’s December 2024 restrictions on gallium, germanium and antimony exports to the United States. A later, entity-specific episode came on 24 July 2026, when China restricted Chinese-origin dual-use transfers to 14 EU entities, including Rheinmetall. That episode illustrates how origin-based controls can reach overseas intermediaries; it does not establish continuing disruption at the named firms.134
Funding execution and force planning remain separate milestones
Financing and posture decisions also shape the procurement environment. On 25 June 2026, the EU disbursed a first €3.2 billion macro-financial tranche under its €90 billion Ukraine Support Loan; the broader framework included defence-industrial support, but that payout was not itself a weapons order. August reporting described a Pentagon Europe-posture review with options due on 6 November, covering basing, allied procurement and industrial cooperation. That historical deadline is not confirmation that options were submitted or forces changed; the evidence contains no subsequent outcome.39