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INSIGHTi
NATO: Finland and Sweden
Seek Membership
Updated July 14, 2022
On June 29, 2022, heads of state and government from NATO’s 30 member states (see Figure 1)
unanimously agreed to invite Finland and Sweden to join the alliance. Finland and Sweden formally
applied for membership on May 18, prompted by heightened security concerns about Russia after its 2022
invasion of Ukraine. Finland’s and Sweden’s applications marked a historic shift for these traditionally
militarily nonaligned countries. The Biden Administration and many Members of Congress support
Finland and Sweden joining NATO, arguing that the addition of these two mature democracies with
advanced militaries will enhance security in the Baltic Sea region and the broader Euro-Atlantic area. For
Finland and Sweden to join the alliance, all NATO members must ratify requisite amendments to NATO’s
founding North Atlantic Treaty; U.S. ratification requires Senate advice and consent.
Finland’s and Sweden’s NATO Aspirations
Russia’s 2022 war against Ukraine has upended decades of Finnish and Swedish security policy that
sought to balance political, economic, and cultural ties to the West and relations with Russia. After the
Cold War, Finland and Sweden joined the European Union (EU) and established close partnerships with
NATO. Both Finland and Sweden have participated in numerous NATO operations and have
technologically advanced militaries that are interoperable with NATO. Public support for NATO
accession—and the added security of NATO’s “Article 5” mutual defense clause—has skyrocketed in
both countries since Russia’s invasion of Ukraine; recent polls indicate support at 76% in Finland and
59% in Sweden.
U.S. officials from the Departments of State and Defense concur with Finnish and Swedish assertions that
the two countries would be “security providers,” strengthening NATO’s defense posture in the Baltic
region in particular. Finland is expected to exceed NATO’s 2% GDP defense spending target in 2022, and
Sweden has committed to meet the 2% goal “as soon as possible.”
Some analysts express concern that Finland’s and Sweden’s accession could provoke Russia and question
NATO’s ability to defend Finland’s 830-mile border with Russia (which would double NATO’s overall
borders with Russia). Finnish officials contend that Finland has long defended its own borders and would
continue to do so as a NATO member. Finland and Sweden also have strong traditions of societal
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resilience and substantial experience dealing with Russian disinformation efforts, cyberattacks, and
hybrid threats.
Russia’s Reaction
Russia has long opposed closer integration between NATO and Finland and Sweden. Over the past
decade, Russia has used aggressive displays of military force (via exercises and territorial air and sea
incursions) to signal its displeasure with enhanced cooperation between Finland and Sweden and NATO.
Immediately prior to Finland’s and Sweden’s NATO applications, Russia’s Foreign Ministry stated,
“Russia will be forced to take retaliatory steps, both of a military-technical and other nature, in order to
neutralize the threats to its national security that arise from this.” Subsequently, Russia has publicly
played down the situation. Russian President Vladimir Putin stated that Finnish and Swedish accession
pose “no direct threat for Russia” but emphasized that “expanding military infrastructure” could be
viewed as a threat and could “provoke a response.” Analysts note that Russia’s ongoing conflict in
Ukraine may limit its conventional military options to oppose Finland’s and Sweden’s NATO accession.
NATO’s Accession Process and Current Status
Since NATO’s creation in 1949, the alliance has grown from 12 founding members to today’s 30
members through eight rounds of enlargement. On July 5, 2022, allied governments signed protocols to
the North Atlantic Treaty to allow the accession of Finland and Sweden. NATO members now must ratify
the amended treaty according to national procedures, which vary by country. There is no set timeframe for
the ratification process—for recent enlargements the process has taken about 13 months. NATO officials
are hopeful that accession could be complete by the end of 2022. Exact timing could depend on a number
of factors, including national political and legislative calendars and possible delays in those countries that
require parliamentary approval of enlargement.
Opposition from NATO member Turkey initially delayed the start of the accession process for Finland
and Sweden. The Turkish government agreed to support the applications following more than a month of
consultations that culminated in an agreement to address concerns raised by Turkey about Finland’s and
Sweden’s perceived support for terrorist groups, especially those linked to the Kurdistan Workers’ Party
(or PKK, a U.S.- and EU-designated terrorist organization). Turkey’s parliament still must ratify the
amended NATO treaty for Finland and Sweden to accede.
Role of Congress and U.S. Policy
In the United States, once accession protocols are signed, the Administration sends them to the Senate for
its advice and consent. President Biden submitted accession protocols for Finland and Sweden to the
Senate on July 11, 2022. The amended treaty is referred first to the Senate Committee on Foreign
Relations, which then would report it to the Senate, where it requires a vote of two-thirds of Senators
present for passage. If the Senate were to pass a resolution of ratification, the resolution would be
transmitted to the President, who would decide whether to enter the treaty on behalf of the United States.
(Also see CRS Report 98-384, Senate Consideration of Treaties.) In anticipation of the submission of
accession protocols, the Senate Foreign Relations Committee held a hearing on June 22, 2022, on NATO
enlargement to Finland and Sweden.
President Biden has committed to help “deter and confront any aggression” against Finland and Sweden
during the period before accession. U.S. officials have not provided specifics on U.S. security assurances,
which may include an increased U.S. military presence and more joint training exercises. Resolutions of
support for Finland’s and Sweden’s NATO accession have been introduced in both the House (H.Res.
1130) and the Senate (S.Res. 646).
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Figure 1. NATO Countries and Aspirants
Source: CRS Graphics. Map updated June 2022.
Notes: Bosnia and Herzegovina, Georgia, and Ukraine are also formal aspirants for NATO membership.
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Author Information
Kristin Archick
Andrew S. Bowen
Specialist in European Affairs
Analyst in Russian and European Affairs
Paul Belkin
Analyst in European Affairs
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
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as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
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