European Commission launches plan to protect subsea cables

European Commission executive vice-president Henna Virkkunen unveiled the plan to strengthen the security of submarine cables on 21 February in Helsinki.

First announced by EU President Ursula von der Leyen on 9 February in Vilnius, Estonia during the Baltic Energy Independence Day, the Joint Communication unveiled by vice-president Virkkunen introduces a range of measures to bolster the resilience of this critical infrastructure, addressing prevention, detection, response, recovery and deterrence.

Executive vice-president Virkkunen said the European Commission “is taking decisive action to safeguard critical submarine cable infrastructure.” She said the Commission wants to make sure Europe is equipped not only to prevent and detect sabotage to cables but also to actively deter, repair and respond to any threat to critical infrastructure.

Commission High Representative for Foreign Affairs and Security Policy/Vice-President of the European Commission Kaja Kallas said, “Today, no realm of life is free from threats or hostile behaviour. Recent attacks against underwater cables underline this clearly. This is vital infrastructure that keeps us connected online and our energy flowing, not just between EU member states but between Europe and many other regions across the world. 

“Today we are taking steps to protect cables, detect and anticipate threats more quickly, and repair damage as fast as possible. We should mobilise all our strengths, military and civil capacities to ensure surveillance and attribute attacks quicker, sanctioning those responsible of sabotage. Would-be perpetrators must also be deterred.”

Communication cables connect EU member states to one another, link islands to the EU mainland, and connect the EU to the rest of the world, carrying 99% of inter-continental internet traffic. Subsea electricity cables facilitate the integration of member states’ electricity markets, strengthen their security of supply, and deliver offshore renewable energy to the mainland. 

However, in recent weeks and months, submarine cable incidents have risked causing severe disruptions in essential functions and services in the EU, impacting the daily lives of EU citizens. The initiative responds directly to these threats.

The Joint Communication is designed to support all member states, including those in the Baltic Sea Region, which have seen a significant increase in cable incidents. 

Among the measures introduced included preventative measures such as stepping up security requirements and risk assessments for submarine cables, prioritising funds for the deployment of new and smart cables, allowing for increased redundancies and consequently enhancing resilience.

Other measures focus on detection and on enhancing threat-monitoring capabilities in seas such as the Mediterranean and Baltic Seas, to build a comprehensive situational picture that will enable earlier alerts and more effective responses.

The third key measure focuses on response and recovery, and on improving the efficiency of the EU-level crisis framework for swift action to increase repair capacity to ensure swift repair of damaged cables. The fourth measures, deterrence, includes enforcing sanctions and diplomatic measures against hostile actors and the ‘shadow fleet. ‘This also includes fostering ‘cable diplomacy’ with global partners.

The measures complement ongoing work by the Submarine Cable Infrastructure Expert Group, composed of member states and the EU Agency for Cybersecurity (ENISA). The actions are also complementary to NATO’s existing activities and support national and regional endeavours.

The European Commission will roll out specific actions progressively in 2025 and 2026 together with the member states and ENISA. By the end of 2025, the Commission and the High Representative are expected to present, among other actions, the mapping of existing and planned submarine cable infrastructures, a Coordinated Risk Assessment on submarine cables, a Cable Security Toolbox of mitigating measures and a priority list of Cable Projects of European Interest.