Prepared for War, or Sweden’s Comprehensive Defense
Sweden has undergone a profound transformation in its perception of its national defense system. For a long time, the country officially adhered to the principle of neutrality in wartime and nonalignment with military blocs in peacetime. After a short war with Norway in 1814, Sweden was no longer directly involved in any military conflict. Since the beginning of the 20th century, the principle of neutrality, along with ensuring its own security through a powerful national defense system, has become the official basic principle of Sweden’s foreign policy.
However, the turning point was the increasingly aggressive policy of the Kremlin. Even without a land border with Russia, Stockholm initiated large-scale changes to its Comprehensive [1] Defense Doctrine, based on two pillars: military and civilian. Today, Sweden serves as one of the most important examples for the countries of Central and Eastern Europe of how to consistently build civilian defense.
Sweden, which ten years ago had limited military capabilities and actually abandoned universal military service, now plans to increase the number of its Armed Forces to more than 130,000 by 2035 and maintains a network of approximately 65,000 shelters. At the same time, a requirement was introduced for citizens to be prepared to survive on their own for a week, which clearly demonstrates that comprehensive defense is not the exclusive prerogative of the military, but depends on the joint efforts of the entire society. From a regional perspective, this means combining military modernization with the consistent strengthening of civilian defense.
Today, the Swedes are not talking about “peace in the Baltic”, but about systemic preparedness. Their response is multilevel: rapid restoration of military capabilities; survival of citizens for a week, relying on their own forces and resources; ensuring continuous stay of the population in shelters for at least 48 hours. This is the “state-society” doctrine, in which the responsibilities of individuals, local authorities, and the state are defined from above. The state feels threatened, and the state responds.
The Evolution of the Swedish Security System
For a long time Sweden had been associated with the concept of neutrality, which was based on a unilateral commitment not to participate in international wars and conflicts, as evidenced by Stockholm’s official position during the two world wars [2].
The country continued this policy during the Cold War, although that created difficulties due to Sweden’s geostrategic role for both blocs. This security policy doctrine was in effect until the 1990s. At that time, the collapse of the USSR and the bipolar system meant that the previous policy had to be revised, so Sweden focused on integration within the European Union, but without NATO membership. The period of geopolitical détente led to the abandonment of general military duty and the redirection of funds to international peacekeeping efforts [3].
A sober diagnosis was made in 2014, after the occupation of Crimea by Russia. This led to the development of a number of plans, although their implementation took place only after Russia’s full-scale aggression against Ukraine in 2022. The decision to join NATO was finally made in March 2024, and Sweden became the 32nd member of the North Atlantic Alliance. This was an important step, as the country overcame longstanding public reluctance and political restraint to participate in military blocs.
Volodymyr Palyvoda
Although Sweden had pursued a policy of neutrality for many years, it has been developing a comprehensive defense framework based on four pillars: military, civilian, psychological, and economic. It is now the basis of the national security system, which is based on military and civilian components. The former consists of a professional army, reservists and conscripts equipped with modern weapons systems. The latter covers state administration bodies, local governments, organizations, enterprises and ordinary citizens who must be prepared to function in a war. This doctrine is aimed at ensuring the protection of the territory from armed aggression, national sovereignty, protection of the population and sustainability of the most important functions of the state in situations of aggression and war.
In reality, this means that in case of an attack on Sweden, every citizen is obliged to defend the homeland. According to the Comprehensive Defense Duty Act, adopted in 1994, this obligation applies to all citizens aged 16 to 70. Compulsory military service under conscription applies to citizens aged 19 to 47.
This applies not only to wartime – one of the key principles of Sweden’s defense strategy is home defense preparedness, i.e., the ability to survive without government assistance for at least a week (previously, this period was 72 hours). Lists of necessary items and an official map of shelters can be found on the websites of the Swedish Civil Contingencies Agency (MSB [4]) and the government portal Krisinformation.
Developing resilience through the involvement of all government agencies and society has also proven to be critical for the Swedes. This was made possible by the welfare state model, which is a distinctive feature of the Scandinavian countries. Providing a high level of education, healthcare, and social services fosters a sense of shared responsibility and concern for the common good.
Volodymyr Palyvoda
In 2017, the doctrine was reinforced by the reintroduction of compulsory military service for both men and women. In 2024, approximately 7,000 conscripts were trained; the plan is to train at least 10,000 people annually until 2030 and approximately 12,000 annually between 2032 and 2035. The human potential of the Armed Forces for the duration of the war is currently approximately 88 thousand people (military servicemen and civilians). By 2030, this number is planned to increase to approximately 115 thousand people, and by 2035 – to about 130 thousand people.
Sweden’s defense potential also includes a well-developed military infrastructure that has evolved despite a longstanding policy of neutrality. This has resulted in a comprehensive and deeply decentralized system of garrisons, airfields, food and ammunition depots, which ensures fast, safe and efficient mobilization of forces across the country. Thanks to this, Sweden is now developing its position as a hub country, playing a key role as a logistics support base for the North Atlantic Alliance. On August 21, 2025, the government announced that the headquarters of NATO’s Joint Logistics Support Group will be located in Enköping, which will be fully operational by the end of 2027. It is designed to coordinate transportation, fuel, ammunition and spare parts in both peacetime and wartime.
Efforts to strengthen Sweden’s military capabilities are reflected in the new Defense Strategy for 2025-2030, adopted in December 2024. Stockholm’s priorities include speeding up the formation of military units, further modernizing the army, developing new technologies, and increasing defense capabilities against potential threats from Russia.
This will undoubtedly be associated with an increase in military spending. It is worth pointing out that in 2024, the state allocated 2.14 % of GDP for military spending, and the government expects further increase to 2.6 % of GDP in 2028. In addition, a commitment has been made to meet a new NATO target set at the Hague Summit in June 2025. It envisages an overall investment threshold of 5 % of GDP: at least 3.5 % for defense spending and approximately 1.5 % for related security investments.
Civil Defense As the Basis of the Comprehensive Defense Doctrine
According to the dominant approach in Sweden, civil defense begins with the individual attitude of citizens and their readiness. The state officially recognizes 18 voluntary defense organizations with approximately 350-380 thousand members. They provide communications, logistics, medicine, and other specialized tasks within the broadly defined framework of comprehensive defense. These organizations operate at the local level and demonstrate the importance of grassroots efforts in the overall defense of the country.
Another element is a training program that goes beyond military topics. Sector-specific exercises are organized for the energy, transportation, telecommunications, and medical sectors. Their goal is to prepare employees in critical industries to work in case of an air attack. As in Finland, young people can also participate in the training. An example is the Hemvärnets ungdomsverksamhet program, designed for 15 to 20-year-olds, which provides knowledge of survival, orientation, first aid, and basic military skills. This program is an important element in shaping defense attitudes among young people and preparing them for future service in territorial defense structures. In 2024, a nationwide interagency exercise was held to coordinate the transportation and treatment of the wounded, which was conducted in parallel with the NATO-adapted Civilian Medical Operations exercise.
Critical Infrastructure and Public-Private Partnership
Sweden has a system of civilian shelters that includes approximately 65,000 facilities with a total capacity of about 7 million people. This provides protection for approximately 70 % of the population. The network of shelters is not designed to cover all citizens; priority is given to areas that are difficult to evacuate: large cities and metropolitan areas, as well as regions considered strategic. In peacetime, shelters can perform other functions, but in case of war or high alert, they must be ready for use within 48 hours.
It is worth noting that Sweden is a country where critical infrastructure, including the shelter system, is usually privately owned. Therefore, public-private cooperation is crucial for strengthening resilience. The example of Stockholm demonstrates the need to develop public awareness of how to strengthen their own security. The principle of reciprocity is fundamental here – if the state fulfills its promises by providing an adequate level of public services, citizens will feel responsible for what matters most to them. The owner of the facility (usually a private individual or a municipal organization) is responsible for maintenance and 48-hour readiness, which is clearly stated in the instructions for owners.
Increasing Social Resilience – Institutional Support
Faced with hybrid attacks, Sweden is striving to develop a crisis preparedness system. This requires strong institutional support, which relies on specialized institutions such as the Ministry of Defense’s Radio Intelligence Center (FRA [5]), the Swedish Security Service (SÄPO [6]), and the MSB.
The Swedish Psychological Protection Agency, established in 2022, deserves special attention. It is the only organization of this type in the Nordic countries that coordinates the activities of various structures in the field of psychological resilience. Its main task is to detect, analyze and support the population in countering disinformation in peacetime and wartime. The FRA is responsible for radio intelligence and communication protection, the SÄPO – for internal security and counterintelligence, and the MSB plays a key role in civil defense and preparedness planning in peacetime and during high alert.
Sweden As an Example to Follow
Sweden’s national security system is a unique combination of universal civilian preparedness with dynamically developing Armed Forces, an extensive shelter infrastructure, large-scale training programs and defense organizations, supported by a strong institutional framework. For the Swedes, the Doctrine of Comprehensive Defense has become the basis, which means the development of both the military-arms component (restoration of compulsory military service, modernization and purchase of military equipment) and the civilian component, which is manifested in the intensification of civil defense efforts. This doctrine is based on a high level of public awareness, so that most initiatives are implemented at the grassroots level, while the state supports and ensures their activities.
The Swedish Comprehensive Defense Doctrine confirms that national security requires a multilevel approach. The combination of a modern army, an extensive infrastructure of shelters, and an informed society creates a system that is difficult to undermine, even in the face of a threat from Russia. Only then will it be possible to ensure a real ability to respond to crises and fully utilize NATO’s allied potential. As the Swedish saying goes: “When there is a threat, everyone must be ready”.
Volodymyr Palyvoda,
expert in international relations
Notes:
[1] Comprehensive (Total) Defense is a security doctrine that considers the defense of the country not only as a military task, but as a complex process that covers defense at all levels: military, economic, information, cyberspace and in the field of psychological resilience of society. On March 25, 2021, a Presidential Decree approved the Military Security Strategy of Ukraine entitled “Military Security – Comprehensive Defense”, which still focuses on the military component. However, in reality, this system has already begun to work, especially after Russia’s full-scale invasion in 2022, thanks to an active volunteer movement and voluntary involvement of all spheres of society in defense. It should be noted that the authors of the Strategy used the term “vseokhopliuiucha”, although the use of active voice participles with -uch-, -iuch- is not recommended by the norms of the modern Ukrainian language.[2] Long before the First World War, Sweden had been under strong German influence. The country was leaning toward an alliance with Germany and intensified military preparations, justifying them by the danger from the Russian Empire caused by the latter’s policy in Finland. At the beginning of World War I, Sweden, like other Scandinavian countries, declared its neutrality. However, Sweden’s neutrality still tilted in favor of Germany. At the beginning of World War II, Sweden’s neutrality was officially declared again. However, the country supported Finland during its war with the USSR. In the early stages of the war, Nazi Germany preferred to have Sweden as a neutral state. The plan to capture it (“Polar Fox”) came later. Despite its formal neutrality, Sweden granted Germany all sorts of privileges and made concessions to the German side. Weapons transited through its territory to German troops. Sweden provided loans to Germany, supplied weapons, and was the largest supplier of iron ore for the needs of the military industry of the Third Reich. Even today, Sweden is investigating into the ties of Swedish business and the royal house (in particular, King Gustaf V) with the Nazis during World War II.
[3] Swedish military contingents have participated in peacekeeping operations in Africa, the Middle East and East Asia under the auspices of the United Nations.
[4] The acronym for the Swedish name – Myndigheten för samhällsskydd och beredskap.
[5] The acronym for the Swedish name – Försvarets radioanstalt.
[6] Acronym for Säkerhetspolisen in Swedish.
