

It does. Literally all infrastructure spending can be used against the 5% spending goal.
That’s how they got it through, Trump got a bigger number to boast about, NATO countries got to include all infrastructure so that there isn’t really that much of an increase above the 2% spending goal.
Most countries are not spending more than 3% of their GDP on infrastructure every year as far as I know. Not for the stuff actually covered by this at least.
It might be a net decrease in defence spending for some countries, but then there’s the argument that infrastructure spending is indeed defence spending.