EU leaders gathered in Brussels on Thursday and Friday faced a web of challenges that could shape the bloc’s course for months to come. Behind the pauses and tough negotiations stood questions about the budget, about Ukraine and the Western Balkans, and about how to keep unanimity when consensus is hard to reach. A review of the budget framework looms large as a potential fork in the road for the year’s closing summit, with the broader Middle East crisis adding another layer of urgency to the talks.
Officials stressed that decisions would be driven by a sense of urgency and a common purpose. One senior source said that work is intense and the aim is to move forward on issues that matter most for the EU’s political project. In recent days, leaders in Brussels reaffirmed that the bloc’s future hinges on unity and continued engagement with the Western Balkans, Ukraine, Moldova, and Georgia. As part of this approach, Brussels announced a fresh package aimed at boosting investments in these countries so that ties with the region can deepen in tangible ways.
Amid the discussions, Viktor Orban kept a firm line, signaling that rapid enlargement of the EU to include Ukraine could carry unforeseen consequences for Hungary and for the bloc. His stance added to the uncertainty just hours before the summit began. The European Commission recently proposed keeping some funds on track, even as tough choices over the overall budget frame remain under debate. The move to release funds was met with a cool reception in Parliament and among several member states who want to see more clarity on how money is allocated and what conditions Ukraine must meet.
The Commission’s stipulations for Ukraine to begin accession talks were clarified earlier, and European leaders noted that most of the reforms requested by Brussels have been implemented in Kyiv. The plan still requires careful adherence to a new lobbying law and further actions meant to curb the influence of oligarchs. The argument put forward by EU officials was that Ukraine’s commitment to reform and its demonstrated unity under pressure have shown a serious degree of resolve that should be rewarded with continued support and a clear path forward.
Orbán keeps his finger on the pulse
Orban’s view diverges from the majority. He warned in parliament that accelerating Ukraine’s entry could trigger unintended consequences, arguing that Hungary and the wider EU would not benefit from a hasty process. While some capitals have signaled readiness to push ahead, others, including Italy, Austria, and Slovakia, have stressed that insufficient budget headroom means no extra funds for Kyiv unless priorities elsewhere are fully funded. The debate touched on both military and financial support and the timing of the first talks on accession, with some leaders insisting there is no room to delay important decisions. The Finnish prime minister, Petteri Orpo, echoed concerns about keeping the window open for Ukraine without undermining national priorities.
A Brussels diplomat described the moment as pivotal. A Belgian leader warned against what he called a coercive approach and urged a united front in support of Ukraine. Diplomatic circles across the spectrum agreed that the most consequential decision to be taken in the days ahead concerns enlargement and the associated funding—paired with a separate move on Russia sanctions—and that those choices would set the tone for the bloc’s outward posture toward its neighborhood and beyond.
Unanimous decisions
President Charles Michel acknowledged that the council would face a difficult path and stressed the need to stay pragmatic. He underscored the EU’s founding principle that many decisions are taken by consensus and that the union should be prepared to adjust its decision-making processes only when necessary to account for differing views. Estonian prime minister Kaja Kallas noted that, while some gaps remain, listening to all concerns remains essential as discussions progress and as the bloc builds its shared position.
The draft conclusions reflected an alignment with the Commission’s stance: support for opening accession talks with Ukraine and Moldova, while considering Georgia for candidate status. Bosnia and Herzegovina continues to await a clear invitation to begin negotiations, with a readiness to proceed once accession criteria are demonstrably met. The process remains contingent on ongoing reforms and on meeting the set conditions that define EU standards.
Budget review
Beyond enlargement, the budget framework for 2021–2027 dominates the agenda. Ahead of the summer, the plan included a substantial reinforcement of financing to address the consequences of Russia’s aggression in Ukraine and other priorities like migration management and European competitiveness. A notable portion, estimated around 50 billion, was earmarked to support Ukraine through loans and grants, a figure that has drawn resistance from several governments worried about overall spending levels and competing claims on funds. Diplomats warned that failure to find agreement could have diplomatic repercussions and affect on-the-ground support.
Negotiations have split along lines: some member states advocate targeting funds solely to Ukraine, others oppose additional allocations unless other priorities are funded, and a broader group argues for a flexible approach that allows for aid while balancing overall fiscal discipline. Estimates indicate a potential reduction in requested funds from initial levels as negotiators seek a viable compromise that satisfies both the Union’s budget discipline and Kyiv’s needs. The discussions also touched on the possible ripple effects across the region, with some diplomats cautioning that any stumble could affect other geographic and policy priorities.
The political weight of the budget review extends into the Middle East. The Twenty-Seven discussed the Gaza situation again in light of recent General Assembly votes and called for the release of hostages and a humanitarian pathway for civilians. Michel and other officials stressed the importance of maintaining unity as the bloc considers its approach to the crisis and the broader regional balance—an issue that could influence the pace of the EU’s external agenda and its internal cohesion.