The European Union heads of state and government reached an agreement on further support for Ukraine at a special EU summit in Brussels on Thursday, but without the backing of Hungarian Prime Minister Viktor Orbán.
After United States President Donald Trump put his country's military support for Kyiv on pause, most leaders were keen to underline continued European support. After all, they want Ukraine to appear at the negotiating table in as strong a position as possible. Additionally, there can be no peace negotiations without Ukraine, they stressed.
"We all want peace, but the difference is that 26 Member States believe the path to peace is through strengthening Ukraine's defence capabilities," said European Council President António Costa afterwards. "Hungary has isolated itself from that consensus, but an isolated country does not mean division. We respect the Hungarian position, but it is one position out of 27, and the 26 are with more."
Orbán – who has good ties with both Trump and Russian President Vladimir Putin – had indicated in the run-up to the summit that there are "strategic differences in our approach to Ukraine" compared to the rest of the 26. He called for direct negotiations with Russia on a ceasefire and a lasting peace agreement, as did Washington.
Stepping up efforts
As the difference in views proved unbridgeable, Costa quickly opted for a text backed by 26 Member States. In it, they reiterated their outlines: no negotiations on Ukraine without Ukraine, no negotiations on the European security order without Europe, and a ceasefire is only possible as part of a process leading to a comprehensive peace agreement accompanied by strong security guarantees for Ukraine and respecting its independence, sovereignty and territorial integrity.
The text also hails "the willingness of Member States to urgently step up efforts to meet Ukraine's urgent military and defence needs." These include the supply of anti-aircraft, ammunition and missiles and the training of Ukrainian soldiers.
According to Costa, Member States are said to have already promised some €15 billion in additional military support. The text also refers again to High Representative Kaja Kallas' plan to provide additional military support at the EU level.
Hungarian Prime Minister Viktor Orbán with his Cypriot counterpart Nikos Christodulides. Credit: European Union
The 26 European leaders also see a strong Ukrainian army as a key pillar of future security guarantees that should deter Russia from attacking Ukraine again in the future. Member States could also be given additional space to supply military equipment to Ukraine in the context of plans to strengthen European defence, a text that Orbán did support earlier in the day.
While Slovakia is also not in favour of military support to Ukraine, its Prime Minister Robert Fico appeared willing to support the text after adding a passage on gas transit through Ukraine – a key supply line for Slovakia.
It called on the Commission, Ukraine and Slovakia to "step up their efforts to find workable solutions to the gas transit issue, taking into account Slovakia's concerns."
Strengthening European defence
The Member States also reached an agreement on strengthening European defence. Among other things, they ask the European Commission to further develop its plans to pump extra money into the defence industry.
"The European Council stresses that Europe must become more sovereign, more responsible for its own defence and better prepared to face challenges and threats autonomously," the summit conclusion stated. "Russia's war of aggression and the repercussions for European and global security in a changing environment are an existential challenge for the European Union."
For the first time, they also identified a list of priority areas to invest in. These include air and missile defence systems, artillery systems, missiles and munitions, drones and anti-drone systems, military mobility, cyber security, AI and electronic warfare.
Now, Member States are asking the Commission to develop the plans further and turn them into legislative initiatives by the next European summits, on 20 and 21 March. On 19 March, the Commission will also publish its white paper on the future of European defence. This is expected to propose longer-term initiatives as well.
European Commission President Ursula von der Leyen also stressed that the new proposals must be adopted quickly, and was satisfied that she could invoke Article 122 of the Treaty on the Functioning of the European Union.
This allows, in case of emergency, for a proposal to be adopted only by the Council without also seeking the approval of the European Parliament. Therefore, it will take "not months, but weeks" to approve the plans, she said.
