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The Guardian - UK
The Guardian - UK
World
Lili Bayer in Brussels

Deal reached to open EU accession talks with Ukraine and Moldova – as it happened

European Union Ukraine Charles Michel Viktor Orbán Emmanuel Macron Europe Olaf Scholz European Council Budapest
Viktor Orbán speaks to Emmanuel Macron as Greece's prime minister Kyriakos Mitsotakis looks on.
Viktor Orbán speaks to Emmanuel Macron as Greece's prime minister Kyriakos Mitsotakis looks on. Photograph: Yves Herman/Reuters

Summary of the blog

  • Leaders from the EU’s 27 countries met in Brussels for the first day of their December summit.

  • In a historic move, the European Council decided to open accession negotiations with Ukraine and Moldova.

  • Hungary’s prime minister, Viktor Orbán, in the morning doubled down on his position opposing opening accession negotiations with Kyiv.

  • French president Emmanuel Macron, German chancellor Olaf Scholz and senior EU officials met with Orbán ahead of the summit in a bid to bring him on board.

  • Addressing the EU leaders via videoconference, Volodymyr Zelenskiy asked heads of state and government not to “betray” faith in Europe.

  • After hours of talks, Orbán walked out the room as leaders formally made the decision to open accession talks – thus getting unanimity.

  • The Hungarian prime minister said “Hungary does not want to share in this bad decision, and for this reason Hungary did not participate in the decision today.”

  • European Council president Charles Michel called the leaders’ decision to open accession talks a “very powerful political signal.”

  • Zelenskiy said “this is a victory for Ukraine. A victory for all of Europe. A victory that motivates, inspires, and strengthens.”

  • Maia Sandu, Moldova’s president, said her country “turns a new page today.”

  • Asked about Orbán’s comments following the decision, Belgian prime minister Alexander De Croo said “or, if you’re a part of a decision, you agree with the decision, or afterwards you just have to keep your mouth shut.”

  • The European Council also decided to grant the status of candidate country to Georgia, on the understanding that the relevant steps set out in a Commission recommendation are taken.

  • The European Council also said the bloc will open accession negotiations with Bosnia and Herzegovina, once the necessary degree of compliance with the membership criteria is achieved.

  • Leaders discussed proposed changes to the bloc’s long-term budget, including a new financial package for Ukraine.

‘You just have to keep your mouth shut’, Belgian PM says

Belgium’s prime minister, Alexander De Croo, drew attention with comments reacting to Viktor Orbán’s decision to leave the room while leaders made their decision on Ukraine.

You know, a decision of the council is a decision that binds that binds 27 countries. I think these are the rules of the game and everyone knows that these are the rules of the game.

If you decide, and you agree to that decision – which is what the 27 in the room did – then you should not afterwards say: ‘Well, I have a different opinion on this.’

Or, if you’re a part of a decision, you agree with the decision, or afterwards you just have to keep your mouth shut.

De Croo started to walk away then said:

I should not have said that.

Updated

‘Mixed bag’

Katalin Cseh, a Hungarian member of the European parliament from the opposition Momentum party, said today’s decision was a “mixed bag”.

Ukraine & Moldova proceeding to accession talks: historic

The Commission falling for a dirty blackmail: pathetic

Orban *leaving* the room: deplorable

Let’s focus on the first one— a new chapter for the EU.

Updated

The MEP Philippe Lamberts, co-president of the Greens group in the European parliament, welcomed the news that the EU would open accession talks with Ukraine and Moldova.

EU leaders have avoided the worst possible outcome and managed to show support to Ukraine by opening accession talks.

Hungarian prime minister Viktor Orbán has backed down from his threats of a veto over Ukraine. However, if this is the result of a €10bn bribe then this is an unacceptable way for the EU to do business.

Updated

Donald Tusk, in his first European Council summit since returning to the prime minister’s office in Poland, said:

“I dedicate our today’s decision on enlargement to your heroes who gave their lives for an independent and European Ukraine.”

Updated

European leaders have come to an agreement on the 12th round of sanctions against Russian individuals, public bodies and corporations involved in supporting the war in Ukraine.

Details have not been released but the European Commission’s recommended package included proposals to choke off the commercial revenues earned from the Russian diamond trade and against individuals such as the son of Dmitry Medvedev.

In its official communication on European Council conclusions on Ukraine, enlargement and reforms, EU leaders merely state: “The European Council welcomes the adoption of the 12th package of sanctions.”

Here is the full statement.

Updated

“Ukraine will never be alone,” Emmanuel Macron said in a social media reply to Ukraine’s Volodymyr Zelenskiy, who had thanked the French leader for “support that France has provided to Ukraine on this path.”

Chancellor Olaf Scholz wrote: “Germany stands firmly by Ukraine’s side - as long as it takes.”

Updated

Hungarian official hints at future obstacles for Ukraine

Balázs Orbán, prime minister Viktor Orbán’s political director (no relation), has underscored that there will be a host of unanimous decisions ahead related to Ukraine’s path toward EU membership.

“Following extensive negotiations, Hungary opted to exit the meeting room and abstain from the vote—not to obstruct the outcome but to avoid cooperating in what we perceive as a misguided decision,” he said in a social media post.

The political director added:

The European Council’s agreement represents a decision in principle. Subsequently, Member States must also unanimously agree on the specific negotiating framework.

Additionally, a minimum of 70 unanimous decisions will be required throughout the upcoming years to endorse Ukraine’s accession to the EU.

European Council president Charles Michel said he called the leaders of Ukraine, Moldova and Georgia.

“Your future lies within our EU family,” he said.

What does the summit mean for Ukraine?

While there is a recognition that the accession process could take years, in Kyiv, the EU decision to open talks is seen as a game-changer.

“It means so much to Ukrainian people,” said one Ukrainian official.

“We did everything to make it happen,” the official said, adding: “All the government and MPs are just happy, all our efforts and dreams were not destroyed by one of Putin’s friends. And we are grateful to EU leaders.”

What does the showdown with Orbán mean for the EU?

Hungary’s prime minister ultimately relented and left the room when leaders decided to open accession talks with Ukraine and Moldova.

But the EU’s dramatic showdown with Orbán did serve as a reminder of the tough road ahead for the EU as it prepares to enlarge.

The bloc already grapples with how to address rule of law problems and foreign policy divergences in countries such as Hungary, and many leaders recognise that the EU would have to reform internally before expanding.

At Thursday’s summit, leaders also debated the EU’s budget as some member states resist paying more into the bloc’s coffers – another reminder of the challenges ahead if the EU accepts new members that will take up a significant chunk of budget spending.

Updated

What does the summit mean for Orbán?

For weeks, Hungarian prime minister Viktor Orbán insisted that he would block the move, which formally requires unanimous approval from all 27 member states.

His veto threats dominated conversations in Brussels cafés, as diplomats shook their heads and asked, what does he really want? And what do we do?

The European Council president, Charles Michel, flew to Budapest to try to bring the Hungarian leader on board. French president Emmanuel Macron hosted Orbán in Paris. In a last-minute effort, Macron and German chancellor Olaf Scholz were among the senior leaders who sat down with the Hungarian leader.

Meanwhile, in a move critics have described as a bribe, the European Commission unfroze around 10 billion euros earmarked for Hungary, arguing that the country successfully completed judicial reforms.

In the end, after hours of talks on Thursday, Orbán relented – walking out of the room while the other 26 leaders agreed to start negotiations with Ukraine and Moldova, thus allowing for a unanimous decision.

Nevertheless, the days of uncertainty and diplomatic campaign to bring Hungary onboard highlighted that despite his high profile on the European stage, Orbán is a lonely figure – at least for now.

“Orbán achieved what was to be expected - he got self-isolated, by his own choice,” said a senior EU diplomat.

There is speculation that Orbán may be betting on a strong performance for the European far-right in upcoming elections, biding his time for when more like-minded leaders might sit around the table.

But the Hungarian prime minister’s ultimate decision to seemingly back off a threat he had publicly repeated for days puzzled even some of his own colleagues.

“Nobody understands what’s happened,” admitted a Hungarian official.

Updated

‘We will write the future together,’ European parliament president says

Roberta Metsola, president of the European parliament, said: “This is a proud moment for Europe. For Ukraine. For Moldova. For everyone fighting for our values.

“We kept our promises. Now we will write the future together.”

Updated

Read Orbán's justification for his decision to walk out and allow EU to open Ukraine talks

Here is Viktor Orbán’s video with English subtitles.

His full statement:

We have been at the negotiating table for almost eight hours here in Brussels at the prime ministers’ summit.

We are having a big debate about Ukraine’s membership in the European Union. Hungary’s position is clear: Ukraine is not prepared to start negotiations on EU membership.

It is a completely senseless, irrational and incorrect decision to start negotiations with Ukraine under these circumstances.

And Hungary will not change its position.

On the other hand, 26 other countries insisted that this decision be made.

Therefore, Hungary decided that if the 26 decide to do so, they should go their own way.

Hungary does not want to share in this bad decision, and for this reason Hungary did not participate in the decision today.

Negotiations continue with the amendment of the budget.

Updated

‘New page’ for Moldova, president says

Reacting to the European Council decision to open EU accession talks with Moldova, the country’s president, Maia Sandu, said: “We’re feeling Europe’s warm embrace today.”

Updated

‘Powerful’ decision, Michel says after leaders reach deal

Speaking to reporters, the European Council president, Charles Michel, said: “We will open negotiations and a report will be issued in March, and based on that we will make a decision in March.”

He added:

This is extremely important we want to support Ukraine. This is a very powerful political signal, it is a very powerful political decision and today and tonight I think to the people of Ukraine – we are on their side and this decision made by the member states is extremely important for the European Union.

Asked how the decision was taken given Orbán’s threat to veto the green lighting of the negotiations, he referred to the rules of the European Council that requires unanimity for these kinds of decision:

We worked a lot to protect the European Council. It was important no member states would oppose the decision and that is why we were in the position to make this announcement tonight.

European Council President Charles Michel speaks to members of the media, on the day of the European Union and Western Balkans leaders’ summit, in Brussels, Belgium December 14, 2023.
European Council President Charles Michel speaks to members of the media, on the day of the European Union and Western Balkans leaders’ summit, in Brussels, Belgium December 14, 2023. Photograph: Johanna Geron/Reuters

Updated

EU leaders celebrate deal on Ukraine and Moldova

After deciding to open accession talks with Ukraine and Moldova, EU leaders are expressing their enthusiasm that an agreement was reached.

Updated

‘Proud’ to live up to promises, von der Leyen says

The European Commission president, Ursula von der Leyen, said she was “proud that we have lived up to our promises and delighted for our partners”.

Updated

Behind the scenes at the European Council summit.

The European Council president, Charles Michel, came down to speak with reporters after leaders made their historic decision to open accession talks with Ukraine and Moldova.

Updated

Orbán: ‘Hungary doesn't want to take part in this bad decision’

In a video posted on Facebook in recent minutes, Viktor Orbán repeated his position that Ukraine was not ready to begin EU accession talks.

Opening accession negotiations with Kyiv is “irrational” under the current circumstances, the Hungarian leader said.

“Hungary is not modifying its position,” he said, adding that the 26 other member states insisted on taking the step to open negotiations with Ukraine. As a result, he said, Hungary decided the 26 could go their own way while it stayed away from the decision.

Updated

Victory for Ukraine, victory for Europe, Zelenskiy says

The Ukrainian president, Volodymyr Zelenskiy, has reacted to the European Council’s decision to open accession talks.

“This is a victory for Ukraine. A victory for all of Europe. A victory that motivates, inspires, and strengthens,” he wrote.

The president added:

History is made by those who don’t get tired of fighting for freedom.

Updated

Orbán left room during Ukraine decision, diplomats say

The Hungarian prime minister, Viktor Orbán, left the room while leaders made the decision to open accession talks with Ukraine, three EU diplomats told the Guardian.

Updated

It is not clear whether the momentous decision to start negotiations with Ukraine on EU membership was taken with the approval or even blessing of the Hungarian prime minister, Viktor Orbán.

A spokesperson said: “There was a decision taken on enlargement that was not blocked by anyone.”

There is no room for abstention in the EU treaties, raising questions about whether Orbán voted.

Updated

Deal reached to open EU accession talks with Ukraine and Moldova

After hours of talks among the EU’s 27 leaders, the European Council president, Charles Michel, has announced that the bloc’s leaders have “decided to open accession negotiations with Ukraine & Moldova”.

The leaders have also granted candidate status to Georgia, he said, and the EU will open negotiations with Bosnia and Herzegovina “once the necessary degree of compliance with the membership criteria is reached and has invited the commission to report by March with a view to taking such a decision”.

“[This is] a clear signal of hope for their people and for our continent,” Michel said.

Updated

Kuleba pushes back again ‘defeatism’ as EU leaders debate Ukraine support

As leaders discuss Ukraine’s future relationship with Europe, Ukraine’s foreign minister, Dmytro Kuleba, wrote an essay in Foreign Affairs arguing for western partners to stick with Kyiv and focus on the big picture.

“The skeptics are correct that our recent counteroffensive did not achieve the lightning-fast liberation of occupied land,” he said. “But pessimism is unwarranted, and it would be a mistake to let defeatism shape our policy decisions going forward.”

Kuleba also argued that there was a divergence between public discourse and discussions behind closed doors:

At the end of last month, I attended a Nato ministerial meeting in Brussels. What struck me most was the disparity between the mood inside the chamber and the mood outside it.

On the sidelines, reporters opened their questions by asserting that the war had reached a “stalemate” and that “war fatigue” would cripple support, before wondering why Ukraine wouldn’t offer to trade territory for peace.

Yet such defeatist narratives were absent in the official discussions, with ministers making a firm commitment to additional military aid and sustained support.

But he warned against war fatigue narratives impacting policy:

However prevalent a false narrative of attrition becomes, we should not allow it to set policymaking and our shared strategy on a disastrous course. Nor should we be duped into believing that Moscow is ready for a fair negotiated solution.

Updated

The European Greens have spoken out against Viktor Orbán’s position on Ukraine, calling for an end to unanimity voting on EU foreign policy decisions.

European Green co-presidents Thomas Waitz and Mélanie Vogel said:

This case, where a single leader can act as a Trojan horse for Putin, and block the whole process of helping Ukraine, shows once again that the need for unanimity among European member states on foreign policy issues prevents the EU from taking the right decisions.

They added:

The European Green party is in favour of ending the risk of national vetoes on foreign policy, by replacing the unanimity rule by a qualified majority voting rule.

This will be one of the proposals in the green election manifesto, our political platform for the next European elections.

Updated

Meanwhile in Poland …

The Sejm speaker, Szymon Hołownia, Senate speaker, Małgorzata Kidawa-Błońska, and president, Andrzej Duda, took part in a Hanukah celebration, days after a far-right MP doused Hanukah candles in parliament with a fire extinguisher.

Updated

“Today’s hottest photo from EUCO,” wrote Latvia’s prime minister, Evika Siliņa, responding to an image of her and Hungary’s Viktor Orbán that has garnered attention on social media.

Latvia is a strong ally of Ukraine.

Updated

Finland’s Petteri Orpo is also excited to have Poland’s Donald Tusk back at the European Council.

The two leaders are both members of the centre-right European People’s party (EPP).

Updated

Donald Tusk was happy with the heart symbol in the Polish interpretation booth upon his return to the council.

Updated

You can now listen back to Volodymyr Zelenskiy’s speech to European leaders.

Zelenskiy has told EU leaders to think of all the soldiers who are fighting in the trenches, rather than themselves, when they make a decision on the start of negotiations with Ukraine to the EU.

“This isn’t about what politicians need. It’s about what people need. All those people in the trenches, shooting down drones and missiles every night.

“And all those working so children can learn even under constant Russian terror, and doctors can save lives even when Russia tries to destroy our energy or communication systems,” Zelenskiy told EU leaders at their summit in Brussels.

“Today’s decision on opening accession negotiations is also vital for all those people in EU countries who believe that Europe can avoid falling back into old times of endless, fruitless, disagreements between capitals.

“Europe deserves to be strong. Europe’s strength is in unity and resolve.”

Updated

The European Council summit brings together heads of state and government from 27 countries, plus the European Council and European Commission presidents.

The high representative for foreign affairs and the Council’s secretary-general also attend, and the European parliament president joins as a guest.

It’s a who’s who of European politics.

But the gathering also underscores the continued gender imbalances at the top echelons of European power.

There are only a handful of women attending the summit:

Mette Frederiksen, Denmark’s prime minister

Kaja Kallas, Estonia’s prime minister

Giorgia Meloni, Italy’s prime minister

Evika Siliņa, Latvia’s prime minister

Ursula von der Leyen, the European Commission president

Roberta Metsola, the European parliament president

Thérèse Blanchet, the secretary general of the council

Prime Minister of Denmark Mette Frederiksen (R) and President of the European Parliament (EP) Roberta Metsola (L) attend European Union Leaders Summit in Brussels, Belgium on December 14, 2023.
Mette Frederiksen (R) and Roberta Metsola (L) in Brussels on Thursday. Photograph: Anadolu/Getty Images
European Commission President Ursula von der Leyen (L), France’s President Emmanuel Macron (CL), European Parliament President Roberta Metsola (CR) and Latvia’s Prime Minister Evika Silia (R) talk as they attend a roundtable meeting of the European Council at the European headquarters in Brussels, on December 14, 2023.
Ursula von der Leyen (L), Emmanuel Macron, Roberta Metsola and Latvia’s Evika Siliņa (R). Photograph: Miguel Medina/AFP/Getty Images
Dutch PM Mark Rutte talks to Estonian counterpart Kaja Kallas
Dutch PM Mark Rutte talks to Estonian counterpart Kaja Kallas. Photograph: Anadolu/Getty Images

Updated

Leaders take on enlargement debate

EU leaders are moving on to discussions on enlargement and membership negotiation recommendations for Ukraine and Moldova and candidate status for Georgia.

Sources say the leaders have already moved to a discussion on enlargement having achieved “broad agreement” among all 27 on the budget, or known as the multiannual financial framework.

Insiders say budget “tweaks” have now gone to the “sherpas”, senior advisors who will pore over the details to find agreement.

The final question of whether Viktor Orbán will back the €50bn Ukraine facility element of the budget will not be taken until after a decision on enlargement as they are both intrinsically linked.

Sherpas will see if they can find further reductions.

“The sherpas need to agree on everything and bring it back to their leaders,” said the insider.

Insiders say Orbán claimed that Zelenskiy did not need any extra money until after the European parliament election.

Updated

Meanwhile in Bucharest: Romania has summoned the Russian ambassador after another Russian drone crashed in its territory.

Behind the scenes at the summit: journalists gather for a briefing.

Journalists at the European Council summit in Brussels
Journalists at the European Council summit in Brussels. Photograph: The Guardian/Lili Bayer

Updated

What's on the table for the EU budget?

Leaders are considering a compromise proposal for topping up the EU budget.

Earlier this year, the European Commission made a proposal to boost EU budget spending in 2024-2027, asking member states to contribute an extra €66bn for priorities such as Ukraine, innovation, competitiveness and migration.

But some capitals said this is simply too much – and negotiations have been ongoing to find a number and mix of priorities that everyone can agree to.

Today’s compromise proposal, seen by the Guardian, includes the following:

  • €50bn for Ukraine for 2024 – 2027, in the form of €17bn in grants and €33bn in loans. These figures echo the original Commission proposal.

  • €2bn to “support member states in managing urgent challenges and needs related to migration and border management in frontline member states, as well as in those affected by the war in Ukraine, and for the implementation of the new pact on migration and asylum once adopted.”

  • €7.6bn to “help to maintain effective migration cooperation with third countries,” as well as “the continuation of actions previously undertaken through the EU trust fund for Africa” and support for the Western Balkans, the southern neighbourhood and Africa.

  • €1.5bn for the European Defence Fund.

€9.1bn would be reassigned to the pressing priorities.

Updated

Leaders are now taking a short break, an EU official has said.

Updated

EU leaders know each other well; some have spent years working together.

Here are some behind-the-scenes images of their chats ahead of today’s summit.

Viktor Orbán shakes hands with Emmanuel Macron
Viktor Orbán, centre, shakes hands with Emmanuel Macron in Brussels on Thursday. Photograph: Omar Havana/AP
From left, president of Cyprus Nikos Christodoulides, German chancellor Olaf Scholz, European Council president Charles Michel and Portugal’s PM António Costa
From left, president of Cyprus Nikos Christodoulides, German chancellor Olaf Scholz, European Council president Charles Michel and Portugal’s PM António Costa. Photograph: Olivier Hoslet/EPA
European Union leaders summit in BrusselsFrance’s President Emmanuel Macron, European Commission President Ursula von der Leyen, European Parliament President Roberta Metsola, Latvian Prime Minister Evika Silina and Greece’s Prime Minister Kyriakos Mitsotakis attend a European Union leaders summit, in Brussels, Belgium December 14, 2023.
Macron, Ursula von der Leyen, Roberta Metsola, Latvian PM Evika Silina and Greek PM Kyriakos Mitsotakis. Photograph: Yves Herman/Reuters

Updated

Budget debate under way

Leaders are in the midst of a discussion on revising the bloc’s budget.

The EU uses a seven-year budget system, known as the Multiannual Financial Framework (MFF). We are now in the midst of the 2021-27 MFF.

Traditionally, budgets are among the most complicated policy issues negotiated among EU member states, because they are at the same time highly sensitive politically and highly technical.

In Brussels-speak, proposals used during the budget process are known as the “negobox”.

During today’s session, the European Council president, Charles Michel, presented a negobox, with proposed figures “roughly one-third” of the original European Commission proposal for a top-up, an EU official said.

The priorities are Ukraine, migration, solidarity fund and interest payments, the official said, noting that there is “more emphasis on redeployment and clearer sense of priorities emerging”.

Updated

“It’s not only about Ukraine and Moldova but Europe itself,” said Latvia’s prime minister, Evika Siliņa.

Updated

Austria’s Karl Nehammer is really excited to have Donald Tusk back in the building.

Updated

Asked about the prospect of a unanimous decision on continued support for Ukraine, the European parliament president, Roberta Metsola, said she trusted Volodymyr Zelenskiy’s ability to persuade and the ability of other prime ministers to come around.

It is extremely important for Ukraine to continue to receive its financial help, in order for it to continue to defend itself in order to fight for our values.

But there is also our moral responsibility. And that responsibility means that we need to be able to take the next political step. I am realistic, I am but I’m not pessimistic.

She confirmed there are already mutterings that the battle to win Viktor Orbán may go into the weekend.

Speaking to a reporter from Moldova, which is also waiting the green light for negotiations on membership to begin, she said:

The decision this weekend – we’ll start to use word weekend now over the possibility to go to the next step and open accession negotiations – is hopefully that signal that you and your people need to show that we are credible [about EU membership]”.

Updated

Zelenskiy to EU leaders: 'Do not betray' faith in Europe

Addressing the EU’s 27 leaders via videoconference, Volodymyr Zelenskiy asked heads of state and government not to “fall back into indecision today” and not to “betray” faith in Europe.

​This day will go down in our history. Whether it’s good or bad for us, history will capture everything. Every word, every step, every action and inaction. Who fought for what.

He added:

It’s very important that Europe doesn’t fall back into indecision today. Nobody wants Europe to be seen as untrustworthy. Or as unable to take decisions it prepared itself.

The Ukrainian leader emphasised that in his view, Kyiv has done its homework.

We’re talking about a decision that was promised. And I haven’t heard any counter-argument as to why we shouldn’t implement the plan agreed upon by all of Europe.

​Last year, Ukraine received clear recommendations on how to move forward.

We have passed the key laws. You all – and I emphasise: all – know well that we fulfilled every obligation.

And he made a plea for Europe to honour its promises.

I ask you one thing today – do not betray the people and their faith in Europe.

​If no one believes in Europe, what will keep the European Union alive?

​People in Europe won’t see any benefit if Moscow receives a pass from Brussels in the form of negativity towards Ukraine.

Putin will surely use this against you personally, and against all of Europe. Don’t give him this first – and only – victory of the year. Europe must win, agreements must be honoured, and words must matter.​

European leaders speak with Volodymyr Zelenskiy via videoconference
European leaders speak with Volodymyr Zelenskiy via videoconference Photograph: Council

Updated

Czech prime minister EU should look for budget savings

Petr Fiala, the Czech prime minister, said in a social media post that the bloc should look for budget savings – but that Prague is willing to discuss a slight increase in spending.

On the budget, we are looking for savings at national level and this approach must be applied within the EU as well.

We are willing to discuss a slight increase in the area of migration, for example, to protect the EU’s external borders. Illegal migration is on the rise and we need to invest resources in curbing it.

We must also provide money for Ukraine. That is a commitment that we agreed last year.

He added:

On EU enlargement - the European Council should decide on the opening of accession talks with Ukraine, Moldova and Bosnia and Herzegovina.

Updated

Hungary is not the only member state questioning “fast-tracking” Ukraine while leaving countries like Bosnia and Herzegovina behind.

Austria, Belgium, Cyprus, Croatia, Italy, Greece, Hungary, Slovenia and Slovakia have noted in a summit of European affairs ministers earlier this week that “it is important that there is a balanced approach and the same standards and criteria are applied to all candidate countries”.

But as one diplomat said, Ukraine had completed 80% of reforms required for the first step to membership talks, and was expected to complete with 100% expected by spring. Bosnia, the diplomat said, had completed just 20%.

It’s going to be a long summit.

Statement at the General Affairs Council
Statement at the general affairs council. Photograph: The Guardian/Lisa O’Carroll

Updated

Summit officially begins

The European Council summit has started.

Stay tuned for updates.

Updated

The German chancellor, Olaf Scholz, who met Viktor Orbán ahead of the summit in a bid to smooth progress on the Ukrainian front said he was “absolutely sure” that the enlargement was “a necessary debate here in Europe”.

“We must make progress in this accession processes we have.

“It is a decision of the European Union that we are ready for enlargement discussing with the western Balkan states, discussing with Moldova, Ukraine and Georgia,” he said.

Updated

Enlargement is 'win-win', European parliament president says

Arriving at the gathering, the European parliament president, Roberta Metsola, said “this is a historic summit.”

She said:

Deals are always possible. So on enlargement, very clear, this is a win-win situation. Ukraine should be given the moral, political, financial support that it deserves, and we all need for our own security.

Same with Moldova, same with Georgia and Bosnia Herzegovina.

And we also would like – and I say this in every European Council – a decision on Schengen for Romania and Bulgaria.

On the EU budget, she said:

Funds are finite. We need to be realistic. And therefore I understand the gap is not very big, and I hope that we can really find a solution. Unity is key.

President of the European Parliament Roberta Metsola speaks to the media as she arrives for a European Council in Brussels, Belgium, 14 December 2023.
Roberta Metsola speaks to the media as she arrives for a European Council in Brussels. Photograph: Olivier Matthys/EPA

Updated

Here’s a fuller transcript of what Viktor Orbán told media this morning about his objection to opening negotiations on Ukraine membership of the EU.

On Ukraine membership of the EU, he is not for budging.

“Enlargement is not a theoretical issue. Enlargement is a merit based, legally detailed process, which has preconditions. We have set up seven preconditions and even by the evaluation of the commission, three out of the seven is not fulfilled. So there is no reason to negotiate membership of Ukraine.”

He added that in “my estimation” there were even more conditions Ukraine had not met, but “even three is enough to say that if you haven’t fulfilled the preconditions, there is no chance to start to negotiate”.

One the €50bn Ukraine fund, he is clear the EU can either continue with existing funds or find it outside the EU-wide budget – either way that means money from 26, not 27 member states.

“The money [for Ukraine] is already in the budget. So [there is] no extra decision to give it [the money] in the short term in longer term, long term and a bigger sum of money.

“My position is that we should give it outside but we are not under the pressure of the time because the bridging solution is already in the budget,” he added.

Updated

'No exceptions!' Orbán says

In a new post on social media following his meeting with the French and German leadership, Hungary’s Viktor Orbán said “enlargement is a merit-based process. There are no exceptions!”

He did not, however, explicitly repeat his opposition to opening accession talks.

Updated

A number of senior politicians have underscored the historic importance of today’s summit.

Gabrielius Landsbergis, Lithuania’s outspoken foreign minister, said that today “Europe makes its most important decisions in recent history”.

Updated

'Stakes are too high to have someone play with it,' Ukraine says

Olha Stefanishyna, Ukraine’s deputy prime minister for European integration, sent a blunt message this morning to EU leaders meeting in Brussels.

The European Council’s “decisions on Ukraine are a piece of a much bigger puzzle,” she said, adding:

The stakes are too high to have someone play with it.

Updated

The Hungarian government has shared images of Viktor Orbán’s meeting with EU leaders ahead of the summit’s formal opening.

The Danish prime minister, Mette Frederiksen, has said it is “no use in such a crucial place as we are right now, that a few can block us, as a continent, from making the right decisions.”

She called for leaders to maintain their united front.

“I think when Putin expected the house of cards to fall. It has not fallen. We are still here, and we will continue to be here.”

Updated

Orbán's position not softening, officials say as Hungarian leader puzzles Brussels

Hungarian prime minister Viktor Orbán’s position opposing the opening of accession talks with Kyiv is “not softening”, said one European official this morning.

A European diplomat agreed, saying they have not detected a shift in the Hungarian leader’s position.

The French president, Emmanuel Macron, and German chancellor, Olaf Scholz – together with the presidents of the European Commission and European Council – made a last-minute effort to bring Orbán onboard.

Arriving at the summit, the Hungarian prime minister insisted that his position is based on procedural reasoning and a commitment to merit-based decisions: Ukraine, he argued, does not meet the criteria to open accession talks.

And in a Facebook post shortly after 11am CET, Orbán said: “To every question the same answer: it is not timely to discuss Ukraine’s EU accession. We don’t support it!”

In government-controlled Hungarian media outlets, headlines echoed an intractable position.

“Shocking corruption, unhealthy genetically modified grain, cruelly persecuted Transcarpathian Hungarians – and more. We show why Ukrainians are totally unfit for Union membership,” wrote the Orbán-linked news portal Origo in its lead story this morning.

But there is still the possibility that the prime minister is leaving himself some room for manoeuvre.

Some of the Hungarian government’s communication this week has emphasised an opposition to “fast” accession for Ukraine – even though quick accession is not on the table and it is widely accepted that the process would take years. One option for the prime minister, therefore, if he chooses to back down, would be to claim that he was victorious because he prevented a quick accession.

There’s another element at play: some officials note that Orbán loves attention – and has been working to make himself a bigger player on the European stage. For him, getting the summit to revolve around the Hungarian government, with big countries’ leaders rushing to meet with him and every press outlet reporting his comments, could be a win itself.

“I wouldn’t discount,” said another European official, “that Orbán wants to look like a global leader.”

Updated

The Outgoing Dutch prime minister, Mark Rutte, said the timing of the release of €10bn in withheld funds to Hungary on the eve of the EU summit was “unavoidable”.

“They had to make the decision by Friday. I know eyebrows have been raised because of the coincidence in timing, but I think it was unavoidable because it had to be decided before Friday,” he said.

Updated

The Irish taoiseach, Leo Varadkar, said a positive decision on funding and accession to the EU “mattered” to the soldiers on the frontline in Ukraine.

It might take many years for Ukraine to join the European Union, but we should begin negotiations next year.

And I know from speaking to President Zelenskiy that matters on the frontline. Soldiers who’ve been fighting on the front line for Europe, for Ukraine, this will really count in terms of their morale. So this is a really important meeting.

Updated

Borrell calls for focus on political solution in Middle East

Josep Borrell, the EU’s foreign policy chief, said when arriving at the summit that the bloc must continue supporting Ukraine “as much as we can.”

On the situation in the Middle East, he said:

We have to take into account the vote in the United Nations general assembly.

The situation requires certainly a humanitarian stop in the fight in order to free the hostages and avoid a humanitarian catastrophe.

And we have to start thinking about how do we deal with the problem in political approach.

The Arab countries have already said that they will not participate in rebuilding Gaza unless there is a strong commitment from the international community to build a two-state solution. And we have to focus on that. We have to focus on a political solution to the problem once and for all.

Updated

We have to say yes to at least one Ukraine decision, Varadkar says

The Irish taoiseach, Leo Varadkar, told reporters at the summit this morning that the European Commission unfroze part of Hungary’s EU funding yesterday because “the rules are the rules”.

Addressing today’s summit, he said:

I’ve been attending European Council meetings for six or seven years now.

This is probably one of the most important ones that I’ve attended, precisely because of the big decisions we have to make in relation to Ukraine: a financial decision and also a decision on whether to begin negotiations.

And we have to say yes to at least one of those two, and ideally both of those two. Because Ukraine is in peril. Ukraine will not stand without support – and ongoing support – from both the European Union and the US … and if Ukraine doesn’t have support from the EU and the US, well then, Putin will win.

Ireland’s Taoiseach, Leo Varadkar speaks to media at a European Union leaders’ summit, in Brussels, Belgium December 14, 2023.
Ireland’s taoiseach, Leo Varadkar, speaks to media at a European Union leaders’ summit, in Brussels. Photograph: Johanna Geron/Reuters

Updated

Viktor Orbán has dug in his heels on both the long-term funds for Ukraine, which he says should be outside the EU budget, and insists now is not the right time for negotiations with Kyiv for EU membership.

However, put on the spot about the principle of allowing Ukraine become a member of Ukraine he was crystal clear:

“Are you against accession of Ukraine?” He replied: “No”, adding it was a matter of “procedure.”

No time to procrastinate, Estonian leader says, warning of 'bad signal'

Kaja Kallas, Estonia’s prime minister, told reporters when arriving for the summit that “we’re in for a long day.”

She said she just had a talk with Hungary’s Viktor Orbán and he told her that “he doesn’t see an agreement right now.”

The Estonian leader:

We have tried – but we will try again, so try to convince, try to negotiate. And so, not ready to give up yet.

There are “different arguments, different proposals, also compromises,” Kallas said, noting that there will be bilateral meetings in addition to the group discussion.

The Estonian prime minister also said:

We definitely have to reach some kind of agreement. And we don’t have the time to really procrastinate, or push it to the future.

It’s definitely a bad signal, I hope that we can get agreement at least on some of the elements that are on the line.

And as Commission has come up with a report that is merit based – of course it’s a political decision on our side – but we should stick to the report. Ukraine has fulfilled the criteria to open the accession talks. And the accession talks take several years, we know from our own history.

Kallas said she is “not optimistic.”

Estonia’s Prime Minister Kaja Kallas arrives for a European Council in Brussels, Belgium, 14 December 2023.
Kaja Kallas arrives for European Council in Brussels. Photograph: Olivier Matthys/EPA

Updated

'We need strong decisions', Finnish prime minister says

Petteri Orpo, the Finnish prime minister, said when arriving at the summit that today’s meeting will be “very important.”

He said:

We need strong decisions here. We have to show our unity. On Ukraine, situation is difficult and that’s why we need three decisions:

First on EPF [European Peace Facility], we need multiannual decision on that – they need fast military assistance.

Secondly, we need solution on [the EU budget], 50 billion tool to help Ukraine.

And thirdly, we need decision on enlargement. We need clear signal to all states who want to be the member of the Union that we are ready to negotiate. And we have to decide to start negotiations.

And finally I have to say, Russia’s threat is real – that’s why we have to boost our defence industry.

Finland's Prime Minister Petteri Orpo arrives for a European Council in Brussels, Belgium, 14 December 2023.
Finland's Prime Minister Petteri Orpo arrives for a European Council in Brussels, Belgium, 14 December 2023. Photograph: Olivier Matthys/EPA

'No reason to negotiate' Ukraine's membership, Orbán says

Arriving at the summit, Hungarian prime minister Viktor Orbán told reporters that there have been many talks and the Hungarian position is clear: when it comes to EU membership, the preconditions for Ukraine have not been met, the Council is not in a position to make a decision – and Hungary will not budge.

He added:

The money for Ukraine, in short term, is already in the budget. If we would like to give longer term and bigger money, we have to manage outside the budget, and we support it.

Orbán also said:

Enlargement is not a theoretical issue. Enlargement is a merit-based, legally-detailed process, which has preconditions … there is no reason to negotiate membership of Ukraine now. Even not to negotiate.

The prime minister insisted that Hungary is not linking any of its own issues with Ukraine policy.

Hungary’s Prime Minister Viktor Orban speaks with the media as he arrives for an EU summit at the European Council building in Brussels, Thursday, Dec. 14, 2023.
Hungary’s Prime Minister Viktor Orban speaks with the media as he arrives for an EU summit at the European Council building in Brussels, Thursday, Dec. 14, 2023. Photograph: Virginia Mayo/AP

Updated

'Historical chance', says Lithuanian president

Gitanas Nausėda, Lithuania’s president, said when arriving at the summit that he thinks “we have the chance – historical chance – to take very bold decision regarding the start of negotiations with Ukraine and Moldova.”

“This is in our hands – we can take it but we can waste it,” he said, adding that the people of Ukraine and Moldova “deserve positive outcome.”

He added:

My point is: if we will spoil, or if we will abuse the unanimity principle, there will be more and more voices asking why we still take the decisions on the consensus basis.

So for my country, which is benefiting from the unanimity principle, because this is a small-sized country, like Hungary for example, it’s very important to keep this principle. But we should not abuse this principle and … use this very correctly and very fairly. We’ll see.

Lithuania’s President Gitanas Nauseda talks to the media on December 14, 2023.
Lithuania’s President Gitanas Nauseda talks to the media on December 14, 2023. Photograph: John Thys/AFP/Getty Images

Updated

Leaders are arriving at the summit this morning with the heavy lifting due to start more or less straight away.

The European Council has deliberately placed the most complicated issues at the top of the agenda: the proposed €50bn for Ukraine, followed by enlargement.

Expect these topics to take most of the day with all eyes on Hungary but also other states that are looking for assurances that Ukraine is not simply being fast tracked into the EU.

If the 27 members cannot unanimously agree on the fund for Ukraine, 26 member states are prepared to find an alternative mechanism to provide the money - but the preference is very much to do it through the EU with checks and balances on disbursements and expenditure already built in.

Following the Ukraine facility comes the issue of enlargement, then the revision of the bloc’s seven-year budget, known as the 2021-2027 Multiannual Financial Framework.

These subjects could well spill into tomorrow.

The remainder of the agenda is:

  • Middle East

  • Security and defence

  • Migration

  • Hybrid attacks by Russia

  • Fight against anti-Semitism

Key leaders meet Orbán

In a last-minute effort to prevent Budapest from blocking a key decision on opening EU accession talks with Ukraine, French president Emmanuel Macron, German chancellor Olaf Scholz, European Council president Charles Michel and European Commission president Ursula von der Leyen will meet Hungary’s Viktor Orbán this morning.

Updated

Leaders race to bring Orbán on board

All eyes are on Hungary today as the EU commences a two-day summit to top up the bloc’s budget, decide on spending priorities – including a proposed €50bn facility for Ukraine – and a key decision on whether to open accession talks with Kyiv.

Hungarian prime minister Viktor Orbán has overshadowed the summit preparations over the past weeks after threatening twice in letters to European Council president Charles Michel to use his country’s veto to block the spending package and delay the decision on negotiations for Ukraine’s membership of the EU.

He dodged the media yesterday night at a summit on the Western Balkans, but told the Hungarian parliament before he left Budapest that the country was the voice of common sense in Europe.

Welcome to the EU summit blog

Good morning and welcome to a special edition of the Europe blog, coming to you from the European Council summit in Brussels.

Send tips and comments to lili.bayer@theguardian.com.

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