European Union

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Written by Ralf Drachenberg.

The focus of the December 2024 European Council meeting lay on two main issues: Ukraine and the European Union in the world. On Ukraine, the main message was that the EU will give full support to Ukraine for as long as necessary. In that context, EU leaders condemned Russia and those who support its war, and also discussed the path to peace. Regarding the EU in the world, EU leaders first examined developments in the Middle East, with a strong focus on the situation in Syria, and, over dinner, held a strategic discussion on the EU’s global engagement in the current geopolitical context. Notably, they discussed EU relations with the United States after the US elections, as well as the current ‘new positive energy’ in relations between the EU and the United Kingdom.

Additionally, based on the report by former Finnish President Sauli Niinistö, EU Heads of State or Government considered ways of increasing EU resilience, preparedness and crisis prevention. They also discussed migration, reviewing progress in the implementation of past conclusions and calling for legislation with a migration component to be given priority. In addition, they endorsed the ‘strategic guidelines for legislative and operational planning within the area of freedom, security and justice’ for the 2024-2029 period. Finally, EU leaders discussed enlargement, developments in Moldova and Georgia, and the situation in Venezuela.  

The European Council meeting, which was the first one chaired by its new President, António Costa, was preceded by an EU-Western Balkans summit on 18 December.

1.      EU-Western Balkans Summit

The day before the European Council meeting, EU leaders met in Brussels for a summit with the Western Balkans (WB) countries, aiming to emphasise the strategic importance of the partnership between the EU and the WB region. EU leaders discussed ways of: i) boosting the EU-WB partnership through the growth plan; ii) increasing the EU’s political and policy engagement with the WB (including areas such as foreign and security policy); iii) building a strong economic base; iv) easing the impacts of Russia’s war on Ukraine and building resilience to Russia’s hybrid threats; v) cooperating in areas such as migration and tackling organised crime, terrorism and corruption; vi) building the social dimension of EU integration. At the summit, EU leaders also discussed the overall geopolitical challenges facing the EU and the WB, and agreed on a 17-page declaration.

2.     European Council meeting General

At the start of the meeting, EU leaders marked the 50th anniversary of the creation of the European Council as an informal body of Heads of State or Government. It formally became an EU institution with the Lisbon Treaty. The meeting began with the customary address by the President of the European Parliament, Roberta Metsola. Subsequently, EU leaders held an exchange of views with the President of Ukraine, Volodymyr Zelenskyy. The meeting concluded with a report by the Prime Minister of Hungary, Viktor Orbán, on the achievements of the Hungarian Presidency of the Council of the EU.

Ukraine

The discussion on Ukraine covered three broad topics: i) the path to peace; ii) EU support to Ukraine; and iii) the condemnation of Russia’s aggression and of those supporting it. With peace recently coming more to the fore in EU discussions, the European Council emphasised that Ukraine, as the country that had been invaded, must be part of any peace initiative for it to be credible. It reiterated its support for a lasting peace based on the UN Charter, international law and the principles of the Ukraine Peace Formula. The conclusions contained a notable shift in tone – ‘Russia must not prevail’ – and did not refer to any ‘scenarios’ or to peace-keeping forces, which are considered premature.

The European Council reiterated the EU’s commitment to providing ‘political, financial, economic, humanitarian, military and diplomatic support to Ukraine and its people for as long as it takes and as intensely as needed’. EU leaders reviewed efforts to deliver military support, calling for increased efforts to deliver air defence systems, ammunition, missiles, and training and equipment for Ukrainian brigades. They also reiterated the importance of developing Ukraine’s defence industry and its cooperation with the EU defence industry. Moreover, they called, once again, on the Council to accelerate work on strengthening the EU Military Assistance Mission in support of Ukraine (EUMAM Ukraine), which aims to strengthen the capacity of the Ukrainian armed forces through the provision of training support (almost 70 000 soldiers have been trained since the mission launched).

EU leaders welcomed the implementation of the Ukraine Facility, which delivered payments of €16.2 billion in 2024 but is expected to deliver almost €4 billion less in 2025. They also welcomed the swift implementation of the Extraordinary Revenue Acceleration (ERA) loans initiative agreed by the G7 in Italy in October 2024. The ERA initiative, which is funded by profits from immobilised Russian assets, will result in €45 billion of support to Ukraine’s current and future military, budget and reconstruction needs. The first tranche of funds is due to be released in January 2025. Furthermore, EU leaders highlighted the importance of the Ukraine Recovery Conference (to be hosted by Italy in July 2025) as part of the EU’s commitment to support Ukraine’s repair, recovery and reconstruction.

The European Council reiterated its condemnation of Russia’s deliberate attacks against Ukraine’s civilian and energy infrastructure, which seek to weaponise winter conditions. It called for increased support to keep Ukraine’s energy infrastructure running and for Ukraine and Moldova’s energy systems to be further integrated into the EU’s network. Member States were praised for their exports of electricity to Ukraine.

EU leaders welcomed the adoption by the Council of the 15th package of sanctions against Russia, underlining the need for further measures to counter the circumvention of sanctions, including through third countries, and for their full enforcement. Furthermore, they condemned, and urged the cessation of, actions and support by third countries for Russia’s war of aggression, with Iran and North Korea specifically mentioned for their arms transfers to Russia and deepening military cooperation, including the deployment of North Korean forces to Russia for use against Ukraine.

Main message of the EP President: We need a path to real peace. But the guiding principle must remain ‘Nothing about Ukraine without Ukraine’.

Middle East

Developments in the Middle East, notably in Syria, were a central discussion point for EU leaders. The European Council saw in the new situation in Syria – after an offensive which toppled the Assad regime on 27 November – an historic opportunity to reunite and rebuild an inclusive Syrian-led political process in line with the principles of UN Security Council Resolution 2254. EU leaders agreed on the main points of the EU approach to the Syrian transition, which must aim to: i) preserve national unity; ii) ensure the protection of all civilians; iii) ensure the provision of public services; iv) create the conditions for an inclusive and peaceful political transition; and v) create the conditions for safe, voluntary and dignified returns of Syrian refugees. Considering the potential impact on Europe, EU leaders stressed the need to prevent the re-emergence of terrorist groups and to ensure the destruction of Syria’s remaining chemical weapons. In this respect, they invited the Commission and the High Representative to submit to the Council potential support measures for Syria.

On Lebanon, the European Council welcomed the 27 November 2024 ceasefire agreement between Israel and Hezbollah, which followed mediation efforts, in particular by France and the United States. EU leaders urged all parties to implement the ceasefire, which is still holding, despite violations. They also underlined their continuing support for the Lebanese state’s sovereignty, territorial integrity and state-building efforts, calling on Lebanese political leaders to overcome the political and economic impasse. Until the recent election of Joseph Aoun, the country had been without a president for several years and remains subject to a severe and lingering economic crisis.

Concerning Gaza, the European Council, reiterating its previous conclusions, called for a ceasefire, the release of all hostages, improved and sustained access for humanitarian assistance to Gaza, and an end to hostilities in line with UN Security Council Resolution 2735. EU leaders also declared their continuing commitment to international law and lasting peace based on the two-state solution. The European Council reiterated its continued support for the Palestinian Authority and for the United Nations Relief and Works Agency (UNRWA), which provides support to the civilian population of Gaza. Once again, it expressed concern over the consequences of Israeli legislation impeding the humanitarian work of the UNRWA.

Main message of the EP President: Dialogue, unity, respect for fundamental rights, and international law must guide the way forward. Now is our moment to step up.

EU in the world

Although there were no lengthy conclusions on the topic, President Costa noted that the EU’s global engagement had been an important focal point during this European Council meeting. EU leaders held a strategic discussion on the EU’s global engagement and priorities in the current geopolitical context. They also discussed EU relations with the United States, stressing the EU’s commitment to continue working with the US under the Trump administration, as well as relations with the United Kingdom and the current trend of ‘new positive energy’ since Keir Starmer became Prime Minister.

Resilience, preparedness, crisis prevention and response

The former President of Finland, Sauli Niinistö, presented his report ‘Safer together: Strengthening Europe’s civilian and military preparedness and readiness’ to EU leaders. In the context of an evolving threat landscape and of an increasing number of natural disasters due to climate change and environmental degradation, the European Council reaffirmed the urgency of strengthening resilience, preparedness, crisis prevention and response capacities. With a view to the future preparedness strategy, EU leaders invited the Commission, the High Representative and the Council to pursue work on the different work strands and actions at EU level.

Migration

On migration, EU leaders took stock of the progress made in implementing past conclusions on the issue, notably regarding the external dimension of migration, the implementation of adopted EU legislation and the application of existing legislation.

The European Council reiterated its support for the Commission’s planned legislative proposal on returns, due to be submitted in early 2025, and called on the co-legislators to advance, as a matter of priority, on files with a migration dimension. It took note of the Commission communication on the weaponisation of migration and strengthening security at the EU’s external borders.

Other items

Enlargement: The European Council underscored the importance of enlargement as a geostrategic investment in peace, security, stability and prosperity. EU leaders stated that both the EU and aspiring members had a responsibility to make the most of this opportunity. They endorsed the Council’s 35 pages of conclusions on enlargement, agreed on 17 December 2024.

Main message of the EP President: Enlargement must remain merit-based, founded on our criteria. But we need to step up our efforts, too.

Moldova: The European Council praised Moldova for the successful conduct of the presidential elections, together with the referendum on enshrining EU accession in the Moldovan constitution, despite Russia’s hybrid interference. EU leaders invited the Commission to urgently provide options for the strengthening of Moldova’s energy security. They committed to working with Moldova to enhance the country’s resilience and stability, and to support its reform efforts on its European path, specifically through the Growth Plan and the Reform and Growth Facility.

Georgia:The European Council reiterated its serious concerns regarding the path taken by the Georgian government, expressing regret at the Georgian government’s decision to suspend the country’s EU accession process until 2028. EU leaders condemned violence against those peaceful protestors, politicians and media, and highlighted that the EU would support the Georgian people’s European aspirations, if the authorities reverse their present course of action.

Venezuela:Once again, EU leaders expressed their concern about the situation in Venezuela and committed to mobilising the tools at their disposal to support democracy and a peaceful transition in the country. They also called for the release of all political detainees and for Venezuela to uphold international law.

Hybrid activities: The European Council strongly condemned Russia’s hybrid campaign against the EU and its Member States. EU leaders also welcomed the adoption of the first listings under the framework for restrictive measures in view of Russia’s destabilising activities.

Freedom, security and justice:The European Council welcomed the Council Decision to lift the checks on persons at internal land borders with and between Bulgaria and Romania as of 1 January 2025. As flagged up in the EPRS Outlook briefing, the leaders endorsed the strategic guidelines for legislative and operational planning within the area of freedom, security and justice, a Treaty obligation with which the European Council did not comply during the 2019-2024 period.

Read this briefing on ‘Outcome of the EU leaders’ meetings of 18-19 December 2024‘ in the Think Tank pages of the European Parliament.

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