At the final European Council summit of the year on December 19, Ukraine dominated discussions. EU leaders reaffirmed their commitment to supporting Kyiv with military and financial aid but shifted focus from ensuring outright victory to strengthening Ukraine’s position for eventual peace negotiations with Russia.
The summit’s resolution highlighted the EU’s “unwavering commitment” to assist Ukraine “as long as it takes” while backing a “comprehensive, just, and lasting peace” rooted in international law. It emphasized that no peace initiatives would proceed without Ukraine’s input. However, a subtle but significant change in language sparked debate. Pre-summit materials stated, “Ukraine must win,” but the final resolution declared, “Russia must not prevail.”
When questioned, a Council official described the initial language as a “mistake” and promised corrections. This adjustment underscored differences among EU members about the war’s desired outcome.
Commission foreign affairs chief Kaja Kallas maintained that Ukraine’s victory should include reclaiming all occupied territories, aligning with President Zelensky’s “Peace Formula.” Yet, European Council President António Costa took a more cautious tone, asserting, “International law must prevail, and the invasion must be defeated.” Costa emphasized that Ukraine alone should define peace terms and called for unity in bolstering Ukraine for any scenario.
Zelensky, addressing the summit, cautioned against premature settlements, arguing that peace on Russia’s terms would lead to renewed conflict. He appealed for sustained military support, asserting that another year of robust aid could create favorable conditions for peace on Kyiv’s terms.
While Europe’s backing for Ukraine remains, enthusiasm for a prolonged conflict appears to wane. The resolution pledged continued aid, but Europe’s military production struggles to meet Ukraine’s needs. Should the incoming Trump administration scale back U.S. support, the EU lacks the resources to bridge the gap.
Zelensky reiterated that NATO security guarantees—backed by both the U.S. and Europe—are non-negotiable. He stressed, “It is very important for us to have both on board… European guarantees won’t be sufficient.”
EU leaders, including Costa and Commission President Ursula von der Leyen, avoided directly addressing whether Zelensky’s goals align with realistic expectations. They restated their commitment to Ukraine, deferring to Kyiv to decide when peace terms are acceptable.
The underlying challenge remains unresolved. Ukraine’s insistence on NATO membership, a core issue behind Russia’s invasion, demands significant time, resources, and diplomacy—potentially more than the EU can comfortably provide. The summit’s softened language suggests leaders are bracing for tough decisions ahead, balancing support for Ukraine with pragmatic limitations.
