European Council Conclusions on Ukraine (16 October)
The European Council held an exchange of views with Volodymyr Zelenskyy, President of Ukraine. It expressed its full and resolute support to the people of Ukraine as they face particularly brutal attacks by Russia.
The European Council reaffirms its continued firm and unwavering support for Ukraine’s independence, sovereignty and territorial integrity within its internationally recognised borders. The European Union will continue to provide, in coordination with like-minded partners and allies, comprehensive political, financial, economic, humanitarian, military and diplomatic support to Ukraine and its people.
Russia has escalated its large-scale, deliberate and systematic missile and drone attacks against Ukraine’s civilians and civilian infrastructure, including energy and transport systems, and healthcare and educational facilities. The European Council strongly condemns these brutal attacks and commends the fortitude, determination and resilience of the Ukrainian people and their leadership in resisting Russian aggression and defending their land. Exercising its inherent right of self-defence, Ukraine has managed to stand its ground and push back against Russia’s enormous pressure, preventing Russia from achieving its military and strategic objectives.
To help Ukraine prepare for winter, the European Council calls for further intensified efforts and coordination to urgently strengthen Ukraine’s air and missile defence capabilities, the resilience of its critical infrastructure and energy system, including through the Ukraine Energy Support Fund, and to address other immediate needs. Enhanced regional energy cooperation and cross-border electricity interconnections play a pivotal role in this regard.
The European Council reaffirms the strategic importance of security, stability and freedom of navigation in the Black Sea. By targeting Ukraine’s agricultural infrastructure, Black Sea and Danube ports, border crossing points, export facilities and vessels, by blocking shipping lanes, and by destroying grain storage facilities, Russia is once again weaponising food and undermining global food security in particular in Africa, Asia and the Middle East. Attacks against civilian shipping, merchant and commercial vessels, including Member State-flagged vessels, such as the recent attacks in Bulgaria’s and Romania’s exclusive economic zones in the Black Sea, are unacceptable and constitute a serious violation of international and maritime law, including the United Nations Convention on the Law of the Sea (UNCLOS). To avoid a further deterioration of the situation, the European Council calls for the immediate restoration of safe passage for all civilian shipping, merchant and commercial vessels in the Black Sea. It also recalls the importance of measures aimed at further consolidating the EU-Ukraine Solidarity Lanes, which are vital for sustainable grain exports.
The European Union supports a comprehensive, just and lasting peace in Ukraine based on the principles of the UN Charter and international law and underpinned by robust and credible security guarantees for Ukraine. Only a solution that respects Ukraine’s independence, sovereignty and territorial integrity can bring about a just and lasting peace. Borders must not be changed by force, the aggressor cannot be rewarded and Ukraine’s long-term security and ability to defend itself must be guaranteed. The path to peace in Ukraine cannot be decided without Ukraine. The European Union will decide on matters of its competence or affecting its security.
In accordance with the Union’s aim to promote peace, as enshrined in the Treaties, the European Council reiterates its support for diplomatic efforts to bring Russia’s war of aggression to an end, and underlines the EU’s readiness to step up its engagement in that context. Europe has a key role to play in a future settlement and will defend its interests. The European Council urges Russia to show genuine willingness regarding peace, agree to a full, unconditional and immediate ceasefire and engage in meaningful negotiations towards a just and lasting peace. Humanitarian relief efforts and confidence-building measures, notably the exchange of prisoners of war and the return
of unlawfully deported Ukrainian children and civilian detainees, must continue as part of the pathway to peace.
The European Union and Member States stand ready to contribute to robust and credible security guarantees for Ukraine, notably through the Coalition of the Willing and in cooperation with the United States. This will include supporting Ukraine’s ability to deter aggression and defend itself effectively, also in the long term. The contribution of the European Union and Member States will be based on their respective competences and capabilities and in line with international law. In this context, the European Council welcomes the agreement on the extension and revision of the mandate of the European Union Military Assistance Mission in support of Ukraine (EUMAM Ukraine). Member States remain committed to contributing to training and equipping the Ukrainian Armed Forces.
The European Council welcomes the ongoing disbursements to Ukraine from the EUR 90 billion Ukraine Support Loan for 2026 and 2027. It welcomes the fact that the means to cover Ukraine’s budget and defence needs for 2026 have been identified. It calls on all actors, notably Ukraine, to intensify efforts, including to fulfil the requirements of the revised Ukraine Plan, to allow the timely disbursement of all the commitments from the Ukraine Support Loan and Ukraine Facility for 2026. The European Council recalls the importance of Ukraine continuing its reform efforts and
upholding the rule of law.
The European Council remains committed to addressing Ukraine’s pressing financing needs, together with international partners, looks forward to the updated assessment by the Commission and IMF in this regard, and will revert to the issue in a timely manner. In this context, the European Council calls on international partners to swiftly step up their support to help meet Ukraine’s pressing financing and military needs.
The European Council underlines the importance of further sustained efforts to provide military support to Ukraine. In this respect, it welcomes the agreement to release EUR 6.6 billion under the European Peace Facility. The European Council also welcomes recent bilateral aid provided by Member States and progress made in EU-Ukraine defence industrial cooperation. It welcomes the establishment of the Integrated Anti-Ballistic Missile Coalition.
All military support as well as security guarantees for Ukraine will be provided in full respect of the security and defence policy of certain Member States and taking into account the security and defence interests of all Member States.
The European Union remains determined to further increase pressure on Russia so that it stops its brutal war of aggression and engages in meaningful negotiations towards peace. The European Council welcomes the recent adoption of the 21st sanctions package and of a substantial number of further listings of individuals and entities. It calls for the swift and effective implementation of the measures concerning Russian ex-combatants and for further measures, in coordination with partners, including to reduce Russia’s energy revenues, and to effectively close loopholes and fight circumvention, and to curb shadow fleet operations and undermine their business
model. This requires a ‘whole of route’ approach and coordination among Member States and with partners, including a common approach to addressing the significant environmental, security and maritime safety risks posed by such vessels, in particular through more boarding operations, in line with international law, including UNCLOS. The European Council regrets the United States’ decision to temporarily lift sanctions on Russian diesel. It stresses the need to prevent grain stolen by Russia from temporarily occupied Ukrainian territories from being exported via the EU. The European Council reiterates that, as long as there is no just and lasting peace in Ukraine, there should not be a normalisation of Russia’s and Belarus’ participation in international sports and cultural events, particularly through the display of national symbols.
The European Council strongly condemns the illegal organisation by Russia of so-called ‘elections’ in the temporarily occupied territories of Ukraine, which represents yet another blatant violation by Russia of international law, including the UN Charter, and of Ukraine’s independence, sovereignty and territorial integrity.
The European Council reiterates its call on all countries to immediately cease any assistance to Russia in its war of aggression against Ukraine, whether direct or indirect, and notably through the provision of dual-use goods and components. In particular, it strongly condemns the deployment of the DPRK’s military forces in the war against Ukraine as well as the continued military support provided to Russia by Iran, Belarus and the DPRK, among others.
The European Union remains committed to ensuring full accountability for war crimes and the other most serious crimes committed in connection with Russia’s war of aggression against Ukraine and fully supports ongoing efforts within the framework of the Council of Europe towards the operationalisation of the International Claims Commission for Ukraine and the Special Tribunal for the Crime of Aggression against Ukraine. The European Council urges Russia and Belarus to immediately ensure the safe and unconditional return to Ukraine of all unlawfully deported and transferred Ukrainian children and other civilians.
The European Council acknowledges the importance of the extension of temporary protection for displaced persons from Ukraine until March 2028.
The European Union remains committed to supporting Ukraine’s repair, recovery and reconstruction, in coordination with international partners, including in the areas of demining assistance and psychological and psychosocial rehabilitation.
The European Council welcomes the holding of the Intergovernmental Conference on the accession of Ukraine to the European Union and the opening of clusters 2 and 3 on 13 October 2026, and looks forward to the opening of all the other clusters, in line with the merit-based approach.
The European Council will revert to this issue at its next meeting.