The EU is already struggling with how to get its largest-ever budget agreed, plug a massive financial hole for Ukraine and navigate geopolitical pressure from the U.S. and China. Now, it also faces being paralyzed by domestic political strife in the countries that collectively make up around 60% of its GDP and population.

“Everybody used to understand that we need to finish … a political agreement by the end of the year,” Cypriot President Nikos Christodoulides told POLITICO in an interview on the sidelines of last week’s European Council, referring to the bloc’s fraught budget negotiations.

But the Spanish election means that will no longer be possible, he said. And next year, “it’s going to be France, Italy” and others going to the polls, Christodoulides added, predicting even more complications for the bloc.

The EU is facing an unprecedented dilemma: Its four biggest economies are all heading into elections or political upheaval, potentially hamstringing the bloc’s ability to get anything done.

Spain will go to the polls next month, with the center right and far right on track to take power. France is changing presidents in April, with polls favoring far-right figurehead Marine Le Pen. The Alternative for Germany is ascendant, putting Friedrich Merz’s chancellorship in doubt. And Italian Prime Minister Giorgia Meloni’s unusually long-serving government is also heading to an election in 2027.

The consequences are already becoming clear.

The bloc’s latest summit offered an early taste of what lies ahead: After two days of talks, leaders failed to make headway on the €2 trillion budget and instead became embroiled in an unexpectedly bitter row on energy policy. The summit’s conclusions notably omitted any mention of finding consensus on the budget before the end of the year, with member countries resisting a push by European Council President Antonio Costa for an end-2026 deadline, although there are summits scheduled for November and December.

If those meetings fail to produce a deal, then the already fractious talks will spill over into 2027, when electoral battles are likely to loom even larger over negotiations — and governments may be increasingly reluctant to make the compromises needed to reach agreement.

Triple assault

The paralysis Brussels fears as Europe’s election cycle gathers pace is already beginning to take hold, with last week’s summit exposing how difficult it is becoming to forge the compromises the bloc needs.

Rather than strike any big deals (a Franco-German accord on cars was the one exception), the leaders used the gathering to dig in on entrenched positions and seek tactical advantages over rival camps.

The pessimism was palpable, according to six diplomats and officials POLITICO spoke to, with several warning the EU faces sharp headwinds in the coming months. All were granted anonymity to speak freely.

“Next year, it will be worse,” said one senior EU diplomat.

“It’s true, because of this calendar for the elections … in the next year it’ll be much more difficult in the member states and inside the [European] Parliament,” said Carla Tavares, a senior MEP with the Socialists and Democrats and co-lead on budget negotiations.

The bloc’s internal malaise could hardly come at a worse time.

From U.S. President Donald Trump’s undermining of the transatlantic alliance to an ever-widening trade imbalance with China, the EU is facing mounting geopolitical and economic pressures on multiple fronts.

“They seek our division. They want our division,” Belgian Prime Minister Bart De Wever told reporters at a late-night briefing during the summit, not mentioning names but referring to countries to the east and west of Brussels. “And they have, of course, points where they can hurt us.”

Former Lithuanian Foreign Minister Gabrielius Landsbergis, now a visiting fellow at Stanford University, was less circumspect. “Now we are under assault from three sides: from the U.S., Russia and China,” he said.

Washington is questioning the old alliances that have underpinned European security for generations. Moscow is waging a shadow war across Europe, from cyberattacks and sabotage to an attempted drone attack at Leipzig airport that Berlin blamed on the Kremlin. Beijing is tightening its grip on critical supply chains and flooding European markets with cheap exports.

Then there’s the Ukraine problem. The country is facing a budget shortfall of $30 billion to $35 billion next year, according to the IMF, with Russia battering its energy infrastructure ahead of a brutal winter. That’s despite the €90 billion the EU already agreed to stump up last year.

Landsbergis said the coming months are looking “extremely dire” for Kyiv. “Everything falls on European shoulders,” he said.

Ukrainian President Volodymyr Zelenskyy sounded a grim note at last week’s summit, telling reporters that if Ukraine falls, 20 million Ukrainians will flood into the EU. “Russia is killing us,” he said. “They don’t want to stop.”

One solution to Ukraine’s funding woes could be the €200 billion in Russian assets that have been immobilized indefinitely in Brussels-based financial depository Euroclear. But there is no sign of the EU finding common ground on that front either, with Belgium, which vetoed previous efforts to use the assets to help Ukraine, still refusing to budge.

“Nothing has changed,” Swedish Prime Minister Ulf Kristersson said as he exited last week’s summit early.

Other potential solutions, such as issuing more joint debt, will require messy compromises — just as Brussels finds itself with even less room to maneuver.

Who you gonna call?

The EU’s problems go beyond its budget or individual policy files. With the political futures of several of Europe’s most powerful leaders in question, Brussels risks losing the stable alliances and long-serving national heavyweights needed to broker compromises.

“We now have Europe with no obvious leader,” another EU diplomat argued. Commission President Ursula “von der Leyen is powerful. But we do not have a Merkel or Mitterrand.”

French President Emmanuel Macron cannot constitutionally serve a third consecutive term and will have to find new digs in Paris after leaving the Élysée Palace in April. During a closed-door discussion at last week’s summit, Macron admitted he wouldn’t have a political mandate to sign a deal on the budget in his final months in power, four European diplomats said.

Spanish Prime Minister Pedro Sanchez is on track for defeat after eight years in power, according to polls. Spaniards will vote on Nov. 29, meaning Sanchez will be in full election mode during EU leaders’ meetings on Nov. 13 and Nov. 26.

Costa, who has stressed the need to reach an agreement on the EU’s budget by the end of 2026 to make sure it’s ready to go by 2028, waved off fears that the bloc’s next spate of elections could get in the way.

“We are living in 27 democracies,” he said on Friday. “More or less every month we have one election. If it’s about elections, we never could approve a new budget.” 

Regardless of the result, Madrid is not expected to form a government until January, which could derail the budget talks, according to two EU diplomats.

It’s anyone’s guess how long German Chancellor Merz has left in office. While the next federal election is not scheduled until 2029, the AfD’s growing strength and his own nosediving popularity complicate how much Merz might be willing to compromise.

Italy, too, is set for elections in October 2027. Another EU diplomat said they did not expect Meloni to wait that long, arguing she could call a vote much earlier.

There could be a sweet spot in January to get the budget over the line, a senior EU official suggested. It may be the last chance to strike a deal before Europe’s political upheaval makes compromise even harder to come by.

So far, the EU’s leaders have simply been “too slow,” said Siegfried Mureșan, the European People’s Party’s co-lead on the budget. “Time is running out.”

Nicholas Vinocur contributed reporting.

BRUSSELS — There is “no logic” to U.S. President Donald Trump’s recent moves to take Russia’s side in the Ukraine war, and he should remember his true allies lie in Europe, Finland’s prime minister said Thursday. 

In an exclusive interview with POLITICO, Petteri Orpo summed up the shock and dismay among Ukraine’s allies after Trump announced a diesel deal with Russia’s leader, Vladimir Putin, and reportedly imposed limits on Kyiv’s access to the military intelligence and technology needed to counter Russian attacks.

“My message to him [Trump] is that we are allies,” Orpo said on the sidelines of the European Council summit in Brussels. “We are in NATO. And what is the biggest threat against NATO? It’s Russia — and that is why there is no logic. I don’t have answers. I have many questions.” 

Trump alarmed European leaders and horrified Ukrainian President Volodymyr Zelenskyy this week by announcing a deal to release Russian diesel onto the market, apparently in an attempt to lower fuel costs for American consumers. Ukraine’s allies fear the move will boost Russia’s revenue from fuel sales, giving it more money to spend on war. 

Trump also said Ukraine should stop hitting Russian fossil fuel facilities — as part of what he said was a ceasefire on energy infrastructure — and should replace Zelenskyy. 

Finland is an influential voice among Ukraine’s European allies: The country has the EU’s longest land border with Russia, at 1,300 km, and its president, Alexander Stubb — a talented sportsman — won Trump’s respect on the golf course, giving him leeway to try to influence White House policy.

Orpo said if he were in Trump’s position “I would not trust Putin.” Zelenskyy has said he fears Ukraine is losing the U.S. to Russia’s side in the war, warning the Americans and their president are on “the wrong side of history”. Orpo said he agreed: “I think he is, and they are.” 

Ukraine now faces grave danger, he said. “The sky is open for Russia, there are missiles. They need more military support, air defense,” Orpo said. “Also, the situation is dangerous because of the latest deal between Trump and Putin.”

Midterms move

One possible reason Trump turned against Ukraine with that diesel deal is the U.S. midterm elections on Nov. 3. “I think it is because of domestic reasons — elections are coming,” Orpo said. “But we need to get them back.” Nonetheless, he said the amount of Russian diesel that could be sold to the U.S. is too small to make much of a difference for American consumers. 

Whatever happens, EU leaders must equip Ukraine with weapons and cash, whether or not they can rely on the U.S., he said. “Today, we need to find a solution [on] how to support Ukraine, how to finance Ukraine in this winter, but also in next year,” Orpo said. “It’s crucial.”

Finland and Sweden are among the countries pushing the European Commission to reopen the fractious debate over how to use Russia’s financial assets currently frozen in European banks, especially in Belgium, which blocked a deal to raid the funds last year over legal concerns. 

“The best solution would be that we will have a solution on how to use frozen assets,” he said. “We have to try again,” Orpo said. 

Finland has asked the Commission “to continue work with Belgium, and the other member states, to find a solution.” He said he hoped to hear an update from the Commission during the summit. “It’s a better solution than using our own money.”

Budget blues

European leaders are arguing this week over their long-term budget, which Brussels officials want to finalize by the end of the year. Many diplomats do not expect a deal this year, and some leaders say they’re in no hurry. 

But others want the budget, worth around €2 trillion, signed off by December because they fear next year’s European elections — especially if far-right leader Marine Le Pen wins the French presidency — will derail negotiations. 

The longer budget negotiations last, the “more difficulties we will have,” Orpo said. “So we have to work to find a solution this year. I understand very well that it is difficult, a huge challenge, but I cannot see how it would be easier next year, because in France elections are coming, for example.”

Finland also has an election coming up in April 2027. Orpo’s center-right National Coalition Party is struggling in the polls. “This time has been very difficult,” he said. “But, finally, our economy is growing.”

Orpo’s Swedish sister party, the Moderates, mounted a late surge in last month’s election. Although that seems unlikely to keep them in office, Sweden’s Moderates still have a slim chance, even though many commentators had written them off long before the vote.

“They did excellent campaign work, and in the end of the day, people vote Moderates, not populist or socialist,” Orpo said. “I would like the same in Finland.”

WARSAW — European leaders are preparing to demand tougher sanctions on Russia at a summit on Thursday, putting them at odds with Donald Trump just days after the U.S. president struck a deal with Vladimir Putin to ease restrictions on Russian diesel exports.

The leaders plan to call for further sanctions and measures targeting Moscow’s oil revenues at the European Council, according to a recent draft joint statement obtained by POLITICO, as EU governments reject Trump’s claim to have secured an energy ceasefire between Russia and Ukraine.

The disagreement exposes a widening divide over how to bring Moscow to the negotiating table. While Trump is seeking to bring down U.S. fuel prices by allowing more Russian diesel onto global markets, European leaders argue that restricting the Kremlin’s energy revenues remains essential to forcing Putin to end the war.

“Russia is not interested in deescalation, ceasing fire or peace,” Polish Prime Minister Donald Tusk told a security conference in Warsaw on Monday. “That is why I will go to Brussels to ask my partners to consider seriously increasing sanctions against Russia.”

German Chancellor Friedrich Merz also called for further restrictions, pointing to Moscow’s continued attacks on Ukraine’s energy infrastructure despite Trump’s announcement of a ceasefire.

“Russia will only negotiate in good faith under pressure,” Merz said Monday. “Following Moscow’s reckless attacks on Ukraine’s civilian energy supply, we must even tighten [sanctions] further.”

The push comes after EU foreign ministers on Monday approved the bloc’s largest-ever addition to its Russia sanctions list, targeting more than 1,600 individuals and entities. The European Commission is also preparing a 23rd package of sectoral sanctions, which Kyiv expects to be circulated to EU governments by the end of the year, according to a senior Ukrainian official who was, like others in this article, granted anonymity to speak frankly on the sensitive negotiations.

Other European countries are taking a similar position. Britain and Norway have also pledged to increase pressure on Moscow.

“It’s important to sanction Russia not to finance the war,” Norwegian Defense Minister Tore O. Sandvik told POLITICO, calling for loopholes in existing restrictions to be closed.

Trump’s election calculation

Behind closed doors, many European diplomats see Trump’s abrupt shift toward easing restrictions on Russian energy as driven primarily by domestic political concerns ahead of next month’s U.S. midterm elections.

That is the “broadly held view” among EU officials, according to one senior official.

The president is under mounting pressure over fuel prices, which have surged since the outbreak of the U.S.-Israeli war with Iran. Having promised during his 2024 campaign to bring gasoline prices below $2 a gallon, Trump now faces an electorate paying more than twice that amount, with Republicans at risk of losing control of Congress.

His agreement with Putin is intended to release an additional 4.8 million tons of Russian diesel onto global markets over the coming months, easing pressure on fuel supplies and prices.

But European and Ukrainian officials question whether the additional supply will make a meaningful difference, saying that the total volume promised amounts to only around 10 days of U.S. demand. They feel the deal risks undermining efforts to deprive Moscow of the revenues funding its invasion.

“The reality” is that the additional fuel will have a “minimal” impact on U.S. prices, the senior EU official said.

“This is about the midterms,” a second EU official said. “He said he would bring down prices, but then he decided to go to war with Iran.”

The officials also question whether Putin intends to honor Trump’s purported energy ceasefire. Russia has continued striking Ukrainian energy infrastructure since the announcement, while Kyiv says it was not consulted on the arrangement.

For now, most European officials are reluctant to criticize Trump publicly, despite any doubts about the agreement. The EU and Ukraine should maintain their position over the coming weeks, when the administration’s longer-term intentions toward Kyiv may become clearer, one diplomat said, adding that Trump might even change course again if Putin fails to deliver the promised diesel.

Pressure on Washington

The dispute has also revived European calls for Washington to enforce its own sanctions against Moscow.

Tusk urged Europe and the United States to act together to show Russia they were prepared to impose tougher measures, while EU foreign policy chief Kaja Kallas called on Washington to align its approach with Brussels.

Kallas pointed to sweeping Russia sanctions legislation championed by the late Republican Senator Lindsey Graham, which Trump signed into law last month but has yet to fully implement.

The legislation gives Washington additional tools to target Russia’s energy trade and those helping sustain its war effort. European officials want the administration to use them rather than loosen restrictions on Russian exports.

Some Republicans are also calling for tougher action.

“I think we need to be implementing the Russia sanctions bill,” Republican Representative Dan Crenshaw told the Warsaw conference.

The disagreement is raising wider questions in Europe about its dependence on Washington, particularly amid reports that U.S. officials have threatened to restrict Ukraine’s access to American weapons unless Kyiv stops attacking Russian oil refineries.

There is currently “no sign” Washington is following through on those threats, a NATO official told POLITICO, arguing that restricting sales would also hurt American weapons manufacturers.

“PURL is a good deal for the Americans,” the official said, referring to the NATO initiative under which European allies finance purchases of U.S. weapons for Ukraine.

European Defense Commissioner Andrius Kubilius, without directly addressing the reports, said Europe needed to take “primary responsibility” for its own defense more urgently as Washington reduces its military presence on the Continent.

The immediate test, however, comes on Thursday, when EU leaders will seek to maintain pressure on Moscow even as their most powerful ally moves in the opposite direction.

Victor Jack and Sebastian Starcevic contributed reporting from Brussels, James Angelos contributed reporting from Berlin, Esther Webber contributed reporting from London.

The United Kingdom, Germany and Poland have reaffirmed their support for Ukrainian President Volodymyr Zelenskyy after U.S. President Donald Trump said the country needed a new leader.

Polish Prime Minister Donald Tusk wrote on X that he was “absolutely convinced” nobody could break Ukraine and its president in their “fight against Russian aggression.”

“I have assured [Zelenskyy] that he can count on Poland’s and Europe’s full solidarity with the Ukrainian nation,” he added.

German Foreign Minister Johann Wadephul also reaffirmed his country’s support for Zelenskyy Sunday, while calling for greater pressure on Moscow to return to peace talks.

“We need continued consistency and clarity on the side of Ukraine,” he told Reuters at a meeting of the governing Christian Democrats.

The show of support comes after Zelenskyy and Trump traded barbs Saturday following Washington’s decision to ease diesel sanctions on Russia. “I think it’s time for Ukraine to get a new president,” Trump told reporters at the White House as he criticized Ukrainian strikes on Russian oil facilities.

On Sunday, the Ukrainian president stated on social media that his country would be prepared to stop attacking Russian oil refineries “if Russia stops striking our energy infrastructure.”

The U.K. also reiterated its support for Kyiv following Trump’s remarks. “We stand with Ukraine. We stand with President Zelenskyy,” British Defense Secretary Wes Streeting told the BBC Sunday morning, adding that Ukrainians alone should decide who leads their country.

Streeting said Russian President Vladimir Putin started the war and could end it, and added that Britain’s priority would be to seek reconciliation between Kyiv and Washington.

On Saturday, British Prime Minister Andy Burnham spoke with Zelenskyy and reiterated Britain’s “complete solidarity,” Downing Street said. Burnham acknowledged that “the last 24 hours had been difficult for Ukraine” and pledged to strengthen sanctions, according to the statement.

KYIV — Russia’s Vladimir Putin is preparing for a broader confrontation with Europe amid an uptick in the Kremlin’s hybrid attacks on the continent, Ukraine’s former Foreign Minister Dmytro Kuleba has warned.

In an interview with the Axel Springer Global Reporters Network, Kuleba, who was Ukraine’s foreign policy chief from 2020 to 2024, said that Russia’s continued war preparations and anti-European propaganda are signs that Putin is planning attacks on other European countries.

“Anti-European hysteria is being fueled in Russia, which I interpret as the preparation for a broader conflict with the rest of Europe,” said Kuleba, before adding: “We [Ukrainians] don’t have to drag you — Putin will drag you into the war.”

European officials say Moscow has upped its hybrid campaign across the continent in recent months, using cyberattacks, sabotage and disinformation to disrupt critical infrastructure and weaken support for Ukraine.

Kuleba said the failed drone attack on the Leipzig airport in Germany in August was a sign of “growing preparation” for an offensive on the continent. “They see how your intelligence operates. They see how your security forces operate. They see how you react and they draw conclusions,” he added.

In the aftermath of the incident, the German government concluded that Moscow was responsible for the attack, and ordered a review of security around sensitive locations.

However, Kuleba, who stood down as Ukraine’s foreign policy chief in September 2024, does not think Russia is preparing a full-scale offensive beyond Ukraine. In his view, Moscow is more likely to launch an attack on NATO countries involving drones targeting key infrastructure that would test the alliance’s unity and preparedness.

“The truth is that Russia does not need 400,000 more people to wage that war. It needs five drones,” he said, adding that in the event of an attack, “[Europeans] can call for NATO consultations… can call for restraint. But this will only encourage Putin to make the next step … He will always have enough drone and missile capabilities.”

Kuleba no longer believes Putin can be persuaded to end the war through negotiations. “He’s not looking for a solution, for a pause, and there will be no moment when he will start looking for it,” he said, concluding: “Putin is a guarantee of war: anyone after Putin is a chance for peace.”

According to Kuleba, any attempts at negotiating with Putin, or pushing for peace, are a waste of time. “The sooner we come to terms with reality, the better policies we can develop to address it,” he said.

He noted that while Europe’s political culture is based on “a win-win approach” in which both sides can benefit, Putin’s outlook is very different: “For him, a solution that benefits both sides is not the best option. For him, the world works on the principle of victory and defeat. One side has to win and the other has to lose,” said Kuleba.

The former foreign minister also warned that Ukraine would face its worst ever winter as Moscow ups its attacks against civilians in a bid to break their spirit.

In recent months, Russian strikes have hit Ukraine’s energy infrastructure and transport links, including bridges over the Dnipro river, as well as homes and civilian sites such as bus stops, schools, postal depots and internet providers. The attacks have disrupted power, transport and daily life as winter approaches.

On Thursday, at least 33 people were killed in a Russian attack on two buses in Kramatorsk in Ukraine’s Donbas region.

Kuleba explained why he believed Moscow has now sharply escalated its airstrikes: “The bombing of cities is a direct consequence of Russia’s failure to defeat Ukraine on the battlefield.” He continued: “The main target of Russian drones and missiles is the Ukrainians’ will to resist — but also the will of Ukraine’s friends abroad to keep supporting it.”

He added:“They don’t just want to turn out the lights in Ukraine. They want to paralyze the country.”

Kuleba described the worst-case scenario in Ukraine as “the collapse of the systems that make life in a big city possible,” such as electricity, water and drainage services.

Could Russia succeed? “I believe Ukraine is too large, too mobile and too adaptable. That’s why I think we’ll get through this winter,” said Kuleba.

“The price will be much higher than last year’s.”

The Axel Springer Global Reporters Network harnesses the resources of the company’s newsrooms to publish ambitious scoops, investigations, interviews, opinion pieces and analysis. It allows journalists — including those from POLITICO, Business Insider, WELT, BILD, Onet, The Telegraph, and Fakt — to collaborate on major stories for an international audience of hundreds of millions across platforms: online, print, TV and audio. 

BRUSSELS — The EU will only conduct further releases of oil and diesel reserves after the International Energy Agency has made it clear such a move would not be damaging to the bloc’s energy security, three diplomats familiar with the matter told POLITICO.

The Group of Seven — which includes Italy, Japan, Germany the U.K., France and the U.S. — agreed on Friday to release 100 million barrels of oil and diesel after U.S. officials threatened to ban diesel exports if they didn’t tap stockpiles.

However, the IEA appeared to confirm Wednesday that that release would draw from stocks pledged under an agreement in March and not include additional supplies. In other words, it would not amount to a new release at all, but would simply fulfil prior promises.

In a meeting Wednesday afternoon, EU officials endorsed the position, pledging to defer any future drawdowns “pending a clearer IEA assessment of market conditions and security-of-supply risks,” said one of the diplomats. Countries need to know “how low we can go,” said another.

While diesel prices are high as a result of airstrikes on energy infrastructure in Russia and the Middle East, some EU countries warned that releasing stocks now could leave them vulnerable in the event of a supply crisis.

There remain enough untapped stocks among IEA members to satisfy the pledge to release 100 million barrels.

Of the 400 million barrels pledged in March, 325 million have been released, with some countries releasing “greater volumes than they initially pledged,” the IEA said in a statement following an emergency ministerial meeting. That leaves around 100 million left that countries can still release under that agreement, it added.

It said the fresh commitment would represent a “completion” of that March agreement. The IEA’s 32 members include wealthy European, North American and East Asian countries.

POLITICO reported earlier Wednesday that France and Germany — which hold some of Europe’s most significant stockpiles — had signalled they would release no or minimal supplies on top of those already pledged.

It remains unclear what share of the releases non-EU members of the IEA will accept, after Japan, another member, ruled out any further releases.

Further details on the breakdown of the G7 release will be discussed at a meeting of the IEA’s governing board next week, the second diplomat said.