BRUSSELS — NATO allies will hold a crisis meeting to discuss how to respond to a series of drone strikes on cargo shipping in the Black Sea, Romania’s President Nicușor Dan said.

Two chemical tankers were hit by air drones in the past 24 hours in or near Romania’s territorial waters, but it is “too early” to say for sure whether Russia was behind the attacks, Dan added.

Dan was speaking on the sidelines of the European Council summit in Brussels, where he spoke to Bulgarian Prime Minister Rumen Radev and NATO Secretary-General Mark Rutte about the latest incidents.

“The secretary general expressed the solidarity of the alliance and there will be a NAC [North Atlantic Council] meeting at which the whole situation with the Black Sea will be discussed,” Dan told POLITICO. “Of course the conclusion is that all the hybrid attacks are trying to decrease our support for Ukraine. We will continue to support,” he said.

Dan said invoking NATO’s collective defense clause, Article 5, was “not now” being discussed as an option for responding to the attacks. Nor has Romania asked for Article 4 — the emergency clause that sets consultations in motion over military matters when a member’s security has been threatened — to be triggered, he said.

Rescuers are searching for seven missing crew members after two chemical tankers were hit by aerial drones in or near Romanian territorial waters. Over the past 10 days, drones have hit at least five more cargo ships close to Romania and Bulgaria — both NATO members — killing at least 23 sailors.

Investigation teams from Romania’s army and intelligence services are trying to establish what led to the most recent drones strikes on the ships, Dan said.

Romania asked NATO for equipment including specialized radars and requested the delivery to be accelerated after a Russian drone crashed into an apartment building near the border with Ukraine in May.

Dan suggested Romania was likely to seek further assistance with equipment from allies this time. “On the operational level, we are in the same situation where we have been … on the Danube border with Ukraine,” Dan said. “What we did at that moment, we came here to NATO and some of our allies — United States, France, Spain, Italy, Slovakia, Portugal — gave us some equipment. And now we are in the same situation, but on the other border, with the Black Sea.”

After the meeting with Dan and Radev, NATO’s Rutte said the alliance had already increased “counter-drone capabilities” along its eastern flank. “NATO will continue to work closely with our allies in the Black Sea, adjusting our deterrence and defence posture as needed,” he posted on X.

This story has been updated. Victor Jack contributed to the report.

BRUSSELS — European leaders came for the budget. They’re staying for everything else.

A two-day European Council starting Thursday was supposed to be all about the money. Instead, leaders of the 27 EU member countries are heading into one of their most crowded summits in years, with a succession of geopolitical crises threatening to hijack the EU’s carefully laid plans.

European Council President António Costa originally wanted the gathering to accelerate negotiations on the bloc’s next seven-year budget, hoping to seal a deal before elections in France, Italy and Poland in 2027 make an already difficult agreement even harder.

But the world had other plans. Soaring energy prices, tensions with China, Russia’s war in Ukraine (and U.S. President Donald Trump’s ambiguity over it), migration and turmoil in the Middle East have all elbowed their way onto the agenda.

The result is a two-day marathon covering virtually every major challenge facing the EU, from keeping European factories competitive to ensuring the world’s most important shipping lanes stay open.

For anyone trying to follow the action without spending 48 hours glued to Brussels, here’s your guide to what matters.

With the usual warning: EU leaders are notorious for letting discussions drag on or reshuffling the agenda — that’s what our liveblog is for.

Thursday at dawn: The pre-match warm-up

Before the summit even starts, Europe’s political families will gather at the crack of dawn.

The European People’s Party meets from 7:30 a.m. at the Sofitel Brussels Europe — the place to be if you can get in, given how many center-right leaders will be at the summit table.

The Socialists gather from 8:30 a.m. at PES headquarters, with Costa, Spain’s Pedro Sánchez and Denmark’s Mette Frederiksen expected.

Renew kicks off at 8 a.m. at the Palais d’Egmont, with French President Emmanuel Macron and top EU diplomat Kaja Kallas among those expected.

Even without leaders in the summit room, the far-right Patriots got a head start Wednesday, with Marine Le Pen delivering a scathing attack on the state of the EU.

Thursday morning: The energy blame game and China

Leaders kick off with discussions on Europe’s struggle for economic competitiveness, starting with energy — potentially the most politically explosive debate.

Governments want immediate relief from soaring energy prices as a result of the war in Iran, and will push the Commission to introduce new measures on top of the wide-ranging but somewhat toothless package it announced back in March.

Expect finger-pointing between capitals and Brussels over who should act, and for climate policies like the upcoming Emissions Trading System on heating and transport to come under fire.

Next comes China. European Commission President Ursula von der Leyen will brief leaders on efforts to tackle the EU’s enormous trade imbalance with Beijing, following trade chief Maroš Šefčovič’s negotiations with Chinese officials.

Leaders are expected to renew their demand for Brussels to “urgently” tool up with further trade defenses to prevent further deindustrialization of the bloc and to shield further industrial sectors from Chinese competition.

There’s also time for the familiar fight over EU red tape, with calls for Brussels to stop legislating.

Thursday afternoon: Costa’s budget gamble

This was supposed to be the main event. Leaders will discuss Ireland’s negotiating proposal for the EU’s 2028–2034 budget slashed by €159 billion from the Commission’s original proposal.

The positions are well known: The self-styled “modernists” — essentially the old frugals in disguise — want to contain costs, while countries benefiting from EU spending are determined to defend their allocations, under the less glamorous banner of “friends of cohesion.” Positions on new EU-wide taxes are similarly entrenched.

But the real story is timing.

Governments have watered down a commitment to secure an agreement by December, according to draft conclusions seen by POLITICO. Costa wants a deal before a series of high-stakes elections in 2027 complicate negotiations; capitals fear a deadline could weaken their bargaining power.

Most importantly, Costa is moving into the driving seat as budget talks enter their most politically sensitive stage. Watch for clues about a possible extraordinary summit in late November — and whether December remains a credible deadline or leaders quietly start preparing for negotiations to spill into 2027.

Thursday dinner: Making room for new members

Over dinner, leaders will tackle enlargement and the EU reforms needed to accommodate new members — after all, October’s summit has historically been devoted to the bloc’s hopefuls.

Montenegro is edging closer to completing accession negotiations, while progress elsewhere raises questions about whether the bloc is institutionally and financially ready to grow.

The Commission has outlined proposals to prepare the EU for enlargement, and leaders will discuss how internal reforms should accompany the accession process. Watch for a positive signal to Montenegro and commitments on reforming the bloc itself.

Friday morning: Ukraine’s wish list

The second day begins with Ukraine and an expected appearance by President Volodymyr Zelenskyy. Declarations of European solidarity are all but guaranteed. The more interesting question is what leaders are actually prepared to do.

Kyiv needs air defense systems, interceptors and financing as Russian attacks intensify. Leaders could discuss tougher action against Moscow’s shadow fleet and visa restrictions for Russians. And while EU financing for Ukraine has already been agreed for 2026, the country’s needs beyond that remain an increasingly pressing issue.

Could this mean reopening the debate on using frozen Russian assets to plug future funding gaps? That remains a question mark — although no immediate breakthrough is expected.

Friday pre-lunch: Defense and three dangerous waterways

Before breaking for lunch, leaders will turn to Russian hybrid attacks, maritime security and the Middle East.

In the Black Sea, recent attacks on civilian shipping threaten Ukraine’s crucial grain export route. Turkey has floated new protected shipping corridors, while countries including Romania and Bulgaria are pushing to give the issue more attention.

Will leaders back concrete measures or stop at condemnation? That’s the question.

Discussions then turn to the Middle East and two other critical shipping routes: the Strait of Hormuz and the Red Sea. The fallout from the Iran–U.S. war, increased Iranian attacks around Hormuz and renewed Houthi threats in the Red Sea have disrupted global trade and energy flows.

The EU’s Aspides naval mission is short of vessels, and Kallas wants governments to contribute more. Watch whether leaders put ships behind their promises.

The broader Middle East discussion will also touch on Iran, Yemen, the West Bank and Lebanon.

Friday lunch: The migration showdown

Spain’s Pedro Sánchez, Italy’s Giorgia Meloni and Denmark’s Mette Frederiksen are worth watching as leaders discuss migration over lunch, following the crisis in Spain’s North African exclave of Ceuta.

Irregular arrivals have been declining, but disagreements remain over border crises, solidarity and tougher migration controls.

And with an election looming in Spain on Nov. 29, this could be Sánchez’s last tango — and a final chance to defend his government’s handling of the crisis while venting his frustration over the lack of European solidarity.

Watch whether the debate produces agreement or another political clash, as happened last time.

Bonus: Two pressers are better than one

With such a packed agenda, leaders won’t wait until the end of the summit for the usual joint press conference by von der Leyen and Costa. An additional one is planned for Thursday, after the budget debate.

On Thursday, watch Costa’s language on the budget deadline and whether von der Leyen offers any concrete measures on energy prices.

On Friday, look for promises of additional support for Ukraine, whether commitments on maritime security come with actual ships and resources — and commentary on how the migration showdown over lunch went.

Martina Sapio contributed to reporting.

The Ukraine war’s spillover into the Black Sea is creating a growing European security and commercial risk: Drones are hitting ships and killing sailors, grain routes are under strain, and insurers and investors are weighing the cost of operating through Ukraine’s ports.

Five commercial vessels have been hit in Bulgarian and Romanian waters over the past week alone, leaving at least four people dead, several sailors missing and others injured. In response, Black Sea countries Bulgaria, Romania and Turkey have raised the issue at NATO, asking for more focus toward the region and joint support, according to two alliance diplomats.

“The attack within Bulgaria’s exclusive economic zone is absolutely unacceptable. It constitutes a serious breach of maritime and international law and will further jeopardise safe navigation in the Black Sea,” Bulgarian Prime Minister Rumen Radev said on X after the attacks last week.

Russia has been attacking Ukrainian ports and cities in the area since the start of its full-scale invasion. But the recent strikes have brought the spillover into NATO territory. If they continue, EU leaders will face pressure to protect Black Sea shipping and keep Ukrainian trade moving.

Those questions will be top of mind at Thursday’s European Council summit. According to draft conclusions obtained by POLITICO, leaders are expected to discuss the “immediate restoration of safe passage for grain cargo ships.”

A wider problem

Russia is not the only country using naval drones in the Black Sea. Ukraine has also used them against Russian-linked shipping. In June, a Ukrainian sea drone exploded in Romania’s Constanța port after Kyiv said it had veered off course because of Russian electronic interference.

“The Black Sea situation is quite dangerous because attacks are coming from both [sides],” said an EU shipping representative, who was granted anonymity to speak freely. “You have to worry about both.”

Attribution can also be difficult. Bulgarian Prime Minister Rumen Radev said Wednesday that investigators still have not proven that Russia is behind the strikes — although some have attributed his reticence to his broadly softer approach toward the Kremlin.

Drone operations by both Russia and Ukraine are likely to continue as long as each has the money and production capacity to sustain them, said Cristian Vlas, assistant research manager for Eastern Europe at the think tank ACLED.

Oleksii Goncharenko, a Ukrainian lawmaker and founder of the Black Sea Security Forum, told POLITICO that a “serious diplomatic initiative” was needed, bringing together Ukraine, Russia and a third-party guarantor, such as Turkey, “to restore freedom of navigation in the Black Sea.”

Grain routes under pressure

The security risk is disrupting routes that carry Ukraine’s harvest to market, with consequences for EU transport links. Black Sea ports are Ukraine’s main export gateway, handling around 95 percent of the country’s grain exports, as well as significant volumes of iron ore. Shipping traffic has fallen as the security risk has grown.

Some cargo is being rerouted to the River Danube, but capacity there has been stretched in recent months as drought pushes water levels to record lows. Operators are trying to add rail capacity, but that risks moving the bottleneck westward to Romania.

Moving more Ukrainian grain overland also risks reviving tensions with farmers in neighboring EU countries, Vlas said. Romanian farmers have worried that Ukrainian produce meant only to transit could stay on the domestic market, he added, while transport operators are already juggling competing demands for capacity.

Ukraine’s Agriculture Minister Taras Vysotskyi has warned that millions of tons of unsold grain is piling up, and that farmers who can’t sell won’t be able to afford to resow all their land.

Bulgaria is working with Romania and Turkey on a joint initiative to protect freedom of navigation in the Black Sea, which Radev plans to bring to EU leaders on Thursday.

Following the Black Sea countries’ request at NATO, military officials are likely to look into possible options such as shifting counter-drone systems to the region, the two alliance diplomats said. Radev said Sofia will convene his counterparts in Ankara and Bucharest to examine further proposals, while a senior Bulgarian official called for new joint anti-drone systems with Romania, partly financed by the EU.

Investment at risk

The attacks also threaten what had started to look like a renewed bet on Ukraine’s ports. MSC, the world’s largest container line, was among the biggest and newest investors, reportedly acquiring a majority stake in a container terminal at a port near Odesa in May.

Ukraine has also been offering investors a long-term concession at the Chornomorsk terminal near Odesa. This terminal is one of Ukraine’s largest planned port public-private partnerships and part of what is expected to be a multibillion-euro reconstruction effort involving European companies.

But people who work in Ukraine’s ports say the case for rebuilding is collapsing.

“No one is ready to invest and rebuild, since you know that tomorrow there will be another missile, another pack of drones,” Oleg Grygoriuk, chairman of Ukraine’s Marine Transport Workers’ Trade Union, said.

LONDON — Britain and the U.S. sought to ease friction Monday after American bombers were suddenly moved amid major security concerns at the base that hosted U.S. aircraft used to strike Iran.

The U.S. move is the latest stumbling block in the special relationship between the allies and underscores reservations in Donald Trump’s administration about how the U.K. is handling its defense and security commitments.

The Pentagon confirmed on Sunday that it had removed all B-1 bombers from the RAF Fairford air base — where they were deployed to conduct what have been termed as “defensive” strikes against Iran — and sent them back to their home stations in America.

Trump went further, telling journalists Monday evening: “We had an idea that there might be a threat, and why would I leave them there? … If we’re going to be threatened we’re just going to move them, and that sort of alleviates that.”

It comes as Britain’s counter-terrorism agencies investigate a suspected terror plot against the air base, which the U.K. government believes involves Tehran.

Trump on Monday added: “We actually know the people that made the threat, and they’ve got themselves a big problem,” adding in response to a follow-up question: “They would be linked to Iran.”

He later said that he believes the U.K. is still a safe place for U.S. forces.

Downing Street had earlier insisted that the base was safe, but refused to comment directly on America’s decision to remove the bombers from the area.

The move comes as the Trump administration has grown increasingly frustrated with the U.K.’s defense spending and the White House’s continuing anger that the U.K. didn’t send warships to the Middle East to help with the American blockade of Iranian shipping.

Something deeper is wrong

London has yet to outline a path to meet the NATO standard of spending 3.5% of GDP on defense by 2035 — up from its current level of around 2.7%. It has also been shut out of a subgroup within the alliance convened by Pentagon policy chief Elbridge Colby. The group is slated to meet again in Poland some time later this month.

Late last month, Colby hinted at that frustration with London, saying the countries’ long history will continue to bind them, but the British government needs to make the case to its people for spending more on defense.

“There’s this incredible legacy, and that’s what we want to rekindle,” Colby said. “Exactly how you convince the British people [to spend more on defense] I would not presume to say, but … there’s probably sort of a degree of reconciliation between what the U.K. wants to be doing, what it spends, and what it spends on, because you know a modern military is not cheap.”

The U.S. is also conducting a sweeping review of its posture in European NATO countries — including the U.K. — which will determine the number of American troops and military assets on the continent.

Sophia Gaston, a senior national security researcher at King’s College London, said: “The Trump administration is undeniably sensitive to the costs of the Iran conflict as they head into the midterms next month, so their caution is understandable.

“It’s also hard not to, at some level, perceive a degree of uncertainty about the capacity of the British services to currently prevent such an attack. That partly reflects the innate challenge drones and other aspects of modern warfare pose to the sitting ducks of expensive kit.

“But it also speaks to the American wariness towards the pressured state of Britain’s military capabilities. Not only does Washington no longer wish to be solely responsible for allies’ protection, its expectations for the security allies offer its bases has also increased.”

Trump on Monday praised his relationship with new U.K. Prime Minister Andy Burnham. He said: “He’s liberal, very liberal, but I hear he’s going to open up North Sea oil if he does that in Aberdeen. If he does that, you’re going to have a rich country. If he doesn’t, you’re going to have a bankrupt country.”

Britain’s security concerns

In May, the U.K. raised its terrorism threat level to “severe” — meaning a terrorist attack is highly likely — after its MI5 security service said the U.K. had been “experiencing a gradual increase in terrorist threats for some time” including from hostile states like Iran.

In Britain, police and the security services are dealing with a three-fold threat from Iran-backed groups: attacks against Iranian dissidents, attacks against the country’s Jewish population, and the targeting of U.S. assets such as those used for strikes against Tehran.

Counter Terrorism Policing is currently investigating potential Iranian state involvement in a major incident at RAF Fairford on Sept. 27, when police were alerted to three suspicious vehicles near the base.

Six men — including a British-Iranian national — have so far been arrested on suspicion of terror offenses. All have subsequently been released on bail while police continue their investigation.

US strike capability

Though the Pentagon stressed that bombers remain “ready to deliver precision global strike capabilities” — including from the U.S. mainland — removing them would make any further American strikes on Iran more complex, since the bombers would have to double their flight path from the continental U.S. to the Middle East.

There is a fresh U.S. buildup in the region, with a third aircraft carrier currently steaming across the Pacific along with several large amphibious ships carrying 2,500 Marines, joining the 2,500 already at sea in the Middle East, giving President Donald Trump more options should he restart the bombing campaign after the U.S. midterm elections in early November.

Christoph Bergs, a research analyst at the RUSI defense think tank, said: “The basing of US B-1 bombers at RAF Fairford for operational employment against Iran was based on the UK stipulation that these were only used for defensive strikes. This likely included a more modest targeting list. Their withdrawal reduces the capacity to quickly surge sorties against Iran, reducing the threat level somewhat.”

The Pentagon declined to comment on whether it will, or is considering, the removal of other aircraft from British bases used to support operations against Iran.

This article has been updated with comments from Donald Trump.