Outcome of the European Council meeting of 17 October 2024

Written by Ralf Drachenberg and Rebecca Torpey.

The last formal European Council meeting under the presidency of Charles Michel had an exceptionally full agenda, covered in only a day. The most prominent topic was migration, with EU leaders agreeing on comprehensive conclusions, marking a shift in the European Council’s approach to the issue. Strong emphasis was put on fighting the instrumentalisation of migrants and on increasing returns. Other core agenda points were Ukraine, with President Volodymyr Zelenskyy presenting his ‘victory plan’, and the Middle East, with EU leaders expressing their deep concern about the military escalation in the region and calling on all actors to show restraint and abide by international law. The meeting’s conclusions also address competitiveness, the rules based-international order, hybrid threats, energy prices, COP29 and COP16, fighting discrimination, and the situations in Moldova, Georgia, Sudan, Venezuela, Morocco and Haiti.

General

The European Council meeting was preceded on 16 October by the first EU-Gulf Cooperation Council summit. The summit’s theme was ‘Strategic partnership for peace and prosperity’, with discussions covering trade, energy, climate change, connectivity, and international conflicts. This was the first European Council meeting for Estonian Prime Minister Kristen Michal and Dutch Prime Minister Dick Schoof.

European Council meeting

Ukraine

President Zelenskyy attended the European Council meeting in person to present his victory plan, which EU leaders did not endorse as such. The plan has five main points: (i) extending to Ukraine an invitation to join NATO; (ii) strengthening its defence capabilities against Russia; (iii) adopting a comprehensive non-nuclear strategic deterrence package; (iv) protecting Ukraine’s critical natural resources and joint use of their economic potential; and (v) replacing some American soldiers in Europe with Ukrainian soldiers, as compensation for the support provided and a return on investment in Ukraine’s victory.

The European Council reiterated previous conclusions: (i) condemning Russia’s war against Ukraine, which constitutes a manifest violation of the UN Charter; (ii) expressing unwavering commitment to Ukraine; (iii) promoting broad international support for peace based on Ukraine’s peace plan; (iv) opposing Russia’s weaponisation of food; (v) pushing for an extended mandate for the EU Military Assistance Mission; (vi) condemning Russian attacks against civilian and critical infrastructure; (vii) supporting efforts to ensure Ukraine’s energy security; viii) stressing that any action impeding the safety of nuclear facilities was unacceptable; (ix) calling for more measures to counter circumvention of sanctions; (x) underlining firm support for Ukraine’s repair, recovery and reconstruction – with the next Ukraine Recovery Conference in 2025; (xi) supporting Ukraine in its reforms as part of its European path; (xii) committing to providing help for persons displaced by the war, including through financial assistance to Member States; (xiii) condemning third-country support for Russia, pointing to ‘significant restrictive measures’ taken against Iran (in his address, Zelenskyy noted that China was also helping Russia, and that North Korea had army officers deployed on occupied Ukrainian territory); and xiv) welcoming the agreement on the use of profits from frozen Russian assets, while continuing to address all relevant legal and financial aspects.

In addition, EU leaders called: on the Council to swiftly adopt an updated mandate for the EU Military Assistance Mission, and quickly finalise work on assistance measures to incentivise the delivery of military support via the European Peace Facility; for military support and its delivery, notably of air defence systems, ammunition and missiles, to be swiftly increased (before the summit, Denmark, the Netherlands and Czechia released a joint statement that they would continue to deliver ammunition to Ukraine); and for concrete action to further integrate Ukraine’s energy system with the EU’s. They also expressed particular concern over reports that Russian forces had violated international law by executing Ukrainian prisoners of war.

Regarding support for Ukraine’s current and future military, budget and reconstruction needs, the European Council underlined the ‘importance of living up to the commitment made at the G7 Apulia Summit to provide, together with G7 partners, €45 billion (US$50 billion)’ for Ukraine. While Hungary confirmed it would block plans aimed at changing the EU sanctions regime before the US elections, a change required by G7 partners to agree to a joint loan (to be repaid using the profits from frozen Russian assets), a recent agreement in the Council on the Commission loan proposal for exceptional micro-financial assistance of €35 billion was ratified by Parliament in plenary on 22 October.

Main message of EP President Roberta Metsola: We support President Zelenskyy’s peace formula and victory plan as the way forward, and those who tried to destroy Ukraine will pay to rebuild it.

Middle East

The European Council, ‘alarmed by the dramatic military escalation in the Middle East’ and the ‘dangerous cycle of attacks and retaliation’, adopted extensive conclusions on the Middle East, focusing on four broad aspects: (i) the situation in Lebanon; (ii) the situation in Gaza; (iii) destabilising actions by other actors in the region; and (iv) the United Nations Relief Works Agency (UNRWA).

On Lebanon, it deplored the ‘unacceptable number of civilian casualties’, the forced displacements following military operations against Hezbollah, and the persistent use of military force, while stressing that Hezbollah’s rocket attacks must stop. The European Council called ‘for an immediate ceasefire across the Blue Line’ and for a ‘symmetrical and full implementation of UN Security Council Resolution 1701′. It also emphasised that the EU would continue to support those affected by the humanitarian crisis in Lebanon, calling on partners to do the same. Moreover, EU leaders condemned the Israeli attacks on UN peacekeepers in Lebanon, described as ‘a grave violation of international law’. In addition, France, Italy, Germany and the UK issued a joint statement condemning the attacks.

Condemning again – one year on – ‘in the strongest possible terms’, Hamas’s brutal terrorist attack on Israel on 7 October 2023, the European Council called for an immediate ceasefire in Gaza, the unconditional release of all hostages, urgent access for humanitarian aid, and a lasting end to hostilities, in line with UN Security Council Resolution 2735. EU leaders deplored the unacceptable number of civilian casualties in Gaza and the West Bank (reportedly over 42 000) as well as the ‘catastrophic levels of hunger and imminent risk of famine’ in Gaza. They also condemned the further escalation in the West Bank, with increased settler violence, the expansion of illegal settlements and Israel’s military operation. The Council was requested to take work forward on measures against extremist settlers. EU leaders committed to actively working on a revival of the peace process based on the two-state solution, and the organisation of a peace conference as soon as possible.

The European Council condemned Iran’s attacks on Israel on 1 October 2024, and its destabilising actions throughout the region through terrorist groups such as the Houthis, Hezbollah and Hamas. It reiterated Israel’s right to defend itself, while stressing the need for all parties to respect international humanitarian law. Moreover, emphasising the contribution of EUNAVFOR ASPIDES to maritime security, EU leaders called on the Houthis to stop their attacks on ships in the Red Sea. 

Lastly, the European Council confirmed its resolute support for the UN Secretary-General. It stressed the essential humanitarian role of the UN and UNRWA in the Occupied Territories since 1949, and denounced obstruction attempts, such as a draft Israeli law to limit UNRWA operations.

Competitiveness and the European Semester

As expected, EU leaders reviewed progress made on the new European competitiveness deal, building on the April and June conclusions. Both Enrico Letta’s ‘Much more than a market‘ and Mario Draghi’s ‘The future of European competitiveness – A competitiveness strategy for Europe‘ reports fed into the discussions, which were kept short due to more pressing foreign policy issues. The conclusions called for work on the challenges identified in the two reports to be taken forward, noting its ‘urgency’. Competitiveness will be a central topic at the EU leaders’ informal meeting in Budapest on 8 November 2024, at which Hungary hopes a ‘Budapest declaration’ will be adopted. Furthermore, the integrated country-specific recommendations were endorsed by the European Council, thus concluding the 2024 European Semester.

Migration

The European Council held an in-depth discussion on migration. While topics such as better control of the EU’s external borders, increased returns and the instrumentalisation of migrants for political purposes have been discussed numerous times in the past, the overall context has been changing recently. Suggestions such as return hubs were highly controversial not so long ago; in recent months, however, a number of EU Member States have called for stricter measures to increase returns. As shown in the Spring 2024 Eurobarometer survey, this is also a result of European citizens’ demands, for whom migration is the second highest concern. While EU leaders disagree on a number of aspects of the ‘comprehensive approach to migration‘, all acknowledge the salience of the topic, migration being seen as a European challenge, requiring a European response. European Council President Charles Michel described the EU leaders’ discussion as detailed and qualitative, with converging views on the external dimension. Six aspects dominated the discussion.

Returns: One aspect on which all EU leaders seem to agree is the need to increase the effective return rate of third-country nationals whose asylum applications have been rejected, which lies at only 20 %. The need for stronger return policies was also stressed in Michel’s invitation letter. In her political priorities, Commission President-elect Ursula von der Leyen announced a new legislative proposal on this issue, one which EU leaders invite her to submit ‘as a matter of urgency’ and which is expected soon. The need for new legislation for more effective returns was also stressed in a non-paper by Austria and the Netherlands and supported by Croatia, Czechia, Denmark, Finland, France, Germany, Italy, Lithuania, Luxembourg, Malta, Norway, Slovakia, Sweden and Switzerland.

Cooperation with countries of origin and transit: EU leaders called for enhanced cooperation with countries of origin to address root causes of migration and fight trafficking and smuggling through mutually beneficial partnerships, including visa policy alignment by neighbouring countries. Von der Leyen reported that the existing partnerships with countries neighbouring the EU were working.

Instrumentalisation of migration: Following Polish Prime Minister Donald Tusk‘s recently announced temporary suspension of the right to asylum – justified by security concerns linked to the high number of irregular migrants coming via Belarus, many EU leaders expressed understanding or support for Tusk’s position. They highlighted Poland’s special situation in the context both of the Ukraine war and Europe’s security. The conclusions express this ‘solidarity with Poland and Member States facing these challenges’, stating that ‘exceptional situations require appropriate measures’. Von der Leyen clarified that the decision was legally justifiable if ‘temporary and proportionate’.

Opt-outs: Hungary and the Netherlands even want to go beyond temporary and exceptional measures, signalling their wish to opt out of the EU’s asylum and migration policies.

Accelerating implementation: Meanwhile, Spanish Prime Minister Pedro Sánchez highlighted the positive impact of migration on economic development. He also proposed to bring forward the entry into force of the European Pact on Migration and Asylum, an idea supported by France, Germany, Ireland and the Commission President. In contrast, Tusk indicated that that he did not intend to implement the Pact, which is not mentioned at all in the European Council conclusions. The conclusions only stress the importance of implementing and applying EU legislation.

Innovative measures: In June 2023, the use of ‘innovative measures‘, referring notably to the use of disembarkation centres (i.e. centres outside the EU for a first screening of asylum applications), was heavily debated. Supported by Denmark and Austria at the time, the proposal was strongly rejected by other Member States such as Belgium, Luxembourg and the Netherlands. Now this terminology seems to be being used more broadly, with the 10 October JHA Council tasking experts to explore ‘innovative ideas related to returns’. Along the same lines, EU leaders called for ‘new ways to prevent and counter irregular migration [to] be considered, in line with EU and international law’.

Numerous leaders, such as Dick Schoof and Greek Prime Minister Kyriakos Mitsotakis, have stressed the need to focus on innovative solutions, including regional hubs. This shift is reflected in the Commission approach, with von der Leyen referring in a letter to EU leaders to ‘designing innovative ways to counter illegal migration’, and indicating her willingness ‘to explore possible ways forward as regards the idea of developing return hubs outside the EU’. The first Italian ‘migrant detention centres’ in Albania were declared operational, but the first migrants have now been returned to Italy following a court ruling. A group of 11 like-minded EU leaders met with von der Leyen to discuss ‘innovative solutions’ to tackling irregular migration, and agreed to meet again ahead of the next meeting. Notable critics of migration hubs include Sánchez, Irish Taoiseach Simon Harris and Belgian Prime Minister Alexander De Croo, the latter arguing that ‘history shows that these solutions lead nowhere’. EU leaders will most likely revert to these topics at their 19-21 December meeting.

Main message of the EP President: Roberta Metsola called for swift implementation of the EU Pact on Migration and an urgent increase in the return rate of failed asylum-seekers, President von der Leyen’s letter being a good start for the discussions between the EU institutions.

Other items

The UN system: EU leaders reiterated their commitment to multilateralism and the rules-based international order with the UN at its core, thereby welcoming the Pact for the Future.

Morocco: EU leaders reiterated the main points of the Commission statement following the Court of Justice of the EU’s recent judgment relating to EU-Morocco agreements.

Moldova: EU leaders expressed their steadfast support for Moldova’s EU path. They condemned Russia’s attempts to undermine the coming weekend’s democratic elections and welcomed sanctions adopted against those trying to destabilise Moldova.

Georgia: EU leaders reiterated their concerns regarding actions by the government jeopardising Georgia’s European path. They stressed the importance of free media and their hope that the upcoming parliamentary elections would be free and fair.

Read this briefing on ‘Outcome of the European Council meeting of 17 October 2024‘ in the Think Tank pages of the European Parliament.