UPN, Alm.del - 2025-26 - Bilag 11: Rådssekretariatets konklusioner vedrørende møde i Det Europæiske Råd den 23. oktober 2025

Det Udenrigspolitiske Nævn 2025-26
UPN Alm.del Bilag 11
Offentligt

European Council

Brussels, 23 October 2025

(OR. en)

EUCO 18/25

CO EUR 15

CONCL 5

NOTE

From:

To:

Subject:

General Secretariat of the Council

Delegations

European Council meeting (23 October 2025)

–

Conclusions

Delegations will find attached the conclusions adopted by the European Council at the above

meeting.

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Conclusions

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23 October 2025

UKRAINE

The European Council held an exchange of views with Volodymyr Zelenskyy, President

of Ukraine.

The European Council discussed the latest developments as regards Ukraine. The text

set out in document EUCO 19/25 was firmly supported by 26 Heads of State or

Government.

The European Council will revert to this issue at its next meeting.

II.

MIDDLE EAST

The European Council welcomes the agreement reached on the first phase of the

Comprehensive Plan to end the Gaza Conflict put forward by President Trump, as well

as the outcome of the Sharm el-Sheikh Summit for Peace held on 13 October 2025.

It commends the diplomatic efforts led by the US and the role played by the regional

mediators, which the European Union has consistently supported. It calls on all parties

to fully commit to implementing all phases and to refrain from any actions that

jeopardise the agreement.

In this context, the European Council recalls the High-Level Conference for the

Peaceful Settlement of the Question of Palestine and the Implementation of the Two-

State Solution in New York co-led by France and Saudi Arabia. The European Council

reiterates

the European Union’s commitment to international law and to a

comprehensive, just and lasting peace based on the two-state solution in accordance

with relevant UN Security Council Resolutions where two democratic states, Israel and

Palestine, live side-by-side in peace within secure and recognised borders.

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Welcoming the release of all hostages that were held for two years by the terrorist group

Hamas, the European Council calls on all parties to engage constructively and fully

implement the agreement without delay, allowing for a permanent end to hostilities.

To alleviate the dire humanitarian situation, the European Council calls for immediate,

unimpeded access and sustained distribution of humanitarian aid at scale into and

throughout Gaza and for the UN and its agencies, and humanitarian organisations, to be

able to work independently and impartially. The European Union will continue to

contribute to peace efforts and to actively engage with partners on the next steps. It will

support the rapid, safe and unhindered delivery of humanitarian aid in coordination with

international partners, including via the Cyprus Maritime Corridor to supplement land

routes. It will make full use of its missions European Union Border Assistance Mission

to the Rafah Crossing Point (EUBAM Rafah) and European Union Police Mission for

the Palestinian Territories (EUPOL COPPS). Their mandates should be strengthened.

The European Union

stands ready to contribute to Gaza’s stabilisation,

transitional

governance, recovery and reconstruction.

The European Union will continue to support the Palestinian Authority, including in its

ongoing reform and with a view to its return to Gaza. The European Council calls on

Israel to release withheld clearance revenues necessary to ensure the proper functioning

of the Palestinian Authority and the delivery of essential services to the population.

The European Council stresses the importance of de-escalation in the West Bank,

including East Jerusalem, and calls for an end to settler violence, including against

Christian communities, to the expansion of settlements, which are illegal under

international law, and to Israel’s

military operation.

It calls on Israel to reverse the

E1 settlement plan that further undermines the two-state solution.

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Lebanon

The European Council recalls its previous conclusions and reiterates the European

Union’s support for the Lebanese people. It welcomes the efforts of the new authorities

to stabilise the economic and security situation and supports the

Government’s plan to

establish the State’s monopoly on holding weapons.

Syria

10.

Recalling its previous conclusions, the European Council reiterates its support to a

peaceful and inclusive transition in Syria, free from harmful foreign interference, and

the importance of protecting the rights of all Syrians and of transitional justice and

reconciliation. The European Union will continue to support Syria’s path to stabilisation

and reconstruction.

III. EUROPEAN DEFENCE AND SECURITY

11.

The European Council took stock of work aiming to decisively ramp

up Europe’s

defence readiness by 2030. The European Council confirmed its determination to

deliver at pace and at scale on this objective, so that Europe is better equipped to act and

deal autonomously, in a coordinated way, and with a 360° approach, with immediate

and future challenges and threats.

Russia’s war of aggression against Ukraine and its

repercussions for European and global security in a changing environment constitute an

existential challenge for the European Union.

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Conclusions

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12.

Further to the presentation by the Commission and the High Representative of the

European Defence Readiness Roadmap 2030, the European Council calls for Member

State-led work on all the priority capability areas identified at EU level to be

operationalised, with the support of the European Defence Agency (EDA) and on the

basis of a coherent overall approach, building on the Strategic Compass, so that Europe

develops the full spectrum of modern capabilities needed, in full coherence with NATO.

The European Council acknowledges the work already undertaken by Member States,

and calls on them to finalise the process of setting up capability coalitions in all the

priority areas by the end of the year and to advance on concrete projects to be launched

in the first half of 2026.

13.

In doing so, the Union will reduce its strategic dependencies, address its critical

capability gaps and strengthen the European defence technological and industrial base

accordingly throughout the Union so that it is in a position to better supply equipment in

the quantities and at the pace needed. This will also contribute to boosting European

industrial and technological competitiveness, including for SMEs.

14.

The European Council condemns the violation of the airspace of several Member States

and stresses the importance of ensuring the defence of all EU land, air and maritime

borders. The

immediate threats on the EU’s

Eastern flank and the provision of concrete

support to Member States need to be addressed as matters of priority.

15.

In addition, considering the threats on the rest of the EU borders, the European Council

stresses the importance of their defence.

16.

In the light of

Russia’s and Belarus’

intensified hybrid attacks and the recent violations

of EU airspace, the European Council underscores the importance of close cooperation

among Member States to comprehensively strengthen their defence and security

capabilities. In this context, enhancing the resilience, security and protection of critical

infrastructure, including energy, digital and undersea infrastructure, is also essential.

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17.

The European Council considers that, to respond to the most immediate needs and

threats, work should focus in particular on concrete projects to reinforce Member

States’

joint efforts to enhance their anti-drone and air defence capabilities, in a

coordinated manner, in particular making full use of the SAFE and EDIP instruments

and other relevant existing financial instruments.

18.

The European Council calls for accelerated joint development of space assets and

services that serve security and defence purposes, as well as for the protection of

existing assets, including dual-use assets, given their

importance for Europe’s strategic

autonomy.

19.

In order to ramp up the European defence

industry’s capacity, the

European Council

calls on Member States to increasingly gear defence investment towards joint

development, production, and procurement, with the support of the EDA, as demand

aggregation on the basis of standardised requirements and economies of scale are key to

providing predictability to industry, lowering costs and fostering interoperability.

The SAFE and EDIP instruments should be fully mobilised to that end. The European

Council stresses the importance of the proper functioning and further integration of the

European defence market across the Union, including cross-border access to defence

supply chains, especially for SMEs and mid-caps.

20.

The European Council underlines the importance of close cooperation with Ukraine and

of its integration with and contribution to the European defence industry, notably as

regards defence innovation and cutting-edge defence technology.

21.

The European Council stresses the need to ensure effective political oversight and

coordination to keep track of progress and to intensify work by defence ministers in the

Council on

Europe’s defence readiness.

This work will be informed by an annual

defence readiness report, to be prepared by the EDA with the support of the

Commission and the High Representative, and presented to the European Council.

The report will take stock of progress towards closing the existing capability gaps,

building on the Coordinated Annual Review on Defence (CARD).

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22.

The European Council calls on the Council to strengthen the European Defence Agency

so that it can fully play its role in the field of defence capability development, research

and acquisition and to report on the necessary measures by the end of 2025.

23.

Recalling the commitment to substantially increase expenditure on Europe’s

defence

and security, the European Council reviewed work on the relevant financing options and

on cooperation to invest more efficiently in the field of defence. It welcomes the

progress made since March 2025 with regard to the activation of the national escape

clauses, the mid-term review of the EU cohesion policy, and the SAFE and EDIP

instruments.

24.

The European Council acknowledges the progress made on the Defence Readiness

Omnibus, welcomes progress on the proposal on incentivising defence related

investments in the EU budget and looks forward to a swift agreement by the end of

2025. It calls on the Commission to present new proposals on simplification as soon as

possible.

25.

The European Council also welcomes the efforts made by the European Investment

Bank (EIB) to step up, simplify and accelerate its support for European security and

defence capabilities. It encourages the EIB Group to further explore ways to finance

industries and companies, and help start-ups to scale up in the security and defence

sector in Europe.

26.

The European Council underlines the importance of innovative technologies and

disruptive solutions and calls on the Commission to present a roadmap for defence

industry transformation.

27.

The European Council reiterates its invitation to the Commission and the High

Representative to present further proposals to strengthen military mobility throughout

the Union.

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28.

The European Council recalls the importance of working together with like-minded

partners, who share

the EU’s

foreign and security policy goals.

29.

The European Council recalls that a stronger and more capable European Union in the

field of security and defence will contribute positively to global and transatlantic

security and is complementary to NATO, which remains, for those States that are

members of it, the foundation of their collective defence.

30.

The above is without prejudice to the specific character of the security and defence

policy of certain Member States, and takes into account the security and defence

interests of all Member States, in accordance with the Treaties.

31.

The European Council will continue to provide strategic guidance and review progress

on the implementation of the defence readiness objective.

IV.

COMPETITIVENESS AND TWIN TRANSITION

32.

The European Council held an in-depth discussion on how to further reinforce

EU competitiveness, building on its conclusions of March and June 2025 and focusing

on simplification, a competitive green transition and a sovereign digital transition.

calls for a step change in the EU’s action and

will keep all strands of the

competitiveness and Single Market agenda under review, as this is key for sustaining

Europe’s prosperity and social model.

The European Council calls on the Commission

and the co-legislators to take the implementation of the Single Market Strategy by 2028

ambitiously forward, also in the light of

the Commission’s upcoming roadmap.

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Simplification

33.

The European Council reaffirms the urgent need to advance an ambitious and

horizontally-driven simplification and better regulation agenda at all levels

–

EU,

national and regional

–

and in all areas in order to ensure

Europe’s competitiveness,

without undermining predictability, policy goals, high standards and the integrity of the

Single Market. In particular it recalls the commitment to drastically reduce, as a matter

of urgency, administrative, regulatory and reporting burdens for businesses, including

SMEs, and public administrations.

34.

Welcoming the progress achieved so far, the European Council urges the Commission

and the co-legislators to accelerate their work, as a matter of utmost priority, on all files

with a simplification or competitiveness dimension. In particular, the European Council

welcomes the work done on the simplification omnibus packages on investment and the

carbon border adjustment mechanism (CBAM), as well as the stop-the-clock measures

on sustainability reporting, battery due diligence and chemicals. It urges the co-

legislators to swiftly conclude work on the proposed simplification omnibus packages

on sustainability reporting and due diligence, agriculture, small mid-caps and

digitalisation, defence readiness and chemical products. The package on sustainability

reporting should be adopted by the end of the year and the others as soon as possible in

early 2026. The European Council also calls on the Commission, in line with the

respective competences under the Treaties, to propose without delay an optional

28th company law regime allowing innovative companies to scale up.

35.

The European Council calls on the Commission to swiftly bring forward further

ambitious simplification packages among others on the automotive industry, military

mobility, digital, financial services, transport, the environment, energy, and food safety,

as well as a review of the REACH Regulation aiming to boost the competitiveness of

the chemical sector. It also recalls the importance of a strong pharmaceutical sector in

Europe.

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36.

The European Council also reiterates the need to avoid over-regulation and the

introduction of new administrative burdens, in particular on SMEs, throughout the

legislative and implementation processes at all levels, and calls for legislative and

regulatory self-restraint,

in line with a ‘simplicity by design’ approach.

37.

The European Council calls on the Commission to intensify its efforts to stress-test the

EU acquis. In this context, it invites the Commission to:

identify additional potential for further simplification and strengthening

competitiveness, including in the context of the report assessing the overall

situation of the banking system in the Single Market envisaged for 2026;

explore new proposals to streamline and accelerate planning and permitting

procedures in Member States;

38.

intensify simplification efforts regarding delegated and implementing acts;

consider the withdrawal of proposals, where appropriate.

The European Council calls on the Council (General Affairs) to assess the legislative

work programme of the Commission in the light of these objectives.

A competitive green transition

39.

The existential threat posed by climate change

underpins the Union’s commitment to

the Paris Agreement and

drives the Union’s

determination to harness the full potential

of the industrial renewal and transformation of its economies required to create the

clean technologies, markets, industries and high-quality jobs of the future. Enhancing

the Union’s competitiveness,

bolstering its resilience, and advancing the green transition

are mutually reinforcing objectives that must be pursued together.

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40.

For such a fundamental transformation to succeed, it must be fair and just, pragmatic,

cost-effective and socially balanced, taking into account different national

circumstances, providing affordable solutions across the economy and for citizens

throughout the Union, so as to

secure Europe’s

competitiveness and prosperity for

present and future generations.

41.

The European Council calls for an urgent stepping up of efforts to secure the supply of

affordable and clean energy and build a genuine Energy Union before 2030, including

by leveraging the new Energy Union Task Force. This will require ambitious

electrification using all net-zero and low-carbon solutions, and investment in grids,

storage and interconnections at national and EU level. In light of the negative impact of

high energy prices on the global competitiveness of European industries, on the Union’s

strategic autonomy and on European households, the European Council calls on the

Commission to accelerate work aimed at lowering energy prices and supporting

sustainable energy production in the Union. In this context, the European Council

welcomes the Commission’s intention

to submit relevant proposals as soon as possible.

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42.

The European Council recalls the urgent need to intensify collective efforts to ensure

Europe’s industrial renewal,

modernisation and decarbonisation in a technologically

neutral manner. It underlines in this context that particular attention should be paid to

traditional industries, notably the automotive, shipping, and aviation industries as well

as energy-intensive industries, such as steel and metals, chemicals, cement, glass and

ceramics, and pulp and paper, so that they remain resilient and competitive in a global

market and a challenging geopolitical environment. In this regard, it welcomes the

recent Commission proposal to protect the European steel sector from unfair impacts of

global overcapacity. It

welcomes the Commission’s

intention to take forward the review

foreseen under the Regulation on CO2 emissions performance standards for cars and

vans, and calls for the swift presentation of this proposal, taking into account

technological neutrality and European content.

It looks forward to the Commission’s

proposal on industrial decarbonisation acceleration, which will contribute to boosting

demand for ‘made in Europe’.

Further efforts are also needed to strengthen innovation

and the Union’s competitive edge in clean and digital technologies,

and cutting-edge

innovation.

43.

In order to deter and counter unfair trade practices, the European Council invites the

Commission to make effective use of all EU economic instruments.

44.

In this context, the European Council held a strategic discussion on how to support the

achievement of the

EU’s

intermediate climate target for 2040.

45.

In this regard, the European Council underlines the importance of taking into account

the following elements:

the realistic contribution of carbon removals to the overall emission reduction

effort, while taking into account the uncertainties of natural removals and

ensuring that possible shortfalls would not be at the expense of other economic

sectors;

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the importance of contributing to the global emission reduction effort in a way

that is both ambitious and cost-efficient, notably by defining an adequate level of

high-quality international credits;

the need for a revision clause, in light of latest scientific evidence, technological

advances, and evolving challenges to and opportunities for

the EU’s

global

competitiveness.

46.

The European Council calls on the Commission to further develop the necessary

enabling conditions to support European industry and citizens in achieving the 2040

intermediate target and, in this context, welcomes the recent letter from the President of

the Commission on climate and competitiveness. It expects the Commission and the co-

legislators to promptly take work forward.

47.

The European Council takes note of the Commission’s intention to propose measures to

smoothen the entry into force of ETS2 and invites the Commission to present a revision

of the ETS2 implementation framework, including all relevant aspects.

A sovereign digital transition

48.

In the face of geopolitical shifts, rapid technological change, and growing global

competition for innovation, talent and investment,

it is crucial to advance Europe’s

digital transformation, reinforce its sovereignty and strengthen its own open digital

ecosystem. This requires reinforced international partnerships and close collaboration

with trusted partner countries and international organisations on digital innovation and

governance.

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49.

In this regard, the European Council underlines that the

Union’s

values, interests, and

regulatory autonomy underpin EU action, including in the digital sphere. This means the

EU will continue to foster human-centric technological solutions that protect individuals

and their data, and safeguard digital accountability, transparency and societal resilience.

The European Council stresses the importance of protecting minors, including through a

digital age of majority for accessing social media, respecting national competences.

50.

In addition,

the Union’s

digital infrastructure and technological base must be protected,

including by addressing risks arising from hybrid threats, cyber security challenges, and

strategic dependencies. In order to avoid over-reliance on external suppliers, the

European Council also underlines the importance of developing European technological

capabilities and diversifying

the EU’s

sources of critical raw materials.

51.

To that end and to strengthen Europe’s competitiveness, the Union must

offer an

environment conducive to increased innovation in the private sector, frontier

technologies, the emergence of start-ups and the scaling up of European technological

solutions. Market fragmentation, infrastructure gaps and high energy prices continue to

hinder the growth potential of this technological transformation and must also be

addressed. The European Council underlines that particular efforts are required to

advance the rollout of connectivity infrastructure, deepen the Single Market for

electronic communications, as well as to promote the development and deployment of

sustainable digital systems, networks and technologies. It also calls for the Single

Market to be digitalised and the uptake of digital technologies and interoperable data to

be supported across the European economy.

52.

The European Council takes note of the recent Commission initiatives on AI and

quantum technology. It invites the Commission to remain ambitious regarding

Europe’s

sovereign digital transformation in its upcoming proposals, including on the EU cloud

and AI development.

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HOUSING

53.

In the light of the housing challenges faced by many citizens in the European Union,

including access to affordable housing, the European Council discussed the various

dimensions of this pressing issue.

54.

The European Council calls on the Commission to swiftly present an ambitious and

comprehensive plan for affordable housing, the aim of which should be to support and

complement Member States’ efforts, including in the context of the simplification

agenda, having due regard for the principle of subsidiarity and national competences.

VI.

MIGRATION

55.

The European Council took stock of progress in the implementation of its previous

conclusions on migration, including in the light of the recent letter from the President of

the Commission. The European Council calls for work to be intensified on all strands

identified in June 2025 and on the co-legislators to take work forward on relevant

legislative proposals as a matter of priority.

VII. REPUBLIC OF MOLDOVA

56.

The European Council commends the authorities of the Republic of Moldova for their

firm commitment to and effective measures for safeguarding the integrity of the recent

electoral process and for ensuring free and fair elections, despite sustained hybrid

activities carried out

by Russia to undermine the country’s democratic institutions.

The European Union will continue to work closely with the Republic of Moldova to

enhance

the country’s resilience and

stability and seek to draw lessons from the

country’s experience.

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57.

The European Council reaffirms

the EU’s steadfast support for the Republic of Moldova

on its accession path and welcomes the significant progress achieved so far. The

European Council encourages the Republic of Moldova, the Council and the

Commission to take work forward on the accession process, in line with the merit-based

approach. The fundamentals cluster will be opened first and closed last, with clusters

being opened when the conditions are met, in accordance with the enlargement

methodology. The European Council takes good note of the

Commission’s

assessment

that the fundamentals, internal market and external relations clusters are ready to be

opened.

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