Ukraine: EU split over who should represent Europe at the peace talks

Brussels – Now that it has been established that Europe will sit at the peace negotiation table between Russia and Ukraine, the question remains who will represent the whole of Europe – the EU and its non-EU allies – on the delicate path that must lead to an end to the war. Leaders are pondering this issue and are already divided. The idea of a special envoy and a representative does not sit well with many, starting with Germany, which is putting the brakes on. However, it is not just Berlin that favours other approaches. 

There is a group of countries that regard the presidents of the EU institutions as the best options, partly because they are already in place and have already been appointed, and are therefore not subject to new political agreements with uncertain timelines – as a unanimous consensus would instead require the appointment of a special envoy. “We already have the people who can represent us,” says the Prime Minister of Estonia, Kristen Michal, naming António Costa, Ursula von der Leyen and also Kaja Kallas (former Estonian Prime Minister) to represent the EU at the negotiating table.

The EU can even choose from three different options: the President of the European Council (Costa), who represents the Member States; the President of the European Commission (von der Leyen), who represents the EU as a whole; the High Representative for Foreign Affairs and Security Policy (Kallas), who acts as the point of contact between national governments and the European Commission.

https://www.eunews.it/en/2026/05/11/ukraine-the-eu-is-considering-its-representative-for-the-distant-negotiations-with-moscow-kallas-puts-herself-forward/

However, there are differing viewpoints, as the Swedish Prime Minister, Ulf Kristersson, points out: “Europe is bigger than the European Union,” he emphasises on the sidelines of the informal summit of Heads of State and Government. He, too, like his Estonian counterpart, acknowledges that “there are interests that are specific to the EU” which only “the EU institutions” can defend and represent. This represents an opening towards one of the three figures mentioned.

 At the same time, Kristersson believes it would be appropriate for “the larger countries, such as France and Germany, to be present, and the inclusion of Poland and Italy should also be considered”. Not to mention the United Kingdom. So, from Sweden’s perspective, consideration should also be given to a format “comprising these five plus the European Union”.

Luxembourg’s Prime Minister, Luc Frieden, shares the same view: “There is no doubt that the EU must be at the table” and, in this regard, “António Costa has an important role to play”. This is the view of Luxembourg, as well as of Belgium, which Frieden is representing on an exceptional basis given the absence of the Belgian Prime Minister. However, the Grand Duchy’s head of government adds: “We are also happy for representatives from the larger countries to be present”. 

It is hard to imagine any more seats for Europeans. The risk is that there will be one seat for several voices, while only one voice is needed. Meanwhile, the EU’s High Representative for Foreign Affairs and Security Policy, Kaja Kallas, is putting herself forward: she says she is “ready” and appears not at all concerned. “I know the Russians don’t want me, but we have no say in who Russia’s representative is…” she cuts short. 

However, the doubts surrounding Kallas’s role seem to stem not so much from Russia as from the European Union itself: from the 40 billion euro initiative on Ukraine that leaders scaled back to von der Leyen’s intention to reduce her already limited powers, Europeans do not seem convinced by the Estonian, who has also made headlines for taking purely personal initiatives on defence—without consultation—irritating member states.

According to France and Germany, the E3 format – Berlin, Paris, London – remains the starting point, as these are the three countries that have spearheaded military aid for Kyiv. “The important thing is that Russia comes to the negotiating table and is prepared to discuss matters. Everything else will then fall into place,” stressed German Chancellor Friedrich Merz yesterday. “We have tried-and-tested formats within the European Union, and we will also discuss who, if anyone, should represent the European Union, but this is a matter we will address behind closed doors,” he observed, stressing that “at this moment, it is not the individuals that matter; what matters is that Putin is willing to begin talks”. Meanwhile, for Emmanuel Macron, “it is the substance” of what Europeans wish to bring to the table “that determines the format.” “Today there is a need for Europe to have a clear and united vision” on the negotiations in Ukraine. Italian Prime Minister Giorgia Meloni raised the issue in a letter sent to Costa a few days ago, showing openness and agreement with the points raised – precisely to stress that Europe must speak with one voice, representing everyone. “Whether Italy is present or not in this or that format does not change the view that there are too many formats discussing this matter,” stressed the Prime Minister yesterday, adding that she was not opposed to Costa’s proposal while at the same time acknowledging that such a choice would exclude non-EU countries, starting with the United Kingdom.