Hungary on 27 October again refused to approve the screening results for clusters 4 and 5, the last two blocks of Ukraine’s EU accession talks that remain unopened, at a meeting of the EU Council’s enlargement working party in Brussels, European Pravda reported, citing several EU diplomats. It was Budapest’s second refusal in a week.

Ukraine is pursuing EU membership while fighting Russia’s full-scale invasion, and for years its path ran into vetoes from Viktor Orbán’s Hungary. Orbán lost power in April to Péter Magyar, who promised to bring Hungary back to Europe. His government is now the one blocking the last two clusters.

Brussels knew Budapest would say no

One of the diplomats said that “Hungary’s position has not changed.” Ireland, which holds the rotating presidency of the EU Council, knew in advance that Budapest would not move but put the item on the agenda anyway. Another diplomat described the repeat vote as a political move to raise pressure on Hungary rather than a real attempt to get a yes.

Hungary’s arguments were not disclosed on 20 October, when it first blocked the step. Cluster 4 covers transport, energy, trans-European networks, the environment, and climate. Cluster 5 covers agriculture, fisheries, regional policy, and budget rules.

Kyiv paid for two clusters, and the last two stay shut

Earlier this month, Ukraine’s parliament passed the minority-language schooling law Budapest had demanded, and the EU opened clusters 2 and 3 on 13 October. Magyar’s government has tied its support to Kyiv meeting 11 demands on the rights of the Hungarian minority.

On 16 October, President Volodymyr Zelenskyy held his first one-on-one meeting with Magyar in Brussels and thanked him for opening the two clusters, adding that work was underway to open the remaining two by the end of the year, his office said. Ten days later, Zelenskyy set out why the timing matters.

“It is very important that the remaining two negotiating clusters for Ukraine are opened by the end of this year, and that during the Lithuanian presidency we could already close negotiating chapters,” he wrote.

Lithuania takes over the EU Council presidency in January.

Budapest’s next moves may also decide whether Ukraine and Moldova still advance together.

Moldova’s President Maia Sandu discussed the opening of her country’s last two clusters with Magyar during a visit to Budapest last week, and in July Hungary already offered to move Moldova ahead on its own.

Seventy years after Soviet forces crushed Hungary’s uprising, Budapest is commemorating the revolution under a new government following Viktor Orbán’s defeat.

Yet the anniversary raises questions extending far beyond Hungary: how Russia has repeatedly sought to determine the political future of European nations, why economic dependency can become an instrument of influence, and whether the sovereignty demanded in 1956 has finally acquired a more durable meaning.

Seventy years after Soviet tanks entered Budapest to suppress a rebellion against Moscow’s domination, Hungary is marking the anniversary of its 1956 revolution under circumstances that would have seemed improbable only a year ago. Viktor Orbán, whose political career began with a demand for the withdrawal of Soviet troops, has lost power. His successor, Péter Magyar, is welcoming European leaders to commemorate an uprising that remains among the defining events of Hungary’s modern history.

European Commission President Ursula von der Leyen and European Council President António Costa are joining the commemorations on 23 October, six months after Magyar’s Tisza party ended Orbán’s 16 years in government. Budapest’s relationship with Brussels has improved, previously frozen European funding is being unlocked, and the new administration has begun reviewing aspects of the country’s longstanding economic relationship with Russia.

But the significance of the anniversary cannot be reduced to a change of government or Hungary’s renewed diplomatic engagement with the European Union. The revolution of 1956 exposed a fundamental conflict between national self-determination and the security interests of an imperial power. Seven decades later, the methods through which Moscow exercises influence have changed considerably, but the struggle over political autonomy, economic dependence and the right of European states to determine their own alliances has not disappeared.

Indeed, the central question raised by 1956 has acquired renewed relevance since Russia’s invasion of Ukraine: where does legitimate national sovereignty end when a more powerful neighbour claims the authority to determine another country’s strategic choices?

Hungary’s longer history of Russian intervention

The events of October and November 1956 were not the first occasion on which Russian military power had intervened to suppress Hungarian aspirations to independence.

More than a century earlier, during the revolutions of 1848–1849, Hungary attempted to establish political autonomy from the Habsburg monarchy. Under Lajos Kossuth, the Hungarian revolutionary government pursued constitutional government and ultimately declared independence.

Austria proved unable to defeat the Hungarian forces without outside assistance. In 1849, Emperor Franz Joseph turned to Tsar Nicholas I, whose Russian army intervened on the Habsburg side. The military campaign ended with the defeat of the Hungarian struggle for independence.

As historian David Saunders examines in The Revolutions in Europe, 1848–1849: From Reform to Reaction, Russian intervention formed part of Nicholas I’s broader determination to defend the conservative European order against revolutionary movements.

Russia was not seeking to annex Hungary in 1849. Its objective was to preserve a political arrangement favourable to the established continental powers and prevent revolutionary movements from spreading into territories where they might threaten Russian imperial interests.

The distinction is important historically. Tsarist Russia, the Soviet Union and the contemporary Russian Federation represent different political systems and operated under different international circumstances. Nevertheless, all three have, at various points, treated the political orientation of neighbouring European countries as a matter in which Moscow possesses interests extending beyond its own borders.

The pattern reappeared in a substantially different form after the Second World War.

The Red Army’s advance into Hungary in 1944–1945 brought an end to Nazi German occupation and the country’s wartime alliance with Berlin. Yet liberation from Nazi rule was followed by Soviet military occupation and the progressive elimination of independent Hungarian political institutions.

By 1948, the communist leadership under Mátyás Rákosi had established a Stalinist dictatorship. Political opponents faced imprisonment, show trials and persecution, while the security apparatus operated with Soviet support.

Hungary’s political and economic structures were reorganised according to Soviet priorities. Heavy industry received preferential treatment, agricultural collectivisation disrupted rural communities, and Soviet influence reached into the country’s security services, administration and economic planning.

For many Hungarians, the experience reinforced a historical memory in which Russian intervention was associated not with national liberation but with the repeated denial of political independence.

1956 was more than an anti-communist revolt

The revolution that began on 23 October 1956 is frequently remembered as a straightforward confrontation between communism and democracy. That interpretation captures its principal political outcome, but obscures the complexity of the movement itself.

The uprising united students, industrial workers, intellectuals, nationalists, reform communists and citizens who had little interest in ideological disputes but resented political repression and Soviet control.

The sixteen demands adopted by Budapest students on 22 October reveal the breadth of their ambitions.

They called for the withdrawal of Soviet forces, multiparty elections, freedom of expression, independent courts and the restoration of national symbols. They also demanded better wages, the right to strike, changes to agricultural policy and the renegotiation of economic relations with Moscow.

One demand is particularly revealing in the context of present-day Hungary: the students wanted transparency over Soviet exploitation of Hungarian uranium deposits and the right to sell the country’s resources at international market prices.

Political freedom and economic sovereignty were already understood as interconnected.

The revolutionaries did not share a single economic programme. Some favoured democratic socialism and workers’ control of factories, while others wanted the restoration of parliamentary democracy and a market economy. Workers’ councils emerged as institutions of direct political participation, challenging the Communist Party’s claim to represent the working class.

The movement was therefore neither an exclusively conservative rebellion nor merely a liberal-democratic revolution. It was a national uprising against a system that had deprived Hungarian society of the ability to determine its own political arrangements.

The immediate confrontation escalated when demonstrators attempting to broadcast their demands encountered resistance from the state security apparatus. Violence spread, Stalin’s enormous statue in Budapest was pulled down, and armed groups began fighting government forces and Soviet troops.

For a brief period, the revolution appeared capable of succeeding.

Imre Nagy, a reform communist who had previously served as prime minister, returned to office and gradually accepted demands that went considerably beyond his original reform agenda. Political parties re-emerged, Soviet troops began withdrawing from Budapest, and on 1 November Nagy declared Hungary’s neutrality and its withdrawal from the Warsaw Pact.

The Soviet leadership initially appeared willing to consider a compromise. However, it ultimately concluded that Hungary’s departure from the communist bloc would undermine Moscow’s position throughout Eastern Europe.

On 4 November, Soviet forces launched a major offensive against Budapest.

In his final government broadcast, Nagy declared:

“Our troops are fighting. The government is at its post.”

The words, preserved in the historical record of the uprising, described a government confronting the military power of the state that had previously guaranteed its existence.

The resistance was defeated. Up to 3,000 people were killed, approximately 200,000 Hungarians fled the country, and thousands faced imprisonment. Nagy was subsequently arrested and executed in June 1958.

What 1956 revealed about Moscow — and the West

The suppression of the revolution was not simply the consequence of overwhelming Soviet military superiority. It was also the result of strategic calculations in Moscow, uncertainty within the Hungarian leadership and the reluctance of Western governments to challenge the division of Europe established after the Second World War.

In his book Failed Illusions: Moscow, Washington, Budapest, and the 1956 Hungarian Revolt, historian Charles Gati challenges the simplified account of a united revolution abandoned by an indifferent West.

Gati argues that Nagy struggled to reconcile two conflicting forces: the increasingly radical demands of the Hungarian population and the Soviet leadership’s determination to preserve its strategic position.

A more limited reform programme might conceivably have survived, although this remains a disputed historical possibility. Once Hungary moved towards neutrality and withdrawal from the Warsaw Pact, the prospects of Soviet acceptance diminished dramatically.

Moscow’s calculations were also influenced by fears that political concessions in Hungary would encourage similar demands in Poland, Czechoslovakia and elsewhere in the Soviet bloc.

The United States, meanwhile, supported the principle of Eastern European liberation rhetorically but was unwilling to risk direct military confrontation with the Soviet Union.

The Hungarian crisis also coincided with the Suez intervention by Britain, France and Israel, which diverted international diplomatic attention and exposed divisions among Western powers.

Historian András Nagy explores these contradictions in Diplomacy and Disregard: The Hungarian Revolution and the United Nations 1956–1963, examining the gap between international declarations and the limited practical assistance available to Hungary.

The lesson of 1956 was consequently more complicated than the assertion that the West had abandoned Hungary. The uprising demonstrated that the international system recognised national sovereignty in principle while allowing the military division of Europe to determine how far that sovereignty could be exercised in practice.

For Moscow, the suppression of Hungary established a precedent: a neighbouring state could possess a government and national institutions while remaining subject to coercive intervention if its political direction threatened Soviet strategic interests.

That principle would reappear during the Soviet-led invasion of Czechoslovakia in 1968.

The paradox of Viktor Orbán

The political afterlife of 1956 is inseparable from the career of Viktor Orbán.

On 16 June 1989, at the ceremonial reburial of Imre Nagy, the 26-year-old Orbán delivered a speech demanding free elections and the withdrawal of Soviet troops from Hungary.

At a time when the communist system was approaching collapse, his appearance transformed him into one of the most recognisable representatives of Hungary’s emerging democratic opposition.

The symbolism was unmistakable. Nagy, executed as a traitor by the Soviet-backed regime, was being publicly rehabilitated, while a new political generation claimed the revolution as the foundation of a democratic future.

Hungary subsequently completed its transition away from communist rule. Soviet troops withdrew in 1991, the country joined NATO in 1999 and became a member of the European Union in 2004.

Yet Orbán’s later political development introduced a contradiction into the national interpretation of 1956.

After returning to power in 2010, he progressively concentrated political authority, weakened institutional checks and balances, and constructed a system in which government influence extended across significant sections of the media, public administration and economy.

At the same time, his foreign policy cultivated increasingly close relations with Vladimir Putin.

Hungary remained a member of NATO and the EU, but Orbán repeatedly challenged common European positions on Russia. Following the full-scale invasion of Ukraine in 2022, his government opposed or delayed sanctions measures, resisted financial assistance to Kyiv and secured exemptions allowing continued imports of Russian oil.

The contradiction was particularly striking because Ukraine’s defence against Russian invasion revived the same fundamental principle for which Hungarians had fought in 1956: the right of a European nation to exist independently of Moscow’s strategic demands.

Orbán presented his position as a defence of Hungarian national interests, arguing that continued energy supplies and avoidance of direct involvement in the war were essential to his country’s security.

His critics argued that this interpretation of sovereignty was selective: resisting political pressure from Brussels while preserving economic and diplomatic arrangements that strengthened Moscow’s influence.

The legacy of 1956 thus became an instrument of competing political narratives rather than a settled national consensus.

From military occupation to economic dependency

Russia no longer possesses the military infrastructure through which the Soviet Union controlled Hungary. It cannot station forces in Budapest under the Warsaw Pact or impose a government through the Communist Party.

Its contemporary methods of influence operate through a more complicated combination of commercial relationships, infrastructure dependencies, political networks, information operations and diplomatic pressure.

Energy remains particularly important.

According to the European Commission’s 2026 assessment of the Hungarian economy, more than 90 per cent of Hungary’s imported oil and 74 per cent of its imported gas came from Russia in 2025.

Such dependence creates vulnerabilities that cannot be eliminated by a parliamentary election.

Long-term contracts, refinery configurations, pipeline routes and nuclear infrastructure impose costs on governments attempting to diversify supplies. Russia’s ability to influence energy prices and contractual arrangements can consequently shape the policy choices available to individual European states.

Hungary’s Paks II nuclear project illustrates the problem.

Awarded to Russia’s state nuclear corporation Rosatom in 2014 under Orbán, the project created a relationship extending across construction, financing, technology and potentially future operations.

Magyar’s government is now examining whether Rosatom should remain the principal contractor. The review, also examined by EU Today, demonstrates how political change does not automatically dissolve inherited strategic dependencies.

Moscow’s objectives, however, extend beyond securing export revenues.

By maintaining influence over energy infrastructure and commercially significant relationships, Russia can acquire opportunities to affect political decisions within individual European countries. The effect can extend to the European Union as a whole where unanimity requirements allow one member state to delay collective decisions.

Economic interdependence is not itself evidence of corruption or improper influence. Nevertheless, opaque contracts, politically connected intermediaries and inadequate public scrutiny can create opportunities for the exercise of foreign influence.

The European Parliament has repeatedly raised concerns about Russian efforts to influence European political organisations, including through funding networks, cultivated relationships and the involvement of political intermediaries.

Moscow’s broader contest for influence in Europe

Russia’s contemporary European strategy is not a straightforward attempt to reconstruct Soviet rule over the entire continent. Its more immediate objectives include weakening European unity, limiting NATO’s freedom of action, obstructing support for Ukraine and establishing recognition of Russian security interests in neighbouring states.

These objectives do not always require governments openly aligned with Moscow. Political fragmentation, institutional distrust and disagreements between European capitals can themselves serve Russian interests.

Information manipulation has become one of the principal instruments available to the Kremlin.

The European External Action Service’s fourth report on foreign information manipulation documents Russian operations designed to exploit social divisions, discredit political leaders, manipulate electoral debates and weaken confidence in democratic institutions.

Rather than promoting one consistent political ideology, these campaigns adapt to local circumstances. In some countries they amplify nationalist rhetoric; elsewhere they exploit economic grievances, hostility towards migration, fears of military escalation or mistrust of European institutions.

Their effectiveness depends partly on the existence of domestic audiences willing to accept or circulate the narratives involved.

Hungary’s April 2026 election offered a direct example of the problem.

Research by Clemson University’s Media Forensics Hub identified a coordinated Russian-linked influence operation targeting Magyar’s Tisza party through fabricated narratives, inauthentic social-media accounts and amplification networks.

Separate reporting alleged Kremlin efforts to assist Orbán’s electoral campaign. Moscow denied interference, and not every allegation has been independently established.

The international election observation mission also identified serious problems involving media imbalance, misuse of state resources and manipulative online content. The election nevertheless produced a decisive transfer of power.

That outcome demonstrates both the reach and the limitations of such methods. Foreign information operations can attempt to shape political perceptions, but they do not necessarily determine how voters ultimately behave.

Other mechanisms, including cyber operations, espionage, sabotage and the cultivation of political or business relationships, form part of the broader contest between Russia and European governments.

The strategic logic differs fundamentally from the Soviet intervention of November 1956. Rather than imposing control through tanks and occupation forces, Moscow can seek to reduce a country’s freedom of political action by exploiting economic vulnerabilities and divisions within its institutions.

Magyar’s government and the limits of a new beginning

The April 2026 election marked a significant change in Hungary’s political direction.

Magyar’s Tisza party won a two-thirds parliamentary majority, creating an opportunity to reform institutions that had been extensively reshaped during Orbán’s years in power.

His government has introduced anti-corruption and transparency measures, sought to strengthen judicial independence and restored more constructive relations with European institutions.

The European Commission has agreed to unlock approximately €16.4 billion in funding previously restricted over governance concerns, although access to individual funding streams and their disbursement remain subject to the relevant procedures.

Yet the new government should not be mistaken for an administration that has abandoned every element of its predecessor’s foreign policy.

Magyar remains a Hungarian conservative politician with his own interpretation of sovereignty and national interests. He has maintained reservations about accelerated Ukrainian accession to the EU and emphasised the rights of ethnic Hungarians living in Ukraine.

Indeed, recent disagreements over Ukraine’s EU accession negotiations demonstrate that improved relations with Brussels have not eliminated Budapest’s willingness to defend positions at odds with those of other member states.

The more consequential test may therefore concern the institutions through which Hungary makes political decisions.

Reducing dependence on Russian energy, establishing transparent public procurement, restoring independent media and ensuring that judicial oversight operates without political interference would reduce opportunities for both domestic patronage and external influence.

The government must also address the institutional legacy of decades of communist rule and subsequent political transformation, including questions about historical accountability and access to security-service records.

These are not simply questions of ideological alignment with Brussels. They concern whether Hungary possesses institutions capable of making and implementing decisions independently of concentrated political or economic interests.

The unfinished meaning of 1956

The presence of European leaders in Budapest on the 70th anniversary of the uprising provides an unmistakable contrast with November 1956.

At that time, Hungary’s government appealed to the international community as Soviet forces dismantled its authority. Today, Budapest participates in European institutions through which it can influence decisions affecting the continent’s political, economic and security arrangements.

Membership of the European Union is not equivalent to membership of the Warsaw Pact. EU membership rests on treaties voluntarily accepted by democratic states, with legal mechanisms for participation, disagreement and withdrawal. Soviet control of Hungary rested ultimately on military force.

Nevertheless, participation in European institutions does not remove the need for national governments to make independent strategic decisions or to account for them democratically.

The revolution of 1956 was, above all, a rejection of political dependency. Its participants did not agree on every aspect of Hungary’s future, but they rejected the proposition that decisions about their country’s government, economy and alliances belonged in Moscow.

Seventy years later, the comparison between Soviet military domination and contemporary Russian economic and political influence cannot be exact. The historical circumstances, instruments of power and international constraints are different.

What persists is the problem of external leverage over national choices.

Hungary’s political transformation in 2026 has altered the balance of power in Budapest, but the country’s inherited economic dependencies, institutional weaknesses and disputes over its strategic orientation remain.

The historical significance of the anniversary therefore extends beyond the rehabilitation of one political tradition or the defeat of another.

In 1956, Hungarians demonstrated that Soviet military supremacy had not secured their political consent. In 1989, the memory of that resistance helped undermine the legitimacy of communist rule. In 2026, another political transition has reopened the question of how national independence should be understood within a deeply interconnected Europe.

The measure of Hungary’s political sovereignty will not be the number of foreign dignitaries attending its commemorations, nor the frequency with which its leaders invoke the language of independence.

It will be the extent to which Hungary can make democratic choices without those choices being constrained by dependence on an external power — or by domestic institutions incapable of resisting its influence.

Budapest has unexpectedly obstructed the next stage of EU accession negotiations with Ukraine and Moldova, just a week after approving earlier negotiating chapters and days after Prime Minister Péter Magyar pledged to restore relations with Kyiv.

Hungary has blocked a procedural decision needed to advance Ukraine and Moldova’s European Union accession negotiations, raising fresh questions about Budapest’s position under Prime Minister Péter Magyar, whose government had recently agreed to remove longstanding objections to Kyiv’s membership ambitions.

The intervention took place in Brussels on Tuesday, 20 October, during a meeting of the Council of the EU’s Working Party on Enlargement and Countries Negotiating Accession to the EU (COELA). Representatives of the 27 member states were examining the screening results for the final two negotiating clusters, covering environmental policy, transport, agriculture and regional development.

According to diplomats familiar with the discussions, the Hungarian delegation refused to approve the proposed procedural step. When representatives of other member states requested an explanation, Budapest reportedly maintained that its position remained unchanged, without providing further arguments.

An Unexpected Reversal After October Agreement

The obstruction comes only seven days after the EU formally opened two additional negotiating clusters with Ukraine and Moldova.

On 13 October, the Council approved the opening of Cluster 2, covering the internal market, and Cluster 3, dealing with competitiveness and inclusive growth. The decision followed an agreement between Kyiv and Budapest on educational rights for Ukraine’s ethnic Hungarian minority.

Ukraine’s parliament adopted legislative amendments on 12 October extending minority-language education rights, and President Volodymyr Zelenskyy signed the legislation the same day.

The agreement had appeared to remove the principal bilateral obstacle to further negotiations. Ukrainian Foreign Minister Andrii Sybiha and his Hungarian counterpart, Anita Orbán, welcomed the development following discussions in Luxembourg.

The diplomatic rapprochement continued on 16 October, when Zelenskyy and Magyar held their first official bilateral meeting in Brussels. Both governments expressed an intention to improve relations after years of disputes under former Hungarian Prime Minister Viktor Orbán.

Magyar also invited Zelenskyy to Budapest for commemorations marking the 70th anniversary of Hungary’s 1956 anti-Soviet uprising.

The subsequent Hungarian objection has therefore interrupted a process that Ukrainian and European officials had expected to advance before the end of the year.

Agriculture and Energy Remain the Final Obstacles

Ukraine and Moldova have now formally opened four of the six negotiating clusters required under the EU’s enlargement methodology.

The remaining two are Cluster 4, Green Agenda and Sustainable Connectivity, and Cluster 5, Resources, Agriculture and Cohesion. They cover several of the most economically sensitive areas of prospective Ukrainian membership.

Cluster 4 includes environmental regulation, energy policy and transport infrastructure, while Cluster 5 encompasses agriculture, food safety, fisheries and regional development funding.

Ukraine’s agricultural sector presents particular challenges for the EU’s Common Agricultural Policy. The country’s extensive farmland and substantial grain production could affect agricultural subsidy allocations, market competition and the distribution of EU budgetary resources.

Poland and other agricultural member states have previously expressed concerns about the implications of Ukrainian agricultural integration. Such questions will require negotiation regardless of Hungary’s immediate position.

However, the 20 October meeting was not intended to settle these substantive issues. Its purpose was to advance the procedural preparations for formally opening negotiations on the remaining clusters.

Domestic Politics and the Question of EU Funding

The explanation for Budapest’s latest move may lie in Hungary’s domestic political calculations rather than a new dispute over minority rights.

Diplomatic sources have suggested that Magyar’s government is attempting to avoid accusations from Viktor Orbán’s opposition that it is making excessive concessions to Ukraine.

Although Magyar defeated Orbán in April’s parliamentary elections and has adopted a more cooperative approach towards Brussels, he has consistently opposed accelerated Ukrainian membership.

In an interview conducted on 20 October, Magyar reiterated his opposition to fast-tracking accession, arguing that membership must remain conditional on compliance with EU requirements. He also questioned whether a country at war could join the Union.

Another potential complication concerns Hungary’s financial relationship with Brussels.

The European Commission agreed in May to unlock €16.4 billion in previously frozen funds following reforms introduced by Magyar’s administration. Some disbursements remain subject to conditions, while separate disputes over EU financial penalties continue.

However, there is currently no publicly established evidence that Hungary’s objection on 20 October was intended to secure additional financial concessions. Any connection between the two negotiations remains speculative.

Moldova Caught in Budapest’s Dispute with Kyiv

Hungary’s position also affects Moldova, despite the absence of an equivalent bilateral dispute between Budapest and Chișinău.

The EU has kept the accession negotiations of Ukraine and Moldova politically aligned, seeking to advance both countries through the six negotiating clusters together.

Consequently, an objection directed principally at Ukraine can delay Moldova’s progress even when its own technical preparations satisfy the relevant requirements.

Separating the two accession tracks would allow Moldova to advance independently, but such a move would require political agreement among member states and could raise further questions about the EU’s enlargement strategy.

Ireland Seeks Agreement Before December

Ireland, which holds the rotating presidency of the Council of the EU until 31 December, has made progress on Ukrainian and Moldovan accession a priority.

The disputed procedural decision is expected to return to subsequent meetings of the enlargement working party, with senior EU and national officials still anticipating that the final two clusters could formally open in December.

The latest obstruction does not reverse the four clusters already opened, nor does it terminate accession negotiations. It does, however, demonstrate that the change of government in Budapest has not eliminated Hungary’s capacity or willingness to obstruct individual stages of enlargement.

For Kyiv and Chișinău, the immediate question is whether the 20 October decision represents a short-lived domestic political manoeuvre or the beginning of another prolonged dispute over the conditions of EU membership.

EU ministers have reviewed reforms introduced by Prime Minister Péter Magyar’s administration but left the Article 7 proceedings against Hungary unresolved. The European Commission has acknowledged significant progress while warning that further changes are required to restore the rule of law.

The European Union has maintained its Article 7 proceedings against Hungary despite acknowledging significant improvements in the country’s rule-of-law situation since Prime Minister Péter Magyar’s government took office earlier this year.

Ministers meeting at the General Affairs Council in Luxembourg on Tuesday, 13 October, reviewed reforms introduced by the Hungarian administration and received an updated assessment from the European Commission.

The proceedings, initiated by the European Parliament in September 2018, remain open eight years after concerns over judicial independence, corruption, media freedom and democratic accountability first prompted action under the EU treaties.

No decision was announced to terminate the procedure following the latest meeting.

Brussels acknowledges progress

European Commissioner Michael McGrath said ahead of the discussions that Hungary had made substantial progress towards addressing the institutional problems inherited from the administration of former prime minister Viktor Orbán.

Speaking in Luxembourg, McGrath acknowledged improved cooperation between the Hungarian government and European institutions.

However, he also indicated that the reform process remained incomplete, noting that the new administration had been in office for only several months.

The Commission’s assessment reflects the changing relationship between Budapest and Brussels following Magyar’s election victory and the subsequent introduction of reforms intended to restore judicial and institutional independence.

As EU Today reported in June, the change of government created an opportunity to resolve long-standing disputes over the condition of Hungary’s democratic institutions and the suspension of European funding.

The latest Council discussions indicate that the EU is prepared to recognise reforms already undertaken without automatically treating them as sufficient to close the Article 7 procedure.

An eight-year institutional dispute

The European Parliament initiated the proceedings in 2018 after raising concerns over developments affecting Hungary’s constitutional system, judicial independence, corruption safeguards and civil society.

Article 7 of the Treaty on European Union provides mechanisms for responding when a member state is considered at risk of seriously breaching the Union’s fundamental values.

Under its preventive provisions, the Council can determine whether there is a clear risk of such a breach.

More severe measures, including the possible suspension of certain membership rights, require additional procedures and higher institutional thresholds.

Hungary’s case has remained within the preventive stage, with successive Council meetings examining the country’s legal and political developments.

The Council’s account of the 13 October meeting confirms that Hungarian representatives presented measures intended to address concerns raised by the European Parliament and member states during earlier proceedings.

The Commission also briefed ministers on its latest assessment.

The meeting did not produce a formal finding that the outstanding concerns had been fully resolved.

Magyar faces the consequences of Orbán’s legacy

Since assuming office, Magyar has sought to reverse elements of the institutional structure established during Orbán’s lengthy premiership.

The reforms have included measures concerning public administration, judicial accountability and the relationship between national institutions and European law.

The new government has also attempted to improve relations with Brussels after years of disputes that affected EU budget decisions, sanctions policy and cooperation over Ukraine.

EU Today has previously examined Magyar’s programme of institutional renewal and the political difficulties involved in changing institutions shaped by the previous administration.

Reforming legislation does not necessarily transform the institutions responsible for applying it.

Judicial appointments, regulatory structures, public procurement procedures and anti-corruption enforcement may all require additional measures before the effects of reform can be fully assessed.

The European Commission must therefore consider not only the laws adopted by the new government but also whether the institutions concerned operate independently and effectively.

EU funding remains a separate question

The Article 7 proceedings are closely associated with wider disputes over Hungary’s access to European funding, although the relevant legal mechanisms are different.

During Orbán’s administration, the Commission and Council used financial conditionality procedures to restrict access to certain EU resources because of concerns affecting the protection of the Union’s budget.

Magyar’s reforms have opened the possibility of reversing some of those restrictions.

As EU Today reported in September, the Commission moved towards releasing €4.2 billion following changes intended to address rule-of-law concerns.

The financial decisions involve compliance with conditions attached to EU funding and can proceed independently of the Article 7 mechanism.

Consequently, the release of money does not automatically establish that all the institutional problems identified in the original parliamentary proceedings have been resolved.

Likewise, the continuation of Article 7 does not necessarily prevent the Commission from recognising progress under separate funding arrangements.

Who can end the proceedings?

McGrath addressed the possibility of terminating the procedure during remarks before Tuesday’s meeting.

He explained that the Commission could provide its assessment but did not have unilateral authority to bring the Article 7 process to an end.

In his recorded statement in Luxembourg, the Commissioner pointed to the responsibilities of the European Parliament, which initiated the case, and the Council, which has conducted the subsequent examination.

The institutional arrangements mean that improved relations between the Commission and the Hungarian government cannot by themselves dispose of the proceedings.

The Council must consider the reforms and the remaining concerns within the framework established by the treaties.

Political agreement among member states will consequently be required to determine how the process develops.

A changed relationship with Brussels

The latest discussions take place against a substantially different political background from previous years.

Budapest has recently withdrawn objections to further steps in Ukraine’s EU accession negotiations following Ukrainian legislation addressing educational rights for Hungarian speakers and other national minorities.

The change has removed one obstacle to enlargement negotiations and reflects the government’s more cooperative approach towards other EU institutions.

Nevertheless, Hungary’s position on foreign policy and enlargement is distinct from the assessment of its domestic rule-of-law arrangements.

The Council’s examination remains focused on the institutional concerns that led to the procedure being initiated.

The Irish presidency’s summary of the October Council meeting confirms that ministers received an update rather than reaching a new formal determination.

The proceedings therefore remain open while the Commission and member states continue examining the measures introduced by Magyar’s administration.

The coming decisions will establish how European institutions respond when a new government undertakes reforms intended to reverse the conduct that originally led to action under Article 7.

For Hungary, the outcome will influence its relationship with Brussels well beyond the immediate debate over EU funding. For the Union, it will demonstrate how its rule-of-law procedures operate when political circumstances change and the member state concerned begins addressing previously identified institutional problems.

Was in Ungarn derzeit passiert, ist nur schwer zu verstehen. Dort tobt ein Skandal wegen eines banalen Vorfalls aus dem Jahr 2024, bei dem der heutige ungarische Regierungschef Magyar in einem Nachtclub einem Gast, der ihn filmte, das Mobiltelefon entrissen und in die Donau geworfen hat. Das entsprechende Strafverfahren war bereits eingestellt, wurde nun aber […]