BRUSSELS — European Union leaders on Thursday ordered the bloc’s executive branch to come up with options for meeting Ukraine’s pressing economic and military needs over the next two years, but did not agree to use frozen Russian assets to fill the gap.

Belgium, which holds the bulk of Russia’s frozen assets, refused to approve a plan to use the funds as collateral for a massive loan for Ukraine and indicated it would require more assurances before doing so. The leaders will consider the European Commission’s proposals at their next meeting in December.

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