EU leaders went into a summit Wednesday struggling to agree a package of top jobs as the deepening crisis in Ukraine put the spotlight on who will lead its high-profile foreign affairs arm.
Newly elected President of the European Commission Jean-Claude Juncker attends a press conference on July 15, 2014, at the European Parliament in Strasbourg
Originally set to start at 1600 GMT, the summit was put back to 1800 GMT as early efforts to work out a deal faltered. "We need more consultations," one diplomat said.
German Chancellor Angela Merkel played down expectations any decisions would be made at all.
"It is very possible that there will only be an initial discussion," said Merkel, a key voice, as she arrived for the talks. "I don't think we will get there today but we will see."
Looming over the meeting is the crisis in Ukraine which makes the choice of a successor to Britain's Catherine Ashton as head of the European External Action Service even more sensitive.
Washington is pressing its EU allies to toughen sanctions against Moscow but the European Union is divided.
Some members such as Italy and Germany are fearful significant economic ties with Russia could suffer if relations break down completely.
A draft summit statement on Ukraine, seen by AFP, says additional measures are needed because Russia has not taken agreed steps to de-escalate the crisis.
New measures could include freezing programmes in Russia run by the EU's European Investment Bank and the London-based European Bank of Reconstruction and Development, the statement said.
British Premier David Cameron arrived saying the situation in the Ukraine "is unacceptable ... we need to send a very clear message with clear actions" to Moscow.
- Ashton high-profile role -
Ashton has played a major role in many of the top international issues, from the Middle East to the Iran nuclear talks and Ukraine.
Another woman, Italian Foreign Minister Federica Mogherini, has been tipped as favourite to replace her.
But critics say Mogherini is inexperienced and some states, notably the Baltic countries and Poland where bitter memories of Soviet rule run deep, feel Italy has been much too soft on Russia over Ukraine.
Lithuania's President Dalia Grybauskaite was blunt Wednesday, demanding that the new High Representative "represent all countries' interests equally".
Diplomats say it is time for an east European country to be given a prominent post.
An alternative to Mogherini could be current EU Humanitarian Aid Commissioner Kristalina Georgieva of Bulgaria, who is close to the centre-right European People's Party, the biggest single group in the European Parliament.
The summit is also expected to discuss options for the European Council, which represents the bloc's 28 political leaders and sets overall policy direction.
- Danish PM at Council? -
Danish Prime Minister Helle Thorning-Schmidt, a Social Democrat, enjoys wide support, including from Britain, to replace Belgium's discreet but effective Herman Van Rompuy at the European Council.
Denmark, however, is not a member of the eurozone, a drawback especially in the French view, but President Francois Hollande stressed that what counts "is less the person than the policy ... and it is such considerations which will determine my decision."
If Thorning-Schmidt misses out on the Council, other possibilities are conservatives Irish Premier Enda Kenny and former Latvian prime minister Valdis Dombrovskis. Estonia's Andrus Ansip, who stepped down earlier this year, or Dutch Premier Mark Rutte would suit the centrist Liberals.
The summit may also recommend naming a permanent head of the Eurogroup of finance ministers which coordinates policy on the single currency.
Spain's Luis de Guindos is widely tipped to take over the Eurogroup job, currently held by Dutch Finance Minister Jeroen Dijsselbloem, if it is made full-time.
Once the top jobs are settled, then the EU embarks on the next round, deciding who gets which portfolio in the new 28-seat Commission to be headed by Jean-Claude Juncker.
On Tuesday, the European Parliament confirmed veteran EU insider Juncker as head of the bloc's executive arm, the European Commission.