The EU has blocked the funds over worries around corruption and poor judicial independence in Hungary, which in turn vetoed the EU loan to Kyiv and a proposal for a global corporate tax.
"I note the efforts made so far by Hungary to address several of the remedial measures," EU Budget Commissioner Johannes Hahn wrote in a letter.
Orban, in power since 2010, has cultivated close ties with Moscow and repeatedly stalled EU sanctions against Russia.
International watchdogs say Orban has long channelled EU funds to associates to entrench himself in power.
It has also been withholding approval of some 5.8 billion euros for Hungary from an EU fund set up to help countries recover from the COVID pandemic, citing insufficient independence of courts from politicians.