"Immediately"
The European Commission has prepared a plan for further accession negotiations for Ukraine. The document obtained by Politico shows that Brussels expects Kyiv to implement rule of law reforms much faster and calls for "an immediate acceleration of the pace of reforms."
Ukraine must meet key rule of law requirements by mid-2027. Only after meeting these conditions will it be able to close the next stages of negotiations regarding EU membership.
Ukraine is far behind Moldova
The document shows that Ukraine and Moldova are increasingly moving away from each other on their way to EU membership. Although both countries started accession negotiations at the same time, Brussels assumes that Moldova will make much faster progress towards EU membership. In 2027, Chisinau may complete negotiations in more than 20 areas, while Ukraine - only in seven.
Ukraine applied for membership on February 28, 2022, four days after the Russian invasion began. In June 2022, Ukraine and Moldova received the status of candidate countries. Two years later, in June 2024, both countries officially started accession negotiations.
Ukraine has since completed a detailed analysis of the compliance of its law with EU rules. In October, it also started talks on the internal market, competitiveness and economic growth.
Seven areas of negotiations in 2027
The European Commission indicates seven areas in which Ukraine could complete negotiations in 2027.
In the first half of the year it would be education and culture. In the second half, Ukraine would complete negotiations in six further areas:
protection of intellectual property;
employment and social policy;
industrial policy;
scientific research;
external relations;
foreign and security policy.
The scope of the planned changes is much smaller than in the case of Moldova. To become a member of the European Union, Ukraine must adapt its law and the operation of state institutions to EU requirements in 35 areas. They concern, among others: agriculture, food safety, competition rules, judicial independence and foreign policy.
The European Commission emphasizes that implementing these reforms is a complicated process that requires time, consultations and appropriate resources. To make it easier for Ukraine to carry out this task, Brussels has established a special group to support the Ukrainian authorities in preparing and implementing the necessary changes.
The war hinders reforms
One of the main obstacles remains the ongoing Russian aggression. The war imposes additional responsibilities on the Ukrainian government and parliament, while making it more difficult to adopt and implement regulations required in the accession process.
The Commission does not set a date for the end of negotiations with Ukraine. It is similarly cautious about the deadlines in the case of Moldova and Albania. The exception is Montenegro, for which June 2027 is scheduled for signing the accession treaty.
The plan for Ukraine is described as an open document that can be updated as reforms progress. This means that Kiev may end negotiations in more areas earlier if the pace of changes turns out to be faster than expected.
Brussels wants to open further negotiating blocks
The European Commission also expects talks to start by the end of 2026 on two more negotiation clusters, which remain blocked. This concerns cluster 4, covering issues of ecology and sustainable transport, and cluster 5, relating to resources, agriculture and cohesion.
According to the document, Ukraine has met the required conditions to start these talks. The Commission calls on the Accession Conference to make every effort to open both clusters before the end of the year.
Their launch would enable Kiev to conduct negotiations in further areas. However, further progress will depend on the implementation of reforms and decisions by EU Member States.
Ukraine's membership without a specific date
Even the conclusion of negotiations in all areas does not mean automatic admission to the Union. Ukraine will have to go through further stages, including agreeing on an accession treaty, which will then require approval and ratification.
The issue of security remains an additional challenge. EU rules do not explicitly prohibit the admission of a state at war, but Ukraine's membership would raise difficult questions about its territory and the obligations of other EU countries in terms of mutual assistance.
A possible peace agreement would not automatically solve all these problems. It would also not release Ukraine from its obligation to carry out the required reforms.
The message from Brussels is therefore clear: Ukraine remains on the path to membership, but must accelerate changes, primarily in the area of the rule of law. For now, however, the European Commission does not want to indicate when Kiev could finally join the EU.
