Brussels – The welcome extended by European Council President António Costa to Ukrainian President Volodymyr Zelensky at the EU leaders’ summit on 23 October was as heartfelt as it was idealistic. “As a future member of the European Union, I am very glad to have you here among our colleagues,” he said.
While the sentiment and hope are widely shared in Brussels and across most EU capitals, given the current political climate, the delays, and the persistent blockages hindering Ukraine’s accession process, President Costa’s optimism appears to reflect personal conviction more than a realistic reading of the situation.
It was President Zelensky himself who brought the discussion back down to earth—not to dampen the EU’s enthusiasm, but to remind the 27 leaders of their responsibilities at a time when talks were focused on financial support for Ukraine, the use of immobilised Russian assets, and sanctions against Moscow. “EU enlargement is also part of our shared defence—part of Europe’s geopolitical security,” Zelensky told the European Council. “I urge you to find a way for the EU to keep its promises, just as Ukraine is keeping its own.”
Between President Zelensky and Commissioner Kos
The central figure—Hungarian Prime Minister Viktor Orbán—is never named outright, but his role as the main obstacle to Kyiv’s EU accession process is clear. Remarkably, Orbán did not even attend the European Council discussions on Ukraine.
“For more than six months, progress on the clusters in Ukraine’s EU accession talks has been blocked,” Zelensky denounced. “This is not fair—and it is not good for Europe,” he continued, stressing that Ukraine has done everything necessary to open the clusters on time. Making it clear that “the blockage is artificial,” President Zelensky urged leaders to “find a way to move forward,” emphasising that EU enlargement also brings “more stability in Europe.”
It is worth recalling that the Hungarian Prime Minister did not oppose the political decision to open Ukraine’s EU accession negotiations on 14 December 2023. Instead, he left the room while the European Council was adopting its conclusions—a move that allowed him to avoid endorsing the decision while technically refraining from vetoing it. Now, however, he is using every opportunity to block Kyiv’s progress on the accession process.
Once again, the conclusions of the European Council on Ukraine were agreed among 26 leaders, without Hungary. “The European Council encourages Ukraine, the Council and the Commission to take work forward on the accession process, in line with the merit-based approach,” the text states. Moreover, the European Council “takes good note of the Commission’s assessment that the fundamentals, internal market and external relations clusters are ready to be opened.”
On the topic of negotiations, Commissioner for Enlargement Marta Kos reiterated that she is looking forward to the Council opening the negotiating clusters “soon.” At the margins of the Renew Europe Pre-Summit, she announced that “we are ready to open Cluster 1 by November,” adding that all the other clusters “will be ready to follow.”
Even without unanimity in the Council, “the process has not stopped” since the formal start of the accession negotiations on 25 June 2024. As Commissioner Kos emphasised, “there are ways to keep moving ahead,” even when a single member state exercises its veto. “Ukraine has delivered, and Moldova as well—theirs has been the fastest screening process ever. We are working hard to find a way forward,” she added.
The state of EU-Ukraine relations
Just four days after the start of Russia’s war of aggression, on 28 February 2022, Ukraine submitted its application for EU membership. On 23 June 2022, the European Council endorsed the European Commission’s recommendation to grant Kyiv candidate status. At the European Council meeting on 14 December 2023, EU leaders gave the green light to open accession negotiations. Following the Council’s approval of the negotiating frameworks, the first intergovernmental conferences were held on 25 June 2024 in Luxembourg.
With the aim of opening the first EU accession negotiation cluster in the first half of 2025, the screening process has been ongoing since last autumn. As recognised by the Council, progress has been made in areas such as the rule of law, judicial and public administration reform—with the renewal of the judiciary being a key focus—alongside efforts to strengthen freedom of expression and media independence, and further enhance the anti-corruption institutional framework.
As anticipated by Commissioner for Enlargement Marta Kos, both Ukraine and Moldova “are ready” for Cluster 1 – Fundamentals to be opened. The first group of five negotiating chapters focuses on economic criteria, the functioning of democratic institutions, and public administration reform. Once Cluster 1 is opened, the other groups of negotiating chapters can follow. The unanimous approval of all 27 EU member states in the Council is now the only step required.
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