Brussels – If creative solutions were being sought, the institutions in Brussels have begun putting them into practice to ensure that the EU accession process for Ukraine and Moldova can continue – if not according to the formal script, then at least behind the scenes, so as not to be caught unprepared when the stalemate is resolved.
Several EU sources confirmed to The New Union Post that on 11 November the Danish presidency secured enough informal support among the member states in the Council to continue engaging with Kyiv and Chișinău at working level – as requested by Commissioner for Enlargement Marta Kos – despite the formal process still being at a standstill due to Orbán’s Hungary veto.
According to one source, this means that in practical terms the discussions in the working groups will continue as if these were formal EU accession negotiations, with work focused on monitoring progress in the implementation of reforms requested under the EU acquis. All of this, however, will take place solely at a technical level, with no political decisions by the member states and no clusters of chapters formally opened or closed.
The decision has been taken with the agreement of both Kyiv and Chișinău, another source explained, with assurances to the 27 member states that work will continue in line with the current methodology and merit-based approach of the (informal) negotiations. The aim is to carry on technical preparations with the two candidates on the requested reforms until unanimity in the Council is restored and the formal process can finally be opened – potentially after the 2026 parliamentary elections in Hungary, when Viktor Orbán’s 14-year power could end, along with his veto on Ukraine’s EU accession talks.
The Commission now has the mandate to engage with Kyiv and Chișinău at working level, reporting to the Council. It will start with Cluster 1 – ‘Fundamentals’, the first of five negotiating chapters (out of 33), focusing on economic criteria, the functioning of democratic institutions, and public administration reform. According to the EU executive, Ukraine is also ready on Cluster 2 – ‘Internal Market’ and Cluster 6 – ‘External Relations’, while Moldova can begin negotiations on all clusters.
The state of EU relations with Ukraine and Moldova
Just four days after the start of Russia’s war of aggression, on 28 February 2022, Ukraine submitted its application for EU membership, with Moldova following three days later, on 3 March. On 23 June 2022, the European Council endorsed the European Commission’s recommendation to grant Kyiv and Chișinău 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 with the two countries were held on 25 June 2024 in Luxembourg. As recognised in the 2025 Enlargement Package, the screening process has been successfully concluded with both Kyiv and Chișinău.
With Hungary continuing to veto the start of Ukraine’s EU negotiations, Moldova’s accession has also been put on hold, as Chișinău’s EU process is tied to Kyiv’s through the so-called “package approach” (which has linked the two dossiers from the very beginning). While the Commission considers it possible for Moldova to complete accession negotiations by 2027, opening them “by November” this year, Ukraine’s goal is to do the same by the end of 2028, and is now expected to meet the conditions allowing the Council to open “all clusters before the end of the year.”
Once Cluster 1 – ‘Fundamentals’ 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 remaining.
