Ukraine must work on a ten-point reform plan by 2026 to meet EU membership requirements

Brussels – The first outcome of the push for technical work to bring Ukraine closer to EU membership – at a time when political progress remains stalled by Viktor Orbán‘s Hungary – has come from Lviv, just over a month after the Commission’s Enlargement Package and the Danish Presidency’s diplomatic drive, both of which gave Kyiv renewed momentum at the end of an exceptionally delicate year for the country’s future.

At the informal meeting of Ministers for European Affairs, hosted in Lviv on 11 December by Ukraine’s Deputy Prime Minister for European and Euro-Atlantic Integration, Taras Kachka – and notably boycotted by the Hungarian representative – a ten-point reform plan was agreed for the implementation of “the most relevant and effective measures within the coming year,” including anti-corruption and rule-of-law policies in line with the requirements of the EU accession process.

Drawing on the Commission’s 2025 enlargement report for Ukraine, the 27 ministers – symbolically, with the Ukrainian minister taking the place of the Hungarian one – emphasised the need to strengthen work under Cluster 1 – ‘Fundamentals’. This cluster “is essential for consolidating reforms” in rule of law, public administration, democratic institutions, and the rights of national minorities, the latter being the issue on which Hungary allegedly bases its opposition to Kyiv’s accession.

The ministers also described Ukraine as “an asset to an enlarged and more resilient European Union,” with its EU accession serving as “a key element of broader security guarantees for Ukraine in the future.” They highlighted the steps EU institutions have taken – and continue to take – while awaiting the lifting of Hungary’s veto on the start of accession negotiations. The bilateral screening of all negotiation chapters has been completed “in an unprecedentedly short timeframe,” the Commission has confirmed that “all six clusters are ready to be opened,” and the Council – under the guidance of the Danish Presidency – is advancing technical work “with a view to preparing the next steps.”

The ten-point reform plan for 2026

The ten points agreed by the ministers are intended to demonstrate “Ukraine’s determination” to strengthen its institutions, make “substantial progress” in the reforms under Cluster 1 – ‘Fundamentals’ and advance “further along” its EU path, allowing work to accelerate once the Hungarian veto is lifted. At the same time, the European Commission has pledged to support Ukraine’s efforts, “providing the political, financial and technical assistance necessary” to sustain the reform agenda.

First, comprehensive amendments should be adopted to the Criminal Procedure Code to ensure “fast and high-quality justice” through a range of measures, including strengthening the independence of the National Anti-Corruption Bureau (NABU) and the Specialized Anti-Corruption Prosecutor’s Office (SAPO) and expanding their jurisdiction “to cover all high-risk positions”; removing the automatic closure of criminal cases due to the expiry of pre-trial investigation time limits; and addressing procedural obstacles in criminal proceedings.

Second, NABU should have effective access to “impartial, timely and high-quality” forensic examinations.

Third, a comprehensive review should be conducted of the selection and dismissal procedure for the Prosecutor General, in line with EU best practice and with the involvement of the Venice Commission.

Fourth, a law should be adopted to ensure “a transparent and merit-based” process for the selection, appointment, and transfer of prosecutors to managerial and other positions within the Prosecutor General’s Office, as well as in regional and district offices. This should include “clear criteria and a transparent, competitive, and meritocratic” procedure that assesses professional competence and integrity.

Fifth, reform of the State Bureau of Investigation (SBI) should include an “independent comprehensive review” of its institutional framework, integrity mechanisms, and oversight functions to evaluate “the necessity and feasibility of further reforms.”

Sixth, internationally vetted judges should be appointed “without delay” to the Constitutional Court, as well as members of the High Council of Justice.

Seventh, the involvement of international experts in the selection commission for the High Qualification Commission of Judges (HQCJ) should be extended in close cooperation with the European Commission regarding the modalities.

Eighth, the draft law on judges’ declarations of integrity should be adopted, clarifying the content of the declarations, extending the time period covered, and improving the verification procedure. For the Supreme Court, this includes the temporary involvement of internationally nominated independent experts. In addition, the government should adopt legislation to improve the enforcement of court decisions on monetary and non-monetary obligations and to advance digitalisation.

Ninth, the Anti-Corruption Strategy and the State Anti-Corruption Program should be adopted by mid-2026, ensuring a “high level of implementation.”

Tenth, internal control systems against high-level corruption should be developed and strengthened, including through a national action plan to align internal control and audit with international standards; embedding corruption risk management within overall organisational risk management; and ensuring that the tools of the National Agency for Corruption Prevention (NACP) – such as conflict-of-interest management and whistleblowing mechanisms – are “widely integrated” into the internal control and audit practices of ministries and agencies.

The state of EU relations with Ukraine

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 conference was held on 25 June 2024 in Luxembourg. As recognised in the 2025 Enlargement Package, the screening process has been successfully concluded with Ukraine.

With Hungary continuing to veto the start of Ukraine’s EU negotiations and Kyiv’s goal to complete them by the end of 2028, on 11 November the Danish presidency secured enough informal support among the member states in the Council to continue engaging with the candidate country at working level, as requested by Commissioner for Enlargement Marta Kos. The discussions – focused on monitoring progress in the implementation of reforms requested under the EU acquis – are taking place solely at a technical level, with no political decisions and no clusters of chapters formally opened or closed.

Once Cluster 1 – ‘Fundamentals’ – the first group of five negotiating chapters (out of 33), focusing on economic criteria, the functioning of democratic institutions, and public administration reform, is opened, the other groups of negotiating chapters can follow. According to the Commission, Ukraine is now ready to open all clusters. The unanimous approval of all 27 EU member states in the Council is now the only step remaining.