EU tells Ukraine to hasten reforms, sets out more cautious path for accession

Brussels has set out a far more ambitious membership roadmap for Moldova than it has for Ukraine, according to a document obtained by POLITICO. The European Commission is preparing a more cautious approach for Ukraine's accession negotiations, setting limited targets for progress in 2027 while avoiding any commitment to a membership date.

The document calls on Kyiv to "urgently and significantly step up the pace of the rule of law reforms." Meeting key requirements in this area in the first half of 2027 is necessary before negotiations in individual policy areas can be provisionally concluded.

Decoupling from Moldova

The document underscores a growing divergence between Ukraine and Moldova, whose membership bids have long advanced in parallel. While Brussels is targeting progress in seven policy areas for Ukraine in 2027, Moldova could complete negotiations in more than 20, raising the prospect that the two countries' membership bids will effectively be decoupled.

A long way to go

Joining the EU requires candidate countries to bring their laws and institutions into line with EU standards across 35 negotiating areas, known as chapters. The Commission's roadmap identifies only seven such areas in which Ukraine could provisionally finish negotiations in 2027: education and culture, intellectual property, employment and social policy, industrial policy, research, external relations, and foreign and security policy.

The Commission acknowledges that the changes are complex and require extensive consultations, time and resources. To help Ukraine make progress, Brussels has established a dedicated task force to provide additional support to Ukrainian authorities.

The difficulties are compounded by the war, which places extraordinary demands on Ukraine's government and parliament as they seek to pass and implement the legislation required for EU membership.