Key facts
- Ukraine and Moldova have officially started the first phase of EU membership negotiations.
- The talks commenced in Luxembourg with senior EU officials and ministers.
- The initial focus is on chapters related to rule of law and democracy.
- Both countries were granted EU candidate status in 2022.
- Hungary's previous objections were overcome following a new government's election in April.
Ukraine and Moldova have officially begun the first phase of their European Union membership negotiations, a significant symbolic and substantive step for both nations. The process was launched in Luxembourg on Monday, marking the start of talks on key chapters of the EU rulebook, beginning with rule of law and democracy.
This development follows their rapid acceptance as EU candidate countries in 2022, shortly after Russia's full-scale invasion of Ukraine. While a decision to open talks was made in June 2024, substantive negotiations were initially delayed by Hungary. However, following the election of a new Hungarian government in April, EU member states unanimously agreed last Friday to proceed with the "first cluster" of negotiations.
EU leaders Ursula von der Leyen and António Costa lauded the determination and reform efforts of both Ukraine and Moldova, even amidst immense challenges. Ukrainian President Volodymyr Zelenskyy described the opening of the first cluster as crucial political and moral support. Experts like Heather Grabbe, a senior fellow at the Bruegel thinktank, emphasized the significance of this initial step in the accession process, while also noting the rigorous demands of adopting and implementing EU laws, which will require considerable time and administrative effort from Ukraine.
To achieve full membership, Ukraine must adopt thousands of EU laws and secure the unanimous approval of all existing member states. While EU officials have acknowledged Ukraine's reform efforts, including high-profile anti-corruption investigations, they also expressed disappointment that Kyiv has not progressed faster on a 10-point reform plan agreed upon last December. Officials estimate Ukraine has completed only 15% of these reforms, which include strengthening anti-corruption agencies and judicial appointments. Despite these challenges, EU officials believe technical talks could be completed in approximately four years, though final membership remains a political decision.
Discussions around Ukraine's integration have also touched upon alternative models, such as a proposal for "associate membership" by German chancellor Friedrich Merz, which did not gain traction in other capitals. However, the concept of "staged membership" appears to be gaining momentum, with Ukraine already participating in some EU policies. Grabbe suggested a security-first approach, advocating for Ukraine's integration into EU security and defence policy, given its critical role in continental security and the potential disaster for European security should Ukraine become disillusioned with the EU.