Key facts
- Ukraine agreed to comprehensive rule-of-law reforms in December to advance EU accession talks and secure funding.
- Key reforms concerning the justice system, law enforcement, and anti-corruption have not been implemented.
- An EU assessment in June indicated only 15% of the reform plan was implemented by the deadline.
- A law on judicial integrity declarations passed by parliament has been criticized for potentially weakening accountability.
- Legislation to reform the State Investigation Bureau has been delayed.
- Efforts are underway to strengthen the independence of anti-corruption agencies like NABU and SAPO.
Ukraine's commitment to implementing crucial rule-of-law reforms, a prerequisite for its European Union accession talks and access to EU funding, appears to be largely unfulfilled, according to recent assessments and activist reports.
Despite agreeing to a comprehensive package of reforms in December, including measures for the justice system, law enforcement, and anti-corruption efforts, the Ukrainian government has reportedly deprioritized their implementation. Vitaly Shabunin, head of the Anti-Corruption Action Center's executive board, stated that none of the critical reforms have been enacted, suggesting the administration fears losing political control over these agencies.
An EU assessment published in June revealed that only 15% of the reform plan, known as the Kachka-Kos plan, had been implemented by the deadline. This plan, endorsed by EU Enlargement Commissioner Marta Kos and Ukraine's then Deputy Prime Minister Taras Kachka, includes benchmarks for Ukraine's EU accession and requirements for the EU's Ukraine Facility lending program.
Specific areas of concern include the reform of integrity declarations for judges, where a recently passed law has been criticized by judicial watchdogs for potentially weakening accountability rather than strengthening judicial integrity. While a clause in the law mandates the drafting of a separate bill on Supreme Court declarations within six months, experts question the necessity of such a lengthy process for a brief bill.
Furthermore, the reform of the State Investigation Bureau, intended to align with European best practices, has seen no progress, with President Zelensky failing to submit a promised bill. An alternative bill proposed by lawmakers has also not been considered by parliament.
Regarding anti-corruption agencies, the plan aims to strengthen the independence of the National Anti-Corruption Bureau (NABU) and the Specialized Anti-Corruption Prosecutor's Office (SAPO). However, a law signed in July 2025 that subordinated NABU to the prosecutor general, an appointee of the president, was seen as undermining its independence, though it was later restored amid protests and Western pressure. Efforts are ongoing to pass legislation for independent forensic assessments for NABU.
Activists argue that President Zelensky's administration is hesitant to implement these reforms due to concerns about losing political influence and potential investigations into corruption within his inner circle. The European Commission is currently assessing the recently passed law on integrity declarations for compliance with the Ukraine Facility lending program's conditions.