European Commission Report: Ukraine's Annual Accession Process and Reform Progress

List of Key Chapter Titles

1. Introduction
2. Cluster 1: Fundamentals of the Accession Process
3. Functioning of Democratic Institutions and Public Administration Reform
4. Rule of Law and Fundamental Rights
5. Economic Criteria
6. Public Procurement, Statistics, and Financial Control
7. Cluster 2: Internal Market
8. Cluster 3: Competitiveness and Inclusive Growth
9. Cluster 4: Green Agenda and Sustainable Connectivity
10. Cluster 5: Resources, Agriculture, and Cohesion
11. Cluster 6: External Relations
12. Good Neighbourly Relations and Regional Cooperation

Document Introduction

This report is the European Commission's 2025 annual assessment document on Ukraine's EU accession process. It aims to systematically evaluate the reform progress, current status, and future challenges achieved by Ukraine within the reporting period (September 1, 2024, to May 1, 2025) in the context of its application for EU membership. Based on multiple information sources, including the Ukrainian government, EU member states, the European Parliament, international organizations, and non-governmental organizations, the report employs two standardized assessment scales—"level of preparedness" and "speed of progress"—to provide a basis for decision-making for EU institutions and member states.

The report's core analytical framework revolves around the six clusters for accession negotiations. In the "Cluster 1: Fundamentals of the Accession Process" section, the report provides an in-depth assessment of key areas such as the functioning of Ukraine's democratic institutions, public administration reform, the rule of law (focusing on judiciary and anti-corruption), and economic criteria. Despite the severe challenges posed by the ongoing war, Ukraine has made "good progress" in macroeconomic stability and market economy development, demonstrating a firm commitment to the reform path. However, significant concerns and risks of backsliding remain regarding judicial independence, the robustness of the anti-corruption framework, and appointments to key institutions such as the Constitutional Court and the Supreme Court, for which the report provides specific recommendations.

In the remaining five clusters covering the internal market, competitiveness, the green agenda, resources and agriculture, and external relations, the report examines in detail Ukraine's alignment with EU legislation (acquis), implementation capacity, and institutional effectiveness across 33 specific negotiation chapters. The report notes that Ukraine has reached a "good level of preparedness" and made "good progress" in several technical areas, such as the customs union, energy, and external relations. However, legislative alignment and enforcement capacity in areas such as social policy, free movement of workers, financial services, public procurement, and environmental protection still require substantial improvement. The report lists priority reform recommendations for the next year for each chapter.

This report is not merely a technical assessment but also a significant political document that measures a country's institutional resilience, reform determination, and prospects for European integration under wartime conditions. It clearly states that Ukraine's accession process depends both on the continuous advancement of its domestic reforms and on its ability to uphold the core values of democracy and the rule of law in the context of war, preventing backsliding in key areas such as anti-corruption. The report's conclusions and recommendations will align with the priorities under the "Ukraine Plan," providing a roadmap for bilateral interaction and conditional support over the next twelve months.