Roadmaps to Europe

Ukraine’s path to European integration is not an easy one. Just as travelers study their route before embarking on a long journey, a country preparing for large-scale transformation must also chart its course. For Ukraine, this means having a clear roadmap and a step-by-step action plan — and such a plan is already in place.

Last week, the Cabinet of Ministers approved three key documents designed to serve as the foundation for Ukraine’s European integration: Road Maps for reforms in the rule of law, public governance, and the functioning of democratic institutions. Their approval marks a critical step forward — it will finally launch the EU accession negotiations.

What impact will these Road Maps have once approved? Let’s try to figure it out.

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A road map is a document in which a candidate country outlines key reforms in specific areas, along with deadlines for their implementation.

In other words, it is a compilation of specific functional issues that hinder a country’s full integration into the EU, along with a detailed plan for how these issues will be addressed.

However, the road map serves not only as a reform plan, it also serves as a reference point for the European Commission to monitor the candidate country’s progress.

Therefore, before launching accession negotiations with the EU, every candidate country must develop such a road maps and coordinate them with the European Commission.

Ukraine has prepared this strategic document as part of its accession process, outlining planned reforms in the rule of law, public governance, and the functioning of democratic institutions. During the negotiation process, the EU will assess Ukraine’s readiness for accession based on regulatory, institutional, and administrative criteria.

All Road Maps approved by the Cabinet of Ministers are aligned with Ukraine’s international commitments and other strategic documents.

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The approval of Road Maps in the areas of rule of law and public governance reform is a prerequisite for Ukraine’s EU membership under Cluster 1: “Fundamentals.”

Of particular interest to us is the Road Map on the rule of law, as it outlines potential reforms in the justice system, anti-corruption framework, media pluralism and freedom, as well as other institutional matters related to checks and balances.

The Ukrainian Government adopted the Rule of Law Road Map based on the recommendations outlined in the European Commission’s audit report. It is important to note that the final text of this document is the result of long-term efforts by all relevant stakeholders.

Following a transparent process of meaningful consultations between Ukrainian authorities and European partners, and the substantive involvement of civil society experts, including TI Ukraine, the country ultimately received a significantly improved version of the Road Map compared to the initial drafts. For example, the authors took into account our recommendations concerning the HACC competition with the participation of the PCIE, as well as improvements to the rules on limitation periods and mechanisms for procedural oversight in corruption cases. An important achievement, of course, is the inclusion of the proposal to introduce liability for prosecutors.

However, the Road Map also omits several important elements — for example, granting the head of SAPO the authority to initiate proceedings and coordinate investigative actions against MPs. The document also fails to address the need to introduce a competitive selection process for the position of Prosecutor General, or to establish a selection commission with the participation of international experts for appointing the heads of law enforcement agencies.

Recommendations regarding the development of a monitoring system for the duration of investigations and court proceedings in corruption cases, improvement of asset management mechanisms, and the prohibition of blocking asset management through rulings by non-criminal courts were also not addressed. Measures in the area of public procurement also remain largely unchanged and could benefit from further refinement.

A particularly concerning aspect is that a number of critical initiatives in the document are scheduled only for 2027, which may slow down the process of European integration and the reform of the justice system. However, these shortcomings can still be addressed, as the implementation of this Road Map will be continuously monitored and regularly reviewed at intergovernmental conferences throughout the entire European integration process.

Until the end of 2027, when the deadlines set out in the Road Map expire, the European Commission will closely monitor Ukraine’s progress across all areas, using all available tools. These may include expert on-site inspections by the Commission and member states, structured dialogue under the Association Agreement, including the Deep and Comprehensive Free Trade Area, and, where appropriate, third-party indicators.

At the same time, the European Commission will regularly inform the EU Council about Ukraine’s progress in various sectors throughout the negotiations, particularly when presenting draft common EU positions.

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The Road Maps have been approved — what’s next?

Formally, the process should go as follows:

• Ukraine receives an official invitation letter, approved by all EU member states, requesting the Road Maps on the rule of law and public administration reform as agreed by the government.
• The European Commission assesses these documents, after which the EU member states unanimously endorse the Road Maps.

However, in Ukraine’s case, things are different because Hungary is opposed.

Due to Hungary’s obstruction, the invitation letter was never sent. As a result, Ukraine decided not to wait for formal approval from Brussels and instead adopted the Road Maps independently. These steps were fully coordinated with EU authorities and are part of the very “Plan B” recently mentioned by Kaja Kallas and clearly described in an article by the journalists of European Pravda.

Still, even though the position of Viktor Orbán’s government is slowing down Ukraine’s EU integration process, the need for meaningful reforms remains — because without them, accession will not be possible. That’s why, with a concrete plan in place, Ukraine can and should act now. After all, those who keep moving forward are the ones who reach their goal.