Non-Governmental Organizations Begin Work on the Second Shadow Report for the European Commission

Transparency International Ukraine, in the coalition of non-governmental organizations, is preparing the second Shadow Report on Chapter 23 (Justice and Fundamental Rights) and Chapter 24 (Justice, Freedom, and Security) of the European Commission’s 2024 Report on Ukraine. The report is being prepared under a grant from the EU-funded Project Pravo-Justice, implemented by Expertise France.

In addition to TI Ukraine, the Agency for Legislative Initiatives, ZMINA Human Rights Center, Tomorrow’s Lawyer, the Ukrainian Bar Association, and European Pravda will contribute to the report. The project report will be prepared and presented in September 2025.

“When preparing the Shadow Report, our organization will work on parts of the report on combating corruption and organized crime. In our assessment approaches, we will primarily focus on ensuring that our recommendations are applied and comprehensive, facilitating the implementation of necessary reforms and the integration of European legislation into Ukraine,” noted Kateryna Ryzhenko, Deputy Executive Director of Transparency International Ukraine for Legal Affairs.

In the new Shadow Report, experts will monitor and assess Ukraine’s progress in European integration under Chapters 23 and 24. In particular, the work will include:

• analysis of Ukraine’s progress in these chapters following the publication of the European Commission’s 2024 report on Ukraine;
• a detailed analysis of the challenges faced in the reform process within each area of both chapters;
• a description of the current state of public policy under Chapter 24 as a whole and specific areas under Chapter 23 from the perspective of civil society.

The coalition members will also assess Ukraine’s implementation of the European Commission’s recommendations from previous reports and the first screening report of Cluster 1, “Fundamentals.” In addition, the Shadow Report will assess the extent to which authorities have considered previous public recommendations.

“The preparation of shadow reports is an important tool for countries seeking EU membership, as it provides an independent assessment of real progress in meeting the membership criteria. This year, we supported expanding the monitoring to include not only Chapter 23 but also Chapter 24, which together cover key areas of Cluster 1—”Fundamentals.” It is crucial that the Shadow Report reflects not only legislative amendments but also their practical implementation, serving as a guide for further reforms. For the EU project Pravo-Justice, supporting this initiative contributes to strengthening civil society’s role in the European integration process and enhancing the effectiveness of reforms,” emphasized Oksana Tsymbrivska, Team Leader of the EU-funded Project Pravo-Justice.

Chapter 23 on Justice and Fundamental Rights and Chapter 24 on Justice, Freedom, and Security, examined in the Shadow Report, are part of Cluster 1, “Fundamentals.” It is key to the entire negotiation process, as it will be the first to open and the last to close at the final stage of negotiations—after the consent of all EU member states.

For reference

The Agency for Legislative Initiatives is a leading independent Ukrainian think tank focused on strengthening the institutional capacity of Parliament, the government, and the judiciary; advancing European and Euro-Atlantic integration; supporting Ukraine’s recovery from the consequences of Russian aggression; and monitoring and promoting reforms in justice, security, and public policy. 

Transparency International Ukraine (TI Ukraine) is an accredited chapter of the global movement Transparency International. The organization takes a comprehensive approach to implementing reforms aimed at reducing corruption in specific areas. It played a key role in creating and later transferring Prozorro, Prozorro.Sales, eHealth, and Prozvit to the state. TI Ukraine also implemented City Transparency and Accountability Rankings, developed the DOZORRO community to control public procurement, and co-founded the RISE UA Coalition to protect integrity and efficiency in the reconstruction process. 

ZMINA Human Rights Center conducts information, educational, monitoring, analytical, and advocacy activities in the field of human rights. It also protects human rights defenders and public activists in Ukraine, including in occupied Crimea. Following the start of Russia’s full-scale aggression, ZMINA, together with 38 other NGOs, established the Coalition “Ukraine. Five in the Morning.” The coalition documents war crimes, seeks to protect survivors of Russian armed aggression in Ukraine, and aims to hold both the top leadership of the Russian Federation and direct perpetrators of war crimes accountable. 

Tomorrow’s Lawyer is a public organization dedicated to strengthening the justice system, promoting the rule of law, and protecting human rights. Since 2016, the NGO has conducted research on state policy and the justice sector, developing recommendations for their improvement and advancement. A key priority of the organization’s work is the professional development of legal communities. 

The Ukrainian Bar Association (UBA) is a nationwide non-governmental organization founded in 2002, now bringing together more than 8,000 lawyers. The Association’s activities focus on developing the legal profession, improving legislation, upholding ethical standards, and protecting both its members’ professional rights and human rights in general. 

European Pravda NGO is an independent Ukrainian media outlet specializing in European affairs and Ukraine’s European integration. 

The EU-funded Project Pravo-Justice is a technical assistance initiative implemented by Expertise France with financial support from the European Union. 

Following the victory of the Revolution of Dignity, the EU-funded Project Pravo-Justice became a key driver in promoting the rule of law in Ukraine. It has contributed to aligning the country’s legislative framework with European standards, developing a strategic vision for reforms, advancing judicial reform, ensuring the proper enforcement of court decisions, etc.