On June 15, the European Union initiated the first negotiation cluster for Ukraine’s accession, known as “Fundamentals.” This marks the formal beginning of discussions on how Ukraine can implement the necessary conditions for EU membership. An intergovernmental conference has been convened, featuring ministers from EU member states to represent their positions.
The negotiations will focus on the content and parameters required for Ukraine to align with EU standards. To close this first cluster, Ukraine must enhance the pace and quality of reforms in areas such as the rule of law, human rights, and anti-corruption measures, with some requirements needing to be fulfilled within the coming months.
According to a statement from the Cypriot presidency of the EU Council, this milestone acknowledges the aspirations and resilience of both Ukraine and Moldova, which is concurrently pursuing EU membership.
Negotiation clusters are a framework used during the accession process, which Ukraine has been familiar with since its legislative screening phase. Ukraine completed this phase in a record 14 months, conducting 34 meetings with EU representatives and over a thousand officials from Ukrainian authorities.
The screening process traditionally encompasses 33 chapters grouped into six clusters, including: “Fundamentals of the EU Accession Process,” “Internal Market,” “Competitiveness & Inclusive Growth,” “Green Agenda & Sustainable Connectivity,” “Resources, Agriculture & Cohesion,” and “External Relations.” Following the screening, priority reforms, or benchmarks, are established for each cluster, guiding the EU’s assessment of Ukraine’s progress.
During the negotiations, Ukraine will adapt its legislation and implement reforms that bring it closer to EU standards. The closure of all negotiation clusters will lead to a new report from the European Commission, which will inform the EU Council’s decision on whether to sign an Accession Treaty with Ukraine.
The “Fundamentals” cluster encompasses essential values and principles foundational to the EU, including the rule of law and robust democratic institutions. Ursula von der Leyen, President of the European Commission, emphasized the cluster’s significance, noting it is the first to be opened and the last to be closed in the negotiation process.
This cluster includes negotiation chapters on the judicial system, fundamental rights, justice, freedom and security, public procurement, statistics, and financial control. The EU aims to see a candidate country that effectively combats corruption, maintains functional democratic institutions, and has a stable and developed economy.
Amanda Paul, an expert at the European Policy Centre, stated that progress in the “Fundamentals” cluster sets the pace for the entire negotiation process. However, she cautioned that negotiations could be suspended if there are serious and persistent violations of EU values.
Among the priorities for Ukraine within this cluster are anti-corruption measures, which will be integrated across all negotiation chapters. It is crucial that reforms are not only enacted at the government level but also involve civil society, which plays a vital role in advocating for reforms.
Negotiations had previously been stalled due to the need for unanimous agreement from all 27 EU member states. Hungary, under former Prime Minister Viktor Orbán, had blocked the process, citing concerns over Ukraine’s treatment of the Hungarian minority in Transcarpathia. Following parliamentary elections in Hungary that resulted in Orbán’s defeat, the situation shifted.
New Prime Minister Péter Mádly announced that after “intensive negotiations,” Ukraine agreed to address Hungary’s concerns regarding education, culture, and language rights, paving the way for the opening of the first negotiation cluster.
The opening of this cluster signifies the commencement of official negotiations between Ukraine and EU member states to agree on the future Accession Treaty. Delegations participating in the negotiations will be introduced at the intergovernmental conference, along with the negotiation framework and Ukraine’s position.
Negotiations are a mutual process, with both the candidate country and the EU needing to prepare for expansion. The outcomes will be incorporated into the draft Accession Treaty, which will be finalized once all chapters are agreed upon.
Ukraine’s Deputy Prime Minister Taras Kachka expressed optimism that all six negotiation clusters could be opened by June or July 2026, contingent on continued cooperation from member states.
Looking ahead, the timing of Ukraine’s EU membership largely depends on the resolution of the ongoing conflict. Amanda Paul noted that negotiating with a candidate country in a state of war presents unprecedented challenges for both Ukraine and the EU. Strengthening the institutional capacity of key government bodies and comprehensively reforming public administration will be essential for Ukraine’s successful accession.
Ukrainian authorities maintain that they are committed to the EU integration process, presenting a timeline for potential membership by 2027 as part of their post-war security guarantees. However, this ambitious target has been met with skepticism from some European leaders.
While Hungary’s new government has signaled a willingness to proceed with negotiations, there are still concerns about the pace of Ukraine’s accession process, with calls for a legally binding referendum on membership remaining a contentious issue.
The EU has officially launched the first negotiation cluster for Ukraine's membership, focusing on essential reforms in governance and anti-corruption. The process had faced delays due to Hungary's objections but has now progressed, with expectations for further clusters to open soon.