What changed

MOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

Follow-up to the European Parliament non-legislative resolution on the 2023 and 2024 Commission reports on Ukraine

on the 2023 and 2024 Commission reports on Ukraine

Rapporteur: Michael GAHLER (EPP / DE)

(2025/2026(INI))

Reference number: 2025/2026(INI) / A10-0154/2025 / P10_TA(2025)0175

– having regard to its previous resolutions on Ukraine,

Date of adoption of the resolution: 9 September 2025

– having regard to the Commission staff working document entitled ‘Ukraine 2024 Report’ (SWD(2024)0699) accompanying the 2024 Commission communication on EU enlargement policy (COM(2024)0690),

Competent Parliamentary Committee: Committee on Foreign Affairs (AFET)

– having regard to Rule 55 of its Rules of Procedure,

Brief analysis/ assessment of the resolution and requests made in it:

– having regard to the report of the Committee on Foreign Affairs (A10-0000/2025),

The resolution strongly condemns Russia's ongoing war of aggression against Ukraine and support to Ukraine’s right to sovereignty, independence and territorial integrity within its international recognized borders. The Parliament expresses its solidarity with the Ukrainian people and welcomes Ukraine's progress in meeting the requirements for EU membership, despite the challenges posed by the war. The Parliament calls for increased support for Ukraine, including military, financial, and humanitarian, and urges the EU to accelerate the delivery of assistance.

A. whereas Parliament condemns in the strongest possible terms the Russian aggression against Ukraine and supports Ukraine’s right to sovereignty, independence and territorial integrity within its internationally recognised borders;

The Parliament supports Ukraine's EU accession process, recognising that it is a key driver of democratic development, stability, and security for the country. The Parliament welcomes Ukraine's progress in implementing reforms, including in the areas of democracy, the rule of law, and the fight against corruption. The Parliament calls on Ukraine to continue making progress in these areas and to address remaining challenges. The Parliament calls for the EU to provide continued support to Ukraine, including through technical assistance, financial aid, and political backing, to help the country achieve its goal of EU membership.

B. whereas Ukraine has shown remarkable resilience and commitment to its European path despite the ongoing Russian war of aggression;

The resolution highlights the essential role played by the Ukraine Facility in support of Ukraine’s macro-financial stability and reform agenda and calls for continued and enhanced financial support for the country in 2026 and 2027.

C. whereas the legislative reforms Ukraine has initiated reflect its dedication to alignment with the EU acquis;

Response to requests and overview of action taken, or intended to be taken, by the Commission:

D. whereas challenges remain in areas such as judicial independence and systemic corruption, which must be addressed through greater governmental accountability and international oversight;

On paragraph 4 concerning the international support, the EU continues to actively work with international partners to ensure Ukraine receives the material support it needs and to hold Russia accountable for its actions. Since the start of Russia’s war of aggression, the EU has been fulfilling its commitment to support Ukraine for as long as it takes by providing continuous support to Ukraine and its people on all fronts. As of early November 2025, the overall EU assistance to Ukraine and its people amounts to EUR 187.3 billion in financial, military, humanitarian and refugee assistance, of which 59% have been provided as grants or in-kind support, and 41% in the form of highly concessional loans.

E. whereas Ukraine has made advancements in regional cooperation and in socioeconomic reforms to align its policies with EU standards;

Furthermore, through the Ukraine Donor Platform initiated in January 2023, the EU continues to work with donors at global level on the coordination and coherence of support to Ukraine. On the diplomatic front, the EU will pursue its efforts to build the broadest international support for a comprehensive, just and lasting peace based on the principles of the UN Charter and international law, in line with the key principles and objectives of Ukraine’s Peace Formula.

F. whereas Ukraine’s democratic institutions have demonstrated adaptability under martial law, though concerns remain regarding transparency and the balance of power during this period;

On paragraph 13 on accountability, ensuring full accountability for war crimes and the other crimes committed in connection with Russia’s war of aggression against Ukraine, including through prosecutions where appropriate, is a key priority for the EU. The EU hosts and finances the International Centre for the Prosecution of the Crime of Aggression (ICPA) at Eurojust; contributes to the Register of Damage for Ukraine; and supports the establishment of the Special Tribunal for the Crime of Aggression including through support of an advanced team. The EU participates in the formal negotiations to set up an International Claims Commission for Ukraine and is co-chair of the Dialogue Group on Accountability. Furthermore, the EU supports the Ukrainian Prosecutor General’s Office and other relevant Ukrainian authorities to strengthen its capacities to investigate and prosecute international crimes, primarily through the EUAM Mission and EU work in the Atrocity Crimes Advisory Group. Besides, the EU Pravo Justice Project provides technical assistance to Ukraine on accountability efforts. Additional support is provided to Ukrainian and international civil society actors for documenting war crimes, among others.

G. whereas progress has been made on public administration reform, but further capacity building and improvements to human resources management are still required;

On paragraph 15 concerning sanctions, the EU adopted the 19th sanctions package against Russia, which targets key sectors fuelling Russia’s illegal invasion of Ukraine, including energy, finance, and the military industrial complex. Work has already begun on the 20th sanctions package. The EU also aims for further measures against those responsible for the deportation and forcible transfer of Ukrainian children.

H. whereas the judiciary has resumed key functions, including the vetting of judges and the implementation of anti-corruption measures, though integrity and transparency standards must be strengthened;

On paragraph 26 on monitoring the reform progress, the Commission recalls that amid the challenges caused by Russia’s war of aggression, Ukraine has demonstrated its strong commitment to its EU path, moving forward on key reforms, while further and steady progress is needed in the fight against corruption. The Commission recalls its assessment that Ukraine has met the conditions required to open cluster one (fundamentals) as well as six (external relations), and two (internal market). The Commission expects Ukraine to meet the conditions to open the remaining clusters: three (competitiveness and inclusive growth), four (green agenda and sustainable connectivity) and five (resources, agriculture and cohesion) and works to ensure that the Council is in a position to take forward the opening of all clusters before the end of the year.

I. whereas Ukraine has shown a commitment to the green agenda through legislation on renewable energy and by aligning with the objectives of the European Green Deal;

The Ukraine Plan has been central in steering reforms and promoting alignment with the EU acquis, showing the resilience of conditionality under exceptional circumstances. Steps already taken (from reinforcing anti-corruption measures to improving public administration) are laying the foundations for recovery and opening space for greater private sector involvement. Further sustaining this momentum and preventing any risk of backsliding, in particular on anti-corruption, will be essential. Significant progress was also made on gradual integration into the single market, already bringing Ukraine closer to the EU. On 1 January 2026, the first internal market treatment decision for Ukraine, on ‘Roam like at home’ will enter into force.

J. whereas civil society remains a pillar of resilience and democracy in Ukraine, though instances of pressure against activists raise concerns and require government action;

On paragraph 37 on strengthening of the rule of law, judicial reform and fight against corruption, the Commission fully shares the view that progress in these areas is crucial not only for EU membership but also for successful reconstruction. An acceleration of the pace of fundamental reforms is required. Recent negative trends, including the pressure on the specialised anti-corruption agencies and civil society, must be decisively reversed. Ukraine should preserve and further advance its independent anti-corruption framework, build a solid track record, and prevent any backsliding. The Commission is committed to provide support and remains in constant dialogue with the Ukrainian authorities in this regard.

K. whereas the freedom of expression and media independence face challenges, particularly under martial law; whereas reforms are required to restore pluralism and protect journalists;

On paragraph 60 on the Ukraine Plan implementation, the Commission recalls that since the Ukraine Facility became operational in March 2024, the Commission has disbursed EUR 24,5 billion in loans and grants under the first pillar (Ukraine Plan). Over 2025, up to EUR 12.5 billion in loans and grants can be disbursed under the Ukraine Plan, pending the implementation of reforms by Ukraine.

L. whereas Ukraine’s EU integration process is widely supported by public and institutional consensus, reflecting a strong societal commitment to EU membership despite the current difficulties;

On paragraph 63 on ensuring continued and enhanced financial support for 2026 and 2027, the President of the Commission, in a letter dated 17 November, has outlined the options to address Ukraine’s pressing financial needs in this period, responding to the European Council conclusions. The Commission remains committed to continuing to provide Ukraine with regular and predictable financial support in the long term, together with like-minded partners and allies.

M. whereas EU membership remains a crucially important driver for the democratic development of Ukraine and will represent a key factor in ensuring the country’s future security, stability and independence;

On paragraphs concerning the support in the energy sector, the Commission recalls that since the beginning of the full-scale Russia’s invasion, the G7+ partners together with the EU have successfully mobilized over USD 7 billion in energy assistance. Of this amount, the EU has already provided more than EUR 3 billion to strengthen Ukraine’s energy security via the Ukraine Facility and the Union Civil Protection Mechanism, among others. Most recently, the Ukraine Investment Framework helped mobilise EUR 927 million worth of loans and grants via the European Bank for Reconstruction and Development (EBRD) and the European Investment Bank (EIB) to Naftogaz for emergency gas purchases for the heating season.

On the state of play of the Russian war of aggression and sanctions

On paragraph 87 on support in expert assistance form in preparation for accession negotiations the Commission recalls that third pillar of the Ukraine Facility focuses on providing technical assistance and support measures to facilitate Ukraine’s alignment with EU laws and regulations. This includes capacity building initiatives (including civil society and organisations, local and regional authorities) and assistance to Ukraine in implementing reforms necessary for EU membership. Under Pillar III, the Technical Cooperation Facility for Ukraine 2024 was established and is being implemented smoothly.

1. Reiterates its unwavering solidarity with the people of Ukraine and its support for the independence, sovereignty and territorial integrity of Ukraine, within its internationally recognised borders; strongly underlines Ukraine’s inherent right to self-defence, in line with Article 51 of the UN Charter;

2. Stresses that the EU and its Member States must significantly increase the assistance they provide to uphold Ukraine’s right to self-defence; insists that the EU and its Member States, together with partner and allies, must contribute to robust security guarantees for Ukraine in order to deter further Russian aggression;

Commitment to EU accession

3. Strongly welcomes Ukraine’s steadfast dedication to meeting the requirements of EU membership, including compliance with the EU acquis;

4. Takes note of the US-Ukraine agreement on critical minerals; welcomes the fact that it includes explicit language designed to safeguard Ukraine’s EU accession process and related obligations, as well as to ensure compatibility with Ukraine’s obligations with international financial institutions or other official creditors; calls on the Commission to monitor the rigorous implementation of these safeguards;

Democracy, the rule of law and the fight against corruption

5. Acknowledges Ukraine’s extraordinary efforts in strengthening democratic institutions during wartime; encourages Ukraine, at the same time, to increase transparency in legislative processes and to allocate more resources for judicial reform;

6. Calls on Ukraine to address the issues hindering judicial development; highlights the need for improvements in judicial independence and the fight against corruption;

7. Welcomes the appointment of a new head of the National Agency on Corruption Prevention and of independent auditors to assess the effectiveness of the National Anti-Corruption Bureau of Ukraine in investigating corruption; salutes the entry into force of the amended Criminal Code and of the Criminal Procedure Code; commends the adoption of the action plan for the implementation of the asset recovery strategy for 2024-2025 and related measures;

8. Encourages Ukraine to safeguard the independence and effectiveness of anti-corruption institutions, including the Specialized Anti-Corruption Prosecutor’s Office (SAPO), by ensuring transparent appointment processes and protecting such bodies from political influence; commends Ukraine for having increased the staff of SAPO;

9. Acknowledges the findings of the addendum to the Second Compliance Report adopted by the Council of Europe’s Group of States against Corruption on 22 November 2024, according to which Ukraine has implemented satisfactorily or dealt with in a satisfactory manner 18 out of 31 recommendations contained in that report; encourages Ukraine to fully implement the remaining recommendations;

Fundamental freedoms and human rights

10. Commends Ukraine’s commitment to upholding fundamental rights despite the ongoing Russian war of aggression; welcomes the recent adoption of the Action Plan for the Protection of the Rights of National Minorities until 2027, which aims to harmonise Ukrainian legislation with European standards;

Regional cooperation and good neighbourly relations

11. Welcomes Ukraine’s active participation in regional initiatives, such as its leadership in the Eastern Partnership Civil Society Forum and the coordination of cross-border trade projects with Poland;

12. Welcomes and encourages any attempts by Ukraine and the EU Member States to address unresolved aspects of historic bilateral and regional relations, for example the Volhynia massacre, in the spirit of true and sincere reconciliation, and with respect for the EU values of human dignity, historical truth and good neighbourly relations; believes that with the good will of all parties concerned, a patient reconciliation process will heal the wounds of the past; welcomes, in this context, the ongoing talks between the Polish and Ukrainian authorities, which have led to the resumption of the excavation of graves of Polish citizens on Ukrainian territory in April 2025; hopes for the process to be continued with the clear aim of providing the victims with a dignified burial and remembrance;

Socioeconomic reforms

13. Welcomes the implementation by Ukraine of the Priority Action Plan for 2023-2024 and the adoption of the legislation necessary to reform the Economic Security Bureau of Ukraine;

14. Recalls the adoption of the Law on Local Public Service in 2023 and encourages the Ukrainian Government to adopt a systemic approach to forthcoming public administration reforms by establishing a clear vision and structured implementation strategy;

15. Encourages Ukraine to make progress on the approval of draft law No. 4298 with a view to aligning local state administration reforms with EU standards, by establishing a balanced legal framework for supervision in line with the principle of proportionality and the European Charter of Local Self-Government that does not violate the competences, prerogatives and self-governing functions of local authorities; recalls its demand for the introduction of a legal personality for local and regional public authorities;

16. Calls on Ukraine to continue making progress in the implementation of the Ukraine Plan, pursuant to Regulation (EU) 2024/792;

Energy, the environment, sustainable development and connectivity

17. Welcomes the substantial progress made on energy sector reforms and Ukraine’s alignment with the objectives of the European Green Deal;

18. Commends Ukraine for adopting its national energy and climate plan;

19. Recommends that the Commission swiftly open negotiating clusters with Ukraine to advance the country’s EU membership bid at the fastest pace possible, subject to its continued implementation of the EU acquis and the completion of the reforms it has undertaken;

20. Instructs its President to forward this resolution to the Council and the Commission.

EXPLANATORY STATEMENT

As rapporteur for this important initiative, I am pleased to present a report that reflects a permanent and steadfast strategic commitment to Ukraine by the European Union. This report is the first since the start of the full-scale Russian invasion on Ukraine and the granting of candidate status to Ukraine and the start of accession negotiations.

Ukraine is the single most important area of EU activity in the external relations realm. The ongoing war in Ukraine has already had profound influence on the EU and continues to do so. The outcome of the war is of existential importance for the EU. That is why the EU and its Member States have been providing consistent political, diplomatic, financial and military assistance to Ukraine. Given the current U-turn of the approach of the Trump Administration the responsibility of the EU is even greater.

I have prepared the draft report against the backdrop of the abovementioned geopolitical and security context. The text touches on the preparation of Ukraine to meet the requirements of EU membership, including compliance with the EU acquis. Further, I analyse the complex domestic reforms, which are conducted in the environment of an ongoing war. I highlight in particular the issue of democracy, the rule of law and the fight against corruption. Encouragement is given to build on the achievements of reforms in the energy, environment, sustainable development and connectivity sectors. Moreover I underscore the importance of regional cooperation and good neighbourly relations.

At the amendments stage additional aspects will improve and complement the draft report and incorporate latest developments in international negotiations, if any, and internal reform efforts.

In conclusion I reiterate the strong position that the European Commission opens negotiating clusters to advance Ukraine’s membership bid at the fastest pace. The successful conclusion of this process equates to showing leadership, resolve and vision and is a geostrategic investment in a united and strong Europe in an ever more volatile international environment.

ANNEX: ENTITIES OR PERSONS FROM WHOM THE RAPPORTEUR HAS RECEIVED INPUT

Pursuant to Article 8 of Annex I to the Rules of Procedure, the rapporteur declares that he received input from the following entities or persons in the preparation of the draft report:

Entity and/or person

None

The list above is drawn up under the exclusive responsibility of the rapporteur.

Where natural persons are identified in the list by their name, by their function or by both, the rapporteur declares that he has submitted to the natural persons concerned the European Parliament’s Data Protection Notice No 484 (https://www.europarl.europa.eu/data-protect/index.do), which sets out the conditions applicable to the processing of their personal data and the rights linked to that processing.