President Volodymyr Zelenskiy rejected a two-tier solution proposed by Brussels to accelerate Ukraine’s EU accession bid, after the European Commission (EC) released a progress report on November 4.

Ukraine’s bid is being blocked by Hungary, but adding to the obstacles, the democratic backsliding by Georgia, an accession candidate peer, led the EC to suggest there should be a probation period for any new member of several years to ensure authoritarian governments don’t take over.

Zelenskiy rejected the idea out of hand saying Ukraine will not accept a second-tier status and must be treated as a full member of the bloc as soon as it is accepted as a member.

"If we speak about the EU membership, it has to be fully fledged (…) you cannot be semi-or demi-member of the European Union," Zelenskiy said at an Euronews enlargement summit. "It seems to me that it is very important that we have at the same table equal countries.”

Zelenskiy also dismissed the idea of offering concessions to Hungarian Prime Minister Viktor Orbán in exchange for lifting Budapest's veto to Ukraine's EU bid.

"I'm not sure that Ukraine has to bargain with its own values (…) I don't think that I have to offer something to Viktor Orbán. I think that (he) has to offer something for Ukraine, which is protecting the whole of Europe from Russia," he said.

The report also assessed the other accession candidates, including Moldova, Montenegro, Albania, Serbia, Bosnia-Herzegovina, North Macedonia and Kosovo. Turkey and Georgia are also under review, though accession processes for both remain stalled due to democratic and rule-of-law deficits.

Remarkable progress…

Ukraine has shown "remarkable commitment" to its bid for EU membership despite Russia's full-scale war, European Commission President Ursula von der Leyen said presenting the EU assessment report, but went on to add veiled criticism, saying Kyiv needs to do more in its fight against corruption and reforming the judiciary.

European Commissioner for Enlargement Marta Kos the screening process of the legislation of Ukraine and Moldova for compliance with Europe’s was complete, which clears the way to open formal clusters negotiations by the end of November.

The Ukrainian government has informed the EU that it intends to complete accession talks by the end of 2028. Kos added that Ukraine’s ambition to become a member by 2028 was “ambitious” but “possible.” EU foreign policy chief and former Estonian Prime Minister Kaja Kallas said that 2030 was a more realistic accession deadline.

"The screening process with Moldova and Ukraine has been completed, and the Commission will continue its work so that the [European Council] can open all the clusters by the end of November, and I very much hope that this will happen," Kos said in a speech to the European parliament.

However, Kos also raised red flags, saying the enlargement policy is based on merit. She went out of her way to praise pro-EU reforms in Moldova, Albania and Montenegro, which is the most advanced of the candidates in the West Balkans.

Kos praised Moldova as having made the “most progress” toward EU membership over the past year thanks to reforms carried out at an “accelerated speed … despite the continuous hybrid threats and attempts to destabilize the country.”

"So, when we say that if the member states are fulfilling their obligations, and I can really prove, because I have evidence in this report, that they are fulfilling their obligations, then the EU must also fulfil its obligations," Kos said.

… but more to do

Ukraine has been downgraded from an “A+” EU candidate to a “B” rating in the latest progress report on required reforms. Georgia got an “F” and is now a candidate “in name only” according to Kos after significant backsliding over the last year. In particular, Brussels has objected to Tbilisi’s decision to pass a Russia-inspired “foreign agents law” last year, which has only added to the popular dissent that has seen non-stop protests in the Georgian capital for the last year.

Ukraine has been doing much better, but also fell down on its fight against corruption and the lack of effort to push through judicial reforms.

Zelenskiy caused a scandal by forcing through Law 21414 in July that gutted the anti-corruption reforms by placing the two main independent organs – National Anti-Corruption Bureau of Ukraine (NABU) and Specialized Anti-Corruption Prosecutor’s Office (SAPO) – directly under the control of the General Prosecutor, a presidential appointee.

That immediately sparked the first anti-government protests in Ukraine since the war began and sharp rebukes from Brussels forcing Bankova to rapidly backpaddle. A second law was pushed through shortly afterwards undoing the Law 21414 changes and reasserting the independence of the two anti-corruption bodies.

However, since then, there have been a string of reports that the Ukrainian Security Service (SBU), also under the president’s direct control, continues to harass the members of NABU with inspections and investigations. NABU has reportedly been conducting corruption investigations into members of Zelenskiy’s inner circle, but has not brought any charges.

At the same time, very little progress has been made on reforming Ukraine’s notoriously corrupt judicial service, which has been a problem for most of Ukraine’s three decades of independence. Investors that have spoken with bne IntelliNews have said they remain very reluctant to invest into Ukraine until the situation with ensuring property rights improves

Zelenskiy vigorously defended his record, pointing out that Ukraine has made significant progress on reforms, despite the distraction of simultaneously fighting a war against Russia.

"During the war, we implemented the widest anti-corruption infrastructure in Europe. I don't know any country that has so many authorities," Zelensky insisted, speaking by video from Pokrovsk on the frontlines, which is under attack by the Armed Forces of Russia (AFR). "We're doing everything possible."

Despite the problems, von der Leyen remains very keen to accelerate Ukraine’s admission. The EC noted that Ukraine is “consistently implementing legislation in line with EU standards”. It also confirmed the country’s readiness to open three negotiation clusters — the first, second, and sixth (Fundamentals, Internal Market, and External Relations), the first of which remains amongst the most problematic in the talks as it deals with entrenched corruption and the weak judicial independence.

Bankova had been hoping to start the cluster negotiations on July 15, but Hungary’s veto made that impossible and the start of the talks is now slated to begin in November. EU foreign policy chief and former Estonian Prime Minister Kaja Kallas has suggested a Plan B to sidestep Budapest’s stonewalling that includes beginning the talks but postponing a vote until Orban leaves office. A second more dramatic option is to try and strip Hungary of its voting rights under Article 7 of the EU founding treaty that obliges member states to stick to the EU’s values.

Specific problems

The report for Ukraine, issued on November 4, 2025, covers the period from September 2024 to September 2025 and forms part of the broader communication COM(2025) 690 final on EU enlargement policy.

Ukraine applied for EU membership on February 28, 2022, and officially opened accession negotiations on June 25, 2024. By September 2025, bilateral screening meetings had been completed, marking a key procedural step toward full accession talks.

Despite the war, Ukraine adopted several roadmaps in May 2025—on the rule of law, democratic institutions, public administration reform, and national minorities— relating to the first cluster negotiations.

The report highlighted Ukraine’s various weaknesses. Ukraine has made uneven progress in key areas of judicial and institutional reform, according to the assessments from Brussels.

Fundamental cluster: The judiciary remains understaffed, and the appointment of Constitutional Court judges is still pending. The report calls for more robust integrity checks for judges, transparent selection processes for prosecutors, and the removal of provisions enabling political influence over the Prosecutor General’s Office, United24 Media reports.

In anti-corruption efforts, progress has been limited. Core institutions such as NABU, SAPO, and Anti-Corruption Court (ACC) – the third pillar of the anti-corruption efforts -- continue to function effectively, but Law 21414 threatened their independence. Though those measures were reversed following domestic and international pressure, the European Commission warned of growing pressure on anti-corruption activists and civil society groups. Zelenskiy has been increasingly criticised for his growing authoritarian tendencies in the last year.

Ukraine received recognition for advancing legislation on victims’ rights, child protection, and implementation of the Istanbul Convention. However, the EU noted limited movement on hate-crime laws, data protection, and civil partnerships.

Freedom of expression remains restricted under wartime conditions, but some progress has been made in media ownership transparency and strengthening the financial independence of the public broadcaster Suspilne.

Internal market cluster: Ukraine is steadily aligning its legislation with EU standards across a range of sectors, including public procurement, financial control, intellectual property, and competition policy, according to the European Commission.

The report highlights progress in digitalising customs administration and advancing a new EU-aligned Customs Code, alongside improvements in tax governance and financial transparency. However, it notes that important legislative gaps persist, particularly in public procurement and state aid oversight.

Further alignment is also needed in financial services, company law, and consumer protection. The Commission urged Kyiv to sustain reform momentum and continue modernising the business environment.

Competitiveness cluster: Ukraine is assessed as being at “between moderate and good level of preparation” in digital transformation and economic modernisation, according to the European Commission.

The Ministry of Digital Transformation is commended for progress in aligning 5G security standards and developing digital identity systems. Reforms in education, participation in the Horizon Europe research programme, and vocational training linked to labour market needs are also highlighted as positive developments.

In taxation, Ukraine is noted to have made “good progress” on VAT and excise duty reform. However, the Commission stresses the need to reduce informality in the economy, improve tax administration, and strengthen the long-term sustainability of the pension system.

Green agenda and sustainability cluster: Ukraine has made notable progress in the environmental and energy sectors, despite continued Russian attacks on critical infrastructure. The European Commission highlights advancements in the country’s National Energy and Climate Plan, promotion of renewable energy generation, and adoption of a framework law aligning with the EU’s 2050 climate neutrality target.

However, the report urges Ukraine to further liberalise its gas and electricity markets, reinforce the independence of its energy regulator, and modernise district heating systems.

In the transport sector, Ukraine has adopted national strategies for border infrastructure development and road safety. Nonetheless, further alignment is required in railway and maritime legislation to bring national laws in line with EU standards.

Agriculture, food safety, and regional development cluster: Ukraine’s agricultural and rural development strategy through 2030 is fully in place. Progress continues in digital land management and expansion of the State Agrarian Register. The Commission notes strong administrative capacity but calls for the adoption of a framework law on paying agencies and the development of farm sustainability networks.

Food safety reform has moved forward through the adoption of a new plant health law and Ukraine’s integration into the EU’s TRACES control system for sanitary and phytosanitary oversight. Participation in the EU’s Interreg cross-border cooperation programmes is described as a model for regional development alignment.

External relations and security cluster: Ukraine maintains a high level of alignment with the EU’s Common Foreign and Security Policy, including full cooperation on sanctions implementation and defence coordination. The Commission notes “significantly improved military and political dialogue” and welcomes Ukraine’s ratification of the Rome Statute of the International Criminal Court.

It recommends further progress in aligning Ukraine’s foreign investment screening procedures and trade policy with both the World Trade Organisation and the EU–Ukraine Association Agreement.

Challenges ahead: While acknowledging Ukraine’s extraordinary progress, Brussels points to several critical vulnerabilities:

• Political interference in the judiciary and prosecution system.
• Pressure on anti-corruption institutions and civil society.
• Legislative backlog in public administration and decentralization reform.
• Need for better coordination and transparency in local governance.

The report warns that the post-war reconstruction process must fully integrate rule of law and anti-corruption safeguards to ensure accountability for large-scale EU financial assistance.

Earlier, it was reported that the European Union will provide Ukraine with nearly $2.3bn in support, including a $1.5bn fifth tranche under the Ukraine Facility and an additional $692mn linked to the delayed reform of the Asset Recovery and Management Agency.