Ukraine and Moldova EU Accession: Internal Reforms, Geopolitical “Vetoes”, and the Territorial Integrity Issue

Executive Summary

EU accession constitutes one of the key factors in positively transforming the relations between the EU and the Eastern candidate states, Ukraine and Moldova. Over the past year, the EU has broadly approved the policies pursued by Kyiv and Chișinău. Despite corruption incidents recorded in the two countries in 2025, EU officials showed strategic restraint in their assessment of the domestic situation in Ukraine and Moldova.

The EU’s caution stems from security concerns on the ground: the Russian military offensive in Donbas and destructive airstrikes nationwide in Ukraine, as well as Russia’s hybrid interference in the presidential and parliamentary elections in Moldova in 2024 and 2025, respectively. Instead, the EU’s political attention was focused on finalising screening procedures with the two candidate states and bringing them closer to opening accession talks, despite the Hungarian veto obstructing internal EU consensus.

The containment of geopolitical risks is more important in the EU’s rationale for enlargement towards the east than an orthodox approach to reforms on the ground.

The good progress on all 35 accession enlargement chapters made a meaningful contribution to the discussion of Ukraine’s and Moldova’s ability to commit and deliver. There are, however, aspects of the enlargement process concerning minority rights, the fight against corruption, and economic governance that will impact the two candidate states’ membership prospects. If addressed, these aspects can increase the attractiveness of these candidate states to the EU.

Unavoidably, in addition to qualitative internal reforms, moving forward with EU accession also requires geopolitical harmony within the EU and clarity on the territorial integrity of Ukraine and Moldova.

The present policy paper explores three aspects deemed essential for advancing towards EU membership: blind spots in domestic reforms, the intra-EU “veto” implications, and sensitivities regarding territorial integrity.

Firstly, light is shed on developments in minority rights, anti-corruption policies, and economic governance that enable the state to mobilise society and the economy more easily towards the goal of EU accession. Secondly, the implications of the “veto” by EU Member States are assessed to look beyond the technical criteria, which usually refer to a mechanical evaluation of the transposition of legislation. Lastly, the policy paper examines the absence of territorial integrity in Ukraine and Moldova, drawing on the precedent set by Cyprus.

The policy paper concludes with several recommendations aimed at supporting EU accession efforts by removing the irritants to national unity, enhancing the stability of state institutions, and optimising economic resources. It proposes practical strategies to handle the “veto” and territorial concerns, helping to prevent future political barriers within EU Member States to Ukraine’s and Moldova’s EU accession.