Shadow Report on Chapter 23 “Justice and fundamental rights” and Chapter 24 “Justice, freedom and security” of the European Commission’s report on Ukraine in 2024
This report has been prepared based on the results of monitoring and assessing Ukraine’s progress in European integration under Chapters 23 “Judiciary and Fundamental Rights” and 24 “Justice, Freedom and Security” of Negotiation Cluster 1 “Fundamentals of the Accession Process”. This cluster plays a decisive role in the negotiations on Ukraine’s accession to the European Union.
In 2025, experts from a coalition of civil society organisations, led by the Agency for Legislative Initiatives, continued to consistently assess the progress achieved by Ukraine under Chapter 23. The previous Shadow Report on Chapter 23 “Judiciary and Fundamental Rights” of the European Commission’s Report on Ukraine in 2023 was highly praised by both the public and international partners, with some of the recommendations it provided having been reflected in the improvement of the relevant areas of state policy.
The period reviewed by experts spans from September 2024 to August 2025 for Chapter 23 and includes earlier data up to August 2025 for Chapter 24. One of the key achievements during this period was the approval of the Rule of Law Roadmap, whose recommendations will serve as guidance for opening negotiations under Cluster 1. The roadmap is the result of close cooperation between state authorities, civil society representatives, and international experts.
The Document highlights not only Ukraine’s progress but also the challenges and shortcomings in implementing European standards in areas such as the rule of law (courts, prosecution, legal profession, legal education), the fight against corruption and organised crime, the protection of fundamental human rights and freedoms, as well as visa policy, migration and related fields.
The Shadow Report was prepared by a coalition of civil society organisations, led by the Agency for Legislative Initiatives, within the framework of the EU Project Pravo-Justice grant, implemented by Expertise France. Its contents are the sole responsibility of the authors and do not necessarily reflect the position of the European Union.
