ZMINA, together with a coalition of NGOs coordinated by the Agency for Legislative Initiatives, presented an interim Shadow Report to the European Commission

The Human Rights Centre ZMINA, together with a coalition of civil society organisations coordinated by the Agency for Legislative Initiatives (ALI), presented the European Commission with the interim findings of this year’s Shadow Report on Chapters 23, “Justice and Fundamental Rights”, and 24, “Justice, Freedom and Security”.

Representatives of the European Commission’s Directorate-General for Enlargement and the Eastern Neighbourhood (DG ENEST), which is responsible for enlargement and EU accession negotiations with candidate and potential candidate countries, as well as representatives of the EU Delegation to Ukraine, took part in the presentation on 4 June 2026.

For the third consecutive year, ZMINA, as part of a coalition of civil society organisations, has been monitoring and assessing Ukraine’s progress in the field of European integration. The report provides an independent alternative assessment prepared by civil society and expert representatives under the coordination of the Agency for Legislative Initiatives.

The participants presented and discussed findings in the areas of the rule of law (judiciary, prosecution service, and legal profession), the fight against corruption and organised crime, law enforcement reform, and the protection of fundamental human rights and freedoms. The discussion featured Karyna Aslanian, Head of ALI’s Rule of Law Area; Yevhen Krapyvin, Head of ALI’s “Law and Order” Area; Kateryna Ryzhenko, Deputy Executive Director for Legal Affairs at Transparency International Ukraine; Tetiana Pechonchyk, Head of the Board of the Human Rights Centre ZMINA; and Anastasiia Datsiv, European Integration Advocacy Manager at the Human Rights Centre ZMINA.

“Our analysis shows that despite progress in a number of areas, the consequences of Russian aggression continue to have a significant impact on the human rights situation in Ukraine. In many areas, reforms remain uneven: legislative initiatives are ongoing, but their implementation, institutional capacity, and adequate funding require much greater attention. Of particular concern are challenges related to the protection of human rights during wartime, including freedom of expression, the prevention of torture, and the protection of the rights of children, internally displaced persons, and residents of temporarily occupied territories“, said Tetiana Pechonchyk.

This year, the experts also analysed another component of the “Fundamentals” cluster – “Functioning of Democratic Institutions”. The coalition, coordinated by the Agency for Legislative Initiatives, also submitted its findings in this area to the European Commission for consideration.

This year’s Shadow Report is being prepared by experts from the Agency for Legislative Initiatives, Transparency International Ukraine, the Human Rights Centre ZMINA, Tomorrow’s Lawyer, Europe Without Barriers, the Ukrainian Bar Association, the Civil Network OPORA, and the Centre for Democracy and Rule of Law, with media support from European Pravda. As in previous years, the report will be published ahead of the European Commission’s assessment of Ukraine’s progress as part of the European Union Enlargement Package 2026.

For reference:

The Shadow Report is a systematic audit prepared by experts from civil society organisations. It does not duplicate official state documents or the European Commission’s assessments, nor does it depend on their positions. Instead, it serves as an analytical tool for developing a professional and comprehensive understanding of European integration processes, while ensuring the active involvement of experts in reform efforts. At the same time, it assesses the compliance of Ukrainian legislation and the broader institutional framework with EU standards.

The preparation of shadow reports is a common practice among all candidate countries seeking to join the European Union. In Bosnia and Herzegovina, Serbia, North Macedonia, and Moldova, independent coalitions of civil society organisations have for years conducted alternative monitoring of reform progress in areas such as the rule of law and the functioning of democratic institutions. In Ukraine, this work has been carried out systematically since 2024, when a coalition of civil society organisations prepared its first alternative assessment of the European Commission’s report on Ukraine’s progress within the framework of the European Union Enlargement Package.

The Shadow Report is entirely a product of civil society, regardless of its sources of support. To further strengthen the institutional independence of the process, the Agency for Legislative Initiatives is introducing a new approach in 2026: the Shadow Report is also being funded by independent civil society organisations. A significant share of the costs associated with its preparation will be covered by the Agency for Legislative Initiatives and Transparency International Ukraine. As it does every year, the Agency for Legislative Initiatives remains committed to ensuring the highest possible standards of impartiality and objectivity throughout the preparation process.

• 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 is available here.
• Shadow report on Chapter 23 “Justice and Fundamental Rights” of the European Commission’s report on Ukraine in 2023 is available here.