Shadow Report 2026: assessment of Ukraine’s progress in implementing the European Commission’s recommendations under the “Fundamentals” cluster

In 2026, Ukraine opened negotiations on as many as four of the six clusters. The ‘Fundamentals’ cluster nevertheless remains the foundation of the entire negotiation process. It is the first to be opened and the last to be closed, and progress on the rule of law, the functioning of democratic institutions and the fight against corruption shapes progress in all other areas.

The Shadow Report examines this process from the perspective of civil society. The Agency for Legislative Initiatives (ALI)-coordinated coalition assessed what still needs to be done, where gaps remain and what further steps are required for Ukraine to meet its European integration commitments.

The report consists of two parts and covers the areas of the rule of law (the judiciary, prosecution, the legal profession and legal education), the fight against corruption and organised crime, the protection of fundamental human rights and freedoms, visa policy, migration, European integration, the work of the Verkhovna Rada of Ukraine and the Government, multi-level governance, elections, civil society and other related areas.

Volume I is dedicated to the “Functioning of Democratic Institutions”. Volume II assesses progress under Chapters 23 “Judiciary and Fundamental Rights” and 24 “Justice, Freedom and Security”. Monitoring under Chapters 23 and 24 covers the period from September 2025 to July 2026. For the “Functioning of Democratic Institutions”, the experts also examined developments over a longer period, before September 2025.

The Shadow Report was prepared by a coalition of civil society organisations coordinated by the Agency for Legislative Initiatives. The coalition comprises ALI, Transparency International Ukraine, the Human Rights Centre ZMINA, Tomorrow’s Lawyer, the Ukrainian Bar Association, Europe Without Barriers, the Civil Network OPORA and the Centre for Democracy and Rule of Law, with media support from European Pravda.

Its contents are the sole responsibility of the authors and do not necessarily reflect the views of the European Union.

• The 2026 Shadow Report on Chapters 23 “Judiciary and Fundamental Rights” and 24 “Justice, Freedom and Security” is available in English and Ukrainian.
• Functioning of Democratic Institutions is available in English and Ukrainian.
• Short version is available in English and Ukrainian.