EU formally opens first negotiation chapter with Ukraine and Moldova

As early as June 2024, the EU had fundamentally opened accession negotiations with Ukraine and Moldova. However, the formal start of the first negotiation section, officially designated as the first cluster, had been blocked by a Hungarian veto. With the end of the blockade, the first of a total of six thematic clusters, which deals with the foundations of EU membership, can now be tackled.

In the first cluster, accession candidates must demonstrate that their judiciary, public administration, and central rule-of-law structures meet EU standards. In total, the EU accession process comprises up to 35 negotiation chapters, which are thematically divided into six clusters. Each individual step requires the approval of all EU member states, making the process lengthy and politically vulnerable.

Change of Government in Budapest

A political change in Budapest paved the way for the current breakthrough. Long-time Prime Minister Viktor Orbán was voted out of office in April. His successor, Péter Magyar, who took office on May 9, had made the lifting of the blockade conditional and at the same time made it clear that Hungary did not support an accelerated accession procedure for Ukraine.

Magyar stated in Brussels on Wednesday evening that Budapest and Kyiv had reached a comprehensive agreement after three weeks of negotiations. "We are ready to open a new chapter in Hungarian-Ukrainian relations," Magyar said. He presented the agreement as a success for his government and stated that his team had achieved in a short time what his predecessor Viktor Orbán had not managed in a decade.

Content of the Minority Agreement

The core of the agreement is a strengthening of the linguistic, educational, cultural, and political rights of the Hungarian minority in the western Ukrainian region of Transcarpathia. An estimated 100,000 ethnic Hungarians live there. Among other things, the agreement stipulates that Hungarian national symbols may be used during celebrations in Ukraine and that students in Ukraine can take exams in Hungarian.

The rights of the Hungarian minority had been a point of conflict between Kyiv and Budapest for years. A Ukrainian education law from 2017 had strengthened the role of Ukrainian as the main language of instruction in secondary schools and noticeably strained relations. With the new agreement, Ukraine commits, according to Magyar, to swiftly transpose the agreed changes into national law. The commitments are also to be explicitly included in Ukraine's EU action plan for the accession path.

Magyar also announced that Hungary would only support Ukrainian EU membership if all accession chapters were successfully completed within the next ten to fifteen years and a legally binding referendum took place in Hungary. Furthermore, he declared his readiness for an early meeting with Ukrainian President Volodymyr Zelenskyy. During his inaugural visit to Berlin, he had already expressed confidence that the minority dispute could be settled quickly.

International Reactions

The decision was met with positive international response. Irish Foreign Minister Helen McEntee described the step as a "clear signal" that the future of Ukraine and Moldova "lies in the family of the European Union." Ireland will take over the rotating EU Council Presidency from Cyprus in July. EU Commissioner for Enlargement Marta Kos advocated for an acceleration of the accession path for both countries. Ukraine and Moldova have held official EU candidate status since 2022.

The case of Turkey is also part of the background to the enlargement debate, which has been blocked for years. EU accession negotiations with Turkey were opened as early as 2005 but have been completely frozen for years due to ongoing setbacks in the areas of democracy, rule of law, and fundamental rights. The case is considered a cautionary example in Brussels that opening dates alone do not guarantee success. The ongoing negotiations with Kyiv and Chișinău could also drag on for years without a guaranteed conclusion.

Parallel to the diplomatic developments in Brussels, an attack on Kramatorsk was reported on Wednesday, in which three people were killed. The EU negotiations are taking place against the backdrop of the ongoing Russian war of aggression against Ukraine. Ukrainian President Volodymyr Zelenskyy had repeatedly urged an acceleration of the EU accession process to consolidate his country's European integration even under wartime conditions.

A Look at Turkey

Immediately after taking office, Magyar announced his intention to lift Hungary's blockade of Ukraine's EU accession process. At the same time, he made it clear that rapid membership was not up for debate. With the agreement now reached on the minority dispute, the central obstacle to the start of the first negotiation phase, which primarily concerns justice and administration, has been removed.

For the EU Commission and the heads of state and government of the member states, the step is an important signal of the Union's capacity for enlargement. For the first time in years, a concrete chapter of an accession process beyond symbolic opening is within reach. Observers interpret the development as evidence that the EU's ability to act has changed with the change of government in Budapest.

Outlook on Negotiations

At the same time, the further negotiation phase remains politically sensitive. Ukraine must demonstrate in the coming months that its judiciary and administration meet EU standards, while Moldova faces similar, sometimes even greater, reform tasks. Accession talks typically last many years and are not automatically crowned with success. The coming months until the formal start on June 15 in Luxembourg are therefore considered a crucial test for the agreement reached.