Changes from plenary report to adopted text

RemovedMOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

AddedP10_TA(2025)0175

Changedon the 2023 and 2024 Commission reports on Ukraine

Removed(2025/2026(INI))

AddedCommittee on Foreign Affairs

AddedPE769.901

AddedEuropean Parliament resolution of 9 September 2025 on the 2023 and 2024 Commission reports on Ukraine (2025/2026(INI))

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The European Parliament,

– having regard to its previous resolutions on Ukraine,

– having regard to the Commission staff working document entitled ‘Ukraine 2024 Report’ (SWD(2024)0699) accompanying the 2024 Commission communication on EU enlargement policy (COM(2024)0690),

– having regard to the Commission staff working document entitled ‘Ukraine 2023 Report’ (SWD(2023)0699) accompanying the 2023 Commission communication on EU enlargement policy (COM(2023)0690),

– having regard to the European Council conclusions of 24 June 2022 granting Ukraine candidate status, of 15 December 2023 endorsing the opening of accession negotiations, and of 20 March 2025,

– having regard to Regulation (EU) 2024/792 of the European Parliament and of the Council of 29 February 2024 establishing the Ukraine Facility,

– having regard to the report by the Organisation for Economic Co-operation and Development (OECD) of 2021 entitled ‘OECD Review of the Corporate Governance of State-Owned Enterprises: Ukraine’ and the subsequent follow-up dialogues in 2024,

– having regard to the International Monetary Fund’s eighth review of the 2023–2026 Extended Fund Facility for Ukraine,

– having regard to the opinions of the Venice Commission of the Council of Europe, in particular the urgent follow-up opinion to the opinions on the Law ‘On Amendments to certain legislative acts of Ukraine to clarify the provisions on the competitive selection of candidates for the position of judge of the Constitutional Court of Ukraine’ of 9 October 2023, and the follow-up opinion to the opinion on the law on national minorities (communities) of 9 October 2023,

– having regard to the reports by the Group of States against Corruption (GRECO) on Ukraine, in particular the Fourth Evaluation Round and the addendum to the second compliance report on corruption prevention in respect of members of parliament, judges and prosecutors in Ukraine of 22 November 2024,

– having regard to the report submitted by Ukraine pursuant to Article 68, paragraph 1 of the Council of Europe Convention on preventing and combating violence against women and domestic violence (Baseline Report) of 3 July 2025 and to the additional information received by the Group of Experts on Action against Violence against Women and Domestic Violence from Ukrainian civil society organisations,

– having regard to Human Rights Watch reports on Ukraine, including its report of 5 December 2024 entitled ‘“All She Did Was Help People” – Flawed Anti-Collaboration Legislation in Ukraine’,

– having regard to its resolution of 12 March 2025 on the white paper on the future of European defence,

Changed– having regard to recent declarations, including the joint statementstatements by the leaders of Finland, France, Germany, Poland,Italy, the United Kingdom and Ukraine following the meeting in Kyiv on 10with MayUS 2025President andDonald theTrump Weimar+in jointWashington statementDC on Ukraine and Euro-Atlantic security of 1218 MayAugust 2025,

Added– having regard to the statement by Commission President Ursula von der Leyen with the President of Ukraine Volodymyr Zelenskyy following their meeting in Brussels on 17 August 2025,

Added– having regard to the joint statement issued on 16 August 2025 by the leaders of France, Italy, Germany, the UK, Finland, Poland, the President of the European Council António Costa and Commission President Ursula von der Leyen following the meeting between US President Donald Trump and the President of the Russian Federation Vladimir Putin in Anchorage, Alaska on 15 August 2025,

Added– having regard to previous declarations, including the joint statement by the leaders of France, Germany, Poland, the UK and Ukraine following the meeting in Kyiv on 10 May 2025 and the Weimar+ joint statement on Ukraine and Euro-Atlantic security of 12 May 2025,

Added– having regard to the joint statement issued by several MEPs on 11 August 2025 on the negotiations towards a just peace for Ukraine based on international law and the will of the Ukrainian people,

– having regard to Rule 55 of its Rules of Procedure,

– having regard to the report of the Committee on Foreign Affairs (A10-0154/2025),

A. whereas Parliament condemns in the strongest possible terms the illegal, unjustified and unprovoked Russian aggression against Ukraine and supports Ukraine’s right to sovereignty, independence and territorial integrity within its internationally recognised borders; whereas Russia invaded Ukraine and therefore the most straightforward and only just path towards peace in Ukraine consists of Russia withdrawing its forces from the entirety of the Ukrainian territory and paying reparations for the damage it caused throughout its illegal war of aggression;

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ChangedB. whereas Russia, with the political, material and military support provided by its allies – in particular BelarusBelarus, Iran and North Korea – has been waging an illegal, unprovoked and unjustified full-scale war of aggression against Ukraine since 24 February 2022; whereas Russia’s war against Ukraine began, however, in 2014 with the illegal occupation and annexation of Crimea and the subsequent occupation of parts of the Donetsk and Luhansk regions; whereas this war of aggression constitutes a blatant and flagrant violation of the UN Charter and of the fundamental principles of international law and international humanitarian law, as established by the Geneva Conventions of 1949;

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AddedC. whereas there was a drastic increase in the number of Russian missile strikes and attacks carried out with unmanned aerial vehicles in June and July 2025, targeting civilian infrastructure, including hospitals, schools, residential buildings and cultural institutions, which resulted in the highest number of civilian casualties since May 2022; whereas, according to data from the UN Human Rights Monitoring Mission in Ukraine, at least 232 civilians were killed and 1 343 injured in June 2025, while July 2025 recorded 286 civilian deaths and 1 388 injured, constituting the highest monthly toll of civilian casualties since May 2022;

AddedD. whereas Russia is carrying out assassinations and sabotage against prominent Ukrainian public figures, servicemen and critical infrastructure; whereas Andriy Parubiy, the former Speaker of the Verkhovna Rada and former Secretary of the National Security and Defence Council, was brutally assassinated in Lviv on 30 August 2025;

E. whereas Russia has been committing documented war crimes and deportations in all the Ukrainian territories that it illegally occupies, and has been relying heavily on information manipulation, disinformation and the spreading of propaganda so as to purposefully keep the population mis- and uninformed;

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AddedF. whereas on 28 August 2025, Russia launched another utterly brutal drone and missile attack on several buildings in Kyiv, killing at least 23 people and leaving more than 63 injured, including children; whereas the premises of the EU Delegation to Ukraine were severely damaged in the attack, constituting a grave violation of the Vienna Convention on Diplomatic Relations; whereas the Kyiv offices of the British Council were also hit during the strikes, suffering serious damage and leaving one person injured;

G. whereas, in response to Russia’s war of aggression, the Core Group for the establishment of a Special Tribunal for the Crime of Aggression against Ukraine was launched in January 2023; whereas the International Centre for the Prosecution of the Crime of Aggression was set up in The Hague in March 2023 under Eurojust; whereas the Core Group finalised the legal framework for the Tribunal in March 2025; whereas over 40 countries endorsed its creation through the joint statement of the Foreign Ministers Meeting of 9 May 2025 on the conclusion of the work of the Core Group (Lviv Statement); whereas on 25 June 2025, Ukrainian President Volodymyr Zelenskyy and Council of Europe Secretary General Alain Berset signed in Strasbourg the formal agreement establishing the Special Tribunal for the Crime of Aggression against Ukraine;

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AddedH. whereas US President Donald Trump and President of the Russian Federation Vladimir Putin held a bilateral summit in Anchorage, Alaska on 15 August 2025; whereas this summit was followed by meetings between President Trump and President Zelenskyy along with European leaders on 18 August 2025 in Washington DC;

I. whereas Ukraine has shown remarkable resilience and commitment to its European path and has made tangible progress in this regard despite the ongoing Russian war of aggression, which has resulted in the deaths of thousands, inflicted deep trauma on veterans and their families, left many cities and vital civil infrastructure in ruins, and led to the continued occupation of parts of its territory by Russian forces;

J. whereas, as a result of the Russian invasion, over 4 million Ukrainians are currently living in EU Member States under the temporary protection mechanism and benefit from rights to residence, access to the labour market, housing, medical care, social welfare assistance and education for their children;

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ChangedG.K. whereas Ukraine’s EU accession process constitutes aan important contribution to and path towardtowards peace and prosperity for Ukraine and alsoUkraine, a strategic response to Russia’s aggression,aggression and a credible security guarantee for Ukraine, reinforcing the EU’s geopolitical resilience;

L. whereas the legislative reforms Ukraine has initiated reflect its dedication to alignment with the EU acquis;

M. whereas GRECO continues to acknowledge the strong commitment shown by Ukraine in respect of work to counter corruption at an extremely difficult time for the country; whereas GRECO in particular recognised Ukraine’s progress in preventing corruption among parliamentarians, judges and prosecutors; whereas, despite progress in areas such as judicial independence and systemic corruption, challenges remain which must be addressed through greater governmental accountability, further strengthening of institutional capacities, and international oversight;

N. whereas the OECD noted that Ukraine has made significant strides in reforming its anti-corruption framework in the past decade through enhancing transparency, accountability and integrity through open data, digitalisation, and bolstering of the independence of anti-corruption bodies;

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AddedO. whereas in mid-July 2025, the Ukrainian authorities attempted to undermine the independence of the National Anti-Corruption Bureau of Ukraine (NABU) and the Specialised Anti-Corruption Prosecutor’s Office (SAPO) by adopting Law 12414, granting the Prosecutor General extensive powers to interfere with their investigations; whereas on 31 August 2025, as a result of extensive internal and external pressure, the Verkhovna Rada adopted Law 13533 in the aim of at re-establishing the status quo ante, thus taking the necessary measures towards fully restoring the independence of the NABU and SAPO;

P. whereas while Ukraine scored 35 out of 100 points and ranked 105th out of 180 countries on Transparency International’s 2024 Corruption Perceptions Index, and while there has been a strong commitment to anti-corruption efforts, actual reforms to implement these intentions are still needed; whereas comprehensive public-administration reform, the fight against corruption, the promotion of fundamental rights and the effective functioning of democratic institutions are core conditions for EU accession;

Q. whereas Ukraine has made advancements in regional cooperation and in socio-economic reforms to align its policies with EU standards;

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ChangedM.R. whereas Ukraine’s democratic institutions have demonstrated adaptability by showcasing that, even amid Russia’s ongoing war of aggression and under martial law, Ukraine remains an institutionally, democratically and economically viable state; whereas, while Ukraine remains at war and is under martial law, elections are legally banned and impractical; whereas Parliament welcomes indications that preparations for elections may begin once martial law has ended; N. whereas progress has been made on public administration reform, but further capacity building, evidence-based policymaking, and improvements to human resources management are still required;

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AddedS. whereas progress has been made on public administration reform, but further capacity building, evidence-based policymaking, and improvements to human resources management are still required;

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T. whereas the judiciary has resumed key functions, including the vetting of judges and the implementation of anti-corruption measures, though integrity and transparency standards must be strengthened and there should be continuous oversight from international partners;

U. whereas the strengthening of the independence of the judiciary has benefited from the assistance of international experts in judicial selection commissions, which has also built public trust in the judicial system;

V. whereas international experts’ involvement in the selection of the High Qualification Commission of Judges (HQCJ) ended on 1 June 2025;

W. whereas Ukraine has shown a commitment, despite the continuous destruction of energy facilities by Russia, to the green agenda through legislation on renewable energy and by aligning with the objectives of the European Green Deal;

X. whereas the environmental damage caused by Russia has had devastating consequences for Ukraine’s natural resources, critical ecosystems and people’s health, livelihoods and security; whereas green recovery is about remedying that damage and setting Ukraine on a new path of environmental and social sustainability aligned with the environmental laws in the EU acquis; whereas Ukraine ceased to operate as a transit country for Russian gas on 1 January 2025;

Y. whereas foreign investors and multinational corporations have significantly expanded their control over Ukraine’s natural resources, including agricultural land, minerals and critical infrastructure; whereas such developments risk undermining national sovereignty, food security and economic self-determination;

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ChangedU.Z. whereas in 2024, the EU purchases of Russian fossil fuels totalled EUR 21.921,9 billion, surpassing the EUR 18.718,7 billion in financial aid provided to Ukraine that same year; whereas since the start of the full-scale invasion, the EU has spent more than EUR 200 billion on Russian fossil fuels, thus contributing to funding Russia’s war chest; whereas the Commission has announced an end to Russian gas imports by 2027; whereas if the EU continues importing Russian energy at the rate it did in 2024, it would pay an additional EUR 57.457,4 billion to Russia before the end of 2027;

AA. whereas civil society remains a pillar of resilience and democracy in Ukraine; whereas, despite the restrictions imposed by martial law, NGOs continue to operate relatively unhindered, though instances of pressure against activists raise concerns and require government action; whereas recent abrupt US funding cuts have had devastating consequences for Ukrainian civil society;

AB. whereas the freedom of expression and media independence face challenges, particularly under martial law; whereas measures are required to restore pluralism, protect journalists and create a financially enabling environment; whereas it is understandable that certain restrictions are necessary during martial law;

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AddedAC. whereas the European Trade Union Confederation (ETUC) has raised serious concerns regarding the deterioration of labour rights in Ukraine, including violations of trade union freedoms and social dialogue; whereas freedom of association, collective bargaining, and the right to strike are protected under International Labour Organization (ILO) conventions to which Ukraine is a party, and are key elements of the EU acquis and the Copenhagen criteria;

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AD. whereas Ukraine’s EU integration process is widely supported by public and institutional consensus, reflecting a strong societal commitment to EU membership despite the current difficulties;

AE. whereas EU accession carries a distinct security dimension and strong symbolic significance for the country and its population, in the context of Ukraine's existential war against ongoing Russian aggression; whereas the EU’s unwavering support for Ukraine’s sovereignty, territorial integrity and independence are not dependent on the speed of the country’s European integration;

AF. whereas EU membership remains a crucially important driver for the democratic development of Ukraine and will represent a key factor in ensuring the country’s future security, stability and independence; whereas Ukraine’s EU membership is a strategic investment in peace, security, democracy and prosperity for the entire continent as it will strengthen the Union by contributing to its geopolitical resilience, enhancing its economic potential, and reinforcing its commitment to shared values of democracy, the rule of law and freedom;

AG. whereas accession remains a merit-based process and progress on reform implementation must be assessed thoroughly and carefully, which is also in the interest of Ukraine;