Ukraine faces mounting EU pressure to accelerate judicial and anti-corruption reforms, including a 60% increase in High Anti-Corruption Court judges, to unlock billions in funding. Delays in implementing 25 key reforms risk €11.3bn in 2026 assistance and threaten Kyiv’s 2027 accession ambitions.
Ukraine’s EU Reform Push: Judicial Expansion, Anti-Corruption Benchmarks and €11.3bn Funding at Stake
Ukraine is under intensifying pressure from the European Union to speed up long-delayed judicial and anti-corruption reforms, with billions in financial assistance and the country’s EU membership bid hanging in the balance. Recent appointments of 16 judges to the High Anti-Corruption Court (HACC) mark a critical step, but analysts warn that deeper institutional changes are needed to meet Brussels’ demands and secure vital funding under the Ukraine Facility programme.english.
EU Funding Tied to Reform Progress
The European Union has made it clear that financial support for Ukraine is contingent on tangible progress in implementing structural reforms. According to a report by Ukrainska Pravda, cited by The New Voice of Ukraine, Ukraine must enact 25 legislative and administrative reforms to unlock €10 billion ($11.3 billion) in financial assistance in 2026.
As reported by journalists at The New Voice of Ukraine, EU sources indicated that after completing seven specified reforms—including transparent selection of senior prosecutors and simplified insolvency procedures—Ukraine would be eligible for an initial tranche of €2.86 billion. A further €7.5 billion could be released if 18 additional reforms are implemented, covering areas such as independent supervisory boards at state-owned enterprises, updated IT systems for court decisions, and housing support for veterans and displaced persons.
The updated Ukraine Facility plan also outlines 34 more reforms that, if completed, would allow Kyiv to seek an extra €5 billion in financing in 2026. This conditionality underscores the EU’s strategy of using financial leverage to drive institutional change in candidate countries.
Judicial Reform at the Heart of EU Demands
Judicial reform remains one of the most contentious and critical areas for Ukraine’s EU accession process. The European Commission has repeatedly highlighted the need for Ukraine to strengthen judicial independence, improve the integrity of judges, and ensure effective anti-corruption institutions.
A key benchmark under the Ukraine Facility programme is the expansion of the High Anti-Corruption Court. As reported by European Pravda, the plan requires Ukraine to increase the number of HACC judges by 60% and court staff by 40%, a target originally set for the first quarter of 2025.
Delays in meeting this benchmark had raised concerns that Ukraine could lose between €250 million and €300 million in EU funding. However, on 21 August 2026, President Volodymyr Zelenskyy signed decrees appointing 11 judges to the HACC and five to its Appeals Chamber, fulfilling a critical condition for unlocking this portion of EU assistance.
Bohdan Kryklyvenko, Chief of Staff at the HACC, told European Pravda that one additional judge’s appointment was pending due to a late submission, but expressed confidence that the full €300 million would be secured. He also noted that three more candidates are currently undergoing selection by the High Qualification Commission of Judges.
Anti-Corruption Institutions Under Scrutiny
Beyond the HACC, the EU has emphasised the need for comprehensive reforms across Ukraine’s anti-corruption architecture. The Kachka-Kos plan, agreed in December 2025, set out ten priority steps in democracy, rule of law, judicial independence, and anti-corruption, with a deadline of end-2026 for implementation
Vitaly Shabunin, head of the Anti-Corruption Action Center’s executive board, told the Kyiv Independent that “none of the crucial reforms related to the justice system, law enforcement, or anti-corruption have been implemented” since the agreement was signed, highlighting the gap between commitments and action.
The reform roadmap includes auditing the integrity declarations of Supreme Court judges with international experts, revising the selection and dismissal procedures for the prosecutor general, and reinstating transparent contests for top prosecutor jobs. It also calls for greater involvement of international experts in the selection commission for the High Qualification Commission of Judges.
In August 2026, Ukraine’s parliament blocked five EU-linked anti-corruption bills, putting €2.1 billion in funding and accession reforms under renewed pressure, according to Brussels Watch. This legislative stalemate has intensified concerns among EU member states about Kyiv’s political will to deliver on its reform promises.
Political Resistance and Implementation Gaps
Despite public commitments to EU integration, Ukraine’s government has been accused of deprioritising key reforms. An analysis by The Economist, cited by Brussels Watch, argued that
“Ukraine needs the EU to force it to reform”,
suggesting that external pressure is essential to overcome domestic resistance to deep institutional change.
Der Standard reported that the Ukrainian government is “shirking the work required for membership”, pointing to delays in adopting legislation on judicial integrity, prosecutorial appointments, and anti-corruption measures. The Austrian newspaper’s analysis highlighted the tension between Kyiv’s wartime priorities and the painstaking institutional work demanded by Brussels.
The Kachka-Kos Declaration, signed on 11 December 2025, committed Ukrainian authorities to implementing ten priority reforms by the end of 2026. However, progress has been uneven, with particular stagnation in areas such as judicial self-governance, the State Bureau of Investigation, and the mechanism for integrity declarations.
Broader Context: EU Accession and Institutional Alignment
Ukraine’s EU accession negotiations officially opened in June 2026, with the first cluster covering “Fundamentals” including judicial reform, fundamental rights, and anti-corruption. Progress in these areas is being assessed against EU standards, making judicial reform not just a domestic issue but a central component of the accession process.
The European Commission has listed justice reform among the areas where Ukraine has made progress, but stresses that credible institutions capable of enforcing laws and protecting public funds are essential for membership. This includes ensuring that courts and law-enforcement bodies operate independently and effectively, free from political interference.
In parallel, the EU has approved additional funding packages contingent on reform milestones. In July 2026, Brussels approved an extra €8.3 billion for Ukraine, with new emphasis on rule of law, anti-corruption, energy sector reforms, and integration into the EU internal market.
Cost Implications of Judicial Expansion
The requirement to increase the number of HACC judges by 60% and court staff by 40% carries significant budgetary implications for Ukraine. According to Sud.ua, the Ukraine Facility plan explicitly ties this expansion to the release of €250–300 million in EU funding.
While the exact cost of expanding the HACC has not been publicly detailed, the broader context of judicial staffing suggests substantial financial commitments. As of the end of 2025, Ukraine’s courts operated with 4,346 judges against a maximum authorised strength of 6,600, leaving 2,254 positions vacant, according to the High Council of Justice.
Filling these vacancies, particularly in specialised anti-corruption courts, requires not only salary expenditures but also investments in training, infrastructure, and support staff. The EU’s conditionality framework is designed to ensure that such investments translate into tangible improvements in judicial capacity and integrity.
International and Domestic Reactions
The appointment of 16 new HACC judges was welcomed by anti-corruption advocates as a long-overdue step. Bohdan Kryklyvenko of the HACC congratulated the newly appointed judges and described the expansion as “significant and long-awaited”.
However, civil society groups continue to urge faster progress on broader reforms. Vitaly Shabunin of the Anti-Corruption Action Center warned that without comprehensive changes to the justice system and law enforcement, Ukraine risks losing both funding and credibility with EU partners.
EU officials have also expressed cautious optimism. The European Commission acknowledged Ukraine’s progress in some areas but stressed that sustained momentum is needed across all reform clusters to meet the 2027 accession target.
Looking Ahead: Reform Deadlines and Funding Risks
With multiple reform deadlines approaching in late 2026, Ukraine faces a critical window to demonstrate its commitment to EU integration. The next tranche of EU funding, worth €2.86 billion, is contingent on the completion of seven reforms, including those related to prosecutorial appointments and business insolvency procedures.
Failure to meet these benchmarks could result in the suspension of funding and a delay in accession negotiations. As Brussels Watch noted,
“Ukraine is slowing EU reforms on rule of law, courts and corruption, putting funding and membership hopes at risk as Brussels weighs stronger pressure.”
The coming months will test whether Kyiv can translate political declarations into concrete legislative and administrative action, or whether further EU pressure—and potentially punitive measures—will be required to drive change.
