With major EU initiatives on Ukraine and Russia underway, this is a crucial moment for MEPs to show leadership by advancing urgent measures on Ukraine’s security and EU accession, where stronger engagement can make a tangible impact:
Fast-tracking macro-financial assistance to Ukraine
The Reparation Loan would unlock €140 billion for Ukraine using profits from frozen Russian sovereign assets as collateral — a plan backed by the European Commission, European Parliament and G7 partners that requires no new EU taxpayer money.
Why it is important: With U.S. aid uncertain, the use of Russian frozen assets or EU-level joint borrowing remains the only credible way to sustain military assistance to Ukraine.
Current Challenge: Belgium fears bearing legal and financial risks alone, so it persuaded the member states at the European Council meeting on October 23 to postpone approval until December 2025. Some member states also have concerns about Ukraine’s procurement of solely US-made weaponry with the potentially unlocked funds.
Ukraine calls on: MEPs to urge Member States, including through a dedicated plenary resolution, to commit to shared risk and legal guarantees, and to take a final approving decision at the December 2025 European Council meeting. MEPs are also encouraged to advocate for the direct use of frozen Russian assets and/or EU-level joint borrowing to establish a long-term, predictable assistance package for Ukraine.
Frontloading: Informal opening of negotiation clusters
In October, Ukraine completed screening its legislation for compliance with the EU acquis communautaire. In its latest Enlargement Package Report, the European Commission proves Ukraine has met the conditions required to open clusters 1, 2, and 6. The remaining three are expected to be ready by the end of 2025. However, Hungary’s veto blocks formal cluster openings, prompting Ukraine’s informal consultations with the European Commission as a temporary path forward.
Current Challenge: Hungary’s veto stalls Ukraine’s EU integration despite its strong progress on accession criteria.
Why it is important: Ukraine is fully prepared for the next steps, but EU political will is needed to move forward. Prolonged delays and the lack of alternative mechanisms deprive Ukraine of the EU’s leverage and control in reforms implementation, and risk eroding public support for Ukraine’s accession.
Ukraine calls on: MEPs to back the “frontloading initiative” of launching informal negotiations without officially opening accession clusters. This will ensure Ukraine’s further rapprochement with the EU, consistent informal consultations with the EU institutions, and more effective reforms implementation. MEPs can also fight for the immediate inclusion of Ukraine as an associated country in most sectorial policy programmes, using the success case of the European Defence Fund as an example.
Using the SAFE instrument to provide military support to Ukraine
19 EU Member states applied for loans under the €150 billion SAFE instrument, adopted by the EU Council in May 2025, to support military procurement and defense industry investments. Ukraine cannot receive the EU funding, but can act as a subcontractor in joint ventures (recently, the state partially opened up arms exports), if member states include it in their European Defence Industry Investment Plans.
Why it is important: After U.S. defense assistance was halted, Ukraine faces looming arms shortages that endanger both its defenses and Europe’s security. MS can also benefit from getting battle-tested, state of the art Ukrainian capabilities.
Current Challenge: Many EU states prioritize boosting their domestic defense industries under SAFE, overlooking Ukraine’s participation.
Ukraine calls on: MEPs to pressure the 19 SAFE applicants to include Ukraine in their European Defense Industry Investment Plans by November 30, 2025. If deadlines are missed, they сould: 1) transfer existing weapons to Ukraine and later replenish stocks with SAFE loans, 2) donate new equipment procured with SAFE funding to Ukraine, 3) use SAFE loans to procure Ukrainian weapons and donate them back to Ukraine under the “Danish model”.
Strengthening international rules to sanction Russia’s “shadow fleet”
The European External Action Service (EEAS) has prepared a draft declaration to legitimize boarding vessels from Russia’s “shadow fleet.” The plan envisions bilateral agreements between the EU and flag states allowing pre-authorized inspection boardings.
Why it is important: Russia’s shadow fleet helps evade EU oil sanctions and, in October, served as drone launch platforms that forced temporary airport closures in some EU states.
Current Challenge: Continued unchecked operations of the fleet would undermine all 19 EU sanctions packages and enable further hybrid attacks, threatening European security.
Ukraine calls on: MEPs to support the declaration’s adoption in their states, which is expected to be finalized by late November and endorsed at the EU foreign ministers’ meeting. Afterwards, MEPs should advocate in their home countries to empower the Council of the EU to negotiate boarding agreements on behalf of MSs, thereby simplifying talks with flag states and reinforcing the EU’s role as a cohesive actor.
Adaptation of the EU directive on criminalization of sanctions evasion
In April 2024, the EU adopted Directive 2024/1226, establishing the criminalization of sanctions violations and reaffirming the Union’s commitment to strict and uniform enforcement of its sanctions policy.
Why it is important: Effective and consistent application will prevent further sanctions evasion and reinforce EU credibility. The directive harmonizes legal standards and sets out the procedures and tools member states must adopt to ensure effective enforcement.
Current Challenge: With a one-year deadline, only two member states complied, whereas the other twenty-five failed; the Commission has initiated infringement proceedings against the rest, some of which contest the assessment of their progress.
Ukraine calls on: MEPs to push for full and swift implementation within their countries, emphasizing the outcomes of missed deadlines, namely the Commission’s enforcement means application and Russia’s enhanced economic resilience and war effort.
Including Ukraine’s interests in the EU budget for 2028–2034
On 16 July 2025, the European Commission presented its draft Multiannual Financial Framework (MFF) for 2028–2034, introducing the Ukraine Reserve initiative (allocating up to €100 billion, €14.3 billion annually). Civil society organizations from Western Balkans, Ukraine and Moldova also suggest including a dedicated “Enlargement envelope”, including a strong IPA IV (€30 billion) and a pre-accession transition mechanism, in the new MFF.
Why it is important: The Ukraine Reserve initiative would ensure long-term, stable funding for Ukraine’s recovery, reforms, and defense, addressing its annual $35–40 billion budget deficit. Likewise, a dedicated Enlargement budget line with credible, performance-based funding for EU candidate countries would strengthen reform efforts and reinforce the EU’s commitment to their integration.
Current Challenge: Some MS may end up reluctant to establish a separate long-term funding line for Ukraine in the budget plan due to fiscal and internal political considerations.
Ukraine calls on: MEPs to support the Commission’s MFF proposal, endorsing the Ukraine Reserve as a dedicated funding instrument, and advocate for an “Enlargement envelope” to ensure stable, strategic funding for all candidate countries.