The role of local self-government in the EU Accession negotiation process

Key takeaways from the second day of the course “EU Integration: Impact and Opportunities for Communities” by the Сities4Сities initiative and the Swedish-Ukrainian Polaris Programme “Supporting Multilevel Governance in Ukraine.”

Lecturers: Yuliia Hrytsku, Advisor to the Deputy Prime Minister for European and Euro-Atlantic Integration, and Marta Suprun, Cities4Cities Expert on EU Integration Advocacy.

Ukraine’s European integration process is multidimensional and involves not only state institutions but also local governments (LGs), which play a key role in implementing reforms.  The European Union’s regional policy is based on the principles of multi-level governance, subsidiarity, and decentralisation, making the inclusion of LGs in the negotiation process both necessary and justified.

European partners view decentralisation and regional development not only as reform tools but also as a means of effective territorial governance. Therefore, the ability of communities to operate within European programmes and utilise EU instruments for local development is a crucial factor in Ukraine’s successful integration into the EU.

LGs directly influence the adaptation of European norms in infrastructure, environment, energy, digital transformation, and social welfare. Their involvement in negotiations ensures the harmonisation of Ukrainian regional policies with European standards, laying the groundwork for effective use of EU funds.

Ukraine is currently undergoing formal legislative screening, a key component of the negotiation process. LGs and their associations must actively engage in legislative adaptation, regional development strategies, and cooperation with European municipalities, as a significant portion of reforms are implemented at the local level.

How the negotiation process is coordinated today

In August 2024, the Cabinet of Ministers of Ukraine adopted a resolution establishing an Interagency Working Group (IWG) to coordinate the work of 36 negotiation groups. Its members include representatives of central authorities, civil society, business, and international partners. The IWG is responsible for drafting and aligning Ukraine’s negotiation positions across 33 negotiation chapters. 

In September 2024, the first IWG meeting was held under the chairmanship of Deputy Prime Minister Olha Stefanishyna.

Existing tools for local self-government engagement

• Congress of Local and Regional Authorities under the President of Ukraine

One of the primary mechanisms for coordinating local and state efforts in Ukraine’s European integration is the Congress of Local and Regional Authorities under the President of Ukraine, alongside the Interagency Working Group on EU Accession Negotiations.

Established in 2021 as an advisory body, the Congress of Local and Regional Authorities under the President of Ukraine aims to ensure effective interaction between central and local authorities, support the completion of decentralisation reforms, and facilitate Ukraine’s EU integration. The Congress brings together representatives of local governments, ensuring their interests are considered in state policymaking.

One of the key outcomes of the Congress’s work was the introduction of deputy positions for European integration in regional military administrations (RMAs) and the cities of Kyiv and Sevastopol. This decision was adopted by the Cabinet of Ministers in August 2024 and announced by Deputy Prime Minister Olha Stefanishyna during the Congress meeting in Kropyvnytskyi.

• Working group on international territorial cooperation

In July 2024, a Working Group on International Territorial Cooperation was established under the parliamentary Committee on State Governance. Chaired by MP Oleksandr Aliksiichuk, it includes representatives of the Presidential Office, the Cabinet of Ministers, LGs, and international organisations. Its main task is to promote cross-border cooperation between communities and regions.

Through this group, local government representatives can access up-to-date information on EU integration legislative initiatives affecting local governance, as well as raise issues and challenges faced by communities and regions in the implementation of European programmes and projects that can be addressed through legislative initiatives or relevant government policies.

How to strengthen the role of local self-government in negotiations 

• Engaging Local Governments via Associations in the Interagency Working Group

Currently, representatives of associations are not involved in any negotiation working groups for any of the negotiating chapters, though the government seeks to include them at least in Chapter 22, which deals with regional development and communities in particular.

Major obstacles include:

• Low engagement of local government associations in lobbying for the interests of local self-government in the context of European integration in relations with the central government.
• Fragmented positions among associations (there are 4 national associations of local governments in Ukraine, which compete with each other) and the lack of a “single voice” of local governments in this process.
• Limited analytical capacity among associations to assess the impact of EU legislation at the local level, particularly beyond Chapter 22. For this purpose, associations need to study the analysis experience of associations from EU member states and candidate countries.

• Establishing a Joint Consultative Committee with Ukraine under the Committee of the Regions

The European Committee of the Regions (CoR) is an advisory body representing local and regional authorities of member states. Created in 1994 under the Treaty of Maastricht, it was an important step in the development of decentralisation and the involvement of municipalities in decision-making at the European level. The CoR’s main function is to enable local governments to influence EU legislative initiatives that directly affect regions, cities and communities.

CoR also forms coordination platforms with representatives of local governments from candidate countries, such as working groups and joint consultative committees. Currently, a CoR Working Group on Ukraine assists in coordinating European integration efforts. 

The next step should be establishing a Joint Consultative Committee, which – unlike a working group – would include 12 representatives of local governments from Ukraine. The delegation of such representatives is initiated by the government, so it is important to coordinate efforts between the associations and the government of Ukraine in this regard. 

While the government’s role is undoubtedly crucial in the process of negotiating Ukraine’s membership in the EU, it is important that Ukraine, which shares the European values of subsidiarity and multi-level governance, provides local governments with the widest range of tools to engage in European integration processes. Simultaneously, communities must take a more active role in local government associations to effectively advocate their interests in this process.

There is also an opportunity to register for the Cities4Cities course “EU Integration: Impact and Opportunities for Communities”. This course will enhance your confidence in engaging with European-level initiatives, help you negotiate more effectively with international partners, and enable you to define your development priorities more clearly for the coming years.

The course is supported by Sweden’s flagship programme for Ukraine Polaris “Supporting Multilevel Governance in Ukraine”.

Cities4Cities | United4Ukraine are partner initiatives that joined forces in September 2022. Cities4Cities was founded by the city of Sindelfingen (Germany) under the patronage of the Congress of Local and Regional Authorities of the Council of Europe. United4Ukraine was initiated by SALAR International and the city of Lviv, with support from the Swedish International Development Cooperation Agency (Sida). Since 2024, Cities4Cities | United4Ukraine has been part of Sweden’s flagship programme for Ukraine Polaris “Supporting Multilevel Governance in Ukraine”.