Recently, the RPR Coalition, together with its partners, called on the foreign ministers of EU member states to ensure consensus among EU countries on opening Cluster 1 “Fundamentals” for Ukraine.

In an exclusive interview for Par.in.ua — the only media outlet dedicated to civil service development and public administration reform in Ukraine — Olga Lymar, Executive Director of the RPR Coalition, explained why the Coalition joined the appeal, whether Ukraine is ready to begin negotiations under this cluster, and what role public administration reform plays in the process.

Olga Lymar: Since Ukraine was granted EU candidate status in 2022 — during the first year of the full-scale invasion — the country has undergone an extensive process of reform and transformation across all sectors, aimed at increasing efficiency, reducing corruption risks, and harmonizing legislation with EU law. We have seen significant progress in all areas of public governance, the economy, rule of law, and anti-corruption, which has been repeatedly acknowledged positively by the European Union at all levels. It is important to highlight that civil society has been actively involved in the negotiation (working) groups. Nearly a year ago, the EU decided to launch accession negotiations with Ukraine.

Recently, the Ukrainian government approved roadmaps in the areas of rule of law, public administration reform, and the functioning of democratic institutions, as well as an Action Plan on the protection of national minorities.

Thus, Ukraine has fully met all proposed requirements and completed its “homework” to prepare the country for the opening of the first cluster, “Fundamentals.” Importantly, there are no formal or technical obstacles preventing the opening of this cluster or the start of full-fledged EU accession negotiations.

Ukraine continues to advocate for the merit-based approach in moving forward — specifically regarding the opening of the first of six clusters — to avoid potential political manipulation by certain EU member states that could delay the process. The statement on opening the first cluster, initiated by RPR Coalition members — the Ukrainian Centre for European Policy and the Centre of Policy and Legal Reform — and supported by the Coalition (which unites 30 organizations) along with over 25 civil society organizations, sends a clear message: the ball is now in the EU’s court. In my view, EU unity and the demonstration of adherence to its own values and principles are crucial not only for Ukraine, but also for safeguarding the strength of the Union itself.

– What specific criteria does the EU set for Ukraine within this cluster, particularly regarding public administration reform?

When it comes to public administration reform, the criteria have been repeatedly emphasized in SIGMA recommendations and EU enlargement reports. They include:

Improving the effectiveness and professionalism of the civil service:

• Restoring the competitive recruitment system for civil service positions
• Enhancing the qualifications and professionalism of civil servants
• Developing clear criteria for recruitment, evaluation, and promotion of civil servants

Ensuring the independence of public administration:

• This includes preventing political interference and corrupt practices in governance structures

Transparency and accountability of public institutions:

• Developing e-governance
• Enhancing interagency cooperation and coordination

These requirements aim to establish an efficient, transparent, professional, and accountable public administration in Ukraine that aligns with European standards of governance.

– What is the significance of Cluster 1 “Fundamentals” in the EU accession negotiation structure, and why does it both open and close the negotiation process? How does public administration reform contribute to strengthening Ukraine’s institutional capacity in the context of accession talks?

Cluster 1, “Fundamentals,” is inherently cross-cutting in nature. On the one hand, it defines the core values and principles of the European Union — democracy, the rule of law, and good governance — that unite all EU member states. On the other hand, it meaningfully influences and runs through all other negotiation clusters, as it determines the effectiveness, legitimacy, and fairness of economic governance, regional cohesion, international relations, the green transition, and more.

The implementation of good governance principles directly contributes to the strengthening of institutions and public authorities in Ukraine, which in turn enhances the country’s capacity to reform and effectively implement changes. This is key for the full integration of all sectors and their alignment with the systems and standards of the European Union.

– Why is public administration reform considered fundamental to Ukraine’s European integration process?

Public administration reform is about ensuring efficiency, professionalism, integrity, fairness, and reliability in the work of the public service. As such, it impacts every sphere of the state’s and society’s functioning. Ukraine aims to implement meaningful changes and reforms that will enhance the performance of its public administration. Its effectiveness will contribute to better economic growth, socio-economic development, reducing regional and economic disparities, and upholding human dignity. For these reasons, the reform is included in Cluster 1 of the negotiation process — the “Fundamentals.” Moreover, it is precisely public governance reform that enables the state (government) to effectively carry out all other steps required for EU integration.

– How does this reform affect Ukraine’s ability to adapt and implement EU legislation (acquis communautaire)?

Public administration reform directly influences Ukraine’s capacity to adapt and implement EU legislation by improving the efficiency, transparency, and accountability of state institutions. Effective governance is essential for ensuring the proper implementation of European standards as outlined in the acquis communautaire. Improving HR policy and decision-making processes ensures that the Ukrainian administration can swiftly, accurately, and in line with EU requirements, adapt national legislation and implement new EU regulations and directives.

Equally important is the creation of conditions for integrating European standards into Ukraine’s domestic legal framework — which is only possible with a strong and independent public administration.

This point was illustrated clearly by our colleagues in the “Eurocast” podcast, produced by the Centre of Policy and Legal Reform as part of our joint project with them and Democracy Reporting International, supported by the Federal Foreign Office of Germany.

– Which aspects of the reform are most critical for successful EU integration and eventual membership? What “bottlenecks” in institutional capacity do you see that must be addressed to move forward?

The most critical areas of public administration reform for EU integration include reforming civil service pay, enhancing effectiveness, improving HR policy; ensuring transparency in recruitment and promotion of civil servants, advancing e-governance, which is vital for integration into the EU’s digital space and for simplifying bureaucratic procedures.

As for the “bottlenecks,” there are still challenges in interagency coordination and institutional accountability. Another major issue is the “brain drain” — the outflow of skilled professionals — which threatens systemic continuity, institutional memory, and the overall professionalism of the civil service.

Without addressing these issues — especially in the context of war and other internal challenges — it will be difficult to ensure the effective fulfillment of commitments to the European Union.

– Public administration reform is often perceived as one of the EU’s integration requirements. Why is it important for ordinary citizens, businesses, and society as a whole?

Public administration reform is directly relevant to everyday citizens, businesses, and society because it:

• Ensures greater transparency and openness in government operations, reducing corruption and lowering bureaucratic barriers
• Simplifies interaction with government institutions — particularly through e-governance — saving time and resources for both citizens and entrepreneurs
• Improves the quality of public services by speeding up decision-making and organizing work processes more efficiently
• Creates a more stable and predictable environment for doing business, which encourages investment and economic growth

– Which components of the public administration reform do you consider successful, and which ones currently require the most attention? What have been the key achievements of the reform in recent years?

Among the successful elements of the reform:

• Development of e-governance — especially the ability to access public services online, which significantly simplifies processes for citizens (such as the Diia ecosystem and associated services like eBaby and eRecovery)
• Depoliticization of the civil service, including the introduction of state secretary positions
• Civil service pay reform — including higher base salaries for officials, reduced reliance on discretionary pay components, and efforts to eliminate pay disparities across different government bodies

However, there are still several bottlenecks that require continued attention:

• Professional training and career development for civil servants, which would raise overall competence and reduce staff turnover
• Preserving institutional memory and improving the efficiency of administrative processes during changes in political leadership
• Interagency coordination — mechanisms for collaboration between state bodies must be improved to achieve more effective governance

– How would you currently assess the cooperation between the public sector and civil society in the area of European integration? What role is civil society and the expert community ready to play in supporting the government in ensuring sustained progress toward EU integration? What kind of support can the Coalition offer the government?

Cooperation between the public sector and civil society is crucial for the successful implementation of European integration reforms.

Civil society and expert organizations have played an important role in monitoring reform processes, providing independent assessments, and promoting transparency in government actions. A significant number of experts and NGOs participate in negotiation (working) groups and are authors or co-authors of legislative initiatives that have become law.

In cooperation with government representatives, civil society organizations organize public and closed-door events to discuss and effectively implement reforms on the path toward European integration, communicate these changes to the public, and actively contribute to shaping the EU integration agenda through collaboration with diplomatic missions and international organizations.

– In your view, how is Ukraine progressing with the implementation of recommendations from the EU enlargement report regarding public administration reform?

Ukraine is actively working to implement the EU’s recommendations on public administration reform — in particular those outlined in the 2023 SIGMA Monitoring Report (OECD recommendations), the annual European Commission Enlargement Reports on Ukraine, and the Ukraine Plan 2024–2027. These efforts aim to enhance transparency, reduce corruption risks, and optimize government processes.

In 2024, a comprehensive civil service pay reform was launched and is still ongoing. At the beginning of 2025, the Cabinet of Ministers of Ukraine initiated a large-scale review and optimization of workflow efficiency across more than 100 executive bodies.

However, there are still challenges — including instability caused by the war, the need for further improvements in HR policy, IT-related difficulties, and the outdated and rigid nature of certain processes still embedded in Ukraine’s public administration system.