The Republic of Moldova on the Road to the EU

https://doi.org/10.63189/YFTB1881

1. Introduction

To summarise the basic pillars of the Moldova-EU relationship – with respect to its development - it should be noted that until the beginning of the war in Ukraine, Moldova was only one of the members of the Eastern Partnership. Immediately in March 2022 (following Russia’s invasion of Ukraine), Moldova applied for EU membership and was granted candidate status in June of the same year.^[1] Moldova started to work intensively on the necessary reforms and to meet the requirements set by the EU. The results were already evident at the end of 2023, when in November the European Commission recommended the opening of accession talks with Moldova under the Enlargement Package - assessing the progress of non-member countries on their way to the EU.^[2] This step was subsequently endorsed by the Council in December 2023.^[3]  On 25 June 2024, Moldova opened accession talks (together with Ukraine), and the first round of the so-called intergovernmental conference began in Luxembourg.

In addition to this political, social and legal line of development, the other equally important one - namely economic and financial support - cannot be overlooked. In 2014, the EU had already signed an Association Agreement with Moldova,^[4] which includes a Deep and Comprehensive Free Trade Agreement (DCFTA) that entered into force in July 2016. The roadmap for implementing the Association Agreement is defined in the Association Programme, the latest version of which - the revised Association Programme for the period 2021-2027 - was agreed in August 2022.^[5] The European Union is by far Moldova’s most important trading partner, accounting for 58.8% of its exports and 43.9% of its imports. In addition, the EU is also the largest investor in the country.^[6]

2. Key areas of Moldova’s reform efforts = key areas of EU support

2.1. Democratic legal reforms and good governance

In terms of concrete steps and reforms in the area of law and democratic state-building, Moldova’s main efforts are focused - in short - on these areas:

a) realisation of the comprehensive reform across all institutions in the justice and prosecution (to ensure their independence, efficiency and transparency)

b) the reform of Public Financial Management

c) the fight against corruption and organised crime

d) the ‘de-oligarchisation’ process

e) the reforms of public administration (meaning provision of quality public services) and better involvement of civil society in decision-making processes at all levels

f) the protection of human rights, particularly of vulnerable groups.

These points are a priority for Moldova and the EU, and it can be noted that Moldova is gradually succeeding in implementing them, precisely with the support of the EU. To give just an example of the recent reform achievements:

The electoral legislation has been comprehensively amended to address inconsistencies, and a new Electoral Code was adopted in December 2022.^[7] Further amendments to the Electoral Code were adopted in 2023. The country also made progress in the reform of the justice sector. Candidates for the Superior Council of Magistracy (SCM) and the Superior Council of Prosecutors (SCP) had to undergo a pre-vetting process based on the corresponding law, adopted in line with Venice Commission recommendations. Parliament also adopted a law on Supreme Court of Justice (SCJ) reform, and the vetting of its candidates and of its sitting judges has started - also in line with Venice Commission recommendations. However, the length of proceedings, low clearance rates and the large backlog of cases negatively affect the judicial system’s efficiency.^[8]

Moldova is also trying to reform its public administration system. In particular, the new public administration reform strategy for 2023-2030 was adopted in March 2023, and its implementation programme for 2023-2026 was adopted in June 2023. Due to a complex salary grid and the many different job classifications, civil servants’ pay varies and is inconsistent across the administration. Moldova started addressing this issue by adopting a new law on salaries.

The government of Moldova has made a clear commitment to meet its international obligations on human rights. In particular, the government strengthened the mandates of the Equality Council and the People’s Advocate and adopted programmes on strengthening gender equality and support for the Roma community. However,^[9] persons belonging to minorities, persons with disabilities, LGBTQI persons and the Roma still continue to face discrimination, including in the labour market.^[10]

2.2. Economic development

An equally important area for EU pre-accession support is the economic development of Moldova. Here too, a number of reforms are expected from the candidate country. The EU has consistently provided financial assistance to Moldova, with up to around €2.2 billion in loans and grants made available since 2021. This significant funding is provided through a range of financial instruments such as direct budget support, macro-financial assistance or EU programmes and projects. In January 2024, Moldova submitted its first economic reform programme, and its participation in the Economic and Financial Dialogue, the highest level of EU engagement with third countries on economic matters.^[11]

In May 2024, the European Union and the Republic of Moldova held the eighth annual meeting of the Association Council under the EU-Moldova Association Agreement. Participants underlined the importance of deepening further sectoral cooperation with Moldova and its integration into the EU internal market. Moldova is implementing structural reforms, for example in the energy sector and in the modernisation of the telecommunications, payment and banking systems. On the Moldovan side, there have been associations with EU programmes under the Connecting Europe Facility, the Single Market Programme, the Digital Europe programme and the Union Civil Protection Mechanism. In the margins of the eighth meeting, the EU and Moldova signed an association agreement on the Employment and Social Innovation (EaSI) programme.^[12]  

2.3. Security and Defence

Moldova has condemned Russian aggression in Ukraine from the beginning. It also received a large number of Ukrainian refugees. Since then, Russia has stepped up its hybrid war against Moldova. In response, the EU’s cooperation with Moldova in the field of security and defence has been significantly deepened. In 2023, the European Union sent its partner mission (EUPM Moldova) to this country - within the framework of the Common Security and Defence Policy (CSDP). It doubled aid under the European Peace Facility, and imposed sanctions on those who attempt to destabilise the country.^[13]

The goal of this civilian mission is to boost the country’s resilience in dealing with crises, including hybrid threats, as well as strengthening cyber security.^[14]

Since 2021, the EU has earmarked more than 130 million euros through the European Peace Facility to support the modernisation of Moldova’s armed forces. This EU-funded assistance enables the military to increase its operational efficiency, and accelerate compliance with EU standards.^[15] The EU also signed an agreement with Moldova on the deployment of troops, which concerns the operational activities carried out by Frontex. Thanks to this agreement, Frontex can assist Moldova in border management.

Apart from Russia itself, the separatist region of Transnistria still remains a security problem. In addition, the already tense relations between the autonomous region of Gagauzia and the central government in Chisinau worsened in connection with the Russian invasion of Ukraine. Solving these problems will be necessary for the country’s subsequent entry into the EU.

3. Conclusion

Undoubtedly, the reforms carried out and the country’s unceasing efforts to fulfil the conditions for joining the EU should be appreciated.^[16] The EU regularly states the country’s progress on its accession. The main areas where reforms need to be intensively continued are the area of judicial reform, the fight against corruption and the elimination of oligarchy. Autumn 2024 was significant for Moldova in this regard, when presidential elections and a referendum on the country’s EU membership was held simultaneously in Moldova. Moldova was expected to continue to face continued pressure from Russia, and hybrid threats were expected to increase in the run-up to the elections.^[17] The popular vote on joining the EU was pushed through by the pro-European president Maia Sandu. She won the presidential election again. At the same time, a narrow majority of voters in Moldova supported the country's orientation towards the EU in the referendum. In the referendum, the question was put to the voters whether an article defining EU accession as a strategic objective should become part of the Moldovan Constitution. According to the final results, 50.46 per cent of voters voted in favour, 49.54 per cent against.

It should be emphasised that Moldova’s entry into the EU will be significant and positive not only for this country, but also for the EU and its member countries. The acceptance of Moldova and Ukraine would significantly strengthen the EU’s defence against possible attacks by Russia on member states. On the other hand, this naturally increases security risks. EU enlargement will undoubtedly require a major political effort. It will require a major reform of EU policies, including the budget. Current EU policies are adapted to the conditions of the existing member states, but in many respects the internal situation in the aspirant countries differs. In the accession process, candidates must adapt to EU policies, but in many cases, it is inevitable that the EU itself will also adapt. The question of reforming the EU itself will also be a challenging one. Western European countries in particular are seeking to bring the issues of reform and enlargement together, directly or indirectly. It is logical, after all, that with the 2004 enlargement, when 10 new countries joined the EU, the EU also underwent extensive reform.^[18]

This study can be concluded with the words of the former prime minister of Moldova, Natalia Gavrilița: “We are not a big country, but we have proved in the past that we are able to adapt. We are aware that the accession talks are a complex process and that there are many challenges ahead, but Moldova is extremely motivated and is moving forward rapidly. (...) This is very important for us. This is both in terms of the medium and long-term perspective, the purpose of which is to truly transform and modernise our country. We have the European Union as a model. It will bring us all the aspects and rules that a democratic society works according to.”^[19]

^[1] Plevák, O. (2024) Rozšíření přehledně: Jak jsou na tom země, které chtějí vstoupit do EU? Euroactiv [online]. Available at: https://euractiv.cz/section/rozsireni-eu/linksdossier/rozsireni-prehledne-jak-jsou-na-tom-zeme-ktere-chteji-vstoupit-do-eu/.

^[2] European Commission (2023), Commission adopts 2023 Enlargement Package, recommends to open negotiations with Ukraine and Moldova [online]. Available at: https://ec.europa.eu/commission/presscorner/detail/en/ip_23_5633.

^[3] Horáková, K. (2024), EU dala zelenou otevření přístupových jednání s Ukrajinou a Moldavskem, Euroactiv [online]. Available at: https://euractiv.cz/section/rozsireni-eu/news/eu-dala-zelenou-otevreni-pristupovych-jednani-s-ukrajinou-a-moldavskem-orban-z-jednani-odesel/.

^[4] Association Agreement between the European Union and the European Atomic Energy Community and their Member States, of the one part, and the Republic of Moldova, of the other part [online]. Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A22014A0830%2801%29.

^[5] Recommendation No 1/2022 of the EU-Republic of Moldova Association Council of 22 August 2022 on the EU-Republic of Moldova Association Agenda [2022/1997] [online]. Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A22022D1997.

^[6] European Commission (2023),  EU trade relations with Moldova [online]. Available at: https://policy.trade.ec.europa.eu/eu-trade-relationships-country-and-region/countries-and-regions/moldova_en.

^[7] Hejtmankova R., Herman Cuevas V., Csaszi L. (2024), Three Eastern Partnership neighbours: Ukraine, Moldova and Belarus. European Parliament [online]. Available at: https://www.europarl.europa.eu/factsheets/en/sheet/171/tri-sousedni-zeme-vychodniho-partnerstvi-ukrajina-moldavsko-a-belorusko.

^[8] European Commission (2023), Commission Staff Working Document. Republic of Moldova 2023 Report [online]. Available at: https://www.europarl.europa.eu/factsheets/en/sheet/171/tri-sousedni-zeme-vychodniho-partnerstvi-ukrajina-moldavsko-a-belorusko.

^[9] Amnesty International (2023), Moldova 2023 [online]. Available at: https://www.amnesty.org/en/location/europe-and-central-asia/moldova/report-moldova/.

^[10] Freedom House ranked Moldova as a ‘partly free’ country in 2023 with a score of 62 out of 100. “Moldova has a competitive electoral environment and freedoms of assembly, expression and religion are mostly protected. However, pervasive corruption, links between prominent political leaders and powerful economic interests, and critical shortcomings in the justice system and rule of law continue to hamper democratic governance.” Freedom House (2023), Moldova: Freedom in the World 2023 Country Report [online]. Available at: https://freedomhouse.org/country/moldova/freedom-world/2023.

^[11] European Council (2024), The European Union and the Republic of Moldova reaffirm strong ties at the 8th Association Council meeting [online]. Available at: https://www.consilium.europa.eu/en/press/press-releases/2024/05/21/the-european-union-and-the-republic-of-moldova-reaffirm-strong-ties-at-the-8th-association-council-meeting/.

^[12] Ibidem.

^[13] Sanctions include freezing assets and prohibiting access to funds to sanctioned individuals and entities, and travel bans to the EU for sanctioned individuals.

[14] EEAS (2023), Signing of the Status of the EU Partnership Mission in Moldova Agreement (SOMA) [online]. Available at: https://www.eeas.europa.eu/eupm-moldova/signing-status-eu-partnership-mission-moldova-agreement-soma_en?s=410318.

^[15] European Council (2023), EU Relations with the Republic of Moldova [online]. Available at: https://www.consilium.europa.eu/en/policies/eastern-partnership/moldova/.

[16] See for example European Commission (2024), Commission proposes to open EU accession negotiations with Bosnia and Herzegovina and updates on progress made by Ukraine and Moldova [online]. Available at: https://neighbourhood-enlargement.ec.europa.eu/news/commission-proposes-open-eu-accession-negotiations-bosnia-and-herzegovina-and-updates-progress-made-2024-03-12_en.

^[17] Lutsevych O., Pasha V. (2024), Is Moldova a new battleground in Russia’s war? Chatham House [online]. Available at: https://www.chathamhouse.org/2024/03/moldova-new-battleground-russias-war.

^[18] Trunečka A. (2024), Vstup (nejen) Ukrajiny do EU – Proč se nám vyplatí? Ústav mezinárodních vztahů Praha [online]. Available at: https://www.iir.cz/komentar-vstup-nejen-ukrajiny-do-eu-proc-se-nam-vyplati.

^[19] Hyklová D. (2023), Moldavsko je extrémně motivované stát se členem EU, říká bývalá premiérka. IDNES. [online]. Available at: https://www.idnes.cz/zpravy/zahranicni/moldavsko-evropska-komise-pochvala-clen-ukrajina.A231122_150135_zahranicni_ikro.