Ukraine’s accession to the European Union is not only about politics and legislation. It is also about people — their right to decent work, and their freedom to choose where to live and earn a living. These values were at the heart of the expert discussion “Free Movement of Workers: Supporting Ukraine’s Integration into the EU Labour Market,” held on 11 March 2025.
The event was organised by the analytical centre Europe Without Barriers with the support of the European Union and the International Renaissance Foundation as part of the “European Renaissance of Ukraine” initiative. It was also supported by the Office of the Deputy Prime Minister for European and Euro-Atlantic Integration of Ukraine and the High-Level Advisory Group “Northern Baltic Eight”.
The discussion aimed to outline concrete steps to bring Ukrainian citizens closer to full participation in the EU single labour market. It focused on the first achievements, existing challenges and risks, and most importantly — on how to ensure fair working conditions for Ukrainians abroad.
The meeting brought together representatives of the Ukrainian government, leading experts, and international stakeholders who shared their vision of the path forward.
Ukraine’s First Steps Toward the Free Movement of Workers
Participants noted that the issue of free movement of workers is increasingly shifting from a symbolic narrative to a practical negotiation agenda. The opening of EU accession talks has provided Ukraine with a real opportunity to begin implementing the principles of freedom of employment.
This was emphasised by Iryna Sushko, Executive Director of Europe Without Barriers, in her opening remarks:
“With the launch of accession negotiations with the European Union in 2024, Ukraine gained the opportunity to implement the principles of free movement of workers.”
She also highlighted the importance of involving civil society in “simulation sessions” that are already laying the groundwork for future dialogue with the European Commission.
In her welcome address, Viktoriia Lobun, Advisor to the Deputy Prime Minister for European and Euro-Atlantic Integration of Ukraine, stressed the unique opportunity opened by the negotiations:
“We are in a very favourable situation — we have reached an agreement with the European Commission to open negotiations, and we can begin implementing the principles of free movement of workers already now, alongside the legal harmonisation process.”
She also underlined the need to make full use of this window of opportunity at the current stage — through new initiatives, cooperation with EU Member States, and participation in pilot projects.
Dmytro Shulga, Director of the “Europe and the World” Programme at the International Renaissance Foundation, drew attention to the uniqueness of Ukraine’s current context shaped by the war and the EU’s temporary protection directive:
“In 2022, the decision to grant temporary protection status to Ukrainians effectively opened access to the EU labour market.” He emphasised the importance of finding a pathway from temporary protection toward full participation in the labour market.
A View on Transitional Periods: EU Experience and Opportunities for Ukraine
Yevheniia Hryhorieva, an expert at the analytical centre Europe Without Barriers, presented an overview of the EU’s practice regarding transitional periods. She noted that although such restrictions were introduced for political reasons, their actual impact was limited — they did not prevent labour migration, but merely postponed it.
“The practical value of reciprocal restrictions was also minimal. In percentage terms, the inflow of workers compared to the EU’s working-age population was insignificant.”
She stressed that Ukraine should already begin engaging in dialogue with specific EU Member States where Ukrainian workers are most present — and prepare for a scenario without transitional arrangements:
“Is the government prepared for a future with no restrictions on the free movement of workers once the borders are open?”
In closing, she warned against excessive control, which can have the opposite effect:
“If you hold sand in an open palm, it stays there. But if you squeeze your hand tightly, it starts slipping through your fingers.”
Ukraine–EU Progress Towards Free Movement of Workers: Interim Results of the Negotiation Process
Following the completion of the screening process under Chapter 2, which covers the free movement of workers, Ukraine is transitioning from the preparatory phase to the active stage of forming its negotiation position. Representatives of key government institutions stressed the need for a deeper rethinking of existing policies and approaches.
Marko Skral, a representative of the Government Office for Coordination of European and Euro-Atlantic Integration, stated:
“The sprint stage is over — the marathon begins.”
He explained that Ukraine must revise its current legal interpretation of the status of foreign workers:
“According to our legislation, all foreign nationals are currently classified as third-country nationals. But from a political perspective, that doesn’t make sense — our citizens have access to the EU labour market, while our own labour market remains closed to foreigners.”
This view was supported by Daria Andriunina, Director of the Employment Department at the Ministry of Economy of Ukraine. She emphasised that labour mobility has already become an integration process, which requires a new mindset:
“This is no longer classic migration — it is, in essence, the integration of our citizens into the European family.”
She also highlighted the importance of assessing the potential impact of free movement on Ukraine’s economy:
“We need to understand what Ukraine stands to gain, what the risks and benefits are — and use this as the foundation for our negotiation position.”
Volodymyr Honcharuk, Deputy Head of the State Labour Service of Ukraine, stressed the importance of gradual adaptation to EU legislation. According to him, some EU legal norms can only be implemented after Ukraine becomes a full EU member:
“Many provisions of EU law can only be implemented once Ukraine becomes a full member of the European Union.”
At the same time, he noted that certain elements can be introduced already at this stage:
“We can start implementing selected provisions through pilot projects, interagency cooperation, and strengthening institutional capacity.”
Thus, the discussion marked a clear transition from declarations to substantive work. Ukraine is concluding its preparatory phase and entering the stage of developing a negotiation position — one based on realistic assessments, interagency collaboration, and a flexible yet determined approach to reform implementation.
EU Membership: Labour Mobility and Key Lessons
Following Ukraine’s recognition as a candidate country and the launch of EU accession negotiations, the issue of free movement of workers has gained new relevance. At this stage, it is essential to draw on the experience of previous EU Member States, assess political risks, and consider the socio-economic implications. These topics were at the core of the expert discussion involving prominent European policymakers and researchers.
Cecilia Malmström, former European Commissioner for Trade, emphasised that the free movement of workers is one of the four fundamental freedoms of the EU:
“EU citizens have the right to seek employment in other Member States, to work without a permit, to reside for employment purposes, and to remain even after employment has ended.”
She also highlighted the contribution of Ukrainian nationals to EU economies, citing UNHCR research:
“Ukrainians in Poland contributed between 0.7% and 1% to the country’s GDP growth.”
In her view, discussions on transitional periods usually arise only at the final stages of accession talks and largely depend on the political climate in Member States. She encouraged Ukraine to continue aligning its legislation with the EU’s, noting Sweden’s experience: opting out of transitional restrictions did not negatively impact the labour market.
Alar Streimann, former chief negotiator for Estonia’s EU accession, focused on the complexity of legal harmonisation. He explained that the free movement of workers is not merely a political slogan but a technically challenging chapter that, during the screening, included over 150 legislative acts:
“The screening meetings lasted two full days and were extremely detailed. This is one of the most complex parts of the acquis.”
He also noted that in many countries, constitutional amendments were required to ensure full implementation of EU citizens’ rights in the newly acceding states.
Marja Rislakki, former Permanent Representative of Finland to the EU (2017–2021), shared Finland’s experience in negotiating transitional periods and opening its labour market. She stressed that the free movement of workers was a fundamental priority for Finland:
“From the very beginning, it was clear — and widely supported — that this is one of the core freedoms of the internal market.”
However, due to concerns about a potential influx of workers, the country introduced a two-year transitional period as a compromise between political forces and social partners:
“Employers were eager to open the labour market. We decided to begin with a two-year transitional arrangement and observe the outcome.”
She recalled that Finland was the first country to lift restrictions after the initial phase, as the anticipated negative impacts did not materialise.
Sandra Manu, Associate Professor at the Centre for Migration Law at Radboud University (Netherlands), addressed the legal and political dimensions of transitional periods. She emphasised:
“What we are discussing today — whether transitional measures should be introduced and in what form — is not, strictly speaking, a legal issue. It is primarily a political one.”
In her opinion, an analysis of previous EU enlargements shows that the arguments in favour of transitional periods are weak:
“Historically, when we examine past EU enlargement waves and their impact on labour markets, there is little evidence to support the need for transitional restrictions.”
Sandra Manu also noted that labour migration is a multidimensional process that transforms not only economies but development models themselves:
“I’m from Romania, and in the IT sector, many people moved from Romania to Germany. Eventually, German companies started relocating to Romania and setting up operations there.”
She cited a debate in the Netherlands, where the question is raised:
“Should companies bring workers to where the jobs are, or go where the workforce is more affordable?”
The experience of EU Member States demonstrates that effective integration into the common labour market requires not only political will but also strong legal and institutional preparedness. Transitional periods are not a universal solution but rather a political tool, used at various times with varying degrees of effectiveness. For Ukraine, this means the need to prepare a well-reasoned position in advance, drawing on past enlargement experiences and current migration trends. Free movement of workers should be viewed not as a threat, but as a resource — provided that policy is supported by the adaptation of education systems, public services, and rights protection frameworks.
Benefits and Risks of Opening Labour Markets Between Ukraine and the EU: Expert Perspectives
The final part of the discussion focused on the socio-economic dimensions of opening labour markets between Ukraine and the European Union. Experts shared their assessments of the potential consequences of this process for national economies, labour markets, and societies as a whole.
Veronika Movchan, Research Director at the Institute for Economic Research and Policy Consulting, stressed the importance of a balanced approach. She noted that Ukrainian workers already residing in EU countries represent critical human capital for Ukraine’s future recovery:
“Those currently living in EU countries are an extremely valuable human resource. They have learned to work in market conditions and acquired new skills. They can become the foundation for rebuilding the country. But there is a risk — if they don’t see opportunities back home, they may not return.”
At the same time, she drew attention to the need to anticipate challenges:
“We must acknowledge that labour mobility also creates certain risks — such as the outflow of specialists from Ukraine and the uneven representation of Ukrainians in different segments of the EU labour market. Many occupy lower positions and do not have equal access to quality employment.”
Vasyl Babych, Senior Economic Policy Analyst at the EasyBusiness think tank, highlighted Ukraine’s internal labour shortage and the strategic need to address it:
“According to our estimates, based on Ministry of Economy and UN data, for Ukraine to sustain GDP growth of 7% from 2022 to 2032, it will need an additional 3.1 to 4.5 million workers. We are already facing a labour shortage — and this need will only increase.”
He also pointed to the potential for reverse labour flows:
“Are there studies on movement from older EU Member States to newer ones? For example, Finns to Estonia or Swedes to Poland? Has this topic been explored at all?”
His comment underlined the importance of viewing the labour market as a two-way system of mobility — not solely a challenge posed by Ukrainian migration.
Olha Makohon, Project Manager at the Reform Office of the Cabinet of Ministers of Ukraine, stressed the need to clearly distinguish between different policy areas regulating mobility:
“We must pay attention to the broader approach being implemented at the EU level — that of managing legal migration. What we associate with the free movement of workers is just one component of this wider process.”
She also pointed out that most current discussions concern nationals of third countries rather than EU citizens:
“Most of today’s conversations are about third-country nationals — not EU citizens. It’s crucial that we don’t conflate these two areas in our internal policy planning.”
Viktoriia Sereda, Lead Coordinator of the Virtual Ukrainian Institute for Advanced Study (VUIAS) at the Institute for Advanced Study in Berlin, placed labour mobility within a broader social context. She focused on the effects of temporary protection and future challenges for Ukraine:
“We have nearly 5 million Ukrainians under temporary protection. As the recovery process begins, many of them will return — if they see opportunities here. But some will stay in the EU. This must be acknowledged and planned for.”
She added that demographic pressures mean Ukraine must already begin shaping strategies for openness to new migration flows:
“Opening the labour market — not only for Ukrainians in the EU but also for foreigners in Ukraine — is not a future issue, it’s a current one. This requires the development of legislation and education policies, because social rights must go hand in hand with economic integration.”
Rodion Kolyshko, Advisor to the Confederation of Employers of Ukraine, highlighted the need to strike a balance between economic efficiency and compliance with labour standards. He noted that Ukrainian employers are already facing an acute labour shortage that cannot be resolved through traditional administrative tools.
He called on Ukraine to take a more proactive stance in shaping its negotiation position on transitional periods:
“Ukraine must determine its priority now — full inclusion in the freedom of movement of workers, or a cautious, gradual approach. But this decision must be based not only on political compromise but also on economic analysis.”
Yaroslav Ruschyshyn, Member of the Ukrainian Parliament, focused on the outdated nature of Ukraine’s current labour legislation and the need for systemic reform:
“Our labour legislation is still based on the assumption that Ukrainians are wage workers. It’s post-Soviet and shaped by that model of labour relations. We need revolutionary changes in the labour market — to experiment, to learn, and to come to the EU negotiations with a different position.”
Panel participants agreed that the opening of labour markets must account not only for economic feasibility, but also for social dimensions. It is not enough to ensure mobility — it must be accompanied by non-discrimination, coherent migration policy models, and structured dialogue between government, employers, and citizens. It was noted that expanded opportunities must be paired with investment in human capital and guarantees of equality.
Thus, the discussion, organised by Europe Without Barriers, became a platform for a professional, in-depth, and open dialogue on freedom of labour in the context of EU integration. Participants from various countries shared valuable experience, analytical insights, and policy recommendations that may help Ukraine navigate the complex but essential path of adapting to EU standards.
Despite the political sensitivity of the topic, both experts and public officials demonstrated a shared vision — to ensure Ukrainians’ full participation in the EU labour market through realistic steps, sound analysis, and careful use of tools such as transitional periods or pilot initiatives. The experience of previous EU enlargements shows: transparency, predictability, and partnership are key to the fair opening of labour markets.
