Georgia and the European Union: Outcomes of a Four-Year Period

By Malkhaz Matsaberidze

Tuesday, January 20, 2026

The relationship between Georgia and the European Union in 2021-2025 can be assessed as a period of historic opportunities, yet simultaneously one of unprecedented regression and crisis. This period ended with a paradox: Georgia has never been so close to the European Union institutionally (in terms of status) and, at the same time, so far away in terms of values and politics.

This four-year cycle is divided into three main stages:

2021-2022: Formal Rapprochement and First Cracks

On March 17, 2021, the so-called "Association Trio"-an agreement between Ukraine, Georgia, and Moldova to accelerate EU integration-was officially signed in Kyiv. Following the 2020 parliamentary elections in Georgia, a political crisis emerged. The opposition accused "Georgian Dream" of rigging the elections and refused to enter Parliament.

In 2021, the EU actively intervened to defuse the internal political crisis. The so-called "Charles Michel Agreement" was signed-the opposition was to enter Parliament, and parties were to work together toward EU approximation. However, for "Georgian Dream," the desire for European integration was merely political rhetoric. "Georgian Dream's" withdrawal from the Charles Michel Agreement created the first serious instance of mistrust.

2022-2023: The Geopolitical Leap

Russia's invasion of Ukraine in February 2022 significantly dispelled the "Georgian Dream's" strategic ambiguity. The country effectively found itself leaning toward Russia, and the ruling party justified its alignment with Moscow by claiming it was the only way to prevent a 'second front' of the war. At the same time, against the backdrop of the war in Ukraine, the EU opened the door for enlargement. Shortly after the war began, on February 28, 2022, Ukraine officially applied for EU membership. A few days later, on March 3, Georgia and Moldova took the same step.

On June 23, 2022, the European Council made a historic decision that laid the foundation for a new stage of EU accession for the "Associated Trio" (Ukraine, Moldova, Georgia). The specific decisions were distributed as follows: The EU granted Candidate Country Status to Ukraine and Moldova. This decision was based on the proviso that the countries would continue reforms in priority areas defined by the European Commission (justice, fighting corruption, etc.).

Regarding Georgia, the European Council used a different formulation: it recognized Georgia's European perspective, meaning that Georgia will definitely become a member of the European Union in the future, provided it meets the relevant criteria. It expressed readiness to grant Georgia candidate status once the country fulfills the 12 priorities identified by the European Commission (the so-called 12 points).

The EU's 'decoupling' of Georgia from Ukraine and Moldova was driven by several fundamental reasons. Although Georgia was often a leader from a technical standpoint (legislative approximation), political criteria played the decisive role.

Primarily, this was due to democratic backsliding and political polarization. According to the European Commission's assessment, a slowdown in the pace of democratic reforms was observed in Georgia. Special emphasis was placed on: A) Extreme polarization: The acute confrontation between the ruling party and the opposition hindered the proper functioning of state institutions. B) Judicial reform: The EU was dissatisfied with the 'clan-based rule' within the court system and the insufficient pace of reforms.

Granting candidate status to Ukraine was a strong signal of moral and political support against the backdrop of Russian aggression. Moldova, as a vulnerable country directly affected by the war, also received this political 'push'.

In Georgia's case, however, Brussels considered that the country first needed to focus on internal reforms. It recognized Georgia's European perspective, meaning that Georgia would definitely become an EU member in the future if it met the relevant criteria. The EU did not 'abandon' Georgia; rather, it gave it an individual assignment. In exchange for status, the country was required to take specific steps-12 priorities were identified. These included: depolarization, independence of institutions, a free media environment, and the fight against organized crime.

In December 2023, Georgia received candidate status; this was the result of the people's will and the geopolitical climate, rather than the perfect execution of reforms. The status was accompanied by 9 Steps, which primarily concerned democratic reforms and the fight against disinformation.

2024-2025: "De Facto" Suspension and Isolation

In 2024, the adoption of the "Law on Transparency of Foreign Influence" (the so-called "Russian Law") and other controversial initiatives represented an "anti-European turn"-relations between Georgia and the EU reached a critical point.

The European Union officially announced that Georgia's accession process is halted. High-level visits and a portion of financial aid were stopped.

Georgia found itself in isolation, where it is formally a candidate but has practically become separated from the other members of the "Trio" (Ukraine and Moldova), who advanced to the stage of accession negotiations.

The EU's position is clear: to renew the process with Georgia, what is needed are not merely promises, but concrete actions confirming that Georgia remains committed to democratic values.

Here are the main conditions set by European leaders and the European Commission:

1. Repeal or amendment of controversial legislation-this is the primary "red line". The EU demands the repeal of the "Law on Transparency of Foreign Influence," because it directly contradicts freedom of association and the functioning of civil society. [It also calls for] the revision of the anti-LGBT legislative package so that it comes into compliance with European human rights standards.

2. Electoral reform and investigation of violations - since the 2024 elections raised many questions, the EU demands: an independent investigation: effective investigation of systemic violations recorded at the elections (vote buying, intimidation, violation of vote secrecy). Implementation of OSCE/ODIHR recommendations: to ensure a fair environment for future elections.

3. Cessation of anti-Western rhetoric - to renew the process, restoring trust is necessary, which involves stopping disinformation - stopping propaganda directed against the EU and its partners (e.g., the "Global War Party" narrative). Constructive dialogue - changing the hostile tone toward Brussels to partner-like cooperation.

4. Return to the "Nine Steps" agenda - the EU emphasizes that previously issued recommendations remain valid: real independence of the judicial system, reform of the High Council of Justice, and liberation from political influences. Depolarization - cessation of political persecution and starting dialogue with the opposition/civil sector. Independence of the Anti-Corruption Bureau - creation of real mechanisms for fighting against high-level corruption.

If Georgia takes these steps, the EU is ready to: restore suspended financial aid; open accession negotiations, which will give the country access to IPA funds amounting to billions of euros; and return Georgia to the dynamics of the "Association Trio" so that the country does not fall behind Ukraine and Moldova. In short, the ball is now in the Georgian government's court. The EU declares that the door is open, though to enter it, the country must continue to play by European rules.