“This year’s package reconfirms that EU enlargement remains a key priority on the EU agenda. It also shows that accession is increasingly within reach for several candidate countries,” the Commission stated.

Ten countries are officially seeking to join the EU: Montenegro, Albania, Ukraine, Moldova, Serbia, North Macedonia, Bosnia and Herzegovina, Kosovo, and Türkiye.

In its report, the Commission reiterated that the speed of the accession process depends on reforms — especially in democracy, rule of law, and fundamental rights.

European Commission President Ursula von der Leyen emphasised the strategic importance of enlargement, stating that a larger Union means a “stronger and more influential Europe on the global stage.” She stressed that while enlargement is a merit-based process, accession remains “an exceptional opportunity” for committed partners willing to implement the necessary reforms.

The Commission underlined that over the past year, candidate countries have made significant progress. It also committed to helping both the aspiring states and the EU itself prepare for future enlargement, announcing that it will soon present an in-depth review of each candidate’s situation.

The report also stresses that the EU itself must undergo major internal reforms to be ready for new members. Future accession treaties, it argues, should include stronger safeguards preventing backsliding on commitments agreed during negotiations.

Another key priority highlighted by the Commission is effective communication, including efforts to counter disinformation, manipulation, and external interference.

Countries making the most progress

Montenegro

Montenegro has closed four negotiation chapters over the past year and committed to conditionally closing more by the end of 2024. The Commission believes the country is on track to complete negotiations by the end of 2026, provided strong reform momentum continues.

Albania

Albania has also closed four negotiation clusters and made progress on key reforms, particularly in the judiciary and the fight against corruption and organised crime. According to the Commission, finalising negotiations by 2027 will depend on maintaining this pace.

Serbia

The Commission notes growing political polarisation in Serbia, fuelled by mass protests over corruption, lack of transparency, and pressure on civil society. Reform progress has slowed.
The Commission stresses that Serbia must urgently tackle backsliding in freedom of expression and academic freedom, and overcome stagnation in the justice system and fundamental rights.

Bosnia and Herzegovina

Political tensions in Republika Srpska and the collapse of the governing coalition have hindered Bosnia and Herzegovina’s reform efforts, including in data protection, border control, and cooperation with Frontex. Judicial reform should now become the top priority.

Kosovo

In Kosovo, delays in forming institutions after the February elections have slowed down EU-related reforms. The Commission calls for cross-party cooperation, renewed reform efforts, and progress in normalising relations with Serbia.

The Commission also signalled a gradual lifting of the measures imposed on Kosovo in May, provided that local elections lead to an orderly transfer of power in northern municipalities and a sustained de-escalation.

What about Ukraine and Moldova?

The Commission praised Ukraine’s commitment to the accession process despite Russia’s ongoing aggression. Ukrainian authorities have adopted roadmaps for reforms in rule of law, public administration, and democratic institutions, as well as an action plan for national minorities, which the EU assessed positively.

For Moldova, the Commission highlighted persistent hybrid threats and attempts to destabilise the country. Still, Moldova has successfully completed the screening process, and the first EU–Moldova summit took place in July 2025.

Both Ukraine and Moldova now meet the conditions to open three key clusters:

  1. the fundamentals cluster
  2. external relations
  3. the internal market

The Commission aims for both countries to meet the remaining criteria so that the Council can start opening the remaining clusters this year.

Both governments hope to close accession negotiations by the end of 2028. The Commission supports this ambition but stresses that faster reforms are essential.

The most challenging candidates: Türkiye and Georgia

Türkiye

Türkiye and the EU remain at a standstill in their accession talks — frozen since 2018 — yet the Commission continues to view Türkiye as both a candidate country and a key strategic partner.

In line with the European Council conclusions from April 2024, relations are being developed in a gradual, proportionate, and reversible manner based on shared priorities.

However, the Commission raises serious concerns about democratic backsliding, especially regarding the prosecution of opposition figures and numerous arrests undermining fundamental rights and freedoms.

Georgia

Georgia’s accession process has been effectively stalled since last year. According to the Commission, the situation has deteriorated significantly, with the country experiencing “severe democratic backsliding”, especially concerning rule of law and fundamental rights.

The Commission states that under current conditions, Georgia is considered a candidate “in name only” and urges the government to decisively change course.

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