2025 Enlargement Package shows progress towards EU membership for key enlargement partners

This article is brought to you in association with the European Commission.

Today, the European Commission adopted its annual Enlargement Package, presenting a comprehensive assessment of the progress made by the enlargement partners over the past twelve months. This year’s package reaffirms that the momentum for enlargement stands high on the priority agenda of the EU. It also confirms that the accession of new Member States is increasingly within reach.

Staying consistent and following a merit-based approach is key to successful EU accession. Montenegro, Albania, Ukraine, the Republic of Moldova, Serbia, North Macedonia, Bosnia and Herzegovina, Kosovo, Türkiye and Georgia continue their respective paths towards the EU. The pace of their reforms, in particular in the areas of democracy, the rule of law and fundamental rights, directly impacts the speed of accession. These advancements benefit both aspiring Member States and current EU Member States, fostering prosperity, democracy, security and stability while unlocking new opportunities for citizens and businesses, such as strategic investments and opening of the Single Market.

Ursula von der Leyen, President of the European Commission said: “We are more committed than ever to turning EU enlargement into a reality. Because a larger Union means a stronger and more influential Europe on the global stage. But enlargement is a merit-based process. Our package provides specific recommendations to all our partners. And to all of them we say: EU accession is a unique offer. A promise of peace, prosperity and solidarity. With the right reforms and a strong political will, our partners can seize this opportunity.”

The assessments, accompanied by recommendations and guidance on the reform priorities, provide a roadmap for enlargement partners toward EU membership. The Commission remains fully committed to supporting future Member States in this journey. Gradual integration of the aspiring Members into the Single Market strengthens ties with the Union already before their accession. Significant progress has been achieved over the past year. With enlargement as a clear policy goal in this mandate, the Commission is committed to ensuring both the readiness of aspiring members as well as the EU’s preparedness to welcome them. To this end, a Communication on in-depth policy reviews and reforms will be presented soon.

To ensure that new Member States continue to safeguard and maintain their track-record on the rule of law, democracy and fundamental rights, future Accession Treaties should contain stronger safeguards against backsliding on commitments made during the accession negotiations.

Effective communication, as well as countering foreign information manipulation and interference, including disinformation is a strategic imperative.

The Commission also stands ready to support Member States’ effort to further anchor public trust in the process and help enlargement move forward with the legitimacy it needs.

Main conclusions

Montenegro has marked significant progress toward EU accession, closing four negotiation chapters over the last year. Montenegro’s commitment to provisionally closing further chapters by the end of 2025 reflects its dedication to European integration. Maintaining steady progress on reforms and seeking continuous broad political consensus are crucial for achieving the country’s target to close accession negotiations by the end of 2026. Subject to maintaining the pace of reforms, Montenegro is on track to meet this ambitious objective.

Albania has made significant progress, with four clusters opened over the last year. Preparations for the opening of the last cluster this year are well advanced. Progress has been achieved on the fundamentals, particularly on justice reform and in the fight against organised crime and corruption. Continued efforts are now needed to meet the interim benchmarks under the fundamentals, which will pave the way to start closing negotiating chapters once the necessary sector reforms have been made. Achieving Albania’s goal of concluding negotiations by 2027 depends on maintaining reform momentum and fostering inclusive political dialogue. Subject to maintaining the pace of reforms, Albania is on track to meet this ambitious objective.

Despite Russia’s unrelenting war of aggression, Ukraine remains strongly committed to its EU accession path, having successfully completed the screening process and advanced on key reforms. Ukraine has adopted roadmaps on the rule of law, public administration, and the functioning of democratic institutions, as well as an action plan on national minorities, which the Commission assessed positively. Ukraine has met the conditions required to open clusters: one (fundamentals), six (external relations), and two (internal market). The Commission expects Ukraine to meet the conditions to open the remaining three clusters and works to ensure that the Council is in a position to take forward the opening of all clusters before the end of the year. The Ukrainian government has signalled its objective to provisionally close accession negotiations by the end of 2028. The Commission is committed to support this ambitious objective but considers that, to meet it an acceleration of the pace of reforms is required, notably with regards to the fundamentals, in particular rule of law.

In the face of continuous hybrid threats and attempts to destabilise the country, Moldova has significantly advanced on its accession path, successfully completing the screening process. The first EU-Moldova summit in July 2025 marked a new stage of cooperation and integration. Moldova has adopted roadmaps on the rule of law, public administration, and the functioning of democratic institutions, which the Commission assessed positively. The Commission’s assessment is that Moldova has met the conditions required to open clusters: one (fundamentals), six (external relations), and two (internal market). The Commission expects Moldova to also meet the conditions to open the remaining three clusters and works to ensure that the Council is in a position to take forward the opening of all clusters before the end of the year. The government of Moldova has signalled its objective to provisionally close accession negotiations by early 2028. The Commission is committed to supporting this objective, which is ambitious but achievable, provided Moldova accelerates the current pace of reforms. Sustaining reform momentum is crucial, reinforced by strong parliamentary support for the country’s European path following elections in September.

The polarisation in Serbian society has deepened against the background of mass protests taking place across Serbia since November 2024, reflecting disappointment of citizens over inter alia corruption and the perceived lack of accountability and transparency coupled with instances of excessive use of force against protestors and pressure on civil society. This has led to an increasingly difficult environment where divisive rhetoric has led to a serious erosion of trust amongst the stakeholders which, in turn, impacts the accession process. Reforms have significantly slowed down. While acknowledging some recent developments, such as the relaunch of the procedure of selection of the new Council of the regulatory body for electronic media (REM) and progress in the legislative process on the Law on a unified voter register, which now need to be completed and implemented, as well as a recent increase in alignment with the EU’s common foreign and security policy, which needs to be pursued, more needs to be done. Serbia is expected to overcome the standstill in the area of judiciary and fundamental rights overall and urgently reverse the backsliding on freedom of expression and the erosion of academic freedom. The Commission assessment from 2021 that Serbia had fulfilled the opening benchmarks for cluster 3 (competitiveness and inclusive growth) remains valid.

North Macedonia continued its work on the roadmaps for the rule of law, public administration reform, and the functioning of democratic institutions, as well as on the action plan on the protection of minorities. Further swift and decisive action is needed on the opening benchmarks, in line with the negotiating framework, with a view to opening the first cluster as soon as possible and when relevant conditions are met. North Macedonia should intensify efforts to uphold the rule of law, by safeguarding judicial independence and integrity, and strengthening the fight against corruption. The Country also needs to adopt the necessary constitutional changes with a view to including in the Constitution citizens who live within the borders of the state and who are part of other people, such as Bulgarians, as outlined in the Council Conclusions of July 2022, which the country committed to launch and achieve.

In Bosnia and Herzegovina, the political crisis in the Republika Srpska entity and the end of the ruling coalition have undermined EU accession progress, resulting in limited reforms, namely on data protection and border control, as well as the signature of the Frontex status agreement. On a positive note, Bosnia and Herzegovina submitted in September 2025 its Reform Agenda to the European Commission. Following recent institutional changes in the Republika Srpska entity, Bosnia and Herzegovina has the opportunity to deliver on reforms on the EU path. To effectively start accession negotiations, authorities must in the first place finalise and adopt judicial reform laws, in full alignment with European standards, and appoint a chief negotiator.

Kosovo has remained committed to its European path, with a high level of public support. The delay in forming the institutions following the February general elections slowed down EU-related reform progress. Forging cross-party cooperation and re-prioritising these reforms is necessary for Kosovo to get back on track of its EU path. Normalisation of relations with Serbia and implementation of Dialogue commitments remain an integral part of Kosovo’s European perspective. The Commission stands ready to prepare an Opinion on Kosovo’s membership application, if requested by the Council. The Commission has taken the first steps to gradually lift measures against Kosovo in place from May 2025. The next steps remain conditional on sustained de-escalation in the north. The Commission intends to further lift these measures provided an orderly transfer of local governance in the north is achieved following the second round of the local elections and de-escalation is sustained.

Türkiye remains a candidate country and key partner for the EU. In line with the European Council conclusions of April 2024, the EU has advanced relations with Türkiye in a phased, proportionate and reversible manner, engaging on shared priorities. The resumption of Cyprus settlement talks is a key element of cooperation. At the same time, the increasing legal actions against opposition figures and parties, alongside multiple other arrests, raise serious concerns about Türkiye’s adherence to democratic values. While dialogue on the rule of law remains central to EU-Türkiye relations, the deterioration of democratic standards, judicial independence, and fundamental rights has yet to be addressed. Accession negotiations with Türkiye remain at a standstill since 2018.

In 2024, the European Council concluded that Georgia‘s EU accession process was de facto halted. Since then, the situation has sharply deteriorated, with serious democratic backsliding marked by a rapid erosion of the rule of law and severe restrictions on fundamental rights. This includes legislation severely limiting civic space, undermining freedom of expression and assembly, and violating the principle of non-discrimination. Georgian authorities need to urgently reverse their democratic backsliding and undertake comprehensive and tangible efforts to address outstanding concerns and key reforms supported by cross-party cooperation and civic engagement, in line with EU values. Following the December 2024 European Council Conclusions and in light of Georgia’s continued backsliding, the Commission considers Georgia a candidate country in name only. The Georgian authorities must demonstrate resolute commitment to reverse course and return to the EU accession path.

Next steps

It is now for the Council to consider today’s recommendations of the Commission and take decisions on the steps ahead in the enlargement process.

Background

Enlargement is a strict, fair and merit-based process, based on the objective progress of each enlargement country. The EU supports the strengthening of institutions, democratic governance and public administration reforms across these countries.

By fostering gradual integration, the EU brings benefits even before the accession. Initiatives such as the €6 billion Growth Plan for the Western Balkans, the €1.9 billion Moldova Growth Plan, and the €50 billion Ukraine Facility allow countries advance in their reforms, as well establish stronger connection with the EU, such as through gradual integration and the participation in SEPA and “Roam Like at Home”.

Each enlargement has made our Union stronger. When ten countries joined the EU in 2004, it marked the Union’s largest ever expansion. In the two decades since, newcomers have seen living standards double, unemployment fall by nearly half, life expectancy rise from 75 to 79 years, poverty and social exclusion drop sharply, and 6 million new jobs created. For the existing members, trade has multiplied more than fivefold ever since, while 20 million jobs have also been created. For the EU as a whole, the Single Market gained 74 million new consumers at the time and the EU economy has expanded by 27% despite global crises.