enr - Brussels

10 November 2024

On October 30, the European Commission adopted the 2024 enlargement reports that provide a detailed assessment of the progress made by the countries aspiring to join the European Union. The reports cover progress on the EU paths of Georgia, Moldova, Ukraine, Türkiye and Western Balkans countries (Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North Macedonia, Serbia). 

The assessments are accompanied by recommendations and guidance on the reforms each candidate needs to prioritise in order to progress in the accession negotiations.

At the end of October, the President of the European Commission, Ursula von der Leyen, travelled  to the countries of the Western Balkans on a four-day trip and visited six countries seeking to join the EU – Albania, Bosnia and Herzegovina, Kosovo, North Macedonia, Montenegro and Serbia. 

Von der Leyen pledged that EU enlargement would be high on the agenda in Brussels. “Rest assured that enlargement will remain a top priority in my next mandate,” von der Leyen said in a joint press conference with Albanian Prime Minister Edi Rama in Tirana.

Discussions around EU enlargement in the region of around 16,6 million people stretch back 20 years, with Brussels blowing hot and cold during that period. 

While it is not currently possible to assess whether the incoming European Council President António Costa will prioritise enlargement to the Western Balkans, his last visit as Portugal’s Prime Minister was to the Western Balkans.

Costa also said that the EU should “start preparing now” for the enlargement process, so that it has “the conditions to receive the ones it is inviting”.

The enlargement portfolio in the next European Commission (2024-2029) is to be held by the Slovenian candidate, Marta Kos. In her answers to questions by MEPs before this week’s hearing, she said that tackling blockages in EU enlargement would be one of her main tasks during her five-year term if appointed.

Kos also pointed out that bilateral issues causing delays should be addressed swiftly. Among her short-term goals will be the progress on the candidates’ EU-path, which more specifically means the EU closing accession talks with Montenegro, opening the remaining sets of chapters with Albania, and opening the first set of chapters with North Macedonia, Ukraine and Moldova. 

While paying particular attention to the rule of law chapters, Kos stressed that enlargement must remain a process based on the achievements of the candidate countries in order to make it credible and sustainable.

Status quo on EU enlargement:

GEORGIA | Membership status: candidate country

Georgia received a predictably negative report card. According to the report, there have been worrying developments since March 2024 that do not reflect the government’s declared commitment to the EU path. Among other things, it criticised shortcomings in the recent parliamentary elections, such as inconsistencies in the procedures as well as intimidation and pressure on voters.

The former Soviet republic on Russia’s southern border elected a new parliament on October 26. The election organisers declared Georgia’s ruling pro-Russian party Georgian Dream the winner. The pro-European opposition and the president consider the result to be falsified.

“Should there be a political will from Georgia’s leadership, we are offering a clear path for re-engagement on the way to the European Union – the repeal of the law on foreign influence,” EU foreign policy chief Josep Borrell said.

The enlargement report also warned: “Unless Georgia reverts the current course of action which jeopardises its EU path (…) the Commission will not be in a position to consider recommending opening negotiations with Georgia.”

Georgia became a candidate country in December 2023. However, Brussels has put the rapprochement on hold due to several repressive laws that the ruling party has pushed through this year.

MOLDOVA | Membership status: candidate country

In the case of Moldova, the European Commission stressed that the adoption of EU legislation is progressing “smoothly” and that, subject to the country meeting all the conditions, the European Commission is looking forward to opening negotiations on chapters, starting with the core aspects, “as soon as possible in 2025”.

On October 20, Moldova voted by a wafer-thin majority to enshrine a pro-EU course into the constitution, after a referendum beset with accusations that Russia tried to manipulate the vote. With all the votes counted, 50.46 percent of voters approved the constitutional change.

Also, Moldova’s pro-European president, Maia Sandu, has won a second term as president.  Moldovan citizens are sending a message: they want the country’s future to be in the EU.

Moldova became a candidate country in June 2022. Accession negotiations opened in June 2024.

UKRAINE | Membership status: candidate country

According to the European Commission, the negotiations for Ukraine’s accession to the EU should become more concrete in the coming year – similar as in the case of Moldova. Despite Russia’s war of aggression, the country has continued its strong commitment to reforms in many areas, according to the report.

Provided that Ukraine fulfils all conditions, it is therefore hoped that negotiations on basic principles can begin “as soon as possible in 2025” as well. These include the topics of fundamental rights, justice, freedom and security as well as financial control.

Ukraine became a candidate country in June 2022. Accession negotiations opened in June 2024.

TÜRKIYE | Membership status: candidate country

The report highlights a “gradual restart” of relations between the EU and Türkiye and “concrete steps” towards constructive exchanges on issues of common interest. However the Commission notes that Türkiye, with which accession negotiations have been frozen since 2018, has not reversed the negative trend observed in recent years of the continuous deterioration of democratic standards.

Türkiye became a candidate country in December 1999. Accession negotiations opened in October 2005.

Western Balkan countries:

ALBANIA | Membership status: candidate country

The European Commission considered it “crucial” that the pace of reforms aimed at the EU be intensified. Albania opened the first chapter of accession negotiations with the European Union on October 15. 

Albania’s PM, Edi Rama, assessed this moment as historic. “The opening of the chapters is a great achievement and marks a historical milestone… Every success that Albania has achieved in the EU process should be seen as a step for the entire region. There is no other future for Albania,” said Rama. 

The first chapter includes several essential areas such as justice, the judiciary, the functioning of democratic institutions, public procurement and the reform of public administration. Progress in this group will determine the overall pace of negotiations. Albania has waited several years to open membership negotiations. 

Albania became a candidate country in June 2014. Accession negotiations opened in July 2022. In the latest report, the European Commission set a goal to close the accession negotiations with the country by the end of 2027.

BOSNIA AND HERZEGOVINA (BiH) | Membership status: candidate country

According to the latest enlargement report, there has been a stagnation in the reform process in Bosnia and Herzegovina (BiH) since March this year, although the authorities in BiH had previously “undertaken concrete reforms”. The positive developments have been “hampered” by “developments in Republika Srpska” (the Bosnian entity with a Serb majority), including “continued secessionist rhetoric”. 

The country’s authorities have shown a willingness to reach an agreement and accelerate the reform process by the end of the year.

Bosnia and Herzegovina received candidate status in December 2023 and accession negotiations were opened in March 2024.

KOSOVO | Membership status: potential candidate

Regarding Kosovo, the European Commission said in the report that it was available to prepare an opinion on the application for entry as soon as the European Council requests it. 

The EU member countries that do not recognise the independence of Kosovo are Spain, Slovakia, Cyprus, Romania and Greece.

Kosovo applied for EU membership in December 2022.

MONTENEGRO | Membership status: candidate country

The European Commission recalled that in June this year it was confirmed that the country met the provisional reference criteria for the chapters related to the rule of law, which gives the opportunity to provisionally close other sections “if the conditions are met”. Even so, the Commission pointed out that more progress is needed in the rule of law and the judiciary.

Montenegro became a candidate country in December 2010. Accession negotiations opened in June 2012. In the latest report the Commission set a goal to close the accession negotiations with the country by the end of 2026.

NORTH MACEDONIA | Membership status: candidate country

North Macedonia has consistently stated its political commitment to the strategic goal of EU integration and its ambition to move forward in the accession negotiations, outlined the report. It also noted that essential EU-related reforms need to be implemented. North Macedonia maintained good relations with other enlargement countries and continued its engagement in regional initiatives.

According to negotiations framework adopted in July 2022, North Macedonia must complete constitutional changes for including the Bulgarians in its constitution, along with Croats, Montenegrin, Jews and other minorities as “parts of ethnic groups living in the country”.

In conclusions from December 2023 European Council was stated: “The European Union is ready to complete the opening phase of the accession negotiations with North Macedonia as soon as it has implemented its commitment to complete the constitutional changes as referred to in the Council conclusions of 18 July 2022, in line with its internal procedures. The European Council calls on North Macedonia to accelerate the completion of these changes”.

North Macedonia became a candidate country in December 2005. Accession negotiations opened in July 2022.

SERBIA | Membership status: candidate country

Serbia met the criteria to open negotiations on the sections related to competitiveness and inclusive growth. The European Commission assured that in the coming year the country is expected to accelerate work on the implementation of reforms linked to entry into the EU.

“The independence and impartiality of the judiciary needs to be further improved in the higher-level courts and in the courts of first instance,” the report stressed.

“We are on the EU path and the EU is our largest external trade partner, and we have set an objective for ourselves to meet all the commitments through the Growth Agenda and the reform agenda by 2027, regardless of whether we will be a member (by that time) or not,” said Serbian President Aleksandar Vučić, commenting on the annual enlargement report.

Serbia became a candidate country in December 2010. Accession negotiations opened in June 2012.

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