Bosnia and Herzegovina’s long-delayed journey toward European Union membership has stalled again, as deep political divisions and growing defiance from the Serb-majority Republika Srpska threaten to reverse fragile gains, the European Commission said in its 2025 annual enlargement report published on November 4.
The EU executive acknowledged Bosnia’s “important symbolic step” earlier this year when Brussels recommended the opening of accession talks, but warned that the country remains “seriously constrained by institutional fragmentation, politicisation, and persistent challenges to the constitutional order.”
Political confrontation and institutional paralysis
The report describes a country mired in political gridlock and constitutional tension. The authorities of Republika Srpska (RS), led by Milorad Dodik, have continued to reject the legitimacy of state institutions, passing laws to block the decisions of the Constitutional Court and the Office of the High Representative (OHR).
“The continued legislative and political acts that undermine the constitutional framework pose a serious threat to the rule of law and the Dayton Peace Agreement,” the Commission said.
At the state level, the tripartite Presidency and the Council of Ministers functioned irregularly, often paralysed by ethnic vetoes and disputes between Bosniak, Croat and Serb representatives. The absence of an effective coordination mechanism between state, entity and cantonal levels has slowed the alignment of national laws with EU standards.
Rule of law and corruption: persistent weaknesses
Despite some legislative progress, the judiciary remains politically influenced and inefficient. The appointment of judges and prosecutors continues to lack transparency, and disciplinary procedures within the High Judicial and Prosecutorial Council (HJPC) are inconsistent.
The adoption of a new Law on Courts and the Law on Conflict of Interest were hailed as progress, yet implementation remains weak. “Corruption remains pervasive in all areas of public life,” the Commission noted, adding that final convictions in high-level cases are “rare and inconsistent.”
The Agency for Prevention of Corruption still lacks independence and enforcement power. Meanwhile, the re-criminalisation of defamation by the RS parliament drew harsh criticism from the EU and media watchdogs, who warned that it represents “a serious setback for freedom of expression.”
Threats to fundamental rights and civic space
The Commission raised alarm over RS’s proposed “foreign agents” law, which would require NGOs receiving foreign funding to register with authorities, mirroring similar laws in Russia and Hungary. Civil society groups and journalists continue to face harassment, particularly in Banja Luka, where authorities have curtailed access to information and limited peaceful assembly.
At the same time, hate speech and ethnic discrimination remain widespread, with little state-level coordination to counter them. The report said that “systemic efforts to promote tolerance and equality are lacking.”
Slow reform and economic fragility
Bosnia’s public administration reform has largely stalled. Merit-based recruitment and depoliticisation of the civil service remain unfulfilled commitments. The country’s fragmented governance – with 14 governments at different levels – continues to hinder efficiency and policy coherence.
Economic governance also remains weak. Although Bosnia recorded modest GDP growth in 2024 and early 2025, inflation and unemployment remain high. The fiscal framework is fragmented between entities, and public enterprises continue to suffer from political interference and poor management.
Nevertheless, some progress was made in digitalisation and energy efficiency through EU-supported projects. The Commission also acknowledged the adoption of a green transition strategy and the establishment of a business registration portal at the state level.
Steps forward amid stagnation
The EU credited Sarajevo with advancing several key reforms linked to the 14 priorities set in 2019, including anti-money laundering legislation and partial improvements in public procurement oversight.
At the international level, Bosnia maintained alignment with the EU’s Common Foreign and Security Policy (CFSP), including sanctions against Russia. The country’s foreign policy alignment was described as “largely consistent and constructive.”
Critics warn of growing instability
The Venice Commission and OSCE expressed deep concern over Republika Srpska’s secessionist rhetoric and legal defiance, calling it “an attack on the constitutional order.” Civil society organisations condemned what they described as a “creeping authoritarianism” under Dodik’s leadership, warning that democratic space is shrinking.
GRECO and Transparency International highlighted continued “political interference in judicial and law enforcement bodies” and a “culture of impunity for corruption.”
A fragile frontrunner
While Bosnia and Herzegovina’s EU perspective received a boost in 2025, the European Commission cautioned that without “tangible and credible implementation of reforms,” progress risks stalling.
“Formal adoption of laws must be followed by concrete enforcement,” the report concluded. “Political will and respect for the constitutional framework remain indispensable for the country’s European path.”
The analysis suggests that Bosnia’s EU journey is at a crossroads: negotiations may open soon, but political defiance, ethnic division, and weak institutions could yet turn a symbolic breakthrough into another lost opportunity.