North Macedonia’s efforts to align with EU rule-of-law standards are being undermined by entrenched political influence, legal ambiguities, and underfunded institutions, the European Commission said in its annual report released on Tuesday.
The 2025 Rule of Law Report paints a concerning picture of democratic backsliding in key institutions such as the judiciary, prosecution service, and anti-corruption bodies. Despite a formal commitment to EU integration and judicial reform, the report concludes that progress has been slow, inconsistent, and vulnerable to politicisation.
Judiciary under Pressure
The independence of the judiciary remains low, with only 28% of the public and 26% of businesses perceiving the courts as independent—although this marks a slight improvement from 2024. The report highlights direct political pressure, including calls by government officials for the removal of Judicial Council members and an aborted attempt to dismiss the Chief Prosecutor on vague disciplinary grounds.
“These actions risk undermining the legitimacy and independence of judicial institutions,” the Commission warned, citing the use of parliamentary interpellation motions and public smear campaigns targeting judges and prosecutors.
While new digital tools, transparency measures, and rules for merit-based appointments have been introduced, implementation remains patchy. The Judicial Council and the Council of Prosecutors lack consistent procedures and accountability mechanisms. A reformed law on the Judicial Council has been drafted and reviewed by the Venice Commission, but it is yet to be adopted.
Budget Shortfalls and Human Resource Gaps
Chronic underfunding continues to impede judicial performance. In 2025, only 0.31% of GDP was allocated to the judiciary, far below the legally mandated 0.8%. The Public Prosecutor’s Office fared even worse, receiving just 0.22% of the national budget.
Recruitment challenges are acute. More than half of judicial positions remain vacant, and an intake of 130 new trainees at the Academy for Judges and Prosecutors is stalled due to budget constraints. Infrastructure gaps persist, with outdated digital systems and just six IT officers serving the entire court network.
Although some improvements were reported in court digitalisation and transparency, the length of judicial proceedings increased across most case categories. Clearance rates dropped significantly, particularly for second-instance administrative cases, where pending caseloads more than doubled.
Anti-Corruption Institutions Struggle for Impact
The report raises strong concerns about the lack of a credible track record in prosecuting high-level corruption. Despite new investigative units and formal prioritisation of corruption cases by the Chief Prosecutor, many trials continue to stall in court. Delays, lenient sentences, and resource constraints undermine public trust.
The 2023 amendments to the Criminal Code further eroded efforts. These changes reduced penalties for key corruption offences and transferred jurisdiction away from the Special Prosecutor’s Office, leading to the dismissal of several major cases. The Supreme Court upheld a reduced penalty for public procurement abuse, reinforcing perceptions of impunity.
While the State Commission for the Prevention of Corruption (SCPC) remains active in prevention and coordination, it has been criticised for its low enforcement capacity and weak verification of asset declarations. In 2024, half of the activities under the national anti-corruption strategy were not implemented, and the Commission continues to rely heavily on media reports rather than proactive investigations.
Whistleblower protections remain minimal, with many facing retaliation for reporting wrongdoing. A new law is under preparation, but its adoption remains pending.
Media Pluralism and Parliamentary Oversight Lag Behind
Media independence remains fragile. Although the media regulator’s financial autonomy improved, delays in appointing new council members and the reintroduction of state-funded advertising triggered concerns over editorial independence and political influence.
Journalists continue to face online threats, harassment, and poor working conditions. While legislation provides some protections, enforcement is inconsistent, particularly in cases of gender-based violence and defamation. The absence of SLAPP-specific legislation leaves journalists vulnerable to retaliatory lawsuits.
Parliament has adopted new rules of procedure aimed at improving efficiency, but merit-based appointments to independent institutions remain politicised. Legal drafting and public consultations lack transparency, with many laws bypassing regulatory impact assessments or stakeholder review.
EU Calls for Renewed Commitment
The European Commission urged North Macedonia to uphold the separation of powers, restore legal clarity in the judiciary, and reverse the negative effects of recent criminal law changes. It also called for improved transparency in political party financing, greater protection for journalists, and effective implementation of anti-corruption reforms.
“These shortcomings risk undermining public confidence and weakening the country’s EU accession path,” the Commission stated.
North Macedonia, a candidate country since 2005, opened EU accession negotiations in 2022. Sustained rule-of-law reforms remain a key benchmark for further progress in the enlargement process.