Albania, Montenegro, Ukraine and Moldova are leading the way toward European Union membership, while North Macedonia, Serbia and Bosnia and Herzegovina have fallen behind amid political divisions, stalled reforms, and growing public disillusionment, the European Commission said in its 2025 Enlargement Package published on Tuesday.
The annual report, which assesses each aspiring member’s progress over the past year, reaffirmed that EU enlargement has regained strong political momentum, with Brussels describing it as “increasingly within reach” — provided candidates sustain reforms in democracy, rule of law and human rights.
Albania Advances Rapidly
Albania was singled out as one of the top performers, having opened four negotiation clusters in the past year and nearly completing preparations to open the final one by the end of 2025. The Commission praised Tirana’s progress in justice reform and its fight against corruption and organized crime, but warned that “maintaining reform momentum and inclusive political dialogue” will be key to concluding negotiations by 2027.
“Albania is on track to meet this ambitious objective,” the report said, adding that the country’s achievements reflect growing institutional capacity and political stability compared with its regional peers.
North Macedonia Stuck in Political Gridlock
In contrast, North Macedonia — once seen as a frontrunner in the Western Balkans — has seen its accession process stall. The Commission said Skopje must “take swift and decisive action” to meet the opening benchmarks required to start the first cluster of negotiations.
While the government has worked on roadmaps for judicial reform, public administration and minority rights, the lack of constitutional amendments to include Bulgarians as a recognized community remains a key obstacle. These changes were part of the 2022 EU-brokered deal aimed at resolving disputes with Bulgaria that have repeatedly delayed North Macedonia’s accession path.
“Further action is needed to safeguard judicial independence and strengthen the fight against corruption,” the report warned.
Serbia Faces Deepening Political Polarization
Serbia’s progress has slowed sharply amid nationwide protests, rising political tensions and allegations of corruption and media repression. The Commission cited “an increasingly difficult environment” marked by eroding trust between institutions and citizens, as well as a “serious backsliding” on fundamental rights and freedom of expression.
Brussels urged Belgrade to “urgently reverse the backsliding” and to accelerate long-delayed judicial and electoral reforms, while commending recent alignment with EU foreign policy.
Montenegro and Moldova Lead the Region
Montenegro continues to make “significant progress,” closing four negotiation chapters this year and maintaining momentum toward completing talks by the end of 2026. “Subject to maintaining the pace of reforms, Montenegro is on track to meet this ambitious objective,” the report said.
Moldova, despite facing hybrid threats and attempts at destabilization, has also advanced significantly. After completing its screening process and adopting key reform roadmaps, Chisinau aims to provisionally close accession negotiations by early 2028 — a goal the Commission described as “ambitious but achievable.”
Ukraine Defies the Odds
Ukraine remains “strongly committed” to EU integration despite Russia’s ongoing invasion. Having completed its screening process and adopted reform plans on the rule of law, public administration and minority rights, Kyiv has fulfilled conditions to open several negotiation clusters.
The Commission expects the Council to advance all remaining clusters before the end of 2025 and praised Ukraine’s “resilience and determination.” However, it said faster progress on rule-of-law reforms is essential to meet Kyiv’s goal of closing negotiations by 2028.
Other Western Balkans Show Mixed Results
Bosnia and Herzegovina’s political crisis, particularly in Republika Srpska, has slowed reforms, although the country’s new Reform Agenda could revive its EU path if judicial reforms are finalized soon. Kosovo, meanwhile, remains committed to European integration but must accelerate governance reforms and normalize relations with Serbia to move forward.
Türkiye’s accession talks remain frozen due to democratic backsliding, while Georgia has been described as a “candidate in name only” after its government passed laws curbing civil society and media freedoms.
EU Pushes for Merit-Based Expansion
Commission President Ursula von der Leyen said the EU is “more committed than ever” to enlargement, calling it a “promise of peace, prosperity and solidarity.” But she stressed that progress would remain merit-based.
High Representative Kaja Kallas said enlargement is now moving “faster than at any time in the past 15 years” and could realistically bring new members by 2030. “We cannot afford to lose momentum. The window for enlargement is wide open,” she said.
Commissioner for Enlargement Marta Kos highlighted that 2025 was “a year of significant progress” for several countries. “At the current pace and quality of reforms, accession negotiations may be concluded in the coming years,” she said, adding that a united Europe “is the strongest response to those who seek to divide and destabilize it.”
A New Era for Enlargement
The EU’s enlargement policy has re-emerged as a strategic priority amid rising geopolitical tensions and the war in Ukraine. The report emphasizes that enlargement benefits both current and future member states by promoting stability, boosting trade, and expanding the EU’s single market.
But Brussels insists there will be no shortcuts. As the Commission put it, “enlargement remains a strict, fair and merit-based process — each country will advance only as far as its reforms take it.”
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