The European Union’s internal reform process, seen as a prerequisite for future enlargement, remains incomplete despite previously set deadlines. The European Commission was expected to deliver in-depth policy reviews by spring 2025, but the deadline has passed with little progress. While work is reportedly ongoing, uncertainty remains over how far reforms will go.
The Danish Presidency of the Council of the EU, which began on July 1, has pledged to address the issue during its six-month term. However, concrete steps are still pending, with the Commission stating only that policy reviews are “advancing and will be completed in due course.”
Internal EU reform has long been viewed as essential for ensuring the bloc can function effectively with an expanded membership. Proposals under discussion include mechanisms to safeguard the rule of law, changes to the EU’s common budget, and institutional reforms affecting areas such as energy, migration, and, most notably, decision-making.
One of the most controversial topics is reforming the EU’s unanimity rule in foreign policy, taxation, and social issues. With each new member state, reaching consensus becomes more difficult, increasing the risk of veto abuse—a challenge the EU has already experienced.
Despite momentum in the enlargement process—particularly for Ukraine, Moldova, Montenegro, and Albania—internal reform efforts are lagging. The Commission released a document in March outlining the need for pre-enlargement reforms but acknowledged the lack of consensus among member states.
In a debate in the European Parliament on June 19, Commissioner Ekaterina Zaharieva confirmed that policy reviews are underway and said the Commission supports expanding qualified majority voting where possible, without changing the EU treaties.
A study commissioned by France and Germany in 2023 proposed sweeping changes to the structure and operation of the EU, drawing attention to the need for reform as the bloc contemplates its next wave of enlargement.
While the European Council touched on enlargement in its June 2025 meeting, internal reforms were notably absent from the agenda, as discussions focused on Ukraine, the Middle East, and EU defense and competitiveness.
Analysts remain skeptical. Janis Emmanouilidis, Deputy Chief Executive of the European Policy Centre in Brussels, told European Western Balkans he expects the Commission to release its policy reviews this autumn, but doubts they will be sufficiently bold—particularly on governance and financing.
“I fear the Commission will not dare to go far enough,” he said. “Most EU member states remain cautious on both enlargement and internal reform. The gap between political rhetoric and practical action is unlikely to close soon.”
Slightly more optimistic is Strahinja Subotić of the European Policy Centre in Belgrade. He noted that the upcoming negotiations on the EU’s Multiannual Financial Framework (2028–2034) could include earmarked funds for candidate countries—a political signal that enlargement is expected in the next decade.
Subotić added that Denmark, now part of the informal “friends of qualified majority voting” group, could support extending this method to enlargement decisions.
“A draft accession treaty for Montenegro is actively being drafted. Progress with Albania is also on the agenda, and efforts continue to overcome Hungary’s veto on Ukraine and Moldova,” Subotić said. “In this context, internal reforms must follow.”
Whether Denmark can meet expectations during its presidency remains to be seen. The next six months will likely determine whether the EU can move forward on the twin tracks of internal reform and enlargement—both critical for its future role on the global stage.