On 30 October, the European Commission Enlargement unveiled its fifth Enlargement Package. Prepared by the Directorate-General for Neighbourhood Policy and Enlargement Negotiations (DG NEAR), it includes a Communication setting out the Commission’s recommendations, as well as detailed reports assessing the current status and progress of candidate countries Albania, Bosnia and Herzegovina, Georgia, Moldova, Montenegro, North Macedonia, Serbia, Türkiye, Ukraine and potential candidate Kosovo on their paths toward membership to the European Union (EU).

The 2024 Enlargement Package reaffirms that EU accession remains a key driver of long-term security, peace, stability and prosperity in Europe, enhancing the EU’s competitiveness and influence on the international stage. It highlights the newly gained momentum for enlargement and the need to anchor countries aspiring to join the EU through gradual integration as a tool to facilitate technical preparations for EU membership, accelerate the acquis alignment and smoothens the accession process. The report also underlines the increased need for unity and solidarity between the EU and its closest partners and the importance of common foreign and security policy (CFSP) alignment.

Within the country specific recommendations, the European Commission encourages Albania to accelerate the pace of reforms on the rule of law, consolidating the track record on law enforcement, on effectively fighting corruption and organised crime, and the promotion of fundamental rights. Bosnia and Herzegovina is urged to build administrative capacity to strengthen state institutions and to appoint a chief negotiator and their team as well as to develop a national plan for the adoption of the EU acquis.

Kosovo needs to intensify its efforts to strengthen the rule of law and public administration and to protect freedom of expression. Further, the Kosovan government is urged to forge cross-party political support to pursue EU-related reforms more effectively and to implement the Agreement on the Path to Normalisation with Serbia.

Montenegro, as a frontrunner in the accession process, who put forward the objective to close accession negotiations by the end of 2026, should finalise negotiations by consolidating reforms, especially in public administration and rule of law.

For North Macedonia, the Commission urges the country to take the necessary steps to implement EU-related reforms, in particular in the area of the rule of law, justice and the fight against corruption and to strengthen trust in the justice system.

Serbia is expected to align with the EU’s common foreign and security policy and thus to refrain from actions and statements that contradict EU positions. Serbia is further expected to step up its efforts around democratic reforms, enhance media freedom, and normalise relations with Kosovo by implementing the Agreement on the Path to Normalisation. The Commission reiterates its assessment for the third year that Serbia has fulfilled the benchmarks to open cluster 3 (Competitiveness and inclusive growth). This, however, was so far not supported by the Council.

Turkey is advised to revitalise its democratic institutions and address human rights concerns, while maintaining cooperation on migration and regional stability.

The Commission recommends prioritising infrastructure and economic cohesion in Ukraine within the context of post-war reconstruction, while enhancing the rule of law and anti-corruption efforts. Furthermore, subject to Ukraine meeting all the conditions, the Commission is planning to open negotiations on clusters as soon as possible in 2025.

Moldova, praised in the report for its effective efforts, is expected to improve its governance structures and market orientation to strengthen its candidacy, while the Commission plans to open negotiations on clusters as soon as possible in 2025.

The course of action taken by the Georgian government since spring 2024 jeopardises Georgia’s EU path, de facto halting the accession process. Thus, the Commission is calling for further democratisation, solid reforms with regard to the rule of law, judicial independence, and fundamental rights and stronger alignment with the EU’s common foreign and security policy (CFSP).

Given the ongoing Russian war of aggression against Ukraine and Russia’s illiberal efforts to bind Eastern European and Western Balkan countries closer, enlargement is bound to be central in the next five years. It is therefore key that substantial progress in the accession process will be made.

Within the EU institutions, the European Parliament has been the strongest advocate for further enlargement, seeing it as an imperative to enhance geopolitical stability and security, democracy and economic prosperity in Europe.

Finally, although Commission President Ursula von der Leyen has refrained from outlining more concrete measures and actions, in her political guidelines and in her mission letter to Commissioner-designate for Enlargement Marta Kos, she pledged to step up efforts for further enlargement and to increase support for the candidate countries’ preparations for membership.

 Key Texts 

• European Commission: 2024 Communication on EU Enlargement Policy
• European Parliament: Resolution of 29 February 2024 on deepening EU integration in view of future enlargement
• Council of the European Union: Conclusions on Ukraine, enlargement and reforms

Upcoming Events 

• 7 November: confirmation hearing of Commissioner-designate for Enlargement Marta Kos
• 8 November: Informal meeting of heads of state or government, Budapest
• 19-20 December: European Council

 European Movement International’s Position 

As we argue in our latest policy position on “A Resilient Europe: Enhancing EU Enlargement for a Stronger and Safer Union”, enlargement is not only a matter of political alignment but also a strategic investment in the peace, stability, and prosperity of the European continent. Integrating Eastern Europe and the Western Balkans into the EU would bolster regional security and ensure a safeguard against external influences, particularly from Russia and China.

Maintaining a merit-based, transparent process in which candidate countries meet essential criteria, including governance, rule of law, and anti-corruption measures is of vital importance. Candidate countries need to demonstrate progress in these areas to qualify for EU membership, aligning with the Union’s fundamental values. Additionally, interim benefits for candidate countries are recommended, such as access to certain EU programmes or funds during the accession process to maintain their commitment.

To effectively support an enlarged EU, competitiveness, growth, and comprehensive institutional reforms are of the utmost urgency. In particular, the EU needs to amend the way it makes decisions by shifting from unanimity to qualified majority voting (QMV) in the Council for enlargement policy, as well as for those policy areas to which competences have been conferred by the Treaties to the EU.

Moreover, ensuring that the enlargement process remains transparent and inclusive is equally critical. We advocate for involving a broader, diverse range of stakeholders from both the EU and candidate countries, including organised civil society, to build a more participatory process. Regular consultations and dialogues with civil society organisations (CSOs), youth groups, local and regional authorities, and social partners can offer valuable perspectives and foster shared ownership over the enlargement journey. Finally, the security implications of enlargement are particularly pressing. As Ukraine demonstrates its resilience in defending sovereignty, its accession process highlights how enlargement could fortify the EU’s security framework. Expanding the EU to include Eastern Europe and the Western Balkans would enhance regional defence and resilience, aligning with the EU’s broader security objectives. This focus on security, as set out in our new policy position on “Strengthening Security and Defence at a Time of Geopolitical Instability”, is an integral part of building a robust and united Europe capable of withstanding external threats.