2025 Enlargement Package shows progress towards EU membership for key enlargement partners

On 4 November, the European Commission adopted its annual Enlargement Package, presenting a comprehensive assessment of the progress made by the enlargement partners over the past twelve months. This year's package reaffirms that the momentum for enlargement stands high on the priority agenda of the EU. It also confirms that the accession of new Member States is increasingly within reach. 

Staying consistent and following a merit-based approach is key to successful EU accession. Montenegro, Albania, Ukraine, the Republic of Moldova, Serbia, North Macedonia, Bosnia and Herzegovina, Kosovo, Türkiye and Georgia continue their respective paths towards the EU. The pace of their reforms, in particular in the areas of democracy, the rule of law and fundamental rights, directly impacts the speed of accession. These advancements benefit both aspiring Member States and current EU Member States, fostering prosperity, democracy, security and stability while unlocking new opportunities for citizens and businesses, such as strategic investments and opening of the Single Market. 

Ursula von der Leyen, President of the European Commission said: “We are more committed than ever to turning EU enlargement into a reality. Because a larger Union means a stronger and more influential Europe on the global stage. But it must and will remain a merit-based process. Our package provides specific recommendation to all our partners. And to all of them we say: EU accession is a unique offer. A promise of peace, prosperity and solidarity. With the right reforms and a strong political will, you all can seize this opportunity”. 

The assessments, accompanied by recommendations and guidance on the reform priorities, provide a roadmap for enlargement partners toward EU membership. The Commission remains fully committed to supporting future Member States in this journey. Gradual integration of the aspiring Members into the Single Market strengthens ties with the Union already before their accession. Significant progress has been achieved over the past year. With enlargement as a clear policy goal in this mandate, the Commission is committed to ensuring both the readiness of aspiring members as well as the EU's preparedness to welcome them. To this end, a Communication on in-depth policy reviews and reforms will be presented soon.

To ensure that new Member States continue to safeguard and maintain their track-record on the rule of law, democracy and fundamental rights, future Accession Treaties should contain stronger safeguards against backsliding on commitments made during the accession negotiations. 

Effective communication, as well as countering foreign information manipulation and interference, including disinformation is a strategic imperative. 

The Commission also stands ready to support Member States' effort to further anchor public trust in the process and help enlargement move forward with the legitimacy it needs.

Main conclusions – Ukraine

Despite Russia's unrelenting war of aggression, Ukraine remains strongly committed to its EU accession path, having successfully completed the screening process and advanced on key reforms. Ukraine has adopted roadmaps on the rule of law, public administration, and the functioning of democratic institutions, as well as an action plan on national minorities, which the Commission assessed positively. Ukraine has met the conditions required to open clusters: one (fundamentals), six (external relations), and two (internal market). The Commission expects Ukraine to meet the conditions to open the remaining three clusters and works to ensure that the Council is in a position to take forward the opening of all clusters before the end of the year. The Ukrainian government has signalled its objective to provisionally close accession negotiations by the end of 2028. The Commission is committed to support this ambitious objective but considers that, to meet it an acceleration of the pace of reforms is required, notably with regards to the fundamentals, in particular rule of law.

Next steps 

It is now for the Council to consider today's recommendations of the Commission and take decisions on the steps ahead in the enlargement process. 

Background 

Enlargement is a strict, fair and merit-based process, based on the objective progress of each enlargement country. The EU supports the strengthening of institutions, democratic governance and public administration reforms across these countries.

By fostering gradual integration, the EU brings benefits even before the accession. Initiatives such as the €6 billion Growth Plan for the Western Balkans, the €1.9 billion Moldova Growth Plan, and the €50 billion Ukraine Facility allow countries advance in their reforms, as well establish stronger connection with the EU, such as through gradual integration and the participation in SEPA and "Roam Like at Home". 

Each enlargement has made our Union stronger. When ten countries joined the EU in 2004, it marked the Union's largest ever expansion. In the two decades since, newcomers have seen living standards double, unemployment fall by nearly half, life expectancy rise from 75 to 79 years, poverty and social exclusion drop sharply, and 6 million new jobs created. For the existing members, trade has multiplied more than fivefold ever since, while 20 million jobs have also been created. For the EU as a whole, the Single Market gained 74 million new consumers at the time and the EU economy has expanded by 27% despite global crises. 

For more information 

2025 Communication on EU Enlargement Policy – Enlargement and Eastern Neighbourhood 

Factsheet on the EU accession process 

Factsheet on the accession negotiations state of play

For detailed findings and recommendations about Ukraine, see:

Ukraine: Report; Factsheet

Quotes 

"The enlargement process is moving faster today than in the last 15 years. But we cannot afford to lose momentum. The global order is shifting, and Europe's security is increasingly at risk. Enlargement is an investment in a stable Europe and the majority of our citizens recognise this. There are no shortcuts for aspiring countries, but whatever the EU can do to support the process we must do. The window for enlargement is wide open and we have to seize the opportunity now. New countries joining the EU by 2030 is a realistic goal", – Kaja Kallas, High Representative for Foreign Affairs and Security Policy/Vice-President of the European Commission.

"Overall, 2025 was a year of significant progress for EU enlargement. Montenegro, Albania, Ukraine and Moldova stand out. They advanced most on reforms in the past year. At the current pace and quality of reforms, we may be able to conclude accession negotiations in the coming years. If done right, a larger Union will make Europe stronger. The Commission will insist the highest quality of reforms, especially on the rule of law, democratic institutions, and fundamental freedoms. There will be no shortcuts. A unified continent is the strongest response to those who seek to divide and destabilize Europe", – Marta Kos, Commissioner for Enlargement.