Today, the European Commission adopted the 2023 Enlargement Package, providing a detailed assessment of the state of play and the progress made by Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North Macedonia, Serbia, Türkiye, and for the first time also Ukraine, the Republic of Moldova and Georgia on their respective paths towards accession to the European Union. In particular, the report focuses on the progress in the implementation of fundamental reforms, as well as on providing clear guidance on the reform priorities ahead. Accession is and will remain a merit-based process, fully dependent on the objective progress achieved by each country.
In light of the results achieved by Ukraine and Moldova, and of the ongoing reform efforts, the Commission has recommended that the Council opens accession negotiations with both countries. Furthermore, the Commission recommends that Council adopts the negotiating frameworks once Ukraine and Moldova have adopted certain key measures. The Commission stands ready to report to Council by March 2024 on the progress relating to these measures.
In the case of Georgia, in light of the results achieved, the Commission recommends that the Council grants Georgia the status of a candidate country on the understanding that a number of steps are taken.
When it comes to Bosnia and Herzegovina, the Commission recommends the opening of accession negotiations with Bosnia and Herzegovina once the necessary degree of compliance with the membership criteria is achieved. The country needs to apply further efforts to fulfil the key priorities set out in the Commission Opinion on its EU membership application. The Commission will continuously monitor the progress and compliance in all areas related to the opening of negotiations and report to the Council at the latest in March 2024.
European Commission President, Ursula von der Leyen, said:
“Enlargement is a vital policy for the European Union. Completing our Union is the call of history, the natural horizon of our Union. Completing our Union, also has a strong economic and geopolitical logic. Past enlargements have shown the enormous benefits both for the accession countries and the EU. We all win.”
In Ukraine, the decision to grant EU candidate status created a powerful reform dynamic, despite the ongoing war, with strong support from the people of Ukraine. The Ukrainian government and Parliament demonstrated resolve in making substantial progress on meeting the 7 steps of the European Commission Opinion on Ukraine’s EU membership application. Ukraine has established a transparent pre-selection system for the Constitutional Court judges and reformed the judicial governance bodies. It has further developed its track record of high-level corruption investigations and convictions and strengthened its institutional framework. Ukraine has taken positive steps in a wider and systemic effort to address the influence of oligarchs. The country has also demonstrated its capacity to make progress in aligning with the EU acquis, even during wartime.
Moldova has made important progress on meeting the 9 steps set out in the Commission Opinion on Moldova’s EU membership application. It launched a comprehensive justice reform following the Venice Commission recommendations, including by evaluating prominent judges and prosecutors. The country reformed its anti-corruption bodies and increased the number of investigations and convictions in corruption cases. Moldova adopted a deoligarchisation action plan, which it implements following set timelines. New legislation to set up a confiscation mechanism helps fight organised crime. The country adopted a public administration strategy and follows the reform at all levels. It worked to reform its public finance management and adopted legislation to reform public procurement. Moldova enhanced the participation of civil society in the decision-making process and has strengthened the protection of human rights.
Georgia has taken steps to strengthen engagement with the EU and increased pace of reforms in the recent months. To address the twelve priorities identified in the Commission Opinion on its membership application, Georgia has adopted legislative acts and policy actions on gender equality, on fighting violence against women and organised crime, as well as on taking into account European Court of Human Rights judgments. A judicial reform has been brought forward although a holistic reform of the High Council of Justice is still needed. Georgia has shared laws as well as its action plan for deoligarchisation with the Venice Commission for an opinion. A strategy on the protection of human rights was adopted and an action plan is being elaborated. A memorandum of cooperation with civil society representatives was concluded. Building a strong cross-party political consensus would contribute to addressing polarisation and accelerate its European path.
Western Balkans
Progress on EU accession reforms has largely stalled, as Montenegro has suffered from deep polarisation and political instability in the reporting period. The EU welcomes the constitution of the new parliament and the formation of the government, which we expect to swiftly demonstrate its capacity and commitment to Montenegro’s EU path and deliver on EU accession related reforms. Overall, progress is in the accession negotiations will depend on reforms in the area of rule of law (i.e. meeting the interim benchmarks set out in Chapters 23 and 24). Montenegro continues to fully align with the Common Foreign Security Policy.
Serbia continued the implementation of EU accession related reforms, including in the area of rule of law. Serbia started implementing the 2022 constitutional amendments to strengthen the independence of the judiciary and adopted new media legislation. The implementation of the latter can significantly improve the regulatory environment. However, further amendments will be needed to be fully in line with the EU acquis and European standards. Serbia needs to improve, as a matter of priority, its alignment with the EU’s common foreign and security policy, including restrictive measures and statements on Russia. Further work and political commitment are also needed to implement reforms in the area of rule of law. The Commission’s assessment remains that Serbia has technically fulfilled the benchmarks to open cluster 3 (competitiveness and inclusive growth). Serbia must fully cooperate and take all the necessary steps to ensure accountability for the violent attack on Kosovo Police of 24 September and the attack on KFOR on 29 May. On the normalisation of relations with Kosovo, whilst an Agreement was reached in the EU-facilitated Dialogue, both Serbia and Kosovo are yet to start the implementation of their respective obligations, which are binding for the Parties and a key part of their European paths.
In North Macedonia, the authorities have consistently stated that EU accession remains their strategic goal. North Macedonia has continued to fully align with the EU Common Foreign and Security Policy (CFSP). The country has also made some progress in in the area of justice, freedom and security, including the fight against organised crime and the management of migration. As a negotiating country, North Macedonia needs to deliver on the implementation of EU related reforms, including in the judiciary, the fight against corruption and organised crime, public administration reform, including management of public finances, and public procurement. North Macedonia has committed to launch and achieve the relevant constitutional changes as a matter of priority, with a view to include citizens who are part of other people. The screening process of the EU acquis has progressed smoothly, and the authorities have shown a high level of commitment. The Commission presented to Council the screening reports on the “fundamentals cluster” for North Macedonia in July and looks forward to a swift follow up, with a view to opening negotiations on this cluster by the end of the year.
Albania continued to demonstrate its determination to implement EU reforms and to make progress in reforms under the “fundamentals cluster”. Continued full alignment with EU’s CFSP was also a strong signal of the country’s strategic choice of EU accession. Further efforts are needed on freedom of expression, minority issues and property rights, as well as in key areas of the rule of law, such as the fight against corruption and organised crime. The screening process of the EUacquishas progressed smoothly, and the authorities have shown a high level of commitment. The Commission presented to Council the screening reports on the “fundamentals cluster” for Albania in July and looks forward to a swift follow up. It aims to open accession negotiations on cluster 1 (fundamentals) by the end of the year.
In Bosnia and Herzegovina, last year’s candidate status brought a much-needed positive dynamic. A new government has been set up swiftly after elections and has started to deliver on reforms, specifically through the amendments introducing integrity checks in the judiciary. Yet, further efforts are needed. This includes adopting important rule of law and judicial reforms and moving forward with constitutional and electoral reforms, which are of utmost priority to ensure equal rights for all citizens. It is also important to preserve the constitutional order of the country. The secessionist and authoritarian measures introduced in the Republika Srpska entity are not in line with the EU path. Further efforts are required for Bosnia and Herzegovina to fulfil the key priorities set out in the Commission’s Opinion on its member application. Therefore, the Commission recommends the opening of EU accession negotiations with Bosnia and Herzegovina, once the necessary degree of compliance with the membership criteria is achieved.
Kosovo remained committed to its European path. It continued to voluntarily fully align with the EU’s CFSP, including on condemnation of Russia’s war of aggression against Ukraine and to adopt restrictive measures against it. The reporting period witnessed legislative achievements, including an important electoral reform. However, more work needs to be done, including on the action plan on justice reforms. On 1 January 2024, visa liberalisation for Kosovo will enter into force. The situation in the north of Kosovo has been affected by several crises, the latest one being the violent attack against Kosovo police on 24 September 2023. On the normalisation of relations with Serbia, whilst an Agreement was reached in the EU-facilitated Dialogue, bothKosovoandSerbiaare yet to start the implementation of their respective obligations, which are binding for the Parties and a key part of their European paths.
Türkiye remains a key partner for the European Union and a candidate country, but accession negotiations remain at a standstill since 2018, in line with the decision of the European Council. The country has not reversed the negative trend of moving away from the European Union, and it pursued accession related reforms to a limited degree. Cooperation with Türkiye in areas of joint interest continued in essential areas such as counter-terrorism, economy, energy, food security, migration and transport. Türkiye needs to take decisive steps to significantly improve alignment with the EU’s CFSP and step up cooperation on preventing and detecting circumvention of restrictive measures. Following the tasking by the European Council, the High Representative and the Commission will submit in November a report to the Council on the state of play of EU-Türkiye relations, building on the instruments and options identified by the European Council and with a view to proceeding in a strategic and forward-looking manner.
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.
For more information
For detailed findings and recommendations on each country, see:
Albania: MEMO; Report; Country factsheet
Bosnia and Herzegovina: MEMO; Report; Country factsheet
Kosovo: MEMO; Report; Country factsheet
Montenegro: MEMO; Report; Country factsheet
North Macedonia: MEMO; Report; Country factsheet
Serbia: MEMO; Report; Country factsheet
Türkiye: MEMO; Report; Country factsheet
Ukraine: MEMO; Report; Country factsheet
Moldova: MEMO; Report; Country factsheet
Georgia: MEMO; Report; Country factsheet
For more general information
Factsheet – The EU accession process step by step
Factsheet – The new Growth Plan for the Western Balkans
Quotes
Enlargement is a vital policy for the European Union. Completing our Union is the natural horizon of our Union. Completing our Union, also has a strong economic and geopolitical logic in this very moment. Past enlargements have shown the enormous benefits both for the accession countries and the EU. We all win.
This is a historic Enlargement Package, for the first time with our 10 closest partners lined up for EU membership. Completing our Union is the best investment in peace, security and prosperity for our continent and this year’s package sets out major steps forward. EU membership is a strategic choice and alignment with the EU’s common foreign and security policy is a more significant signal than ever of shared values and strategic orientation.
These ten reports confirm that EU enlargement is firmly back on the agenda. Enlargement is our geopolitical project for Europe. To grasp this new geopolitical momentum, we must accelerate the enlargement process that will continue to be driven by credible reforms on the fundamentals. In the last months, we have seen the significant results achieved by Ukraine, Moldova, and Georgia, as well as Bosnia and Herzegovina, which clearly show that commitment and determination pay off. As we are increasing our engagement with the region in the following months, all our partners must focus on the required reforms, which are clearly outlined in our Enlargement Reports, so that we can provide a good assessment for the Council taking the next decisions.
Statement by EU Commission President on the 2023 Enlargement Package and the new Growth Plan for the Western Balkans
Brussels, 8 November 2023
Good afternoon,
Today, the College adopted the enlargement report. The protests on Maidan started now ten years ago.The Maidan protests, where people were shot because they wrapped themselves in a European flag. And now, ten years later, today is a historic day because today the Commission recommends that the Council opens accession negotiations with Ukraine and Moldova. The Commission also recommends the opening of EU accession negotiations with Bosnia and Herzegovina, once the necessary degree of compliance with the membership criteria is achieved. And the Commission recommends that the Council grants Georgia the status of a candidate country on the understanding that certain reform steps are taken.
Let me focus on these four countries: First on Ukraine. Ukraine continues to face tremendous hardship and tragedy provoked by Russia’s war of aggression. And yet, Ukrainians are deeply reforming their country, even as they are fighting a war that is existential for them.Ukraine has completed – I was there over the weekend and was convinced of it – well over 90% of the necessary steps that we set out last year in our report. Just to give you an idea: Main progress has been achieved on the constitutional justice reform; the selection of the High Council of Justice; the Anti-Corruption Programme;progress against money laundering; important measures to curb the oligarchs’ grip on the public life; the new media law; and progress on national minorities. The remaining reforms are already on their way – that is good –, and the Commission commends these efforts. On this basis, we have recommended today that the Council opens accession negotiations. We also recommend that the Council adopts a negotiating framework once Ukraine has carried out the ongoing reforms.On that, we will then report to the Council by March 2024.
Moldova is not facing a kinetic war, but Moldova is the subject of constant destabilisation efforts against its democracy. It also suffers the consequences of the war in Ukraine. Moldova is welcoming a large number of Ukrainian refugees. Moldova is facing disruptions and blackmail related to its energy system. But like Ukraine, Moldova has undertaken significant reform efforts, for example in the area of the judiciary. It has stepped up considerably the investigative work related to corruption and organised crime. It has made legislative changes to fight vested interests. Here, too, the Commission recommends that the Council opens accession negotiations. Some remaining measures have to be finished. On this basis, here too, the Council could then finalise the negotiating framework. And the Commission will report on the progress to the Council by March 2024.
Now on Bosnia and Herzegovina: we recognise a number of positive political and legal steps. For example, the swift entry into office of a new Council of Ministers in January 2023; the commitment of political parties to the goal of accession, have brought without any doubt positive results. There is progress in the fight against organised crime, money laundering and terrorism, for example. But we also note with concern the various unconstitutional laws adopted by the representatives of the Republika Srpska entity. Against this backdrop, the Commission recommends to the Council the opening of accession negotiations once the necessary degree of compliance with the membership criteria is achieved. And here too, the Commission will report to the Council on progress by March 2024.
Finally, with regard to Georgia, here the College fully supports the genuine aspirations of the overwhelming majority of its citizens to join the European Union. These aspirations need to be better mirrored by the authorities who should engage more with the opposition and civil society on matters of national interest. And further progress is needed by the government on the 12 priorities identified last year before candidate status can be granted. Now the Commission also acknowledges a number of positive steps. For example, the opposition’s scrutiny on parliamentary work has been increased; an action plan for de-oligarchisation was adopted; the personalised approach was withdrawn; and the Anti-corruption Bureau was set up. Therefore, the Commission recommends granting candidate status to Georgia on the understanding that the government takes important reform steps.
In general, to conclude, enlargement is a vital policy for the European Union. This has been my main message since the beginning of my mandate. Completing our Union is the call of history, it is the natural horizon of the European Union. The citizens of countries that want to join are Europeans – just like those of today’s Union. Because we all know that geography, history and common values bind us. So, completing our Union also has a strong economic and geopolitical logic. If you look at the history of the last enlargement rounds, you see that they have shown that there are enormous benefits both for those countries which access the European Union and the European Union itself. Basically, we all win. You can see that for the new members, their citizens and businesses, there is access to our four freedoms, access to our Single Market, citizens can travel, businesses have new markets. And all of this is a powerful lever to increase prosperity and therefore stability in these countries.
But for the European Union itself, the advantages are also very clear and impressive. The expansion of our Single Market brings economies of scale for our businesses, increases our competitiveness and therefore the strength of our Single Market. Our history of enlargement has been an unprecedented economic success story. But if you also look at the global attractiveness of the European Union, enlargement has increased it. And it has, of course, also increased our leverage as a trading partner. For example, the common purchasing of gas at 27 makes a huge difference for the success in this area. Enlargement is also an investment in our security. Because integrating new members in the European Union also shields them from foreign interference, and it therefore stabilises our neighbourhood. In times where we see the rules-based international order increasingly called into question, of course a larger and stronger European Union gives us a stronger voice in the world. In sum, enlargement is a unique opportunity both for the countries aspiring to join the European Union and, of course, for us. It is a driver for peace and prosperity that make our Union so special.
Thank you.
Source – EU Commission