Brussels, 4 November 2025

The 2025 Enlargement Package marks a decisive reaffirmation of the European Union’s strategic commitment to enlargement as a policy priority and a geopolitical necessity. The European Commission’s message is clear: enlargement is not only alive but accelerating—anchored in a merit-based approach and grounded in reforms tied to democracy, the rule of law, and fundamental rights. The tone reflects both optimism and pragmatism: the EU is open and ready, but progress will hinge on each country’s political will and reform credibility.

Momentum and Strategic Context
Amid a volatile geopolitical climate—particularly due to Russia’s ongoing aggression—the EU positions enlargement as a tool of resilience and security. The inclusion of Ukraine and Moldova as active reformers signals a shift from enlargement fatigue toward strategic expansion. The Commission also underlines gradual integration—granting reforming partners access to elements of the Single Market and EU programs before full membership. This pragmatic step bridges political symbolism with tangible economic and social benefits.

Country Assessments and Differentiated Progress
The package reveals a deeply asymmetrical map of progress. Montenegro and Albania emerge as frontrunners in the Western Balkans, with clear timelines to conclude negotiations by 2026 and 2027, respectively. Ukraine and Moldova also show strong momentum, combining resilience under external pressure with institutional reforms that could make provisional closure of negotiations possible by 2028.
Conversely, Serbia and Bosnia and Herzegovina illustrate stagnation and political polarization, while North Macedonia’s progress remains tied to sensitive constitutional changes. Kosovo’s EU path remains constrained by normalization with Serbia. Türkiye and Georgia, once key aspirants, are effectively sidelined, facing democratic backsliding and erosion of fundamental rights.

Governance, Accountability, and Safeguards
A notable innovation in this year’s package is the proposal for stronger safeguards in future Accession Treaties—to prevent democratic backsliding after membership, a lesson learned from past enlargements. This underscores the EU’s intent to make accession irreversible in both principle and practice.

Conclusion
Overall, the 2025 Enlargement Package represents a revitalized and strategic vision for the EU’s future. Enlargement is recast not as a bureaucratic process but as a geopolitical instrument—one that strengthens the Union internally and projects stability externally. The dual focus on meritocracy and preparedness underscores the EU’s readiness to expand, provided that candidates deliver on their commitments. If sustained, this renewed momentum could make EU enlargement by 2030 more than an aspiration—it could become a defining achievement of this decade.

Sources :

https://enlargement.ec.europa.eu/document/download/eb69a890-40d6-4696-801e-612d51709fdd_en?filename=2025%20Communication%20on%20EU%20Enlargement%20Policy.pdf