BRUSSELS – The European Union’s enlargement chief, Marta Kos, declared 2025 a pivotal year of “strong momentum” for the bloc’s expansion ambitions during a high-profile presentation at the European Parliament on Tuesday. Highlighting substantial progress by Montenegro, Albania, Moldova, and Ukraine on their paths to EU membership, Kos underscored that tangible reforms were yielding concrete results and reinforcing the geopolitical imperative of enlargement.
“2025 was a good year for our work with candidate countries,” Kos stated emphatically. “There have been significant advances on the EU path achieved so far by Montenegro, Albania, Moldova, and Ukraine. This shows that reforms pay off.” Her remarks, delivered to a packed committee room of MEPs, diplomats, and journalists, come amid heightened global tensions and a renewed push by the European Commission to integrate Western Balkan and Eastern Partnership nations into the 27-member union.
Kos, who assumed the role of Commissioner for Enlargement earlier this year following a contentious confirmation process, framed enlargement not merely as a technical exercise but as a “core geopolitical priority.” She argued that deeper cooperation with candidate countries is essential to forging “a strong, stable, secure, and united Europe based on shared values and principles.” This rhetoric echoes the EU’s post-2022 strategic pivot, triggered by Russia’s invasion of Ukraine, which accelerated accession talks for Kyiv and Chisinau while reinvigorating stalled negotiations with Balkan aspirants.
Montenegro Leads the Pack
Among the candidates, Montenegro retains its status as the frontrunner. Kos detailed how the small Adriatic nation has closed several negotiation chapters, including those on judiciary and fundamental rights (Chapter 23) and justice, freedom, and security (Chapter 24). “Montenegro’s tangible reform progress is evident in its anti-corruption measures and public administration overhaul,” she noted. Podgorica opened accession talks in 2012 and has provisionally closed 33 out of 35 chapters, with only the contentious competition policy and economic criteria chapters remaining open. Recent legislative alignments with EU acquis on environmental standards and digital markets have further bolstered its case.
Albania’s “Unprecedented” Surge
Albania, often paired with North Macedonia in the EU’s negotiation framework, has experienced what Kos described as “unprecedented progress.” Supported by overwhelming public backing—polls show over 90% of Albanians favor EU membership—Tirana has advanced on judicial vetting, electoral reforms, and anti-organized crime initiatives. The country opened its first negotiation cluster in 2022 and has since made strides in aligning with EU foreign and security policy, including sanctions against Russia. Kos praised Prime Minister Edi Rama’s government for depoliticizing the judiciary, a move that unlocked €1.2 billion in pre-accession assistance under the Instrument for Pre-Accession (IPA III).
Moldova and Ukraine: Resilience Amid Adversity
Moldova emerged as the standout performer in terms of pace. “Moldova has made the most progress in just one year,” Kos asserted, despite facing relentless hybrid threats—cyberattacks, disinformation campaigns, and energy coercion—largely attributed to Russian interference. Under President Maia Sandu, Chisinau completed bilateral screening of its legislation against the EU acquis in record time and adopted sweeping anti-corruption laws. The EU’s recent €200 million macro-financial assistance package has stabilized Moldova’s economy, enabling further alignment on rule of law and energy diversification.
Ukraine, meanwhile, has sustained “continued reform momentum” despite the ongoing war. Kos highlighted Kyiv’s completion of the screening process alongside Moldova, with both countries aligning on digital transformation, green deal standards, and public procurement transparency. The European Commission, she revealed, aims to secure EU Council approval to open all negotiation clusters with Moldova and Ukraine by November 2025. This ambitious timeline reflects the bloc’s merit-based approach, where progress is rewarded irrespective of geopolitical pressures. Ukraine’s wartime reforms—decentralization, land market liberalization, and anti-oligarch measures—have been lauded by Brussels, even as frontline challenges persist.
Gradual Integration: A New Bridge to Membership
In a significant policy announcement, Kos unveiled expanded initiatives under the “gradual integration” framework. Candidate countries meeting specific benchmarks will gain phased access to EU programs, single market pillars, and funding mechanisms prior to full accession. For instance, Montenegro and Albania could join the EU’s Customs Union or Horizon Europe research program conditionally. Moldova and Ukraine might participate in the Connecting Europe Facility for infrastructure or the Digital Europe Programme. “This is not a shortcut but a merit-based incentive,” Kos clarified, emphasizing that such measures would enhance economic convergence and political stability without compromising standards.
Persistent Challenges in the Western Balkans and Beyond
Yet, Kos did not shy away from the hurdles. Serbia’s reforms have “stalled,” she warned, citing Belgrade’s reluctance to fully align with EU foreign policy on Russia and Kosovo. Political tensions in Bosnia and Herzegovina continue to undermine the Dayton Accords framework, with ethnic divisions stalling electoral and constitutional reforms. Georgia, a 2023 candidate, faces “democratic backsliding,” including controversial laws on foreign agents that echo Russian legislation and have sparked mass protests.
North Macedonia has advanced on anti-corruption and inter-ethnic relations but must enact constitutional changes to recognize its Bulgarian minority and bolster judicial independence to unblock chapters. Kosovo’s progress, meanwhile, has been hampered by snap elections and political deadlock in Pristina, compounded by stalled normalization talks with Serbia under the EU-facilitated dialogue.
A Stronger Union Through Enlargement
Concluding her address, Kos reiterated a fundamental principle: “Enlargement can only be successful if it will make our union stronger.” She cited economic modeling from the Commission showing that integrating the Western Balkans alone could add 1.5% to EU GDP by 2030 through increased trade and investment. For Moldova and Ukraine, the benefits include enhanced energy security and a buffer against authoritarian influence.
The presentation drew mixed reactions. Pro-enlargement MEPs from Eastern Europe applauded the momentum, while skeptics from wealthier member states like the Netherlands and Denmark voiced concerns over absorption capacity and budget implications. Outside the Parliament, pro-EU activists from candidate countries rallied, waving flags and chanting for faster integration.
Kos’s briefing aligns with the European Commission’s upcoming Enlargement Package, due in mid-November, which will provide detailed country reports and recommendations. EU leaders are expected to discuss timelines at the December European Council, where Ukrainian President Volodymyr Zelenskyy and Moldovan counterpart Maia Sandu have been invited as observers.
As 2025 draws to a close, the EU’s enlargement drive stands at a crossroads. With four candidates demonstrating reform resolve and new integration tools in play, Brussels is signaling readiness to expand—provided standards are upheld. Yet, unresolved bilateral disputes, internal EU divisions, and external pressures ensure the road ahead remains fraught. For the candidate nations, the message is clear: reforms are the currency of membership, and 2025 has proven their value.
