2025 Enlargement Package in Brussels: Marta Kos Presents the Progress Report - What Was Said About Serbia?

The package, which includes progress reports for candidate countries, was presented by Enlargement Commissioner Marta Kos, who a few days earlier described the document as “a key geopolitical tool for the Union to demonstrate that it is indeed responding to challenges across Europe.”

Significant progress made on the European path by Montenegro, Albania, Moldova, and Ukraine shows that reforms pay off. This should serve as strong motivation for all countries involved in the process,” said Marta Kos at the beginning of her address.

What does the report say about Serbia?

The European Commission’s recommendations from previous years remain in force, stating that Serbia has met the criteria for opening Cluster 3 (competitiveness and inclusive growth), and that this cluster is technically ready to be opened, according to the document reviewed by EUpravo zato. However, alongside the positive aspects, it also contains a number of criticisms pointing out what Serbia must address on its path towards the EU.

So far, Serbia has opened 22 out of a total of 35 negotiating chapters grouped into six negotiating clusters, while two chapters have been provisionally closed. “Since the start of Serbia’s EU accession negotiations in January 2014, chapters from Cluster 1 on fundamentals and Cluster 4 on the green agenda and sustainable connectivity have been opened. Two chapters have been provisionally closed. The European Commission’s recommendations from previous years remain in effect, and Serbia has fulfilled the initial criteria for opening Cluster 3 (competitiveness and inclusive growth), which is technically ready to be opened. Overall progress in the negotiations will continue to depend on reforms in the areas of the rule of law and the normalisation of relations,” the report states.

In Serbia, the authorities continue to state that EU membership remains their strategic goal, but the pace of implementing reforms has significantly slowed down.

“Serbia must deliver convincing results in all areas, especially in the fundamentals - the rule of law, the judiciary, and fundamental rights,” said Marta Kos in her address to the Committee on Foreign Affairs.

The European Commission noted that while the authorities in Serbia continue to formally emphasise EU membership as a strategic objective, the pace of reforms has slowed considerably. The EU has made it clear that Serbia must carry out credible reforms in all sectors, particularly regarding alignment with the Union’s foreign and security policy. Brussels also expects Serbia to take greater responsibility in providing the public with more objective information about the EU accession process and to avoid anti-EU rhetoric, according to the report.

The EU has repeatedly stressed that it expects a higher degree of alignment from Serbia with its foreign policy, including the introduction of sanctions against Russia. Serbia, however, remains one of the few European countries, alongside Turkey and Belarus, that did not join the sanctions following Russia’s invasion of Ukraine in 2022.

“Serbia’s rate of alignment with the EU’s Common Foreign and Security Policy remains low, and the country must significantly improve it in order to progress on its European path,” the report states.

The document also highlights that the rapid granting of Serbian citizenship to Russian nationals poses a security risk for the EU, as it allows them visa-free travel within the Union.

“It is also necessary for Serbia to gradually and more consistently align its foreign and security policy with the EU’s Common Foreign and Security Policy (CFSP). Serbia must also pursue a more proactive and objective communication about its accession process and refrain from anti-European rhetoric,” said the Commissioner in her speech.

Furthermore, the report points to deepening polarisation within Serbian society, sparked by large-scale student and civil protests that have been ongoing since November 2024. These protests, it states, reflect citizens’ frustration with corruption, lack of accountability and transparency, as well as the excessive use of force against demonstrators and pressure on civil society.

Mass anti-government protests in Serbia have now lasted a full year, having started after the tragic collapse of a canopy at the Novi Sad railway station, which resulted in the deaths of sixteen people.

“During the demonstrations in Serbia, arrests and other coercive measures have been used, creating a chilling effect on civil society. This has been further exacerbated by verbal attacks and smear campaigns, including those initiated by high-ranking officials,” the report notes.

Concerning the independence of the judiciary, the document indicates that undue government influence and attempts to limit the independence of courts have further undermined the rule of law and democracy in Serbia.

“Serbia is expected to overcome the deadlock in the areas of the judiciary and fundamental rights, to urgently reverse setbacks in freedom of expression, and to ensure progress regarding the electoral framework. After all, that is precisely what the citizens of Serbia are calling for,” emphasised Enlargement Commissioner Marta Kos in her address before the Committee on Foreign Affairs.

Serbia technically ready to open Cluster 3

In the section of the document dealing with Cluster 3, which has been the subject of much discussion in recent months both in Belgrade and Brussels, it is stated that “Serbia is moderately prepared in the field of digital transformation and media.” According to the report, some progress has been made in digitalisation, particularly through the adoption of media laws and the transposition of EU tools for 5G network cybersecurity (EU 5G Cybersecurity Toolbox).

The European Commission’s recommendations from the previous year have been only partially implemented. In the coming period, Serbia should in particular:

- further align its legislation on electronic communications, digital trust, and cybersecurity with the EU’s regulatory framework, including the Gigabit Infrastructure Act, eIDAS 2.0, the NIS2 Directive, and the Artificial Intelligence Act;

- ensure full financial and operational independence of the Regulatory Authority for Electronic Media (REM) and the Regulatory Agency for Electronic Communications and Postal Services (RATEL), in line with EU legal standards, including the EU Electronic Communications Code;

- fully implement the adopted media legislation, including provisions relating to the financial and functional independence of public service broadcasters and the REM Council, as well as further amend media laws to align them with the European Media Freedom Act, through an inclusive and transparent process, according to the document covering all Western Balkan countries.

A mixture of criticism and praise for the Western Balkans

In both the reports and Marta Kos’s speech, praise was directed towards Montenegro and Albania, words of encouragement were offered for Ukraine and Moldova, and considerably less enthusiasm was expressed regarding Bosnia and Herzegovina (BiH) and North Macedonia.

“Montenegro has advanced the furthest and has made significant progress towards EU membership. The country has achieved tangible results in implementing reforms and has remained consistent in its strategic European commitments. Since the previous report, two intergovernmental conferences have been held, four new chapters have been provisionally closed, and more are expected to be concluded by the end of the year,” highlighted Marta Kos in her address.

At the same time, diplomatic circles report that the drafting of Montenegro’s EU accession treaty is currently under way. This process could serve the European Commission in reassuring member states and the public that enlargement does not pose an institutional risk, but rather represents a controlled process - for example, by temporarily suspending certain rights of new members, such as veto rights in foreign policy, during a trial period following accession.

So far, nine countries have been granted candidate status: Albania, Bosnia and Herzegovina, Georgia, Moldova, Montenegro, North Macedonia, Serbia, Turkey, and Ukraine.

“Albania has achieved remarkable progress since the first intergovernmental conference in October 2024. Over the course of the year, four more clusters have been opened, and the final one is expected to be opened by the end of the year. This exceptional result is clear evidence of Albania’s strong political commitment and the European aspirations of its society. Albania has continued to advance with reforms within the ‘Fundamentals’ cluster,” said the Commissioner regarding Albania’s progress.

Negotiations with Turkey are currently suspended due to the EU’s concerns about democracy, while the candidate countries are actively aligning their laws with EU rules, regulations, and standards. Kosovo* is a potential candidate but has not yet been granted official status.

Bosnia and Herzegovina and North Macedonia

“Bosnia and Herzegovina has experienced political tensions following the collapse of the ruling coalition and a standstill in reforms. However, in September 2025, BiH submitted a Reform Agenda to the Commission for alignment. The country now has an opportunity to make progress on its European path through the adoption of judicial legislation and the appointment of a chief negotiator,” said Marta Kos in her speech referring to the progress report on candidate countries. As for North Macedonia, it was stated that it must amend its Constitution, in line with the Council’s conclusions from 2022, in order to advance on its path towards the European Union.

The debate that followed the Commissioner’s opening address provided insight into the key challenges and progress of the countries aspiring to join the European Union, as well as the European Parliament’s guidelines for the continuation of the enlargement process.

(EUpravo zato)