The European Union’s General Affairs Council is expected to adopt its conclusions on the EU enlargement process on December 16, including a dedicated section addressing Kosovo, according to a draft document obtained by Radio Free Europe/Radio Liberty.
In the section concerning Kosovo, the EU calls on the country to accelerate its reform agenda, fully implement agreements reached with Serbia, and address the long-standing issue of the establishment of the Association of Serb-Majority Municipalities.
Key Reform Priorities
The draft conclusions underline the need for substantial reforms in several core areas, including:
- Strengthening public administration
- Upholding the rule of law
- Judicial system reform
- Fighting corruption
- Protecting fundamental freedoms
- Safeguarding freedom of expression
According to the document, progress has been noted in the fight against organized crime, while the EU also praised Kosovo for successfully organizing two rounds of elections in 2025, at both the central and local levels.
Northern Kosovo and EU Measures
Regarding the transfer of power in northern municipalities, the Council reiterates its expectation that all remaining measures related to the situation in the north be lifted.
However, the removal of punitive EU measures against Kosovo remains uncertain, despite the fact that the transfer of authority from Albanian mayors to the winners of the October 12 elections in northern municipalities was carried out peacefully and in full compliance with existing legislation.
The EU told KALLXO.com that it is ready to work with Kosovo’s institutions once the post-election process is completed and reaffirmed its commitment to supporting Kosovo’s European integration path. At the same time, Brussels stressed that Kosovo is expected to return decisively to the reform track, in the interest of citizens and progress in the normalization of relations with Serbia.
Candidate Status Still Frozen
It has now been three years since Kosovo applied for EU candidate status, yet its application remains untouched within EU institutions. Although the European Commission is prepared to issue an opinion, the Council has not yet requested it.
One of the key conditions for lifting EU punitive measures was enabling Kosovo Serbs to vote on the dismissal of Albanian mayors in four northern municipalities. Although Kosovo organized such votes in North Mitrovica, Zvečan, Zubin Potok and Leposavić in 2024, the measures were not lifted, as the process was boycotted by the Serb List. As a result, Albanian mayors remained in office until the most recent elections.
Partial Easing of Measures and Financial Losses
Some EU measures have begun to be lifted, though only to a limited extent. Since May, during the visit of EU High Representative Kaja Kallas to Kosovo, restrictions related to:
- Technical Assistance projects
- Investments under the Reform and Growth Facility
- The Stabilisation and Association Agreement
have gradually been eased.
In June 2024, former EU foreign policy chief Josep Borrell submitted a report to EU member states assessing whether the measures imposed on Kosovo should be lifted. These measures were introduced following heightened security tensions in northern Kosovo in May and June 2023, after newly elected mayors took office following elections boycotted by local Serbs.
As a consequence, Kosovo has faced suspension from high-level EU events, restricted bilateral visits, and the freezing of IPA 2024 pre-accession funds.
According to a GAP Institute report published in June 2025, Kosovo has lost a total of €7.1 million as a direct result of the EU measures imposed since June 2023.
