Kosovo’s progress on the European Union agenda has been hindered by divisive domestic politics and the political deadlock following the parliamentary elections of 9 February, despite Kosovo’s continued commitment to the European path and the high level of public support.
This is stated in a draft of the EU Progress Report for Kosovo for 2024, obtained by Radio Free Europe. The EU prepares these reports for countries aspiring to join the bloc.
Unlike other Western Balkan countries, Kosovo does not yet have candidate status, even though it applied for membership in December 2022.
The document notes that Kosovo has voluntarily aligned its foreign policy with that of the EU, signaling a clear commitment to EU values, a highly welcomed action.
Among other things, the draft report mentions that the European Commission has taken initial steps toward gradually lifting punitive measures. Kosovo had been sanctioned by the EU in the summer of 2023, as the bloc assessed that Kosovo authorities had not done enough to prevent unrest in the Serb-majority north.
“Further steps will depend on continued de-escalation in the north. The Commission aims to lift financial measures once local governance is restored following elections.”
In the local elections held on 12 October, the four Serb-majority municipalities in the north – North Mitrovica, Zvečan, Leposavić, and Zubin Potok – were won by the Serb List, the largest party representing Serbs in Kosovo, supported by the official Belgrade.
These municipalities had been led by Kosovo Albanians since 2022, when Serb leaders withdrew from Kosovo institutions in protest over certain government decisions.
A report published in May by the GAP Institute for Advanced Studies in Pristina highlighted that EU sanctions had cost Kosovo around €613.4 million due to postponed or suspended projects. Of this, €7.1 million was completely lost, with the most affected sectors being environment, energy, digitalization, and culture.
The draft report also mentions the dialogue between Kosovo and Serbia, mediated by the EU, for normalization of relations. Both countries are required to implement all obligations arising from the 2023 normalization agreement and its implementation annex.
Kosovo is urged to work toward long-term solutions ensuring all communities have access to basic public services, in line with obligations from the dialogue initiated in 2011. High-level dialogue last occurred in September 2023, while technical-level talks took place several times without reaching an agreement.
Criticism of Serbia
The report highlights that Serbia, although having opened 22 of 35 chapters in EU accession negotiations, needs to take greater responsibility for proactive and objective communication in the accession process and avoid rhetoric against the EU.
“Polarization in Serbian society has deepened due to massive protests organized by students and other citizens since November 2024, reflecting public frustration over issues such as corruption and perceived lack of transparency and accountability, accompanied by excessive use of force against protesters and pressure on civil society.”
Serbia is also criticized for failing to align its foreign policy with the EU, with the recommendation to bring it closer to the bloc.
“Rapid granting of visa-free rights to Russian citizens by providing them Serbian citizenship presents potential security risks for the EU,” the report notes.
Serbia is the only Western Balkan country that has not imposed sanctions on Russia for the war in Ukraine and continues to maintain close ties with Moscow.
Serbia is further criticized for attempts to reduce judicial independence, undermining rule of law and democracy, as well as restrictions on freedom of assembly and expression.
Rapid Progress of Albania
The EU notes that the enlargement process is moving at the fastest pace in 15 years, with 11 intergovernmental conferences held since early 2024, five of them with Albania alone.
Albania is recognized for significant reform progress, having quickly opened negotiations in five cluster chapters.
“This reflects Albania’s strong commitment. Albania has continued to advance reforms, particularly comprehensive judicial reform and the completion of the vetting process,” the draft report states, also highlighting the results of SPAK against corruption, active international cooperation against organized crime, and development of financial investigation capacities.
Albania has expressed its ambition to complete all accession negotiations by 2027, and the European Commission is committed to supporting countries in meeting the necessary conditions, basing the process solely on merit.
Other Western Balkan Countries
The report highlights Montenegro’s significant progress in EU accession, having opened nearly all required chapters and closed seven.
Like Albania, Montenegro, North Macedonia, and Bosnia-Herzegovina are praised for aligning their foreign policy with the EU.
For North Macedonia, the report notes the state has yet to adopt necessary constitutional amendments to include residents in border areas identifying with other nationalities, including Bulgarian. Authorities continue to work on rule of law, public administration reform, democratic institutions, and minority protection.
“North Macedonia must intensify efforts to support the rule of law, especially to preserve judicial independence and integrity, and increase the fight against corruption.”
Regarding Bosnia-Herzegovina, internal tensions in 2024 are noted due to the actions of Republika Srpska, including laws later overturned by the Constitutional Court.
“The country must take relevant steps to hold its first intergovernmental conference, starting with the adoption of judicial reform and appointment of a chief negotiator.”
Other countries aspiring for EU membership, such as Moldova and Ukraine, are praised for progress despite challenges, while Georgia is criticized for significant regression. Turkey is also criticized, despite being a candidate country since 1999.
The EU emphasizes that geopolitical challenges have reinforced the idea of a united Europe, requiring Europeans to do more to protect their values.
“This can only be achieved by working closely with our neighbors to create a strong, stable, secure, and united Europe based on shared democratic values. Today, enlargement policy is a key geopolitical tool contributing to shared security and prosperity,” the draft report concludes.
The report stresses that as future member states prepare for accession responsibilities, the EU must adapt to a larger family and support completion of necessary tasks. Croatia is noted as the most recent EU member, joining in 2013.
