Following the publication of the European Commission’s annual Enlargement Report on 4 November—assessing the progress of EU membership aspirants including Kosovo, Albania, Bosnia and Herzegovina, North Macedonia, Montenegro, Serbia, Türkiye, Ukraine, and Georgia—the focus now shifts to the 27 EU member states, which are set to adopt the Enlargement Conclusions on 16 December.
Because this document requires unanimous approval, it is typically shorter and less critical than the Commission’s own assessments.
A draft version seen by Radio Free Europe indicates that the conclusions largely follow the Commission’s logic:
Albania, Moldova, Montenegro, and Ukraine are cited as the countries that have made the most progress, and the EU aims to welcome at least one new member before the end of the decade.
Montenegro Receives the Clearest Positive Signals
The strongest signal in the document relates to Montenegro’s progress toward EU membership.
As expected, two key points remain in brackets, indicating that EU member states have not yet reached full agreement.
The first states that the country “has advanced the most in accession negotiations and that 12 negotiating chapters are now provisionally closed.”
The number 12 remains in brackets because Montenegro has officially closed 7 out of 33 chapters to date.
However, there is optimism in Brussels that up to five additional chapters could be closed before the Christmas break—though diplomats warn that the final number may be lower.
The second major signal is that Montenegro is “increasingly close to becoming the EU’s 28th member state.”
Another bracketed sentence notes that “the Council decides that an ad hoc Working Group for drafting the Accession Treaty with Montenegro will be established in 2025.”
Such a move marks a major procedural step: drafting an accession treaty occurs immediately after all chapters are closed and represents the final political act before membership.
Remaining Challenges: Corruption and Institutional Capacity
Despite significant progress, not everything is encouraging for Montenegro.
The draft text lists several remaining “homework” items, including:
- strengthening administrative capacity,
- reforming electoral legislation,
- aligning with EU standards on political party financing and campaign funding.
The most serious issue, however, is corruption.
According to the document:
“The number of final convictions in high-level corruption cases remains low.”
“Montenegro must improve investigations and prosecutions involving corruption and organized crime, ensuring final convictions, punitive measures, and the seizure and confiscation of assets.”
High-level corruption remains the primary concern across all Western Balkan countries progressing in EU integration.
Ukraine: Progress and Warnings
The document does not directly mention the recent Ukrainian political scandal that led to the resignation of Andriy Yermak, head of President Zelensky’s office. However, it praises the work of Ukraine’s National Anti-Corruption Bureau (NABU) and the Specialized Anti-Corruption Prosecutor’s Office (SAPO).
The Council positively assesses their 2025 performance, including a significant number of high-level corruption investigations, and strongly encourages Ukraine to continue strengthening capacities and results.
The document also warns Ukrainian politicians not to undermine these institutions, referencing Zelensky’s earlier attempt to weaken them—an effort he abandoned following public backlash.
“The EU will remain vigilant to ensure no future political or legal interference in the work of these bodies.”
Moldova: Progress but No Advancement This Year
For Moldova, the tone is also positive, particularly regarding efforts against money laundering and deoligarchization.
However, neither Moldova nor Ukraine will advance to the next stage of EU accession this year.
Hungary has stated it will not approve opening chapters with Ukraine, and Moldova is still attempting to separate its accession path from Kyiv.
Most EU capitals prefer to wait until after Hungary’s parliamentary elections in April, hoping for a potential shift in Budapest’s stance.
The text simply states that the Council looks forward to opening the first negotiation chapters with both countries “once conditions are met.”
Albania: Strong Momentum, but Challenges Ahead
Albania recently succeeded in opening all 33 chapters within 13 months—a record pace for any EU candidate.
However, the document does not specify when Albania may begin closing the chapters, a more challenging and lengthy process.
Alongside the fight against corruption, the conclusions highlight the need for Albania to:
- improve media transparency,
- ensure decriminalization of defamation,
- strengthen civil society institutions.
Georgia: The Harshest Evaluation
For other aspirants, the tone is mixed—except for Georgia, which receives the strongest criticism.
The Council states that:
“The actions of Georgian authorities do not meet the EU’s expectations of a candidate state.”
“Georgia’s EU accession process is frozen until the authorities demonstrate a real commitment to returning to the European path.”
