On Tuesday 17 December, the EU27 Ministers for European Affairs will meet for the last General Affairs Council (GAC) of the year. They will be asked to approve the conclusions on EU enlargement, in response to the Commission’s report on enlargement (see EUROPE 13515/2), which Agence Europe has been able to obtain.
Without prejudging future discussions on the opening or closing of clusters of chapters with the candidate countries, the conclusions provide a general overview of the progress made by each country and the EU’s expectations for furthering the accession processes.
Montenegro. The Council is expected to reiterate its support for the country in advancing its reforms, particularly with regard to “the progress made so far in accession negotiations, with 33 chapters opened and three provisionally closed”.
The EU27 also consider that, overall, Podgorica has “met the provisional benchmarks for Chapters 23 and 24 relating to the Rule of law”, which represents an “important step in the beginning of a new and final phase of accession negotiations”. Future negotiations will depend on the reforms undertaken in this area.
Serbia. Despite progress in certain areas of reform, Belgrade continues to be criticised by the EU27 for its foreign policy and respect for the Rule of law. Its difficult relations with Kosovo make the objective of achieving the regional stability necessary for successful enlargement all the more complicated, according to the Commission (see EUROPE 13536/9).
The Council is expected to stress the importance for Serbia “to demonstrate strong political will and consistency in implementing EU-related reforms” and to reiterate that “Serbia’s progress in the Rule of law and normalisation of relations with Kosovo will continue to determine the overall pace of accession negotiations”.
Albania. On 15 October, Albania opened Cluster 1 of the European Union acquis, the so-called fundamental, after receiving the green light from the EU (see EUROPE 13504/1). The Council should consistently “congratulate” Tirana on its progress and encourage the implementation of judicial reform, “which must be consolidated”.
The country has also long been an important partner in geopolitical terms, which is why the Council “warmly congratulates Albania on its ongoing cooperation on foreign policy issues, and in particular on its full, consistent and long-standing alignment with the EU’s CFSP (Common Foreign and Security Policy)”.
Bosnia and Herzegovina. The Council is expected to note that “the momentum for reform has stalled” since March 2024, and “urges all political actors to reaffirm the country’s commitment to progress towards the EU by taking resolute action to implement the necessary reforms”.
The recurring problems with Republika Srpska and the persistence of secessionist rhetoric in the region pose a problem of integrity for the country, which the Council intends to reiterate in its conclusions.
Similarly, the Council notes that “limited efforts have been made in the area of fundamental rights” and that “no progress has been made with regard to freedom of expression and the media and the protection of journalists”.
Bosnia and Herzegovina is also the only country in the Western Balkans not to have finalised its reform agenda as part of the Growth Plan for the region (see EUROPE 13510/19).
Kosovo. In its conclusions, the Council “welcomes Kosovo’s continued commitment to the European path and related reforms”, noting “progress in the fight against corruption and organised crime and fundamental rights”.
Here again, it is the regional situation with Serbia that is hampering the EU’s expectations. The EU27 say they are “deeply concerned” by the situation. “Kosovo and Serbia must pursue sustained de-escalation efforts, refraining from unilateral and provocative actions that could lead to tension and violence”, the Member States reiterate.
The very slow process of normalisation of relations between Pristina and Serbia continues to weigh heavily on the country’s progress. The Commission’s enlargement report also stresses the importance of implementing the obligations of the Ohrid Agreement concluded in 2023 (see EUROPE 13480/13) and the Member States “hope” to see both parties constructively engaged in moving the standardisation process forward.
Ukraine. The Council is expected to reiterate the EU’s “unwavering support” for Ukraine’s accession path, welcoming its commitment to the reform process. The Council should welcome the official opening of accession negotiations in June 2024 and the “considerable” progress made on reforms over the past year, despite the exceptional challenges caused by the war with Russia.
The Council should make it clear that it is looking forward to the conclusion of the screening process and the next stages of the accession process, with the opening of the ‘cluster’ on fundamental issues as soon as possible, “when the conditions are met”.
The Council should note “with satisfaction” the progress made in the important areas of the Rule of law and reform of the justice system and public administration, and welcome the progress made in guaranteeing the independent and effective operation of anti-corruption institutions. “Particular attention should be paid to the protection and non-discriminatory treatment of persons belonging to national minorities”, states the draft text.
Moldova. The Council reiterates the EU’s unwavering support for the accession process and welcomes the formal opening of accession negotiations in June 2024 and Moldova’s considerable progress in reform over the past year, despite the significant challenges caused by Russia’s war against Ukraine and the hybrid attacks against the country.
It should stress that it looks forward to the conclusion of the screening process and the next stages of the accession process, with the opening of the ‘cluster’ of fundamental questions “as soon as possible, when the conditions are met”.
The Council should emphasise the importance of continuing to make progress on reforms, in particular on the Rule of law and fundamental rights, including minority rights, and on the justice system.
Ministers should recall that it is particularly important to combat malicious external interference and disinformation and to encourage electoral participation in the run-up to the 2025 general elections.
Georgia. The Council should take note of the government’s recent declaration concerning the suspension of accession negotiations until 2028 (see EUROPE 13536/7) and recall that its course of action compromises the country’s European path, leading de facto to a halt in the accession process.
The Council should call on the authorities to return urgently to the EU path and adopt democratic, comprehensive and sustainable reforms. “It is important to return to the implementation of the nine stages set out in the Commission’s communication on enlargement in 2023”, the Council should warn. And continues: “If Georgia reverses the current course of action and addresses the outstanding concerns and essential reforms, the accession process can resume”.
Ministers should urge the authorities to respect freedom of assembly and expression and to refrain from using force against peaceful demonstrators, politicians and journalists.
They should also call for concrete measures to overcome the growing polarisation, to refrain from any action likely to aggravate political tensions, and to investigate and remedy the electoral irregularities during the 26 October vote.
Turkey. The Council should recall that “accession negotiations are at an impasse and no new chapter can be envisaged for opening or closing”.
Reiterating its serious concerns about the “persistent and deeply worrying” situation in the areas of democracy, the Rule of law and fundamental rights, the Council should call on Ankara to reverse negative trends as a matter of urgency.
The Ministers are also expected to reiterate “the EU’s strategic interest in a stable and secure environment in the Eastern Mediterranean and in the development of a cooperative and mutually beneficial relationship with Turkey”, and that Ankara’s constructive engagement will help to advance the various areas of cooperation.
The Council should also reiterate the particular importance it attaches to the resumption and progress of talks on the settlement of the Cyprus issue.
Deeply regretting Ankara’s “very low level of alignment” with the EU’s Common Foreign and Security Policy, the Council should reiterate its firm call for greater alignment.
See the draft conclusions: https://aeur.eu/f/eqz (Original version in French by Isalia Stieffatre and Camille-Cerise Gessant)