Brussels – The 2024 Enlargement Package comes at a pivotal moment for the European Union’s strategy in regions waiting for future membership. This period has been marked by significant developments: Moldova’s referendum on European integration, the adoption of reform agendas under the Western Balkans Growth Plan, and the turbulent elections in Georgia, which have sparked international concern.
After carefully considering these events—delaying its deliberations by two weeks—the European Commission unveiled the 2024 Enlargement Package on 30 October. This comprehensive set of documents outlines the EU’s strategy for integrating potential new Member States. “Today, more than ever, EU membership is a strategic choice,” stated Josep Borrell, the EU High Representative for Foreign Affairs and Security Policy, at a press conference in Brussels. “Alignment with EU values, particularly the rule of law, and with the Common Foreign and Security Policy is the clearest indicator of strategic orientation in the new geopolitical context.” Alongside Borrell was the often-controversial Commissioner for Neighbourhood and Enlargement, Hungarian Olivér Várhelyi, who oversaw the Commission’s final deliberations on accession processes and the reforms required of partner countries.
The Enlargement Package continues to assess 10 countries: official candidates for membership (Albania, Bosnia and Herzegovina, Georgia, Moldova, Montenegro, North Macedonia, Serbia, Türkiye, and Ukraine) as well as one potential candidate (Kosovo). This year’s package introduces several key updates, both positive—such as the initiation of negotiations with Kyiv and Chișinău, the European Council’s approval to begin talks with Sarajevo, and progress on negotiations with Tirana—and negative, particularly concerning Georgia and Serbia.
Progress in the 2024 Enlargement Package
Montenegro remains the frontrunner in the EU enlargement process. In June, it met interim benchmarks for chapters 23 and 24 on the rule of law (justice and fundamental rights), bringing the provisional closure of additional chapters—“if conditions are met”—within reach. Podgorica’s goal is to conclude accession negotiations by 2026 and secure ratification of its Accession Treaty by Member States in 2028.
Albania has also made significant progresses, opening negotiations on the Fundamentals Cluster, which covers economic criteria, the functioning of democratic institutions, and public administration reform (five out of 33 chapters). The Commission urges Albania to “further intensify” its reforms, consolidating progress on the rule of law, fighting corruption and organised crime, and promoting fundamental rights.
Ukraine and Moldova continue to advance together. The opening of negotiations in late June was described as “a significant recognition of their determination to pursue reforms towards EU membership.” The screening of the EU acquis is proceeding smoothly for both countries, though Moldova faces the additional challenge of “ongoing Russian interference.” If both nations meet the required conditions, the Commission could propose opening the Fundamentals Cluster as early as 2025.
Despite institutional challenges, Bosnia and Herzegovina has demonstrated tangible progress, aligning with the EU’s Common Foreign and Security Policy, passing laws to strengthen judicial integrity, and improving migration management. Following the European Council’s approval of negotiations in March, the Commission is preparing a negotiating framework for adoption by the Council “once all relevant measures” are implemented by Sarajevo.
Setbacks in the 2024 Enlargement Package
The most significant setback in the 2024 Enlargement Package is Georgia. After gaining candidate status in December 2023, the process has effectively been frozen due to the government’s refusal to address controversial legislation, such as its law on foreign agents. This stagnation is compounded by concerns about the democratic process, particularly following the elections on 26 October. The EU has called for comprehensive electoral reform, but until the ruling party realigns with EU values, Georgia’s accession process remains stalled, as confirmed by the EU Ambassador to Georgia, Pawel Herczynski.
Serbia, although meeting benchmarks for opening the Competitiveness and Inclusive Growth Cluster, has made little progress on the reforms required for EU accession, particularly on the rule of law. The Commission has called on Belgrade to create “a truly enabling environment” for civil society and media, while urging credible efforts to combat disinformation, especially from Russian sources.
North Macedonia, despite completing the screening process for all six EU acquis clusters in December 2023, has lost momentum on reforms related to the judiciary, anti-corruption efforts, and organised crime. This has hindered its progress alongside Albania on the path to EU membership.
For Kosovo, the challenge remains political. While the Commission is “ready to prepare an opinion” on its membership application, this can only proceed “when requested by the Council.” The lack of recognition of Kosovo’s independence by five EU Member States (Cyprus, Greece, Romania, Spain, and Slovakia) remains an insurmountable obstacle for now.
Türkiye continues to see its accession negotiations frozen since 2018 due to “serious concerns” over fundamental rights and the rule of law, including judicial independence. While relations with Ankara have gradually resumed in areas of mutual interest since April, these developments do not touch upon Türkiye’s stalled EU membership aspirations.
