Brussels – The start of a crucial year for the future of EU enlargement is marked by Poland’s white and red flag. Until 30 June, Warsaw will hold the presidency of the Council of the European Union, one of the two legislative bodies composed of ministers from EU Member States. Security, Europe! is the motto of the Polish presidency, while “welcoming new members is a geopolitical imperative and an opportunity to spread stability and growth across the continent.”
“To make Europe more secure, we need the unity of the European Union and its willingness to work together with partners who share our values, including those aspiring to EU membership,” the Polish presidency’s programme states. A “merit-based” enlargement of the EU and “sustained” support for Ukraine and its reconstruction are the main priorities for EU enlargement, including “increasing pressure on Russia and its allies” to end the invasion of Ukraine “as soon as possible.”
EU enlargement in the General Affairs Council
The General Affairs Council will take the lead in advancing the EU enlargement process. European affairs ministers will work “both internally and externally,” focusing on safeguarding the rule of law, outlining internal reforms, countering foreign information manipulation and interference, and strengthening democratic resilience within the EU and its neighbourhood.
The objective of the Polish presidency is to make progress in the EU enlargement process both eastward and towards the Western Balkans, “in line with the involvement of countries aspiring to join the EU” and “in accordance with a merit-based approach.” Reforms in the candidate countries need to be consolidated, and in the context of Ukraine, it is crucial for strengthening defence against Russian aggression. Warsaw will also guide the EU Council in maintaining a ‘constructive dialogue’ with Türkiye.
A crucial task will be advancing the EU’s internal reforms to ensure its effective functioning in light of the potential enlargement. “We will focus on what is needed to prepare the EU for new members” and to fulfil the ambitions expressed in the Strategic Agenda 2024-2029, through a follow-up report to be presented to the European Council. Discussions will be grounded in “a solid, fact-based analysis,” which will serve as a common reference point for the Member States. Above all, the Polish presidency is eager for the European Commission’s in-depth pre-enlargement policy reviews to be published.
EU enlargement in the Foreign Affairs Council
The Russian invasion and its consequences on the European continent will drive the Foreign Affairs Council’s efforts in the first half of 2025 to maximise support for Ukraine “on political, military, and economic fronts,” while maintaining existing restrictive policies against Russia and Belarus. Strengthening EU-Ukraine relations will also involve deeper cooperation within the frameworks of the Common Foreign and Security Policy and the Common Security and Defence Policy.
Alongside its support for Kyiv’s plans for a “lasting and just end to the war,” the Polish presidency will seek to provide “stable military support” to Ukraine, including through the European Peace Facility. The EUMAM Ukraine military assistance mission should be adjusted to meet the “evolving and long-term needs” of the Ukrainian Armed Forces, and the full potential of the EUAM Ukraine civilian mission should be “fully exploited.”
The future of the Eastern Partnership will also be a central topic, with efforts aimed at updating and revitalising it. The Polish presidency intends to make the Eastern Partnership “complementary” to the enlargement process, “having a stronger impact on pro-European reforms in countries that do not aspire to join the EU.” A key focus will be the stabilisation of the South Caucasus, particularly the normalisation of relations between Armenia and Azerbaijan, as well as supporting Georgian people’s aspirations for EU membership. Political dialogue with the Western Balkans and Türkiye will continue to foster close cooperation with the EU.
Finally, the Foreign Affairs Council will also be responsible for actions related to the Common Commercial Policy, with the “important objective” of amending the trade component of the Association Agreements with Ukraine and Moldova. This “effective review” will assess the liberalisation concessions granted for market access under Articles 29 and 147 of the EU Association Agreements with Kyiv and Chișinău, respectively. Ensuring the “appropriate adaptation of economic relations” is considered “a key step in the process of member negotiations.”
EU enlargement in the Agriculture and Fisheries Council
The Agriculture ministers will tackle the challenges that future EU enlargement—including to Ukraine—will bring to the agricultural sector. This is seen as a crucial aspect in shaping a “strong” Common Agricultural Policy in the next Multiannual Financial Framework (MFF), that supports farmers and fosters rural development. The Polish presidency’s programme stresses that “meeting the ambitious objectives set for agriculture and the Common Agricultural Policy requires adequate funding.”
EU enlargement in the Justice and Home Affairs Council
Given the ongoing war in Ukraine and its implications for the EU, the Polish presidency’s programme outlines that “we will work to support Ukraine in addressing migration challenges, including internal displacement.” Justice ministers will work on ensuring accountability for those responsible for crimes linked to the war in Ukraine. At the same time, Home Affairs ministers will continue to build preparedness to “adequately manage a possible next wave of war refugees” and explore “alternative solutions” to temporary protection for war refugees from Ukraine, aiming to “prevent secondary movements.”
EU enlargement in the Economic and Financial Affairs Council
The Economic and Financial Affairs Council will focus on customs relations with EU bordering countries—Ukraine, Moldova, and the Western Balkans—”also in the context of their potential future accession to the EU.” The Polish presidency aims to support the creation of the EU Customs Alliance for Borders (EUCAB), “an initiative aimed at strengthening cooperation and coordination between Member States on customs border management.”
