2026 Enlargement Package shows that reform commitment delivers progress towards EU membership
Today, the European Commission adopted its annual Enlargement Package, taking stock of progress made by the enlargement partners over the past year and setting out reform priorities for the way forward.
Enlargement is one of the EU’s most consequential policies anchoring peace, stability and prosperity across the continent. Firmly built on the principle of merits, a credible enlargement policy is increasingly an investment in Europe’s collective security.
This year’s package demonstrates that sustained reforms efforts translate into concrete progress to EU membership, as evidenced by Montenegro, Albania, Moldova and Ukraine. The four countries have advanced their accession negotiations, with clusters opening and chapters being provisionally closed at an unprecedented pace. This year the Commission has presented the financial package for Montenegro’s accession and the work on the accession treaty is well underway. Taking this work forward, and as announced by President von der Leyen in her 2026 State of the Union address, the Commission is presenting today indicative roadmaps for these four most-advanced negotiating countries, setting out concrete milestones for the year ahead.
Ursula von der Leyen, President of the European Commission said: ‘The significant progress achieved by some candidates over the last year allows us to turn the promise of enlargement into reality. We are now proposing a set of indicative roadmaps for the most advanced negotiating countries – Montenegro, Albania, Ukraine and Moldova. A clear path for the year ahead and a firm anchor for the upcoming negotiations. Step by step, we are building a more complete, stronger Union.’
The reports show that the pace of reforms, particularly in the areas of democracy, the rule of law and fundamental rights, alongside political choices on security and defence, as well as progress towards economic convergence, directly shapes the speed of the accession process for each partner. Reforms, investments and the gradual integration of enlargement partners are already strengthening the Union’s capacity to protect its interests, reduce vulnerabilities and create new opportunities. To maximise these benefits ahead of accession, the Commission is also presenting today a common framework for gradual integration to further deepen integration in strategic sectors, such as energy, transport, digital and defence. This will make gradual integration more structured and coherent.
As enlargement partners advance on their reform paths, the EU must be ready to welcome them and match the pace of their progress. With the recent Communication ‘Preparing for a wider Union’, the Commission has laid the groundwork for ensuring that a larger Union is also stronger, more resilient and more effective.
Main conclusions
Montenegro has made remarkable progress toward EU accession, having provisionally closed 21 chapters to date. Subject to Member States’ agreement, Montenegro could provisionally close the remaining chapters by the end of this year. The ongoing work on Montenegro’s accession treaty, alongside the adoption of Council Conclusions on the financial package for the country’s EU accession, confirms that Montenegro is close to the final stage of its accession process. Sustained reform efforts and broad political consensus remain essential for the country’s EU future.
Albania continues to make progress towards EU accession. During the reporting period, it opened the last remaining cluster, met the interim benchmarks on the rule of law chapters, paving the way for the provisional closure of four chapters. Continued efforts are now needed across all remaining chapters. Reaching Albania’s ambitious but achievable objective of concluding accession negotiations by 2027 requires maintaining reform momentum and fostering inclusive political dialogue. Keeping up the momentum will require swift delivery on high-quality EU-related reforms. At the same time, the reporting period saw the country’s largest civic mobilisation since its democratic transition. EU accession is a whole-of-society approach that requires constructive dialogue.
Moldova has continued to make steady progress on its EU accession path, having opened four clusters over the past year. The Commission’s assessment remains that Moldova has met the conditions required to open all remaining clusters. Moldova has intensified the alignment of its legislation with the EU acquis across all chapters and made further progress on key rule of law reforms. It has also made very substantial progress towards meeting the interim benchmarks under the fundamentals cluster. It is now important that Moldova continues to maintain the current pace of reforms to allow the country to pursue its ambitious but achievable objective of closing accession negotiations by early 2028.
Ukraine remains committed to its EU accession path despite the challenges caused by Russia’s war of aggression, having opened four clusters over the past year. The Commission’s assessment remains that Ukraine has met the conditions required to open all remaining clusters. Ukraine has continued to advance on key sectoral reforms. Its institutional framework for combating corruption remains effective, with specialised anti-corruption institutions continuing to operate overall independently and effectively. The focus should now be on meeting the interim benchmarks under the rule of law, as well as delivering on the roadmaps concerning the rule of law, the functioning of democratic institutions and public administration reform, and on the action plan on national minorities. It is important that Ukraine continues to accelerate the pace of reforms, to put the country in a position to meet its ambitious objective to close accession negotiations by the end of 2028.
Serbia did not make any substantive progress in accession negotiations. The reporting period was marked by increasing societal polarisation, including in the pre-electoral context. While Serbia advanced the work on the alignment with EU acquis and technical standards, negative trends related to the fundamentals of the accession process ran counter to the authorities’ declared objective of EU accession and the values underpinning Serbia’s EU path. Alignment with the EU’s Common Foreign and Security Policy (CFSP) remained low. Serbia also needs to implement all obligations stemming from the EU-facilitated Dialogue, which remains an integral part of its European perspective. The recent parliamentary elections in Serbia provided the newly elected government with a strong mandate for reforms. Progress towards EU accession will depend on the incoming government’s efforts to reverse the negative trends, prioritise the fundamentals, including democratic criteria, the judiciary and fundamental rights. It will need to restore respectful democratic dialogue, demonstrate a clear and unambiguous commitment to EU values, including as regards alignment with the EU’s foreign and security policy and efforts towards reconciliation, good-neighbourly relations and normalisation.
North Macedonia continued work on the opening benchmarks for the fundamentals cluster. This includes the adoption of the roadmap for public administration reform and continued work on the roadmap for the rule of law, alongside the accompanying action plan on minorities. North Macedonia has yet to adopt the necessary constitutional amendments, which it committed to undertake. Further efforts are needed to reinforce the rule of law. The country made significant progress in implementing reforms under its Reform Agenda, making it one of the top performers under the Reform and Growth Facility. Intensified efforts to adopt the necessary constitutional changes and address opening benchmarks remain essential to move the accession process forward.
Bosnia and Herzegovina continued to publicly declare its commitment to EU integration as a strategic goal, while increasingly disengaging from its EU path. Political posturing, divisive rhetoric and anti-EU narratives increased ahead of the general elections. Following the elections, Bosnia and Herzegovina should swiftly proceed with setting up of all executive and legislative bodies and demonstrate a renewed commitment to delivering on EU reforms. Bosnia and Herzegovina also needs to urgently proceed with the necessary steps to fully benefit from the Reform Agenda adopted under the Reform and Growth Facility.
Kosovo saw its EU-related reform process stall amid a prolonged institutional crisis, which was alleviated by a political agreement on the election of the President. While some progress was recorded in the area of serious and organised crime, and full alignment with the CFSP, concerning developments were noted as regards the functioning of the judiciary and the respect for fundamental rights. Following the transfer of local governance in northern Kosovo, the Commission lifted its measures against Kosovo, re-engaging through the Stabilisation and Association Process Dialogue and resuming the delivery of financial assistance. While the support for European path remains strong, Kosovo needs to step up with the reform process and implement all obligations stemming from the EU-facilitated Dialogue, which remains an integral part of Kosovo’s European perspective. The Commission stands ready to prepare an Opinion on Kosovo’s membership application if requested by the Council.
Trkiye remains a candidate country and a key partner for the EU. The EU has continued to advance relations with Trkiye in a phased, proportionate and reversible manner, engaging in areas of mutual interest. However, legal actions brought against elected officials, opposition figures and civil society have intensified, raising growing concerns about Trkiye’s adherence to core democratic principles. The gap between Trkiye’s declared objective of joining the EU and its backsliding on the fundamental political criteria for EU accession has widened further. The underlying factors that led to the standstill in the accession negotiations in 2018 remain unaddressed.
Georgia’s EU accession process remains de facto halted, and the Commission’s assessment of Georgia as a candidate country in name only remains valid. Georgia continues to fall short of the nine steps set out in the Commission’s recommendation for candidate status, as the ruling party has continued to undermine democratic principles, the rule of law, fundamental rights and civic space, while enabling further state capture. Unless Georgian authorities change course and recommit to the fundamental principles underpinning EU accession, Georgia will continue to miss out on the benefits of candidate status and the pre-accession process. The EU’s longstanding support for Georgia’s independence, sovereignty and territorial integrity remains unwavering, as does its support for the European aspirations of the Georgian people.
Clear roadmaps towards EU accession
In the light of the progress achieved by Montenegro, Albania, Moldova and Ukraine, the Commission presented today indicative roadmaps with concrete milestones and targets for the year ahead. Building on past experiences, in particular from the 2004 and 2013 enlargements, they will help organise the next stages of preparation in a more structured and transparent manner, supporting the work of both candidate countries and EU institutions and Member States. The Commission may adjust the roadmaps, depending on progress made in meeting the required conditions, and will update them regularly, based on the progress made. The Commission stands ready to put forward similar roadmaps for other candidate countries once they have reached a similar level of advancement, pace and engagement in the accession negotiations.
Getting ready for membership through gradual integration
The Commission’s recent Communication ‘Preparing for a wider Union’, highlights the need to reinforce the gradual integration of accession partners as they advance towards EU membership. To this end, the Commission presented today a mapping of existing instruments providing a basis for identifying opportunities to deepen integration in strategic sectors, including energy, transport, digital and defence. Upon conditions, the reinforced gradual integration will further boost growth, competitiveness and security, while remaining an integral part of the accession process. The mapping aims to ensure greater coherence, predictability and reversibility, allowing for a more structured integration that brings clear benefits for enlargement partners and the EU. Over the next six months, the Commission will launch dialogues on gradual integration with the enlargement partners to take stock of existing measures and their financing and identify more tailored opportunities for each partner.
Next steps
It is now for the Council to consider today’s recommendations of the Commission and take decisions on the steps ahead in the enlargement process.
Background
Enlargement is a merit-based process, based on the objective progress of each enlargement country. The EU supports the strengthening of institutions, democratic governance and public administration reforms across these countries.
In the recent Communication ‘Preparing for a wider Union’, the Commission presented the pre-enlargement policy reviews, as well as the policy orientations and actions needed to prepare the Union for future enlargements. It showed that preparing the EU institutions, adapting the Union’s policies to new realities, and ensuring that the EU budget reflects our shared ambitions. The Communication also outlined that future accession treaties should also contain safeguards to ensure that key commitments made during negotiations continue to be upheld after membership.
Gradual integration enables enlargement countries to prepare for membership through earlier participation in EU policies. Partners can benefit from broader access to EU programmes and agencies, connectivity, as well as participate in expert groups and committees, even before accession. Furthermore, initiatives like the pound 6 billion Growth Plan for the Western Balkans, the pound 1.9 billion Moldova Growth Plan, and the pound 50 billion Ukraine Facility, allow for wider single market integration and establish stronger connection with the EU, such as through gradual integration and the participation in SEPA and “Roam Like at Home”.
Each enlargement has made our Union stronger. When ten countries joined the EU in 2004, it marked the Union’s largest ever expansion. In the two decades since, newcomers have seen living standards double, unemployment fall by nearly half, life expectancy rise from 75 to 79 years, poverty and social exclusion drop sharply, and 6 million new jobs created. For the existing members, trade has multiplied more than fivefold ever since, while 20 million jobs have also been created. For the EU as a whole, the Single Market gained 74 million new consumers at the time, and the EU economy has expanded by 27% despite global crises.
For more information
2026 Communication on EU Enlargement Policy
Factsheet on the EU accession process
Factsheet on the accession negotiations state of play
Factsheet on gradual integration
Communication ‘Preparing for a wider Europe’
Website on the EU Enlargement Forum 2026
For detailed findings and recommendations
Montenegro: Report; Factsheet
Albania: Report; Factsheet
Moldova: Report; Factsheet
Ukraine: Report; Factsheet
Serbia: Report; Factsheet
North Macedonia: Report; Factsheet
Bosnia and Herzegovina: Report; Factsheet
Kosovo: Report; Factsheet
Trkiye: Report; Factsheet
Georgia: Report; Factsheet
Quote(s)
The significant progress achieved by some candidates over the last year allows us to turn the promise of enlargement into reality. We are now proposing a set of indicative roadmaps for the most advanced negotiating countries – Montenegro, Albania, Ukraine and Moldova. A clear path for the year ahead and a firm anchor for the upcoming negotiations. Step by step, we are building a more complete, stronger Union.
Ursula von der Leyen, President of the European Commission
Enlargement is not just about making the European Union bigger but about making us safer and stronger. Many candidate countries already contribute to our security. They provide military expertise in drone warfare and modern battlefield technologies. Some candidate countries support EU operations in the Western Balkans and beyond. They strengthen the security of our energy supplies and help counter foreign information manipulation. Every time a country has joined the European Union it has benefitted our continent. Enlargement is a direct investment in Europe’s security.
Kaja Kallas, High Representative for Foreign Affairs and Security Policy/Vice-President of the European Commission
We have seen remarkable progress by those countries most advanced in the accession process. Today, we are merely a short time away from completing the process of Montenegro’s integration into the EU. An enlarged Union also becomes tangible with the other three frontrunners, as Albania, Moldova and Ukraine could join the European Union in the coming years if they sustain the reform efforts. It is also essential that EU Member States continue supporting enlargement.
Commission unveils 2027 work programme for a stronger and sovereign Europe and reports on simplification efforts
Today, the Commission adopted its 2027 work programme, setting out its main legislative and non-legislative initiatives for the year ahead. It is accompanied by the 2026 annual progress report on simplification, implementation and enforcement, taking stock of progress towards simpler EU rules and more effective results on the ground. At a time of major changes, the European Union is redefining itself to build a more independent, secure and prosperous Europe.
President Ursula von der Leyen said: ‘We are equipping Europe for the challenges to come. Our 2027 work programme sets out ambitious policies to strengthen our Union’s footprint. From deepening the Single Market to expanding our global partnerships. With strategic, streamlined policies, we will keep building a strong, independent Europe. A Europe that delivers for its citizens and businesses.’
In 2027, the Commission will focus on delivering, implementing and enforcing on our ambitious policies. It will continue to implement the One Europe, One Market roadmap to boost competitiveness, deepen the Single Market and cut red tape and barriers to growth across Europe. The work programme also sets out how the Commission will strengthen our unique social model, reduce strategic dependencies, strengthen the EU’s defence, support Ukraine, expand global partnerships and protect democracy and citizens. New initiatives will be clear, agile and fit for purpose.
Delivering on Europe’s priorities also means ensuring that its rules work in practice, without imposing unnecessary burdens. The Annual Report sets out the progress made in clearing the path to a simpler, more competitive Europe.
Robust analysis of evidence and active engagement with a wide range of stakeholders are essential for effective legislation. During implementation dialogues, College members have engaged directly with over 1,500 stakeholders – including industry representatives, civil society, social partners, business associations and public authorities at all levels.
In parallel, the enforcement of EU legislation has increased in pace. The Commission launched 874 infringement procedures, the highest number in ten years; referred 61 cases to the Court of Justice and requested financial sanctions in 25 cases. The Commission closed 499 infringement procedures as Member States complied with EU law. It will continue to speed up enforcement, across all areas, including with a focus on the Single Market.
Key deliverables of the 2027 work programme
Promoting sustainable prosperity and competitiveness: The Commission will take coordinated action to address high energy prices, strengthen its economy and further eliminate barriers to the Single Market. The Commission will create a European Corporation on Critical Raw Materials. It will table proposals to complete the Savings and Investments Union, including the venture capital framework reform and the Bank competitiveness and simplification package. It will tap the potential of Artificial Intelligence by proposing a blueprint for AI in health, transport, agri-food, manufacturing and defence and space. To ensure that technologies serve both people and our competitiveness, the Commission will propose a digital transformation package.
Supporting people, strengthening our societies and social model: The Commission will continue work to reinforce and will restate commitment to the enduring principles of the European Pillar of Social Rights. It will build on the EU’s Affordable Housing Plan to increase access to affordable housing through a housing simplification package. The Commission will propose European university alliances 2.0 to improve the quality of higher education. The European Care Deal will promote affordable, quality care. We will work towards preparing our systems for changing demographic realities.
Introducing a new era for defence and security: The Commission will continue investing in defence. It remains committed to supporting Ukraine and will continue to implement the EU-Ukraine Defence industrial pact to enhance cooperation between the industries of the EU and Ukraine. A new European Instrument for Strategic Enablers will boost Europe’s defence capabilities at scale. The new European Security Emergency Protocol will help enable the EU to quickly respond to evolving security threats to Europe. In addition, the Commission will increase the security of the external border by proposing a European emergency response framework and modernising the Schengen visa framework. The Commission will also further assess the impact of its data retention rules.
Sustaining our quality of life: The Commission will keep working on adapting to and mitigating climate change. It will propose a European Water Initiative to help better manage our vital water resources, present a European Heatwave Plan to improve cross-sectoral action; and consider reinforcing capacities and capabilities required for the EU to address future crises. The Commission will also launch a Climate Insurance Alliance to address the climate insurance gap and improve risk management everywhere. The review of the nature protection Directives will allow us to assess whether changes to the legal framework are needed to continue to function effectively. To ensure effectiveness in view of climate neutrality objective and to move away from fossil fuels, we will review the CO2 standards for heavy-duty vehicles.
Protecting democracy and upholding values: Seventy years after the signature of the Treaty of Rome, the Commission will gather the brightest minds from across the EU in a new Congress of Europe to help shape a shared vision for Europe’s future. We will step up our work under the European Democracy Shield, including by coming forward with a Recommendation on Safety in politics to safeguard inclusive democratic participation. The Commission will also follow up on the European Citizens’ Initiative on conversion practices with a Recommendation calling on Member States to ban them.
Leveraging our power and partnerships abroad: The EU will continue building trusted partnerships to reduce vulnerabilities and strengthen supply chains. It will deepen strategic cooperation with key partners, such as Canada, and cement our trade and economic ties abroad, notably with Indonesia, India, Australia, the Philippines and Thailand. The EU will build new tools against economic risks abroad with a diversification instrument and a deterrence pact. The EU will continue to support the rules-based international order, of which the International Criminal Court is a fundamental part. It will continue to stand firmly with Ukraine and contribute to peace and stability in the Middle East, Syria, Lebanon and the Red Sea while continue promoting freedom of navigation and maritime security through the straits of Hormuz and Bab al-Mandab.
Delivering together and preparing our Union for the future: The Commission renews its calls on co-legislators to reach a political agreement on the next 2028-2034 Multiannual Financial Framework by the end of the year, with the aim of being ready to start implementing it from the 1st January 2028. In parallel, the Commission will enhance the protection of taxpayer’s money with the review of the Anti-Fraud Architecture, including the upcoming revision of the legislation for OLAF, the European Public Prosecutor’s Office and the protection of EU financial interests.
A focus on results and simpler rules
Since the start of its mandate, the Commission has proposed 12 omnibus packages, alongside other simplification initiatives, with the potential to generate over pound 22 billion in annual savings, nearly 60% of its mandate target. The priority now is to ensure that European businesses and citizens feel this impact. In this regard, securing swift and ambitious agreements from the co-legislators on pending proposals remains key.
The Commission has also stepped up its effort to help Member States apply EU rules more consistently through transposition roadmaps, implementation strategies, practical guidance and targeted technical assistance. And to prevent unnecessary national requirements from adding back the burdens removed at EU level, the Commission is working with Member States on a new Pact against gold-plating.
In addition, the Commission will continue the simplification drive, by tabling further simplification proposals such as the bank competitiveness and simplification package. The post-2030 framework will achieve simplification, while ensuring that to deliver on decarbonisation objectives.
Background
Every year, the Commission adopts a work programme setting out the list of actions it will take in the following year. The work programme informs the public and co-legislators of political commitments to present new initiatives, including simplification proposals, withdraw pending proposals and review existing EU legislation. The work programme is the result of close cooperation with the European Parliament, Member States and the EU consultative bodies.
For more information
2027 Commission work programme
2026 Overview Report
Questions and answers on the 2027 Commission work programme
Questions and answers on the 2026 Overview Report
Factsheet on the 2027 Commission work programme
Factsheet on the 2026 Overview Report
Quote(s)
We are equipping Europe for the challenges to come. Our 2027 work programme sets out ambitious policies to strengthen our Union’s footprint. From deepening the Single Market to expanding our global partnerships. With strategic, streamlined policies, we will keep building a strong, independent Europe. A Europe that delivers for its citizens and businesses.
Ursula von der Leyen, President of the European Commission
Europe’s independence hinges on our ability to forge our own path in responding to the defining challenges of our time. We have already put in place much of the framework needed to become stronger and better prepared to act. We must now continue to focus on our strategic priorities, and translate this agenda into concrete results on the ground. This work programme will guide our efforts to this effect over the coming year, in full cooperation with the co-legislators.
Maroš Šefcovic, Commissioner for Trade and Economic Security; Interinstitutional Relations and Transparency
The Commission keeps turning simplification into concrete action. Our 12 omnibus and other measures have laid out savings of up to EUR 22.3 billion per year – almost 60% of our target for this mandate. In 2027, we will go further in tackling unnecessary burdens and addressing implementation gaps in areas such as transport, housing and digital, and accelerating permitting. We will work with the Parliament, the Council and Member States to reduce costs, tackle gold plating and build a more coherent Single Market. We continue calling for the ambition of our proposals to be maintained. Our goal is clear: less red tape and complexity for citizens, and more scope for businesses to invest, innovate and grow.
Valdis Dombrovskis, Commissioner for Economy and Productivity; Implementation and Simplification
Commission seeks feedback on advertising repositories under the Digital Services Act
Today, the European Commission is calling for evidence to gather feedback on upcoming technical guidelines concerning advertising repositories under the Digital Services Act (DSA). These enable that information about ads is available to the public and easy to access.
Once adopted, the guidelines will aim to ensure that the advertising repositories provided by very large online platforms (VLOPs) and very large online search engines (VLOSEs) are effective.
The Commission invites responses from a range of experts, including researchers, civil society organisations, journalists, providers of VLOPs/VLOSEs, and representatives from the advertising industry. These responses will help to shape the guidelines.
Advertising repositories enable researchers, civil society, journalists and national authorities to detect risks related to online advertising, including online scams, disinformation campaigns, misleading commercial practices and the promotion of illegal products and services, among others. Advertising repositories also support effective supervision and enforcement of the DSA.