The European Commission’s 2026 Enlargement Package reviews progress towards EU membership across 10 candidate countries, highlighting advances in accession negotiations, stalled reforms and key priorities for the year ahead. Montenegro, Albania, Moldova and Ukraine recorded progress, while Serbia, Bosnia and Herzegovina, Turkey and Georgia faced significant challenges.
The European Commission has adopted its annual Enlargement Package on 5 November 2026. This report assesses the progress made by 10 countries towards EU membership over the past year and outlines key reform priorities for advancing their accession processes. Some countries moved quickly, while others stalled or moved away from the EU path.
The EU considers enlargement one of its key policies for promoting peace, stability and prosperity across Europe. Based on the principle of merit, a credible enlargement process is increasingly seen as an investment in the continent’s collective security.
Montenegro
Montenegro has provisionally closed 21 chapters so far. Each chapter covers one policy area that a candidate must align with EU rules, and a provisional closure means the chapter counts as complete for now. The Commission says Montenegro could close the remaining chapters by the end of 2026, provided member states agree. Work on the accession treaty is well underway. The Commission has also presented the financial package for Montenegro’s membership, and Council conclusions on that package confirm that the country is close to the final stage. The report stresses that sustained reforms and broad political consensus remain essential.
Albania
Albania opened its last remaining cluster during the reporting period. A cluster is a group of related chapters, and this step allowed the country to meet the interim benchmarks on its rule of law chapters. Those benchmarks clear the way for the provisional closure of four chapters. Albania aims to conclude its negotiations by 2027. The Commission says that goal requires steady reform and inclusive political dialogue. The country also saw its largest civic mobilisation since its transition to democracy, and the Commission argues that EU accession needs constructive dialogue across society.
Moldova
Moldova opened four clusters over the past year. The Commission finds that Moldova has met the conditions for opening all remaining clusters. The country has also moved quickly to align its laws with the EU acquis, the body of EU law that candidates must adopt, and it made substantial progress on the interim benchmarks in the fundamentals cluster. Moldova aims to close negotiations by early 2028. The Commission says the country must keep its current reform pace to reach that target.
Ukraine
Ukraine opened four clusters despite Russia’s war of aggression. The Commission finds that Ukraine has met the conditions for opening all remaining clusters. Its anti-corruption institutions continue to operate largely independently and effectively. The Commission now wants Ukraine to focus on the interim benchmarks under the rule of law. It also calls for progress on several roadmaps, covering the rule of law, democratic institutions, public administration reform and an action plan on national minorities. Ukraine aims to close negotiations by the end of 2028.
Serbia
Serbia made no substantive progress in its accession negotiations. Societal polarisation increased during the pre-electoral period, and negative trends in the fundamentals of the accession process ran against the government’s stated EU goal. Serbia’s alignment with the Common Foreign and Security Policy (CFSP) also remained low. The recent parliamentary elections gave the newly elected government a strong mandate for reform. The Commission says future progress depends on how that government reverses these trends, prioritises democratic criteria, the judiciary and fundamental rights, and restores respectful democratic dialogue. Serbia must also implement all obligations under the EU-facilitated Dialogue with Kosovo.
North Macedonia
North Macedonia continued work on the opening benchmarks for the fundamentals cluster. It adopted a roadmap for public administration reform and kept working on a rule of law roadmap and an action plan on minorities. The country has not yet adopted the constitutional amendments it committed to make, and the Commission says further efforts are needed to strengthen the rule of law. North Macedonia still ranks among the top performers under the Reform and Growth Facility, an EU funding tool linked to reform progress.
Bosnia and Herzegovina
Bosnia and Herzegovina still calls EU integration a strategic goal, but its actions point the other way. Political posturing, divisive rhetoric and anti-EU narratives increased ahead of the general elections. After the elections, the Commission expects the country to form all of its executive and legislative bodies without delay. It also wants Bosnia and Herzegovina to renew its commitment to EU reforms and take urgent steps to benefit from the Reform Agenda adopted under the Reform and Growth Facility.
Kosovo
Kosovo’s EU-related reform process stalled during a prolonged institutional crisis. A political agreement on electing the President eased the crisis. The report recorded progress in fighting serious and organised crime and in full alignment with the CFSP, but it also flagged concerns about the judiciary and fundamental rights. After the transfer of local governance in northern Kosovo, the Commission lifted its measures against Kosovo. The country has re-engaged in the Stabilisation and Association Process Dialogue and received financial assistance again. The Commission is ready to prepare an Opinion on Kosovo’s membership application if the Council asks for one. An Opinion is the Commission’s formal assessment of an application.
Turkey
Turkey remains a candidate country and a key partner for the EU. The EU continues to advance relations in a phased, proportionate and reversible way, focusing on areas of mutual interest. Legal actions against elected officials, opposition figures and civil society have intensified, and the Commission says this raises serious concerns about Turkey’s adherence to democratic principles. The gap between Turkey’s stated goal of joining the EU and its record on political criteria has widened. The underlying problems that led to the standstill in accession negotiations in 2018 remain unresolved.
Georgia
Georgia’s EU accession process remains effectively halted. The Commission’s earlier assessment that Georgia is a candidate country in name only still holds. Georgia has not met the nine steps set out in the Commission’s recommendation for candidate status. The ruling party continues to weaken democratic principles, the rule of law, fundamental rights and civic space, and the Commission says this enables further state capture. The report makes clear that Georgia will miss the benefits of candidate status unless its authorities change course. The EU reaffirms its support for Georgia’s independence, sovereignty and territorial integrity, and for the European aspirations of its people.
Roadmaps and gradual integration
The Commission presented indicative roadmaps for Montenegro, Albania, Moldova and Ukraine. Each roadmap sets concrete milestones for the year ahead. The Commission can adjust them as progress changes, and it will update them regularly. The approach builds on lessons from the 2004 and 2013 enlargements.
The Commission also mapped existing tools that could deepen integration in energy, transport, digital and defence. Over the next six months, it will hold dialogues on gradual integration with each enlargement partner.
Next steps
The Council will now consider the Commission’s recommendations and decide on the steps ahead in the enlargement process.
