Montenegro could conclude membership negotiations with the European Union in December 2026, while Serbia, Bosnia and Herzegovina and Kosovo have not noted progress in the so-called fundamental areas. So said the European Commission’s annual communiqué ( The EC) for enlargement policy, which this institution is expected to publish next week.

The enlargement package is a set of documents through which the European Commission praises the candidate and potential candidates’ progress towards membership in the European Union. On the basis of that, member states decide on further steps in membership negotiations, such as opening and closing chapters.

In the draft, which free Europe Radio ( REL, it is estimated that the progress of countries in the region continues to be uneven.

Serbia, Bosnia and Herzegovina and Kosovo have not noted progress in fundamental areas, the document says. The fundamental areas include rule of law, democratic institutions, public administration reform and economic criteria, and define the overall pace of negotiations.

Montenegro: Outstanding Progress Toward the EU

Montenegro is described in the document as the country leading the enlargement process. According to the Commission’s assessment, Podgorica has fulfilled the final criteria in all negotiation chapters and could complete negotiations by the end of this year.

Montenegro’s extraordinary progress in membership negotiations with the EU proves that enlargement remains a reachable reality, the draft said.

The Commission also estimates that Montenegro has steadily advanced work in fundamental areas, with good results in rule of law, economic governance and public administration reform. As evidence that Montenegro leads the enlargement process, it cites work on the membership treaty and the Commission’s proposal for the financial package.

In Montenegro’s membership treaty, a reinforced approach to defence clauses would be implemented for the first time. The treaty would reportedly serve as a model for future membership treaties.

Among Montenegro’s reforms, the Commission singles out constitutional changes that have strengthened the independence of the Judiciary and Prosecutorial Council, fully in line with the recommendations of the EU and the Venice Commission. Also mention zero tolerance policy on attacks against journalists, as well as the alignment of visa policy with the EU from October 31st 2026.

Perhaps recent report on Montenegro

The European Commission says this year’s report on Montenegro may be the last regular report on this country, as the membership negotiations process is expected to be completed soon. From next year, it would replace monitoring reports, while until membership a mechanism would be developed for monitoring the fulfillment of the obligations taken.

The Commission prepares monitoring reports in the period between the completion of membership negotiations and the country’s EU entry. At this stage progress in negotiations is no longer assessed, but verify whether the country is meeting its obligations and whether it is completing the remaining reforms until membership day.

After the latest intergovernmental conference, Montenegro would receive active observer status in most of the EU Council working groups.

Montenegro, Albania, Moldova and Ukraine are the only countries for which the Commission presents on the annex of the document, with deadlines and objectives for the outcome of negotiations.

Serbia: Pressure to Civil Society and the Judicial

For Serbia, the draft contains largely critical assessments and finds lack of progress in key areas, such as rule of law and freedom of expression. It is also said that Serbia’s approach to EU foreign policy remains low.

As for the judiciary, the Commission notes that the initial reggress caused by the adoption of the so-called Merdiq laws has since been corrected. This reggress, said in the draft, was caused by legal changes that removed part of the guarantees for prosecution autonomy and judicial independence. At the same time, it is estimated that inadequate pressures have increased significantly in Serbia.

Serbia is cited as a country where, along with Bosnia and Herzegovina, Georgia and Turkey, the risk of the state’s capture remains pronounced. This term describes a situation in which close interest groups put institutions under their control.

Positive developments mention Serbia’s involvement in the geographical extent of the Euro Self Paying Zone ( SEPA). Preparational work has also begun for an agreement on the assessment of the compatibility of industrial products.

Bosnia and Herzegovina: Political fragmentation

For Bosnia and Herzegovina, the Commission estimates that the functioning of executive and legislative powers has been difficult by political fragmentation. The same assessment has been given to Kosovo.

In Bosnia and Herzegovina, independence and impartiality of the judiciary must be improved, while legal reforms and integrity verifications are key to restoring public confidence in the judicial system, the draft says.

The Commission calls on Bosnia and Herzegovina to fully devote itself to the Financial Action Task Force Action Task Plan ( FATF). It has been positively praised to continue the country’s full approach to EU foreign policy, as well as to adopt a new assessment of the threat from serious and organised crime, in line with Europol methodology.

Kosovo: For the first time, full alignment with EU foreign policy

Kosovo, along with Serbia and Bosnia and Herzegovina, ranks among the countries without progress in fundamental areas. The commission also estimates that Kosovo faces the political and interest groups’ influence over courts and prosecutors.

As innovation, the draft stresses that Kosovo’s full approach to the common EU foreign and security policy has been presented for the first time in chapter 31.

The EC estimates there is no progress in establishing the Association of Serb majority municipalities, envisioned with the dialogue agreement. The country is expected to launch this process in line with obligations from the dialogue, including the 2023 Ohrid Agreement. It is also required that the status of Serbia-backed structures and services be resolved in line with dialogue agreements and Kosovo laws, not through uncoordinated measures, as well as through consultations structured with Kosovo Serb representatives.

Dialogue between Serbia and Kosovo

As in previous years, the Commission stresses that Serbia and Kosovo’s progress on the European road relates to essential progress in normalising relations. The implementation of the Agreement on the road to normalisation and its implementation Anex remains insufficient, the draft said.

Normation is only a condition on European road. It is key to the security, stability and economic development of both societies and the wider region. The lack of progress has political and economic costs and risks both sides falling behind at a time when the enlargement process has again gained momentum, the document said.

Growth Plan and Enhance

According to the draft, by September 2026, the Growth Plan for the Western Balkans has been disbursed 193.3m euros in grants of a total of 1.6 billion euros, for 90 reforming steps met. The Commission estimates that implementation must be accelerated. It is also said that it is working on eliminating roaming tariffs with Western Balkan countries.

In the part of reconciliation, the Commission emphasises that historical revisionism, denial or legalisation of war crimes and promotional rhetoric are incompatible with the values upon which the membership process is based.