European commissioner for enlargement Marta Kos presents the 2025 Enlargement Package at a press conference in Brussels, 4 November 2025. Photo: EPA/OLIVIER HOSLET.

EU Enlargement Commissioner Marta Kos in Brussels on Tuesday presented the European Commission’s annual Enlargement Package, its report on the progress of EU candidate countries, which contained strong criticism for Serbia but praise for its Balkan neighbour Montenegro.

“In Serbia, the authorities continue to declare EU membership as their strategic goal but the actual pace of implementation of reforms has slowed down significantly. While some recent positive developments are noted, Serbia needs to deliver on credible reforms, most importantly in the area of fundamentals,” Kos said.

She said that in order to progress towards membership, Serbia needs “urgently reverse the backsliding on freedom of expression, on freedom of academia, as well as ensure progress on the electoral framework”.

She added that Serbian politicains needs to curb hostile rhetoric against the EU and the European Parliament, saying that disinformation about the EU being behind the current anti-government protests in the country could cost Serbia dear. 

“I can’t hear any more politicians from Serbia accusing the EU of standing behind what’s happening in Serbia. I will fight so that this disinformation stops. Otherwise, there will be consequences,” she said during the debate that followed the presentation of the Enlargement Package.

The European Parliament’s rapporteur for Serbia, Tonino Picula, said during the debate that the European Parliament adopted a resolution on October 22 condemning  “violence against peaceful demonstrators, intimidation of journalists and civil society and misuse of surveillance” in Serbia.

Picula added: “My message to the Serbian authorities is to show real progress, not excuses and intimidation… and open space for civil society, free and fair elections.”

In contrast to her tough words for Serbia, Kos said Montenegro, Albania, Moldova and Ukraine had made “significant advances on the EU path”, adding that Montenegro “could be the first [of them] in the EU. 

“Montenegro is the most advanced and has made significant progress towards EU accession, and it is at the same time, the most prepared country,” Kos said.

Albania has also made clear progress in harmonising its laws with the EU’s body of legislation over the past year, she added.

“This outstanding result is a clear recognition of the firm political commitment of Albania and the clear EU aspirations of its society – 91 per cent of citizens are supporting EU membership,” she said.

Regarding Bosnia and Herzegovina, Kos noted that it faced political tensions and a stalemate in the reform process. However, on September 25, Bosnia submitted its reform agenda to the Commission, following recent changes in the Serb-led Republika Srpska entity.

“The country now has an opportunity to progress on its EU path with, in the first place, the adoption of judicial reform laws and a department of chief negotiator,” Kos said.

She noted that North Macedonia had kept its full alignment with EU foreign policy but “has not taken decisive steps to advance in the accession negotiations process over the last year”. Required constitutional amendments have not been adopted yet.

Kosovo, meanwhile, remained committed to its European future, Kos said. “But progress was stalled by domestic politics, notably by elections [in February] and a protracted political deadlock afterwards.” Kosovo still does not have a government, nearly nine months on.

Kos also spoke about Turkey, which she said was “a key partner sharing the same strategic interest in the eastern Mediterranean, as well as in the Black Sea region”.

However, she added: “At the same time, the continued deterioration of democratic standards, the rule of law, the independence of the judiciary and respect for fundamental rights, remains a matter of considerable concern.”

‘We want to see a democratic Serbia in the EU’

European Council President Antonio Costa welcomes Serbian President Aleksandar Vucic ahead of a meeting in Brussels, 4 November 2025. Photo: EPA/OLIVIER HOSLET

At a separate event in Brussels on Tuesday organised by Euronews, Kos said that the ongoing mass protests in Serbia sparked by last year’s Novi Sad station disaster had shown the country’s “democratic potential”.

“We want to see a democratic Serbia in the EU… People want to go on the way of democracy and we are supporting this,” Kos said.

Kos said she could “understand” why Serbia under President Aleksandar Vucic maintains close relations with Russia and China, but there should be limits.

“Being supportive of a Russian regime that is killing people in Ukraine, not accepting the sanctions that the EU is having against Russia – there are things that we cannot tolerate anymore,” she said, according to a Euronews report.

When Vucic was asked by Euronews about the European Commission report’s criticism of the spread of anti-EU narratives in his country, he said that polarisation in Serbia was evidence of its democracy.

“Speaking about the anti-European narrative that is very much present in Serbia, I believe that, as a government, as a president, we have to change our narrative. I have to be more focused on the pro-EU narrative,” Vucic declared.

Kos said she had invited Vucic for dinner. “It will be an interesting exchange,” Kos said.