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EU Commission Adopts 2025 Enlargement Package, Clears Ukraine to Open Three Negotiating Clusters

The Commission presses for faster rule-of-law reforms to sustain technical momentum despite Hungary’s block.

People walk across the Bridge of Peace over the Mtkvari river in Tbilisi, Georgia September 10, 2025. REUTERS/Irakli Gedenidze/File Photo
European Union flags and a Ukrainian flag flutter outside the EU Commission headquarters in Brussels, Belgium, February 24, 2025. REUTERS/Yves Herman
European Council President Antonio Costa, right, walks with Moldova's President Maia Sandu prior to a meeting at the European Council building in Brussels, Belgium, Tuesday, Nov. 4, 2025. (AP Photo/Virginia Mayo)
European Commission President Ursula von der Leyen, left, walks with European Union foreign policy chief Kaja Kallas as they arrive for the weekly College of Commissioners meeting at EU headquarters in Brussels, Belgium, Tuesday, Nov. 4, 2025. (AP Photo/Virginia Mayo)

Overview

  • Brussels says Ukraine has met the conditions to open clusters 1 (fundamentals), 2 (internal market) and 6 (external relations) and calls for an acceleration of reforms to pursue Kyiv’s goal of closing talks by end-2028.
  • EU Enlargement Commissioner Marta Kos highlights Montenegro, Albania, Ukraine and Moldova as the year’s top reform performers and says new members by 2030 is a realistic prospect.
  • Hungary continues to prevent formal Council decisions on opening clusters for Ukraine, with the Commission seeking a political signal to allow negotiating benchmarks and other technical work to proceed.
  • The package sharply criticizes Georgia for serious democratic backsliding, calling it a candidate country in name only, and warns Serbia over slowed reforms and concerns about freedom of expression and trust in institutions.
  • To guard against post-accession erosion of democratic standards, the Commission proposes stronger safeguards in future Accession Treaties focusing on rule of law, democracy and fundamental rights.