TIVAT, Montenegro — More than two decades after the European Union first promised a future within the bloc for the Western Balkans, European leaders gathered in Montenegro this week to deliver a renewed message: enlargement is back on the agenda.
At a high-level summit in the coastal city of Tivat, leaders from the European Union and six Western Balkan countries — Albania, Bosnia and Herzegovina, Kosovo, Montenegro, North Macedonia, and Serbia — met alongside senior European officials including European Commission President Ursula von der Leyen, European Council President António Costa, French President Emmanuel Macron, and German Chancellor Friedrich Merz.
While no immediate accession decisions were expected, the gathering represented a significant political statement at a time when Europe faces mounting security challenges, Russia’s ongoing war in Ukraine, and growing Chinese influence across the Balkans.
Why the Western Balkans Matter
For years, EU enlargement appeared stalled. No new country has joined the bloc since Croatia’s accession in 2013, fueling frustration across the Western Balkans and raising questions about Europe’s commitment to its long-standing promises.
Today, however, European leaders increasingly view enlargement through a geopolitical lens. Bringing the Western Balkans closer to the EU is seen not only as an economic project, but as a strategic effort to strengthen stability, security, and democratic governance across the continent.
“The momentum is there,” Costa said ahead of the summit, emphasizing that enlargement is essential for Europe’s peace, stability, and security.
Montenegro Emerges as the Frontrunner
Among the six candidates, Montenegro has emerged as the strongest contender for membership.
The country, which celebrated 20 years of independence this year, is aiming to become the EU’s next member state by 2028 under its national “28 by 28” campaign. A technical group has already begun drafting Montenegro’s accession treaty, signaling that negotiations have entered a more advanced stage.
Albania is widely viewed as the second-most advanced candidate, while Serbia, Bosnia and Herzegovina, Kosovo, and North Macedonia continue to face political and institutional hurdles that could slow their progress.
A New Model for Enlargement?
One of the summit’s most closely watched discussions centered on proposals from Germany and France to create a more gradual pathway into the European Union.
Rather than waiting for full membership before receiving benefits, candidate countries could gain phased access to elements of the EU system, including participation in the single market, EU programs, and selected institutions. Supporters argue this would reward reforms more quickly while helping citizens experience tangible benefits long before formal accession.
The proposal reflects growing recognition that traditional accession processes can take decades, risking public frustration and political backsliding.
Delivering Benefits Before Membership
EU leaders also highlighted practical steps designed to bring the region closer to Europe even before accession.
Among the initiatives under discussion are the elimination of mobile roaming charges between the EU and Western Balkan countries, expanded participation in the Single Euro Payments Area (SEPA), and deeper integration into the European single market.
These measures aim to demonstrate that integration can produce tangible benefits for citizens today rather than only after membership negotiations are complete.
Enlargement in a New Geopolitical Era
The renewed focus on the Western Balkans comes as Europe confronts a rapidly changing geopolitical landscape.
Russia’s invasion of Ukraine accelerated conversations about enlargement, while concerns over foreign influence, migration pressures, energy security, and economic resilience have pushed the issue higher on the EU agenda. European leaders increasingly view enlargement as an investment in continental stability rather than simply a bureaucratic process.
The summit also underscored a broader reality: the future shape of Europe may be defined as much by who joins the Union as by the policies adopted within it.
For the Western Balkans, the message from Tivat was clear. Membership remains a long and demanding process, but after years of uncertainty, Europe is signaling that the door remains open — and that the journey toward it may finally be accelerating.
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