On the 2025 Commission report on Kosovo

MOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

on the 2025 Commission report on Kosovo

(2025/2252(INI))

– having regard to the Stabilisation and Association Agreement between the European Union and the European Atomic Energy Community, of the one part, and Kosovo, of the other part, in force since 1 April 2016,

– having regard to Kosovo’s application for membership of the European Union of 15 December 2022,

– having regard to Kosovo’s application for membership of the Council of Europe of 12 May 2022,

– having regard to the framework agreement between the European Union and Kosovo on the general principles for the participation of Kosovo in Union programmes, in force since 1 August 2017,

– having regard to Regulation (EU) 2021/1529 of the European Parliament and of the Council of 15 September 2021 establishing the Instrument for Pre-Accession assistance (IPA III),

– having regard to Regulation (EU) 2023/850 of the European Parliament and of the Council of 19 April 2023 amending Regulation (EU) 2018/1806 listing the third countries whose nationals must be in possession of visas when crossing the external borders and those whose nationals are exempt from that requirement, as regards Kosovo, allowing visa-free travel for holders of Kosovo biometric passports as of 1 January 2024,

– having regard to Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May 2024 on establishing the Reform and Growth Facility for the Western Balkans,

– having regard to the Presidency conclusions of the Thessaloniki European Council meeting of 19 and 20 June 2003,

– having regard to the EU-Western Balkans summits, held in Sofia, Zagreb and Brdo pri Kranju in 2018, 2020 and 2021 respectively, and their declarations,

– having regard to the Western Balkans Leaders’ meeting of 1 July 2025 in Skopje, North Macedonia, on the Growth Plan for the Western Balkans,

– having regard to the declaration of the EU-Western Balkans Summit of 17 December 2025,

– having regard to the Presidency conclusions of 16 December 2025 on enlargement,

– having regard to the Berlin Process, launched on 28 August 2014,

– having regard to the Chair’s conclusions of the 2025 Summit on the Berlin Process, held on 22 October 2025,

– having regard to the Commission communication of 6 October 2020 entitled ‘An Economic and Investment Plan for the Western Balkans’ (COM(2020)0641),

– having regard to the Commission communication of 8 November 2023 entitled ‘New growth plan for the Western Balkans’ (COM(2023)0691),

– having regard to the Commission communication of 20 March 2024 on pre-enlargement reforms and policy reviews (COM(2024)0146),

– having regard to the Commission communication of 4 November 2025 entitled ‘2025 Communication on EU enlargement policy’ (COM(2025)0690), accompanied by the Commission staff working document entitled ‘Kosovo 2025 Report’ (SWD(2025)0752),

– having regard to the Treaty establishing the Energy Community, signed in Athens on 25 October 2005, which aims to extend the EU’s internal energy market rules to south-eastern Europe,

– having regard to UN Security Council Resolution 1244 of 10 June 1999, to the International Court of Justice (ICJ) advisory opinion of 22 July 2010 on the accordance with international law of the unilateral declaration of independence in respect of Kosovo, and to UN General Assembly Resolution 64/298 of 9 September 2010, which acknowledged the content of the ICJ opinion and welcomed the EU’s readiness to facilitate dialogue between Serbia and Kosovo,

– having regard to Kosovo’s continued alignment with the EU’s common foreign and security policy,

– having regard to the first agreement on principles governing the normalisation of relations between Serbia and Kosovo of 19 April 2013, to the agreements of 25 August 2015, and to the ongoing EU-facilitated dialogue for the normalisation of relations,

– having regard to the Brussels Agreement of 27 February 2023 and the Ohrid Agreement of 18 March 2023 and to the implementation annex thereto,

– having regard to the continued presence and mandate of the NATO-led Kosovo Force, which continues to help maintain a safe and secure environment and freedom of movement in Kosovo,

– having regard to Council Decision (CFSP) 2025/1161 of 5 June 2025 amending Joint Action 2008/124/CFSP on the European Union Rule of Law Mission in Kosovo, EULEX Kosovo, which extended the mission’s mandate until 14 June 2027,

– having regard to the final report of the European Union Election Observation Mission on the 2025 parliamentary elections in Kosovo,

– having regard to its previous resolutions on Kosovo,

– having regard to the joint recommendations adopted at the 12th meeting of the EU-Kosovo Stabilisation and Association Parliamentary Committee, held on 9 December 2024,

– having regard to the 2025 Corruption Perceptions Index by Transparency International,

– having regard to the 2025 World Press Freedom Index by Reporters Without Borders,

– having regard to the fact-finding mission to Pristina of the Council of Europe’s Safety of Journalists Platform of 24 and 25 March 2026,

– having regard to Rule 55 of its Rules of Procedure,

– having regard to the report of the Committee on Foreign Affairs (A10-0166/2026),

A. whereas enlargement policy is one of the most effective EU foreign policy instruments, one of the most successful policies to incentivise and encourage fundamental reforms in enlargement countries, and a strategic geopolitical investment in long-term peace, stability and security throughout the continent;

B. whereas democracy, human rights and the rule of law are the fundamental values on which the EU is founded; whereas these fundamental values cannot be compromised in the context of the enlargement process;

C. whereas the Constitution of the Republic of Kosovo is one of the most progressive in terms of minority rights;

D. whereas each enlargement country is judged strictly on its own merits; whereas it is the implementation of the necessary reforms and compliance with the set of criteria and common European values that determine the timetable and progress of accession; whereas the accession process cannot proceed without the implementation of the necessary reforms;

E. whereas Kosovo’s path towards EU membership also depends on the normalisation of relations with Serbia and on good neighbourly relations;

F. whereas safeguarding the integrity of democratic processes has become a central consideration in the EU’s enlargement policy; whereas Kosovo has been subjected to foreign interference and disinformation campaigns, notably from Russia, including through Serbian nationalist outlets, which have been aimed at destabilising democratic institutions, undermining societal cohesion and obstructing Kosovo’s European integration; whereas strengthening democratic resilience is an integral part of meeting the political criteria for accession;

G. whereas, contrary to the general European line, Kosovo’s independence has not yet been recognised by Cyprus, Greece, Romania, Slovakia and Spain;

Commitment to EU accession

1. Commends Kosovo’s continued commitment to EU accession, which reflects a clear strategic geopolitical choice that enhances security, a strong attachment to Europe, a broad cross-party consensus on European integration and a high level of public support for Kosovo’s European path, in particular through the development of close and concrete relations with the EU;

2. Reiterates its firm belief that Kosovo’s future lies in the EU, especially given the current geopolitical dynamics in the region, rapid major shifts in world politics and growing competition with authoritarian regimes; stresses that the rapprochement between Kosovo and the EU is part of a gradual integration process that goes beyond formal accession alone; stresses that tangible forms of cooperation and gradual integration, including sectoral partnerships, participation in EU programmes such as Erasmus+ and inclusion in certain EU policies, are vital levers for strengthening the ties with Kosovo; emphasises that these instruments help to consolidate Kosovo’s attachment to Europe and address the geostrategic challenges in the region, including by preventing the influence of external actors, without presupposing the speed or outcome of the enlargement process;

3. Welcomes the formation of the new Assembly and Government of Kosovo on 12 February 2026, following the democratic early parliamentary elections held in December 2025 and after more than a year of political stalemate and deep political polarisation; regrets, however, the paralysed political process during 2025 that resulted in a ‘lost year’ for Kosovo; regrets, further, the National Assembly’s failure to elect a new President by the constitutional deadline; takes note of the dissolution of the National Assembly by presidential decree on 6 March 2026 and the subsequent Constitutional Court verdict overturning this decision and granting Members of the Assembly 34 days to elect a new President after which the country would be compelled to hold new elections; takes note of the failed attempts to elect a President by this deadline and the consequent announcement of new legislative elections for 7 June 2026;

4. Welcomes, furthermore, the Kosovo National Assembly’s ratification of the agreements under the Reform and Growth Facility on 13 February 2026; notes that this paves the way for Kosovo to access substantial grants and concessional loans aimed at advancing key reforms, to accelerate its economic convergence and to make further progress on its European path; deeply regrets that, given the ‘lost year’ and in view of potentially losing additional months to an election campaign, the country may not be able to deliver on all the necessary reforms by the deadlines, and would risk losing significant amounts of financial support under the Reform and Growth Facility;

5. Stresses that credible enlargement is rooted in a merit-based process, requiring a sustained and irreversible reform momentum and the rigorous implementation of reforms that meet EU standards, notably the Copenhagen criteria; calls on Kosovo to step up its progress in implementing EU-related reforms, particularly in the areas of the rule of law, fundamental freedoms and the fight against corruption, in particular high-level corruption, and to continue its efforts by strengthening its commitment to European values and standards; stresses that any pre-accession assistance and related financial assistance must remain strictly conditional on measurable and verifiable results in these areas; recalls, in this regard, the importance of upholding the rule of law, guaranteeing respect for the opinions of all, and effectively applying laws in practice; emphasises that reprioritising and achieving tangible progress on these reforms is necessary for Kosovo to strengthen its attachment to Europe and continue on its path to getting back on track towards EU accession; stresses that enlargement also implies thorough preparation on the part of the EU institutions and Member States in order to ensure the successful integration of potential new members, while respecting the economic stability of the internal market, social and environmental standards, and the proper functioning of the EU institutions;

6. Supports Kosovo’s application for EU membership, submitted in December 2022; reiterates its call on the Member States within the Council to invite the Commission to present its questionnaire without undue delay and to submit its opinion on the merits of the country’s application for membership and call on the Council to act swiftly thereafter, including by granting candidate status once the relevant criteria are fulfilled; calls on the five Member States that have not yet recognised Kosovo’s independence to do so without delay to enable it to advance on an equal footing with other candidates; recalls the ICJ advisory opinion of 22 July 2010, which states that the unilateral declaration of independence of Kosovo does not violate general international law;

7. Reiterates its full support for Kosovo’s application for membership of the Council of Europe, for the country’s strategic orientation plan to join the NATO Partnership for Peace programme and for its bids to join other international organisations; calls on the organisations concerned and the Member States to actively support these applications; notes that Kosovo’s rapprochement with NATO strengthens European security; calls on the Commission and the EU Office in Kosovo to step up their efforts to enhance the visibility and understanding, in Kosovo, of the EU and of the concrete benefits of a stronger partnership between the EU and Kosovo; urges Serbia not to object to Kosovo’s membership of the Council of Europe and of other international organisations, which would contradict the 2023 agreement between Kosovo and Serbia on the path to normalisation of relations between them;

8. Commends Kosovo as a reliable partner of the EU, as demonstrated by its continued voluntary alignment with the EU’s common foreign and security policy (CFSP), including its continued implementation of EU restrictive measures against Russia and Belarus, its clear condemnation of Russia’s war of aggression against Ukraine, and the consistently high level of public support for EU integration among its citizens; expects Kosovo to maintain this alignment and to continue its efforts to contain the Russian threat;

9. Welcomes the signing, on 18 March 2025, of the trilateral declaration on defence cooperation between Kosovo, Albania and Croatia, aimed at strengthening defence capabilities and enhancing cooperation in countering hybrid threats;

10. Welcomes the long-overdue decision to lift EU measures against Kosovo, including the release of EUR 216 million in priority contracts and programming in December 2025 and the release of the remaining EUR 205 million in early 2026; considers that these measures stood in clear contradiction to Kosovo’s demonstrated commitment to European values and its alignment with EU policies, and were no longer justified given that all necessary requirements have been met; notes the negative impact that these measures have had on Kosovo’s society, particularly on local communities, civil society organisations and small and medium-sized enterprises (SMEs); questions the lack of transparency and predictability, the inadequate public information and the prolonged duration of the measures, despite Kosovo having met the requirements laid down by the EU;

Democracy and the rule of law

11. Welcomes the overall positive assessment of the conduct of the parliamentary and local elections in 2025, noting that they were conducted in a peaceful, competitive and inclusive manner under a revised electoral framework aligned with earlier EU election observation mission recommendations; commends the authorities for introducing an electronic voting system in Kosovo; notes, however, that some shortcomings were identified in the conduct of the elections and urges the Kosovo authorities to take these into account in the organisation of future elections;

12. Welcomes the participation of Kosovo Serbs in the 2025 parliamentary and local elections and the four newly elected Serb mayors taking over from their Albanian predecessors in the Serb-majority municipalities in the north of Kosovo; expresses concern, however, over the pressure exerted on voters dependent on Serbian social assistance and employment to vote for Srpska Lista representatives in the 2025 February parliamentary election;

13. Regrets the continued attempts to politicise independent institutions, including the Central Election Commission, and the governance shortcomings within the Independent Media Commission; calls on Kosovo to further align the legal framework governing the Independent Media Commission with Council of Europe recommendations and EU standards in order to strengthen regulatory independence, legal certainty and public trust in media oversight; calls on the authorities to ensure merit-based appointments, transparency in recruitment procedures and full respect for the independence of these institutions; stresses that resilient democratic institutions are a first line of defence against manipulation of the information environment, covert influence and politically driven distortion of public debate; calls on Kosovo to establish an institutionalised democratic resilience framework bringing together the National Assembly, the government, independent regulators and the election administration, with clearly defined responsibilities, regular risk assessments and public reporting;

14. Welcomes the fact that civil society organisations operate in a generally favourable environment and calls on the authorities to ensure that civil society is meaningfully involved, from an early stage, in the preparation and implementation of EU-related reforms; stresses the importance of increasing accountability and transparency in relation to public funding for civil society organisations; underlines that civil society is vital in fostering democracy and pluralism and promoting good governance and social progress;

15. Commends the authorities for consulting the Venice Commission on the package of draft laws on the judiciary, including the law on the Kosovo Prosecutorial Council; remains concerned, however, about the limited implementation of the rule of law strategy and insufficient follow-through on reforms by the government, the incomplete membership of the Kosovo Judicial Council, and the delays in implementing justice reforms; expresses concern at the government’s failure to adopt the necessary sub-legal act outlining the organisational structure of and the cooperation mechanisms between the Special Investigation Unit of the Kosovo Police and the Special Prosecution Office; welcomes the progress made regarding the appointment of the new Chair of the Kosovo Prosecutorial Council and expects the new composition to be finalised once the National Assembly resumes work; welcomes the recruitment of 17 new judges by the Kosovo Judicial Council in a transparent and merit-based process and urges Kosovo’s President to confirm the appointments without delay; urges Kosovo to take decisive action to address the shortcomings and ensure that legislation on the integrity and accountability of the judiciary is aligned with European standards and the relevant recommendations of the Venice Commission;

16. Welcomes the fact that Kosovo reduced the administrative burden through the implementation of the administrative burden prevention and reduction programme for 2025-2028 and its action plan for 2025-2026; welcomes this improvement and the adoption of amendments to the law on public officials and calls on Kosovo to further improve its public administration and its merit-based civil service system; notes that Kosovo’s strategic framework for public administration is in place, but is not being implemented efficiently;

17. Expresses deep concern over the insufficient progress made in the fight against corruption overall; regrets the lack of tangible structural progress in this area despite the commitments made, and stresses that corruption remains a systemic problem that undermines the functioning of public institutions and public trust; notes with concern Kosovo’s decline in the 2025 Corruption Perceptions Index, with it ranking 76th out of 182 countries and territories, three places lower than in 2024, which marks a worrying regression of the previous trend of gradual improvement but still positions Kosovo ahead of some other countries in the region; calls on the authorities to adopt and implement, without delay, concrete, effective and verifiable measures to improve prevention, investigation and prosecution in the area of corruption; calls, in particular, for the swift adoption of a national anti-corruption strategy and action plan for 2025-2028, for stronger use of asset declarations and integrity plans, and for more effective application of confiscation tools in corruption cases; stresses the need to strengthen the independence and operational capacity of anti-corruption bodies and to ensure effective coordination between prosecutors, police and financial intelligence units; draws attention to the fact that the Commission’s previous recommendations on strengthening the capacity of the Agency for the Prevention of Corruption and on implementing anti-corruption legislation are still to be implemented; calls for the continuous improvement of the quality of investigations in high-level corruption cases;

18. Is concerned that limited progress has been made in the fight against organised crime; calls for the swift adoption of a national strategy and action plan against organised crime; highlights the importance of tackling criminal networks by strengthening international cooperation through intelligence sharing and by enhancing collaboration between law enforcement and prosecution actors; calls on Kosovo’s neighbours to allow Kosovo to participate in international cooperation at all levels in order to maximise the impact of the fight against organised crime; emphasises the need to deepen cooperation in the fight against drugs; calls for further alignment regarding the fight against terrorism;

19. Underlines EULEX’s continued efforts in assisting Kosovo’s authorities in establishing sustainable and independent rule-of-law institutions; notes that persistent challenges, including limited enforcement powers, have constrained the impact of its work; calls for the mission’s added value, scope and strategic objectives to be reassessed continuously to ensure its relevance and efficiency;

20. Is concerned at the reported cases of excessive use of force and misconduct by some officers of the Kosovo Police in the north of Kosovo; calls on the Kosovo Police to ensure that its personnel fully abides by all requirements relating to the rule of law and human rights; recalls the shared responsibility of all political representatives and all people in Kosovo for upholding peace and the rule of law;

Fundamental freedoms and human rights

21. Notes that while the legal and institutional framework for human rights is broadly in place, its implementation remains insufficient; welcomes the adoption of the strategy for the protection and promotion of the rights of communities; welcomes Kosovo’s implementation of the judgment of the Constitutional Court on Dečani Monastery’s land ownership; calls on Kosovo to invest in more effective implementation of the human rights framework;

22. Acknowledges that Kosovo’s constitution is very progressive in terms of minority rights; notes with regret, in that respect, that the petition signed by nearly 500 people who have historically self-identified as Bulgarian, which was registered at the National Assembly of Kosovo in January 2023, has still not been considered, and recommends that their rights be enshrined in law and ensured in practice in order to protect the historical, cultural and political identity of the Bulgarian minority; calls on Kosovo to ensure that all minorities recognised under the law on the protection and promotion the rights of communities and their members are fully incorporated into the country’s constitution;

23. Notes that the prison system in Kosovo is broadly aligned with the UN and Council of Europe standard minimum rules; calls for better protection of the rights of prisoners, particularly of women prisoners, prisoners belonging to a minority and prisoners with mental health problems;

24. Emphasises the need to strengthen the implementation of legislation safeguarding the rights of vulnerable groups and people belonging to non-majority communities, notably concerning their representation in public institutions and the use of languages, including by ensuring equal and effective access to state education in their mother tongue, as well as access to healthcare and public services, respect for linguistic and property rights, adequate representation in central and local administration, and protection of tangible and intangible religious, traditional and cultural heritage; calls on Kosovo to step up its efforts to provide minority groups with equal opportunities and adequate representation in political and cultural life, public media, the administration and the judiciary; calls for religious minorities to be protected in Kosovo and for access to places of worship to be ensured;

25. Regrets the fact that women from minority groups, particularly from the Roma, Ashkali and Egyptian communities, face numerous forms of discrimination, particularly in education, employment and access to healthcare; expresses concern that the administration in Kosovo does not adequately represent minority communities and that the number of women in senior positions remains low;

26. Calls on Kosovo to enhance its implementation of existing mechanisms protecting the rights of non-majority communities, religious communities and the LGBTIQ+ community by finalising the new Civil Code, the adoption of which is still pending; remains concerned that discriminatory language directed against women and LGBTIQ+ people persists;

27. Stresses the need to strengthen gender equality and women’s rights in Kosovo; notes that the legal and institutional framework on gender equality and combating gender-based violence is largely in place; welcomes the increased funding for specialised support services, including shelters for victims of gender-based violence, the fully functional database recording cases of domestic violence, and the ongoing awareness-raising efforts; expresses concern, however, that gender-based violence persists and that implementation and enforcement remain insufficient, particularly given that women, especially those from minority communities, continue to face multiple forms of discrimination;

28. Reiterates its call on the authorities to improve internal dialogue and genuinely and directly engage with the independent civil society organisations of Kosovo Serbs, in particular in the north, with the aim of building trust, facilitating the daily life of Kosovo Serbs and successfully integrating them;

29. Commends the government for approving the strategy for the rights of persons with disabilities 2025-2030 and the associated action plan for 2025-2027; regrets the fact, however, that the UN Convention on the Rights of Persons with Disabilities has not yet been adopted by Kosovo; expresses concern over Kosovo’s insufficient alignment with the EU acquis in this regard and the discrimination and barriers faced by persons with disabilities, including children, in access to education, healthcare and social services; calls on the authorities to strengthen the protection of their rights and to adopt the draft law on status recognition, services and benefits;

30. Underlines the importance of protecting Kosovo’s multicultural heritage, including that of the Croatian community, while supporting sustainable local development and community engagement; welcomes the EU-funded project implemented by the United Nations Development Programme to preserve and revitalise the cultural heritage of Janjevo;

31. Regrets the fact that the new draft law on textbooks is still pending adoption by the Kosovo National Assembly; is concerned that implementation of Kosovo’s education strategy for 2022-2026 is lagging and that funding for basic public education continues to decrease; calls on Kosovo to finalise the adoption of the draft law on textbooks, complete the revision of current textbooks and provide sustainable and systematic training to teachers;

32. Notes Kosovo’s pluralistic media landscape, but stresses that it remains fragile and vulnerable to various forms of pressure; deeply regrets the lack of progress made on ensuring freedom of expression and the effective protection of journalists; regrets the fact that Kosovo’s ranking for media freedom has fallen 24 places to 99th in the 2025 World Press Freedom Index, which constitutes a significant and worrying regression; notes that freedom of the press is a core European value and that Kosovo needs to take more effective action than it is currently taking to safeguard it;

33. Reiterates its grave concern over the deterioration of the media environment and the climate in which information professionals work, and particularly over the attacks and threats against journalists and media workers, including the use of offensive language directed at the media by high-ranking Kosovo officials during the electoral campaign; regrets the fact that the draft law on the protection of journalistic sources is still awaiting adoption, leaving journalists without adequate legal protection; stresses that there must be zero tolerance for physical attacks against journalists and calls for strengthened investigation and prosecution of all threats against media personnel and for the alignment of media-related legislation with the EU acquis, in particular the European Media Freedom Act and the EU Anti-SLAPP Directive, and with other relevant international human rights obligations; calls on the authorities to take immediate, concrete measures to guarantee the independence of the media, combat intimidation and ensure an environment that supports free and pluralistic journalism;

34. Expresses serious concern over reports of pressure exerted on journalists by political actors and organised criminal groups, which has led to instances of self-censorship; notes that journalists may refrain from engaging in critical investigative reporting out of concern for their physical safety or job security; further highlights reports that public authorities may withdraw advertising from media outlets that publish critical content, thereby exerting indirect economic pressure;

35. Expresses concern that the adoption of the draft law on Radio Television of Kosovo (RTK), Kosovo’s public broadcaster, remains pending and therefore calls for its swift adoption; stresses the need to ensure the sustainable funding and independence of the public broadcaster; regrets the fact that the position of RTK General Director has been vacant since September 2024 and that the RTK Board has lacked a quorum since December 2024, rendering the public broadcaster effectively dysfunctional and unable to fulfil its role; calls for balanced, representative and politically independent supervisory oversight of RTK; calls on the Kosovo authorities to appoint the members of the RTK Board and the RTK General Director through a transparent and merit-based process, thus guaranteeing the effective functioning of public service broadcasting in Kosovo; stresses that any reform of the public broadcaster must safeguard editorial independence, avoid political influence and ensure sustainable and transparent financing;

36. Notes with concern that the 2025 Trafficking in Persons Report highlights that the relevant authorities in Kosovo have not fully met the minimum standards for the elimination of trafficking in human beings, despite demonstrating increased efforts, including improved prosecution rates and enhanced victim support;

37. Expresses concern about the increase in disinformation being spread by foreign actors in countries in the region, including about interethnic tensions, notably by Russian and Serbian state-linked sources and particularly during election periods, further contributing to the political polarisation; remains seriously concerned by malign foreign interference, destabilisation efforts and hybrid threats, including AI-generated disinformation and coordinated online campaigns aimed at influencing political processes and public opinion; calls for a strengthened institutional response and improved media literacy, to be achieved through measures including strengthened teacher training and modern learning resources and enhanced cooperation with independent media, fact-checking organisations and relevant EU programmes, in order to promote critical thinking and responsible digital engagement; calls on Kosovo and its regional partners to remain united and to further strengthen regional cooperation, as well as European cooperation with Kosovo, on countering external threats, disinformation, foreign interference and cyber and hybrid threats that seek to undermine the European perspective of the country and the region;

38. Commends Kosovo for its active engagement in a number of regional cooperation initiatives, such as the Central European Free Trade Agreement, the Energy Community, the Transport Community, the South-East European Cooperation Process and the Regional Cooperation Council;

39. Commends the Kosovo authorities for the successful implementation of the roadmap for a sustainable solution to the illegal possession, misuse and trafficking of small arms and light weapons and explosives; welcomes the high level of compliance with the rules laid down in the UN Firearms Protocol;

Reconciliation and good neighbourly relations

40. Recalls that normalisation of relations with Serbia and implementation of all agreements reached within the Belgrade-Pristina Dialogue remain an integral part and a fundamental and necessary component of Kosovo’s European perspective; stresses that concrete, lasting and verifiable progress in this area is vital in order to strengthen regional stability and advance the country’s European perspective; emphasises that normalisation cannot be seen as a secondary concern, but must remain an absolute political priority; underlines the importance of further strengthening the EU’s facilitation efforts between the parties with a view to overcoming the current stalemate;

41. Reiterates its full support for the EU-facilitated Dialogue and welcomes the extended mandate of Peter Sørensen as the EU Special Representative for the Belgrade-Pristina Dialogue until 29 February 2028;

42. Reiterates its call to improve the quality of the dialogue process through the participation of women, increased transparency towards the public, and the meaningful involvement of civil society;

43. Reiterates the importance of constructive engagement on the part of the authorities of Kosovo and Serbia in order to advance the implementation of the Agreement on the Path to Normalisation and the implementation annex thereto, which remains valid and legally binding on both parties; calls on both Kosovo and Serbia to implement the Brussels and Ohrid Agreements in full, including through the establishment of the Association/Community of Serb-Majority Municipalities and the lifting of Serbia’s opposition to Kosovo’s membership in regional and international organisations, and to avoid unilateral actions that could undermine the dialogue process;

44. Welcomes the agreement reached on 14 March 2026 on the implementation of Kosovo’s legislation on foreigners, which introduces mitigating measures for members of the Serb community; notes that this arrangement helps to ensure continuity in access to public services and avoids the risk of de facto exclusion of Kosovo Serbs; stresses that such solutions contribute to confidence-building and represent a positive step towards the normalisation of relations between Belgrade and Pristina and the promotion of good neighbourly relations;

45. Takes note of the closure of dozens of Serbia-supported institutions in an uncoordinated manner in the north of Kosovo;

46. Expects Serbia to fully cooperate with Kosovo to finally bring to justice the perpetrators of the 2023 terrorist attack in Banjska; condemns the fact that Serbia still has not prosecuted the culprits, most notably Milan Radoičić, the former Vice-President of Srpska Lista; reiterates that all individuals responsible for acts of violence must be held accountable and face justice without delay, in line with the rule of law and due process; strongly condemns the attack on the Ibër-Lepenc/Ibar-Lepenac canal in the north of Kosovo in November 2024, and calls for the perpetrators to be swiftly apprehended and brought to justice; calls on Serbia to respond without further delay to Kosovo’s January 2025 request for mutual legal assistance in relation to this attack and to cooperate fully with the investigation;

47. Notes the fact that the fate of up to 1 590 missing persons remains unresolved, with the fate of only 26 missing persons having been resolved between April 2024 and the end of the reporting period in September 2025; calls on both Kosovo and Serbia to engage constructively and in good faith in all technical discussions aimed at clarifying the fate of the remaining missing persons, including through the Sub-Working Group on Forensic Issues, and to refrain from any politicisation; welcomes the first meeting of the Joint Commission on Missing Persons, convened by the Chief Negotiators of Kosovo and Serbia in January 2026 within the framework of the EU-facilitated dialogue, and calls for further cooperation to accelerate the identification of mass graves and the exchange of information;

48. Calls on Serbia to open and share all relevant police, military and archival documentation related to the 1998-1999 war in Kosovo in order to support truth, justice and accountability, including in cases of conflict-related sexual violence; notes that a general agreement to share such information has not yet been implemented and expresses concern over the extension of secrecy classifications, which risks further delaying justice and recognition for survivors;

49. Recalls the importance of ensuring full access to the archives of the former Yugoslav secret service (UDBA) and Yugoslav People’s Army Secret Service (KOS), including those held in Pristina and in Belgrade, in order to thoroughly research and address communist-era crimes and criminal organisations; underlines that opening these archives throughout the region would contribute to truth-seeking, justice for victims, reconciliation and the consolidation of democratic governance;

50. Invites Kosovo to continue its engagement in a number of regional cooperation initiatives; reiterates the importance of the NATO-led Kosovo Force for broader security and commends its sustained efforts in building and maintaining a safe and secure environment in Kosovo and in the Western Balkans region in general; recalls the importance of the mission for the ongoing development of the Kosovo Security Force through the provision of advice, training and capacity building; calls on the Member States contributing to Kosovo Force to refrain from reducing their presence;

51. Calls for renewed efforts to safeguard religious and cultural heritage in Kosovo, including Orthodox, Islamic, Catholic and other sites, as part of a broader commitment to pluralism, reconciliation and respect for Europe’s shared cultural legacy;

Socio-economic reforms

52. Notes that Kosovo is moderately prepared in the areas of economic and monetary policy and competitiveness; underlines that Kosovo must align its fiscal framework with the EU acquis and address structural weaknesses, notably a narrow manufacturing base and difficult access to financing for SMEs; underlines the importance of ensuring sustainable economic growth, reducing unemployment and strengthening the country’s social protection system in line with the EU’s social acquis; stresses that it needs to undertake more extensive reforms to tackle remaining structural weaknesses;

53. Welcomes the Commission’s finding that Kosovo made some progress in developing a functioning market economy, notably through stronger growth, a sound and resilient banking sector, a reduction in the informal sector, and a speedier settlement of commercial disputes; takes note of the continued prevalence of the informal economy and calls on the authorities to give the labour inspectorate the resources it needs to carry out its tasks in full;

54. Welcomes the fact that Kosovo’s Commercial Court handles intellectual property rights cases effectively; calls on the Commercial Court to further cooperate with the European Union Intellectual Property Office;

55. Calls for adequate labour protection, fair wages and enforcement of labour laws to be ensured in line with EU standards; regrets the fact that social dialogue in Kosovo remains limited; calls for targeted support for building the capacity of the social partners; calls on the authorities to guarantee the independence and legitimate role of recognised trade unions and the fundamental rights of workers, notably the right to collective bargaining, both in law and in practice, in the public and private sectors; calls on Kosovo’s authorities to renew the mandate of the Social Economic Council, to promote social dialogue, and to use the Reform and Growth Facility for the Western Balkans to help build the capacity of the social partners;

56. Welcomes the consolidation of the remuneration system under the law on salaries in the public sector; regrets, however, the fact that job classification, systematisation of positions and the Constitutional Court’s judgment on unconstitutional provisions remain unaddressed; calls on the authorities to adopt the draft law on public financial management and to integrate fiscal risk assessment and public investment methodology into the legislation;

57. Expresses concern that life expectancy at birth remains lower than the EU average and that child mortality remains the highest in the region and significantly higher than the EU average; regrets the fact that progress towards universal health coverage remains very limited and that significant inefficiencies persist; calls on the authorities to ensure better access to healthcare services for all citizens;

58. Calls on Kosovo to prioritise high-quality vocational education, stronger links between education and labour market needs, and targeted support for young entrepreneurs and researchers in order to create credible prospects for young people in the country;

59. Encourages Kosovo to continue concluding agreements on social security coordination with EU Member States;

60. Notes that Kosovo has made some progress in preparing for the digital transformation, including in expanding online services and 5G coverage; regrets the fact that only 10 % of public services are currently offered online and that digitalisation remains fragmented; emphasises the need for Kosovo to align with relevant EU digital legislation, including the European Electronic Communications Code, the NIS2 Directive, the EU 5G Cybersecurity Toolbox, the Digital Services Act, the Digital Markets Act and the EU Digital Identity Framework; regrets the fact that Kosovo has adopted only 8 of the 14 pieces of secondary legislation stemming from the Law on cybersecurity and that both the Cybersecurity Agency and the National Cyber Security Council are yet to become fully operational; calls for the adoption of a comprehensive e-governance strategy aligned with EU standards and for the improved interoperability of public administration systems; calls on Kosovo to promote digitalisation more intensively and to further develop secure digital public services;

61. Welcomes the first steps taken by Kosovo towards a more strategic approach to research and innovation, including the start of funding for innovation support measures and Kosovo’s participation in the European Digital Innovation Hubs Network;

62. Welcomes the Commission’s proposal to open negotiations on extending the EU’s ‘roam like at home’ scheme to the Western Balkans, including Kosovo, with a view to delivering tangible benefits for citizens and businesses and strengthening regional connectivity; notes that this initiative builds on existing regional roaming arrangements; calls for the swift adoption of negotiating mandates and the timely conclusion of agreements to ensure rapid and effective integration into the EU’s ‘roam like at home’ area;

Energy, environment, sustainable development and connectivity

63. Notes that Kosovo remains heavily reliant on outdated coal-fired power plants and needs to accelerate investments in energy efficiency; welcomes the fact that some progress has been made in the energy sector, notably with the launch of a 100 MW wind power auction; urges Kosovo to accelerate its green transition and significantly reduce its reliance on fossil fuels and coal-fired power plants; calls for the EU to step up its efforts to help Kosovo reach these objectives; calls on the Kosovo Government to invest in a diversified energy mix that strengthens security of supply; encourages Kosovo to continue its efforts to integrate its electricity market with European electricity markets, including through the effective implementation of electricity market reforms and strengthened cross-border cooperation in the electricity sector;

64. Encourages Kosovo to strengthen its institutional and administrative capacity to implement strategic infrastructure projects, including through use of comprehensive environmental impact assessments and sustainability measures in the planning phase, and continue implementing pending transport and energy connectivity projects; calls on the Commission and Kosovo to prioritise strategic connectivity projects linking the Western Balkans to European transport, energy and digital corridors and the Black Sea area, including through energy interconnections, energy efficiency measures, investments in renewables, integration into the Single Euro Payments Area (SEPA) and improved access to finance for SMEs; stresses that these investments enhance socio-economic convergence, geostrategic resilience and European economic security;

65. Urges Kosovo to increase the protected areas in the country and to ensure that appropriate measures are taken to manage protected areas and cultural-historical heritage sites with a view to safeguarding biodiversity, including key habitats of the critically endangered Balkan lynx; welcomes Kosovo’s continued cooperation with North Macedonia and Albania regarding the transboundary Shar Mountains National Park; encourages Kosovo to further intensify and speed up collaborative efforts with neighbouring countries to designate transboundary protected areas and establish coherent transboundary management plans; urges Kosovo to amend the law on waste management and implement the law on climate change;

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66. Instructs its President to forward this resolution to the President of the European Council, the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy, the governments and parliaments of the Member States, and the President, Government and National Assembly of Kosovo.

EXPLANATORY STATEMENT

The European Parliament closely follows political and socio-economic developments in Kosovo. With this report, we aim to provide Parliament’s assessment of the situation in Kosovo and, in addition to the European Commission’s 2025 Progress Report, also Parliament’s political assessment of the period under review in Kosovo. In summary, 2025 must be considered a lost year for Kosovo, as after the regular elections to the National Assembly in February, neither a legislative body nor a government could be put into operation. Although all three elections, which took place in Kosovo in 2025 - two parliamentary and one local - were all conducted peacefully and in an orderly manner, the normal political process was deeply disrupted. As a result, several political and economic reforms suffered, and the Western Balkans Growth Plan could not be implemented.

As highlighted in previous reports by the European Parliament, Kosovo has made notable strides in electoral reforms, economic resilience, and the protection of fundamental rights. However, challenges remain in judicial reform, media freedom, public administration efficiency, and the digitalization of public services. Continued commitment to comprehensive reforms and inclusive governance is essential for Kosovo’s advancement on its European integration path.

Several of Kosovo’s challenges are legacy problems, the resolution of which requires the involvement of the entire region in the broader European Union integration process. The Pristina-Belgrade dialogue, which was launched to find a compromise acceptable to the parties, has unfortunately not yielded the expected results. The dialogue was basically dormant in 2025. This was also because Kosovo lacked a government with mandate and authority and negotiations in this form have no prospects. The European Commission, as well as the European Parliament and the Member States, must certainly do everything to ensure that the Pristina-Belgrade dialogue continues with renewed vigour. The extension of the mandate of the Special Representative, Peter Sörensen, until February 2028, is therefore very welcome.

The enlargement of the European Union has been one of the EU’s most important success stories and it must continue. The broader geopolitical goal of enlargement is to eliminate the so-called grey areas from the map of Europe. The significant changes that have taken place in the context of Russia’s war of aggression against Ukraine must increase the European Union’s readiness to confront competing authoritarian global players. Both Russia and China have shown that they have very clear interests in the Western Balkans.

Kosovo’s European integration is a two-way process. In order for Kosovo to carry out the necessary reforms, assistance from the European Union is necessary. Visa liberalization has further strengthened people-to-people contacts and the European perspective of Kosovo’s citizens. However, the punitive measures introduced in 2023 have had a very negative impact on Kosovo’s progress towards Europe. Although the EU measures have gradually begun to be eased, their impact on society remains very worrying. Various civil society organizations, national minorities, as well as small and medium-sized enterprises, which have received significant operating support from EU programs, are particularly affected by the measures. The measures also have a potential negative impact on the credibility of the European Union among the Kosovo population. Although support for the European Union has remained very high, there is still a risk that it may decrease as a result of the measures.

With this report, the rapporteur wishes to provide an overview and the European Parliament’s assessment of the most important achievements and challenges that Kosovo faces today and in the near future. It is certainly not possible to cover all the problematic areas and challenges in this report. One of the important prerequisites for the preparation of this report was the opportunity to visit Kosovo during a fact-finding mission and meet with civil society organisations, national minority representatives, and business representatives among others.

ANNEX: DECLARATION OF INPUT

The rapporteur declares under his exclusive responsibility that he did not include in his report input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register, or from representatives of public authorities of third countries, including their diplomatic missions and embassies, to be listed in this Annex pursuant to Article 8 of Annex I to the Rules of Procedure.

INFORMATION ON ADOPTION BY THE COMMITTEE RESPONSIBLE

Date adopted

3.6.2026

Result of final vote

+:

–:

0:

47

19

8

FINAL VOTE BY ROLL CALL BY THE COMMITTEE RESPONSIBLE

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