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DRAFT REPORT (2025/2252(INI))

On the 2025 Commission report on Kosovo

AFET-PR-784231

Committee on Foreign Affairs · Rapporteur: Riho Terras

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This draft report assesses Kosovo's progress towards EU accession, covering political developments, rule of law, human rights, dialogue with Serbia, and socio-economic reforms. It commends Kosovo's commitment but notes a 'lost year' in 2025 due to political stalemate and calls for renewed reform efforts. The report supports Kosovo's EU membership application, calls on non-recognising member states to recognise it, and urges implementation of the Brussels and Ohrid Agreements, including the Association/Community of Serb-Majority Municipalities. It expresses concerns about corruption, media freedom, and attacks on journalists, and calls for improved implementation of human rights and rule of law reforms. The report welcomes the lifting of EU measures against Kosovo since May 2025 and calls for immediate lifting of remaining measures, noting their negative impact on society.

Committee position. The rapporteur proposes that Parliament adopt a resolution assessing Kosovo's progress, commending its EU commitment but urging reforms and dialogue implementation, and calling for lifting of EU measures.

Key points

  1. Commends Kosovo's continued commitment to EU accession and welcomes the formation of the new Assembly and Government on 12 February 2026, but regrets the 'lost year' of 2025 due to political stalemate.
  2. Supports Kosovo's EU membership application and calls on the five non-recognising Member States to move towards recognition.
  3. Calls for the immediate lifting of remaining EU measures against Kosovo, which are no longer justified and negatively impact society, especially local communities, civil society and SMEs.
  4. Welcomes the peaceful conduct of 2025 elections and the participation of Kosovo Serbs, but regrets attempts to politicise independent institutions and governance shortcomings in the Independent Media Commission.
  5. Expresses concern over limited implementation of the rule of law strategy, incomplete membership of judicial councils, and delays in justice reforms.
  6. Notes with concern Kosovo's decline in the 2025 Global Corruption Index, ranking 76th out of 182, and calls for a swift adoption of a national strategy against organised crime.
  7. Regrets the lack of progress in ensuring freedom of expression, with Kosovo's ranking falling 24 places to 99th in the 2025 World Press Freedom Index, and calls for improved prosecutorial response to attacks on journalists.
  8. Calls for sustainable funding and independence of the public broadcaster and for balanced supervisory oversight of Radio Television of Kosovo.
  9. Reiterates support for the EU-facilitated Dialogue and calls on both Kosovo and Serbia to implement the Brussels and Ohrid Agreements, including establishing the Association/Community of Serb-Majority Municipalities.
  10. Expects Kosovo and Serbia to bring to justice the perpetrators of the 2023 Banjska attack, deploring that Serbia has not prosecuted the culprits.
  11. Notes the unresolved fate of up to 1 590 missing persons, with only 26 cases resolved between April 2024 and September 2025.
  12. Notes that Kosovo is moderately prepared in economic and monetary policy, but needs to align its budgetary framework with the EU acquis and address structural weaknesses, including a narrow manufacturing base and difficult access to finance for SMEs.

Who is affected

  • Kosovo's government and institutions: must implement reforms in rule of law, human rights, and socio-economic areas to advance EU accession.
  • Five non-recognising EU member states: called upon to recognise Kosovo to enable its equal footing with other candidates.
  • Kosovo Serbs: their participation in elections is welcomed, and the establishment of the Association/Community of Serb-Majority Municipalities is called for.
  • Journalists and media workers in Kosovo: need improved prosecutorial response and alignment of media legislation with EU standards.
  • Civil society organisations and SMEs in Kosovo: affected by EU measures, which are called to be lifted immediately.

Figures and deadlines

  • Kosovo ranks 76th out of 182 countries in the 2025 Global Corruption Index, three places lower than in 2024.
  • Kosovo's media freedom ranking fell 24 places to 99th in the 2025 World Press Freedom Index.
  • Up to 1 590 missing persons remain unresolved, with only 26 cases resolved between April 2024 and September 2025.
  • Only 10 % of public services are currently offered online.