The European Commission’s enlargement reports paint a grim picture for freedom of expression and media across most EU candidate countries.
Despite some progress in countries such as Montenegro and Ukraine, the European Commission’s latest enlargement reports paint a grim picture for freedom of expression and media across most EU candidate countries.
There are plenty of cases with intimidation and detention of journalists, political interference in independent media, and legislative backsliding persisting across the Western Balkans and Georgia. While Montenegro and Ukraine are credited for moderate advances, others like Albania, Serbia, Bosnia and Herzegovina, Kosovo, and Georgia continue to struggle with political interference and weak legal safeguards for their media.
In several cases, the Commission warns of “backsliding” compared to previous years, signalling that reforms have either stalled or reversed under political and economic pressure.
Overall, the Commission’s findings reveal that media freedom remains one of the weakest areas in the EU’s enlargement agenda. While isolated improvements are visible, systemic challenges—political interference, economic dependence, and impunity for attacks—continue to undermine press freedom across the Eastern Europe candidate states.
Ukraine: progress despite the war
Ukraine is a success story on media front, despite the ongoing Russian aggression, Kyiv has shown measurable progress in media transparency and public broadcasting.
The Commission commends improvements in financial independence of the public service broadcaster Suspilne and ensure that content produced by publicly funded media are representative of Ukraine’s political and societal pluralism.
Still, the report stresses the need to ensure journalists’ safety and investigate intimidation cases while maintaining pluralism and transparency, even under martial law.
Moldova: good progress on regulation, but vigilance needed
Moldova is assessed as between some and a moderate level of preparation and has made good progress in 2025. The country adopted new legislation on access to information, implemented its Media Subsidy Fund, and amended its audiovisual and advertising codes. Rules for appointing members of the public broadcaster and Audiovisual Council have also been revised.
However, media ownership concentration and political influence continue to affect the sector, while intimidation of journalists by private actors has increased. The Commission acknowledges Moldova’s efforts to counter foreign interference and information manipulation (FIMI) but warns that “continuous vigilance is needed to ensure such measures remain consistent with European standards on freedom of expression and opinion.”
Albania: attacks and legal gaps persist
In Albania, the framework for the protection of journalists formally exists, yet verbal and physical attacks, smear campaigns, and strategic lawsuits (SLAPPs) remain common. Media freedom organisations documented 45 cases of violations in 2024, only slightly down from the previous year.
The Commission notes that “impunity persisted due to the continued lack of a robust track record of investigations and judicial follow-up.” A Constitutional Court ruling in April 2025, which annulled the seizure of a journalist’s devices as “disproportionate interference” in source confidentiality, was one of few positive developments.
Albania made no progress in aligning its media legislation with EU standards. Defamation remains criminalised, ownership transparency is lacking, and political influence over the public broadcaster RTSH has deepened after Parliament dismissed its entire steering council in February 2025 in breach of existing law.
Digital threats and privacy violations have also intensified, while many journalists face poor working conditions, unpaid salaries and self-censorship due to political and economic pressure.
Montenegro: modest progress but delays remain
Montenegro, described as “moderately prepared” in the area of freedom of expression, has made some progress in implementing reforms and maintaining a pluralistic media environment. Parliament appointed new members to the Council of the public broadcaster RTCG, though there are delays in filling posts at the audiovisual regulator AMU.
The Commission urges Montenegro to continue ensuring prompt law enforcement and judicial protection for journalists, to safeguard the political independence of public media, and to align its legislation with the new European Media Freedom Act.
Serbia: worsening climate for journalists
In Serbia, the Commission observes backsliding despite recent amendments to media laws. The environment for journalists and media outlets has “seriously worsened,” with high-level officials’ statements having a chilling effect on press freedom. Strategic lawsuits (SLAPP’s) against journalists are increasing, and the media regulator REM has been without a decision-making body since November 2024 due to parliamentary delays.
Serbia is urged to “implement the new media laws in both letter and spirit”, to end official verbal attacks on journalists, and to ensure transparent co-funding and ownership structures in the media sector.
“Recurrent statements by high-level officials on the work of journalists have a chilling effect on the freedom of expression”, the Commission report states: “”Political and economic influence on the media, including on editorial policy, is a source of serious concern”.
North Macedonia: limited progress, ongoing risks
North Macedonia remains between an early and moderate level of preparation on media freedom. Although some progress was made in reforming the media law and improving the financial independence of the regulator, the public broadcaster still faces governance and funding challenges.
Concerns persist over transparency of media ownership and state advertising, which may distort the market and create political leverage. The Commission calls on Skopje to fully align with EU standards, particularly through transparency and stronger safeguards for journalists.
“Challenges remain concerning transparency of media ownership. The framework for allocation of state advertising raises concerns about the potential misuse of political funds and the disruption of the market”, the report says.
Bosnia and Herzegovina: deep stagnation
The Commission’s assessment of Bosnia and Herzegovina is stark – no progress was achieved in protecting journalists or strengthening media freedom. Defamation remains criminalised in parts of the country, and public broadcasters face a growing financial crisis.
The report warns of “deep stagnation” and urges authorities to decriminalise defamation, secure sustainable funding for public media, and harmonise legislation across all levels of government.
“Bosnia and Herzegovina continues to experience deep stagnation in media freedom, with worrying signs of deterioration. The financial sustainability of public broadcasters is ever more in danger. A countrywide network was set up to monitor cases of violence against journalists”, the EU report says.
Kosovo: reform blocked amid rising self-censorship
Kosovo’s level of preparation remains unchanged, with no progress reported. The annulment of the Law on the Independent Media Commission by the Constitutional Court has left a regulatory vacuum. Although the media landscape is pluralistic, self-censorship is widespread, particularly in the country’s north.
“While the media landscape is pluralistic, it faces challenges related to transparency in media ownership and financial sustainability. The environment in northern Kosovo remains restrictive, fostering self censorship among the public, media and civil society”, is stated in the report.
The Commission calls on Kosovo to adopt new media legislation aligned with EU standards, strengthen the safety of journalists, and ensure the independence and funding of the public broadcaster RTK.
