The 2025 European Commission Rule of Law Report, the sixth annual edition, provides a comprehensive assessment of the state of the rule of law across all 27 EU Member States. For the second consecutive year, it includes dedicated chapters on several enlargement countries, specifically Albania, Montenegro, North Macedonia, and Serbia.
Civil Society: A Critical Pillar of the Rule of Law
The Commission’s report underscores that CSOs are crucial actors for upholding EU values. They play a pivotal role in drawing attention to threats to the rule of law, advocating for reforms, and promoting accountability among those in power. A robust and independent civil society is therefore not just a desirable feature but a fundamental component of a functioning democratic system and a prerequisite for genuine progress towards EU integration.
Persistent Challenges Across the Western Balkans
Despite the recognized importance of civil society, the 2025 report notes a concerning trend of increasing challenges for CSOs, specifically in Albania, Montenegro, North Macedonia, and Serbia. These challenges manifest in various forms, including new legal restrictions, insufficient funding, and even physical and verbal attacks. This environment can significantly obstruct civic space and limit the ability of these organizations to operate freely and effectively.
Specific situations highlighted for each country:
- Serbia: Civil society organizations in Serbia face increasing pressure and attacks. Most alarmingly, the report notes that civil society has reported that Serbian authorities used spyware to target journalists, environmental activists, and other individuals unlawfully. The alleged use of intrusive surveillance tools against civil society actors represents a severe threat to fundamental rights and the democratic space, signaling a significant regression in adherence to the principles of the rule of law.
- Albania: While civil society organizations in Albania generally remain free to operate, they continue to encounter challenges related to burdensome registration requirements and limited public funding. These obstacles can hinder their operational capacity and ability to serve as effective watchdogs for democratic governance and human rights.
- Montenegro: Civil society organizations in Montenegro operate within an overall enabling environment; however, the report indicates that several challenges persist, impeding their full operational capacity and advocacy efforts.
- North Macedonia: The government in North Macedonia has initiated measures to enhance cooperation with civil society, indicating a willingness to engage with non-state actors. However, civil society organizations themselves have raised ongoing challenges, including issues related to online hate speech, which can create a hostile environment and limit their ability to operate freely and effectively.
Conclusion
The 2025 Rule of Law Report paints a clear picture. While the Western Balkan enlargement partners are engaged in reforms, the space and operational capacity of civil society remain under considerable pressure in several countries. The challenges faced by CSOs, from legal restrictions and funding issues to direct attacks and surveillance, directly undermine the very principles of the rule of law and democratic accountability that are central to the EU accession process.
For these nations to truly anchor democratic principles and the rule of law, it is crucial that they not only acknowledge but actively work to protect and empower their civil society. A thriving, independent civil society is not just a beneficiary of the rule of law reforms; it is an essential partner in driving and sustaining them, ensuring a more stable, democratic, and prosperous future for the region as it progresses toward the European Union.
While EU Member States generally maintain an “open” civic space, concerning trends and specific challenges persist. In contrast, the Western Balkan countries — particularly Albania, Montenegro, North Macedonia, and Serbia — experience more systemic and often direct pressures. For the majority of EU Member States, the 2025 Rule of Law Report indicates a generally enabling and supportive framework for civil society, with the civic space largely considered “open”. Many Member States have taken proactive steps to improve this environment further.
Curious about BCSDN’s detailed opinion on the EC Rule of Law report findings for accession countries? Stay tuned to our communication channels for an EC RoL analysis based on BCSDN’s regional monitoring, coming soon.
* It is important to clarify that, based on the scope of this particular report, Turkiye, Kosovo, and Bosnia and Herzegovina are not included in this assessment. Their potential inclusion in future reports will depend on their readiness and progress in the accession process.