The Commission published its annual reports on the advances toward EU membership made by Croatia, Turkey, Macedonia, Serbia, Albania, Montenegro, Bosnia and Herzegovina and Kosovo, accompanied by a 68-page 'Enlargement Strategy'.
On the previous occasion, the Commission noted that the enlargement process had taken place against the backdrop of a deep and widespread recession, with the crisis affecting both the EU and the enlargement countries themselves.
Leaving the crisis behind
This time, the strategy paper speaks of "putting the crisis behind us," "restoring growth for jobs through the 2020 reform agenda" and "making the EU a safer place and pulling [the EU's] weight on the world stage".
The Commission argues that the EU's fifth enlargement, which saw it grow from 15 to 27 members between 2004 and 2007, has made the Union stronger and better able to face the economic downturn.
"Trade between 'old' and 'new' member states tripled from around €150 billion to €450 billion during the decade leading to 2008. The enlargement process has provided the financial means for the EU to step in, together with the international financial institutions, to maintain economic stability in times of crisis, where necessary," the Commission states.
Indeed, the EU provided a balance of payments 'safety net' for Hungary and Romania, which were hit severely by the economic crisis, while Iceland was prompted to take important steps towards EU accession after its financial system collapsed during the financial crisis.
"Enlargement is clearly in our own interests," said Enlargement Commissioner Štefan Füle, presenting the reports.
"It enables the EU to achieve its own economic and political objectives. This is particularly true in areas such as internal market, energy, transport, environmental protection and efforts to limit climate change. Although it is easy to forget in the present context, enlargement has been successful in these areas in the past and can be a success in the future," he added.
Improving perceptions
The Commission recognises that the wider public does not necessarily consider enlargement to be of mutual interest for aspirant countries and older EU members alike. This is why the EU executive has a stated goal of presenting and explaining clearly to the public "a straight-forward message" in order to strengthen understanding and support for enlargement.
The Commission also insists that EU hopefuls should step up their efforts to combat corruption and organised crime, both for the benefit of their societies and to improve their country's image in the Western societies.
In the context of recent events, including the expulsion from France of Roma originating from Romania and Bulgaria and similar tensions in other EU countries, the Commission advises the candidate countries where such minorities live to address their problems without delay.
"The enlargement countries should consider setting explicit and ambitious targets on employment, education and poverty reduction of disadvantaged communities, in particular Roma," the Commission writes.
Bilateral problems plague progress
The Commission notes that several complex problems must still be solved, including the governance of Bosnia and Herzegovina, where the Serb and Croat-Muslim entities live separate lives, the 'name question' which pits Macedonia against EU member Greece, differences over Kosovo's status (see 'Background'), as well as the Cyprus issue, because of which several chapters of Turkey's EU talks remain blocked for a second year.
Advance based on conditionality
The Commission also stresses the need for mechanisms to combine the "delivery of specific benefits" and "rigorous conditionality". It cited as an example visa liberalisation for the Western Balkans, which had recently shown that after setbacks, a monitoring mechanism had been set up to reintroduce visas should difficulties arise.
Speaking with one voice
The Commission also stresses that with the Lisbon Treaty, the EU now has the means to pull its weight on the world stage. In that sense, the Commission appeals to EU hopefuls to help it project its policies in the Black Sea region, the Danube basin and the Baltic region.
More concretely, the Commission calls on Turkey, which is conducting an ever-more assertive foreign policy, to coordinate its initiatives with Brussels.
"Provided that Turkey's role in its own region is developed as a complement to its accession process and in coordination with the EU, it can add to both parties' weight in world affairs, not least in the Middle East and the Southern Caucasus," the Commission writes.
Croatia: Steady progress
The Commission notes the steady progress made by Croatia since the country started accession negotiations in 2005.
As the country now only has a few chapters left before closing its accession talks, the Commission focuses on the field of the judiciary and fundamental rights, in particular building up the necessary track records as regards the independence and efficiency of the judiciary, the fight against corruption and organised crime, respect for and protection of minorities, including returning refugees, war crimes trials and full cooperation with the International Criminal Tribunal for the Former Yugoslavia (ICTY).
Macedonia: 'Name issue' holds back progress
Macedonia's name issue with Greece remains unresolved, the Commission notes.
Indeed, although Macedonia is recognised as the country's constitutional name by all EU countries except Greece, the name dispute has led to an impasse in the country's progress towards membership of both the EU and NATO. Despite the fact that Macedonia obtained the status of EU candidate country in December 2005, Skopje has been unable to launch accession talks.
Skopje and Athens are engaged in talks under the auspices of the UN on resolving the dispute and a number of bilateral meetings, including at prime ministerial level, have taken place. But this momentum has not yet led to concrete results, the Commission paper stresses.
Actions and statements which could adversely affect good neighbourly relations should be avoided, the Commission tells Macedonia.
Indeed, the small Balkan country has a sorry tradition of infuriating its neighbours by 'stealing' their history. Greece considers that Skopje is misappropriating large chunks of its ancient history. Similarly, Bulgaria considers that Macedonia is cherry-picking heroes and glorious episodes from its 19th and early 20th century struggle against Ottoman domination.
Montenegro: Corruption prevalent in many areas
Montenegro has made significant efforts to put in place the legal and institutional framework needed to combat corruption. However, corruption is prevalent in many areas and remains a particularly serious problem, the Commission writes.
In Montenegro, construction, inspection, supervision and urban and spatial planning, including the land register, are high risk areas for corruption. The risk of corruption is also high in tax administration and customs, within the judicial system, the police and local self-government, while public procurement, health, education and privatisation are further areas of concern.
Organised crime remains a serious problem, the Commission further stresses. Money laundering and drug smuggling are singled out as key areas of concern.
Law enforcement capacities and coordination are weak and implementation track records remain limited. Proactive investigative capacities remain inadequate. Threat assessment and the collection and processing of criminal intelligence are unsatisfactory, the country report says.
Albania: Institutions still unstable
In Albania, where the main political players have been locked in a prolonged political stalemate since national elections in June 2009, parliamentary institutions and procedures do not function properly, parliament does not exercise effective oversight and control over the government and political dialogue is "confrontational and unconstructive," the Commission notes.
"The government together with the opposition share the responsibility for reaching, in a transparent way and in full respect of the constitution, solutions needed for the country to move forward on its EU integration path," the country report says.
In the field of justice and home affairs, reforms remain incomplete, there are substantial shortcomings regarding the independence, transparency and accountability of the judicial system and a solid track record of effective fight against corruption and organised crime is missing, the document states.
Bosnia and Herzegovina in need of a 'vision'
In diplomatic terms, the Commission strategy paper warns Bosnia and Herzegovina, which was established by the Dayton peace agreement of 1995, that continued political in-fighting between Serb, Muslim and Croat nationalists is driving the country away from its aspirations to move closer to the European Union.
"Developing a shared vision by the leaders on the overall direction of the country and on key EU-related reforms remains essential for further progress towards EU membership," the strategy paper says.
Serbia: Important steps toward reconciliation
Serbia has taken important steps towards reconciliation in the region, in particular with Croatia recently and last July with Bosnia and Herzegovina, the Commission notes. The country's cooperation with the International Criminal Tribunal for the former Yugoslavia is mentioned in a positive light, alongside the nevertheless significant remark that two remaining ICTY fugitives are still at large.
Full cooperation with the Tribunal remains an essential condition for membership of the EU, as set out in the Council conclusions of 25 October 2010, the strategy paper says.
Kosovo: Still at odds with its Serb minority
Dialogue and reconciliation between communities and the protection and integration of minorities, particularly the Kosovo Serbs, are still areas of concern in Kosovo, the Commission notes.
Indeed, the current political crisis and looming early elections show once again that the Serb minority in the northern part of the country is unwilling to take part in Kosovo's political life.
"More needs to be done to tackle corruption, organised crime and money-laundering," the Commission says, adding positively that cooperation with the EU law-enforcement mission, EULEX, has improved.
However, major challenges remain regarding public administration reform and the rule of law, including the judiciary, the strategy paper says.
Turkey invited to adopt new civilian constitution
The Commission describes as "an important step" constitutional amendments that were recently adopted by referendum.
However, the Commission considers that Ankara should do more in the field of constitutional reform. The strategy paper calls on Turkey to conduct "broad public consultation involving all political parties and civil society, with their full engagement," to strengthen support for constitutional reform.
"A new civilian constitution would provide a solid base for a further strengthening of democracy in Turkey, in line with European standards and the EU accession criteria," the Commission states.
The Commission is critical of the situation regarding fundamental rights, freedom of expression and media freedom in Turkey. A number of shortcomings remain on exercising freedom of religion, the report adds. Ankara is also asked to make progress regarding women's rights and gender equality.
The 'democratic opening' aimed notably at addressing the Kurdish issue has produced only limited results, the Commission states. The security situation in the South-East has worsened, with a resurgence of attacks by the terrorist organisation PKK/Kongra-Gel.
As several negotiation chapters are blocked as a result of Turkey's refusal to open its ports and airports to vessels and aircraft from Cyprus, the EU executive states: "It is urgent that Turkey fulfils its obligation of full non-discriminatory implementation of the Additional Protocol and makes progress towards normalisation of bilateral relations with the Republic of Cyprus."
Iceland: Accession process launched
Rather short paragraphs on the Nordic country note that the accession process with Iceland has been launched and Iceland has achieved candidate status.
Important steps of economic stabilisation have been taken, the Commission notes, acknowledging progress in consolidating public finances and restoring the financial system.
However, economic uncertainties and challenges remain, the strategy paper notes. As the public opinion in Iceland appears as confused as to the prospect of EU membership, the Commission calls on the national authorities to "ensure that citizens in Iceland are properly informed about what EU membership entails".
