P9_TA(2023)0471 – 30 years of Copenhagen criteria - giving further impetus to EU enlargement policy – European Parliament resolution of 13 December 2023 on 30 years of Copenhagen criteria - giving further impetus to EU enlargement policy (2023/2987(RSP))
Date: 2023-12-13
Institutions: European Parliament
Subjects: Moldova, Russo-Ukrainian issue, Ukraine, common foreign and security policy, economic growth, enlargement of the Union, rule of law, single market








C_202404173EN.000101.fmx.xml












Official Journal of the European Union


EN
C series













C/2024/4173


2.8.2024






P9_TA(2023)0471

30 years of Copenhagen criteria - giving further impetus to EU enlargement policy


European Parliament resolution of 13 December 2023 on 30 years of Copenhagen criteria - giving further impetus to EU enlargement policy (2023/2987(RSP))

(C/2024/4173)



The European Parliament,







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having regard to the Treaty on European Union (TEU), in particular Article 49 thereof,










—


having regard to its resolution of 22 November 2023 on proposals of the European Parliament for the amendment of the Treaties (1),










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having regard to the conclusions of the Presidency of the European Council in Copenhagen on 21 and 22 June 1993, also known as the ‘Copenhagen criteria’,










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having regard to the EU-Western Balkans Summit Declaration of Thessaloniki of 21 June 2003 concerning the prospect of the Western Balkan countries joining the European Union,










—


having regard to the Commission communication of 5 February 2020 entitled ‘Enhancing the accession process – A credible EU perspective for the Western Balkans’ (COM(2020)0057),










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having regard to its recommendation of 23 November 2022 to the Council, the Commission and the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy concerning the new EU strategy for enlargement (2),










—


having regard to its recommendation of 19 June 2020 to the Council, the Commission and the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy on the Western Balkans, following the 2020 summit,










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having regard to the European Council conclusions of 23 and 24 June 2022, and of 29 and 30 June 2023,










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having regard to the Commission’s 2023 Enlargement Package of 8 November 2023,










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having regard to the founding principles of the European Union, including the commitment to democracy, the rule of law and respect for human rights,










—


having regard to the Charter of Fundamental Rights of the European Union,










—


having regard to Rules 132(2) and (4) of its Rules of Procedure,










A.


whereas enlargement is one of the most effective EU foreign policy instruments and one of the EU’s most successful policies to date for boosting the necessary reforms both within the EU and in applicant countries; whereas it remains a strategic, future-oriented geopolitical investment in peace, security, stability, cooperation, shared values and prosperity on the European continent;










B.


whereas previous enlargement rounds have successfully strengthened the single market, fostered economic growth and enhanced the EU’s global influence;










C.


whereas the effectiveness of enlargement has considerably decreased over the last years owing to a failure on the EU’s part, notably from the Council, to live up to its promises; whereas unfair delays and vetoes in the Council have considerably damaged the EU’s credibility and capacity to encourage political transformation in the enlargement countries; whereas Parliament is undoubtedly the most supportive EU institution when it comes to enlargement;










D.


whereas more than 30 years ago, on 21 and 22 June 1993, the EU’s then twelve Heads of State and Government met in Copenhagen and adopted a set of criteria for EU membership, including on democracy, the rule of law, human rights, a market economy and the ability to effectively implement the EU acquis; whereas the Copenhagen Criteria are crucial for ensuring that countries aspiring to join the EU share common values, have stable institutions and can successfully implement EU laws;










E.


whereas, according to Article 2 TEU, the Union is founded on the values of democracy, the rule of law and respect for human rights, including the rights of persons belonging to minorities, which are part of the Copenhagen criteria and which all Member States have the obligation to uphold at all times; whereas the European rule-of-law mechanism was designed to ensure an effective and coherent protection of the rule of law in all Member States;










F.


whereas in the light of Russia’s war of aggression against Ukraine and the growing Russian threat to European peace and stability, an enhanced enlargement policy remains a very strong political tool at the EU’s disposal to protect and promote peace, security, stability, cooperation and democratic values on the European continent;










G.


whereas accession to the EU must always be a merit-based procedure in which each applicant is assessed on its own merit in terms of fulfilling the Copenhagen criteria, in particular those of guaranteeing full respect for human rights, democracy and the rule of law, in order to ensure that EU enlargement strengthens rather than weakens the EU and its single market; whereas the accession process is set out in Article 49 TEU; whereas the integration capacity of the EU also needs to be taken into account as provided for in the 1993 Copenhagen European Council conclusions; whereas Parliament has asked for a clear deadline for concluding negotiations with the accession countries of the end of the current decade at the latest;










H.


whereas a reform of the EU’s governance structures, including the streamlining of decision-making procedures, is already needed in the current composition of the EU and is necessary for the proper and efficient functioning of an enlarged European Union; whereas a reformed and better-functioning Union is in the interest of both the current and future Member States;










I.


whereas the enlargement agenda gained new momentum in June 2022; whereas in its 2023 Enlargement Package, the Commission recommended starting accession negotiations with Ukraine and the Republic of Moldova, as well as with Bosnia and Hercegovina once it has implemented the necessary steps, and granting candidate status to Georgia once the relevant compliance with membership criteria has been achieved; whereas on 14 and 15 December 2023, the European Council will take a decision on these recommendations; whereas Montenegro, Serbia, North Macedonia, Albania, Bosnia and Herzegovina, Türkiye, Republic of Moldova and Ukraine are currently candidate countries to join the EU; whereas Kosovo and Georgia are considered ‘potential candidates’; whereas the European Council granted candidate status to Ukraine and the Republic of Moldova on 23 and 24 June 2022 and to Bosnia and Herzegovina on 15 December 2022;










J.


whereas in its 2023 Communication on EU Enlargement Policy, the Commission notes that enlargement countries will have to act with stronger determination to implement the necessary reforms and make tangible progress on the fundamentals in order to make full use of the new momentum;










K.


whereas, on 17 October 2023 at the European Parliament, Armenian Prime Minister Nikol Pashinyan stated that the Republic of Armenia is ready to be closer to the European Union, as much as the European Union considers it possible;













1.


In the light of the above, urges the 14 and 15 December 2023 European Council to endorse the Commission’s recommendations presented in its 2023 Enlargement Package from 8 November 2023, and to decide on opening accession negotiations with Ukraine and the Republic of Moldova, and opening accession negotiations with Bosnia and Herzegovina, and granting candidate status to Georgia on the understanding that certain steps are taken; welcomes the new Growth Plan for the Western Balkans announced by the Commission during the presentation of the 2023 Enlargement Package; calls on the Council to also adopt the negotiating framework without delay once the relevant requirements related to each of the candidate countries are fulfilled in order to start the accession negotiations swiftly;












2.


Commemorates the 30th anniversary of the Copenhagen criteria, appreciating their historic significance in providing a clear and effective framework for EU enlargement, and celebrating the achievements and progress made by various nations on their journey towards EU membership; welcomes the interest and the political will to join the EU shown by so many countries, and acknowledges the serious efforts made by many accession countries to meet the requirements for membership; reaffirms its commitment to the candidate countries’ and potential candidate countries’ future membership in the EU; stresses the need to establish a clear EU enlargement timetable for EU candidate countries for them to conclude the EU accession negotiations by the end of the current decade; stresses that there should be no fast track for membership; underscores that there can be no shortcuts on fundamental values;












3.


Reaffirms the importance of the Copenhagen criteria in ensuring that candidate and potential candidate countries demonstrate a consistent and enduring commitment to democracy, the rule of law, human rights and respect for and protection of minorities, and economic reforms, while also adapting to the EU’s evolving needs and challenges; calls on the Commission and the European External Action Service (EEAS) to apply a more credible and merit-based approach, firmly anchored in the Copenhagen criteria;












4.


Believes that enlargement is of strategic importance for the EU, and all the more so in the face of Russia’s war of aggression against Ukraine; stresses that an enhanced enlargement policy has become one of the strongest geopolitical tools at the EU’s disposal and that there are no more grey zones in its neighbourhood; points out that enlargement is a strategic investment in peace, security, stability and prosperity, as well as a driver for democracy and European values across the continent;












5.


Highlights the geopolitical significance of including the Western Balkan countries, Ukraine, the Republic of Moldova and Georgia in the EU, emphasising their many ongoing efforts and the importance of their integration for regional stability and security, and encouraging continued dialogue and cooperation to resolve current conflicts and differences; strongly deplores, in that respect , the statements by the Prime Minister of Hungary concerning the opening of accession negotiations with Ukraine and the country’s change policy towards Kosovo, and notes that Mr Orban’s statements obstruct the EU enlargement process; reminds the Council of the potential negative consequences of Hungary taking over the EU’s Presidency in July 2024;












6.


Reiterates its concerns about reports that the Commissioner for Neighbourhood and Enlargement Olivér Várhelyi is deliberately seeking to circumvent and undermine the centrality of reforms in the EU accession countries in the areas of democracy and the rule of law; reiterates its call on the Commission to initiate an independent investigation into this issue and to report the results of this investigation to Parliament and the Council;












7.


Welcomes the willingness of the Government of Armenia to come closer to the European Union and asks the Commission to consider going beyond the Comprehensive and Enhanced Partnership Agreement in bilateral relations;












8.


Concludes that the Turkish Government has no interest in closing the persistent and growing gap between Türkiye and the EU on values and standards, as it has shown, for the past few years, a clear lack of political will to carry out the necessary reforms, in particular regarding the rule of law, fundamental rights and the protection and inclusion of all ethnic, religious and sexual minorities; concludes, further, that the Turkish Government has not shown any interest in respecting and upholding the Copenhagen criteria and in aligning itself with EU policies and objectives;












9.


Underlines that accession to the EU must take place in accordance with Article 49 TEU, based on respect for the relevant procedures and conditional upon the fulfilment of the established criteria, in particular the Copenhagen criteria for EU membership; underlines that accession should always remain a merit-based process that requires the adoption and implementation of the relevant reforms by the Western Balkan countries, Ukraine, the Republic of Moldova and Georgia, in particular in the areas of democracy, the rule of law, human rights, fundamental freedoms, respect for and protection of minorities, the market economy and implementation of the EU acquis; welcomes the efforts by many candidate and potential countries authorities’ to advance the reform agenda and encourages them to redouble their efforts in order to progress towards EU membership, in line with the Commission recommendations; expects concrete progress in the coming period in the EU-facilitated Belgrade-Pristina Dialogue and expects the parties to deliver on their commitments; reiterates its calls on the Commission and the Council to lift the restrictive measures taken against Kosovo; emphasises that the use of unresolved bilateral and regional disputes to block candidate countries’ accession processes must be avoided during the EU enlargement process; calls upon the Commission to propose a mechanism which will ensure that the resolution and arbitration of these disputes is separate from the candidates’ accession to the EU; notes that the Member States’ use of bilateral issues for their own benefit is contrary to the spirit of the EU Treaties; in this context, deplores the resurgence of one-sided historical demands by some Member States, which hinders the EU path of certain candidate countries and considerably undermines the credibility of the EU;












10.


Welcomes the Commission’s proposal for a regulation on establishing the Ukraine Facility (3), which will also support accession-related reforms; reiterates its position on the facility as adopted in October 2023; is concerned about the lack of progress in the legislative procedure and urges the Council to swiftly adopt a general approach on the regulation, and the overall revision of the multiannual financial framework, in order for interinstitutional negotiations to commence without further delay;












11.


Strongly believes that alignment with EU common foreign and security policy is a fundamental necessity for candidate and potential candidate countries, and also a way of showing full adherence to the EU’s fundamental principles and an important indicator of sustainable future membership; reiterates that accession can only proceed once a country aligns with EU sanctions against Russia’s war of aggression against Ukraine;












12.


Calls for the EU and its Member States to accelerate the integration of countries that demonstrate strategic orientation and unwavering commitment to EU-related reforms, democratic consolidation, fundamental values and foreign and security policy alignment;












13.


Encourages the consistent application of standards and rules to all candidate countries, and calls on the Commission to ensure the continued effectiveness, transparency and integrity in the enlargement process and that all decisions are made in a manner that is fair, unbiased and reflective of the core principles of the Union;












14.


Calls on the Commission to apply strict conditionality and formally assess accession countries under the EU’s rule-of-law mechanism with the aim of providing an objective and clear picture of the state of play in order to prevent a persistent lack of progress, serious deficiencies and regression; notes the limited efforts made by some enlargement countries to meet the requirements for membership in line with the Copenhagen criteria; regrets the serious and worrying lack of progress – and even backsliding – by some enlargement countries in their path towards EU accession; calls on the Commission, in that respect, to disburse funds only to those countries that deliver tangible results and implement reforms in the area of the ‘fundamentals’;












15.


Calls for the EU to ensure that it will also prepare itself to welcome any EU candidate country in the accession process into the EU single market as soon as that country has demonstrated its ability to assume the required obligations and establish a robust rule of law; in this context, calls for the introduction of models of positive conditionality where progress is made, for the granting of access to the EU single market, as well as to other EU policies and initiatives based on a priority action plan and relevant sectoral programs, and for the provision of access to relevant EU funds, enabling candidate country citizens to reap the benefits of accession during the process rather than only at its completion; also calls for triggering negative conditionality in the case of regression or a persistent lack of progress in the form of the suspension of pre-accession funding and accession negotiations; calls, in particular, to introduce stricter and enforceable accountability with regard to the spending of such funding; stresses that benefits and initiatives such as the European Political Community are not alternatives to substitute enlargement, as this would dash the legitimate aspirations of countries that seek to become Member States of the EU;












16.


Calls for consideration to be given to appointing an EU chief negotiator, who would be accountable to the European Parliament, to carry out negotiations under a broad mandate for each country;












17.


Stresses that there is a need for stronger parliamentary oversight of the EU’s enlargement policy; insists on strengthening the role of Parliament throughout the entire accession process, including allowing it to fully scrutinise the progress made by many candidate countries and potential candidate countries across policy fields; calls on the Commission and the Council to take into due consideration the concerns and demands put forward by Parliament; highlights the specific role of parliamentary bodies in enlargement countries and calls for their role in the EU accession process to be strengthened, given the specific and key role they play in the required reform process through legislative approximation, oversight and outreach to citizens;












18.


Emphasises the need for internal EU reforms in parallel with the process of enlargement, to enhance the Union’s capacity to integrate new members effectively as foreseen by the 1993 Copenhagen European Council conclusions, to ensure that the enlargement process contributes positively to the overall cohesion and stability of the Union and to enhance the EU’s capacity to act by reforming decision-making, including through the introduction of qualified majority voting, including for foreign and security policy decisions and in areas relevant to the accession process; calls for the abolition of, in particular, the requirement for unanimity when deciding on the start of the negotiations process, as well as for the opening and closing of individual negotiating clusters and chapters, but stresses that the final decision on the accession of each candidate country should remain unanimous; calls, further, to ensure the effective functioning of an enlarged Union as a whole; recalls that progress towards overcoming unanimity would also be possible by making full use of the potential contained in the Treaty of Lisbon; recalls that reforms can ensure the effective functioning of an enlarged Union as a whole, in parallel to accession negotiations with candidate countries, so that the EU is prepared to welcome new members within a reasonable time frame and by the end of the current decade at the latest;












19.


Calls for a robust monitoring mechanism to track the reforms and progress made by the candidate countries in respecting all political criteria; calls for, in particular, a specific and effective monitoring mechanism to be set up for protecting fundamental values and the financial interests of the Union, in the context of accession procedures; calls for the mechanism to protect the rule of law and the EU’s fundamental principles and values, as well as the monitoring capacity to ensure compliance, to be strengthened ahead of the next enlargement; stresses the need for a broader rule-of-law conditionality mechanism covering the entire budget of the Union and all of the Union’s fundamental values as defined in Article 2 TEU;












20.


Reiterates its call on the Commission to implement the recommendations of the European Court of Auditors Special Report 01/2022 in order to ensure an effective impact of EU financial assistance in support of the rule of law in the Western Balkans, in particular by developing clear guidelines and benchmarks on the application of the provisions on modulation and conditionality under the Instrument for Pre-Accession Assistance (IPA III); calls on the Commission to add the new accession countries to the IPA III;












21.


Calls on the Commission to take into account the ongoing reflections on the long-term reform perspectives of EU policies in the enlargement process;












22.


Calls for the EU and its Member States to significantly step up public engagement and strengthen strategic communication on the benefits of enlargement, both in the accession countries and in the Member States; calls on the accession countries’ authorities to contribute fully to these efforts; calls for the EU and its Member States to actively engage in conflict resolution and the promotion of good neighbourly relations in the accession countries; calls on the Commission to financially support accession countries which are genuinely working towards good neighbourly relations and sustainable reconciliation and are fully aligned with the EU’s strategic goals, values and interests, including with the EU’s common foreign and security policy;












23.


Calls for the EU and its Member States to continue to support media literacy and the independence of the media, as well as civil society, in candidate and potential candidate countries, and to support them in their fight against information manipulation and foreign malign interference, in order to strengthen democratic institutions and values; emphasises the importance of structurally involving civil society organisations in the enlargement process; in this context, calls for the EU to allocate additional resources to civil society actors dedicated to EU values and principles, democracy, peacebuilding and people-to-people contacts; underlines the need to mainstream gender equality, human rights (in particular freedom of expression), the protection of minorities and the protection of human rights defenders in these areas, as well as to fully implement the principle of non-discrimination throughout the accession process; highlights the importance of increasing people-to-people contacts between EU Member States and enlargement countries;












24.


Calls on the next College of Commissioners to nominate a Commissioner for Enlargement, as well as to restore the Directorate-General for Enlargement;












25.


Instructs its President to forward this resolution to the 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 governments and parliaments of the accession countries.






(1)  Texts adopted, P9_TA(2023)0427.

(2)  
            OJ C 167, 11.5.2023, p. 105.

(3)  Proposal for a regulation of the European Parliament and of the Council of 20 June 2023 on establishing the Ukraine Facility (COM(2023)0338).


ELI: http://data.europa.eu/eli/C/2024/4173/oj
ISSN 1977-091X (electronic edition)