COMMISSION STAFF WORKING DOCUMENT Albania 2025 Report Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2025 Communication on EU enlargement policy
Date: 2025-11-04
Institutions: Directorate-General for Enlargement and Eastern Neighbourhood, European Commission
Subjects: Albania, accession criteria, accession negotiations, pre-accession strategy, regional cooperation

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 4.11.2025  SWD(2025) 750 final  COMMISSION STAFF WORKING DOCUMENT Albania 2025 Report Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS 2025 Communication on EU enlargement policy                                               {COM(2025) 690 final} - {SWD(2025) 751 final} - {SWD(2025) 752 final} - {SWD(2025) 753 final} - {SWD(2025) 754 final} - {SWD(2025) 755 final} - {SWD(2025) 756 final} - {SWD(2025) 757 final} - {SWD(2025) 758 final} - {SWD(2025) 759 final}  
 
 
Contents 
1. INTRODUCTION  ........................................................................................................................................ 3 

1.1. Context ............................................................................................................................................... 3 

1.2. Main findings of the report ................................................................................................................ 3 

Cluster 2: Internal market ....................................................................................................................... 10 

1.3. State of play of the accession negotiations ..................................................................................... 20 

2. Cluster 1: The fundamentals of the accession process ........................................................................... 21 

2.1. Functioning of democratic institutions and public administration reform ..................................... 21 

2.1.1 Democracy ................................................................................................................................. 21 

2.1.2. Public administration reform .................................................................................................... 24 

2.2.  Rule of law and fundamental rights ................................................................................................ 27 

2.2.1.  Chapter 23: Judiciary and fundamental rights ...................................................................... 27 

2.2.2.  Chapter 24: Justice, freedom and security ........................................................................... 41 

2.3. Economic criteria ......................................................................................................................... 50 

2.3.1. The existence of a functioning market economy ...................................................................... 51 

2.3.2. The capacity to cope with competitive pressure and market forces within the EU ................. 56 

2.4. Public procurement, statistics, financial control ......................................................................... 58 

Chapter 5: Public procurement ........................................................................................................... 58 

Chapter 18: Statistics .......................................................................................................................... 59 

Chapter 32: Financial control .............................................................................................................. 60 

3. Good neighbourly relations and regional cooperation ........................................................................... 61 

4. Ability to assume the obligations of membership .................................................................................. 62 

Cluster 2: Internal market ....................................................................................................................... 62 

Chapter 1: Free movement of goods .................................................................................................. 62 

Chapter 2: Freedom of movement of workers ................................................................................... 64 

Chapter 3: Right of establishment and freedom to provide services ................................................. 64 

Chapter 4: Free movement of capital ................................................................................................. 65 

Chapter 6: Company law ..................................................................................................................... 66 

Chapter 7: Intellectual property law ................................................................................................... 66 

Chapter 8: Competition policy ............................................................................................................ 67 

Chapter 9: Financial services ............................................................................................................... 68 

Chapter 28: Consumer and health protection .................................................................................... 69 

Cluster 3: Competitiveness and inclusive growth ................................................................................... 70 

Chapter 10: Digital transformation and media ................................................................................... 70 

Chapter 16: Taxation ........................................................................................................................... 71 

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Chapter 17: Economic and monetary policy ....................................................................................... 72 

Chapter 19: Social policy and employment ........................................................................................ 73 

Chapter 20: Enterprise and industrial policy ...................................................................................... 75 

Chapter 25: Science and research ....................................................................................................... 75 

Chapter 26: Education and culture ..................................................................................................... 76 

Chapter 29: Customs union ................................................................................................................ 78 

Cluster 4: The green agenda and sustainable connectivity .................................................................... 79 

Chapter 14: Transport policy .............................................................................................................. 79 

Chapter 15: Energy .............................................................................................................................. 80 

Chapter 21: Trans-European networks ............................................................................................... 82 

Chapter 27: Environment and climate change ................................................................................... 83 

Cluster 5: Resources, agriculture and cohesion ...................................................................................... 85 

Chapter 11: Agriculture and rural development ................................................................................. 85 

Chapter 12: Food safety, veterinary and phytosanitary policy ........................................................... 86 

Chapter 13: Fisheries and aquaculture ............................................................................................... 87 

Chapter 22: Regional policy and coordination of structural instruments .......................................... 88 

Chapter 33: Financial and budgetary provisions ................................................................................ 89 

Cluster 6: External relations .................................................................................................................... 90 

Chapter 30: External relations ............................................................................................................ 90 

Chapter 31: Foreign, security and defence policy .............................................................................. 91 

Annex I – Relations between the EU and Albania ................................................................................... 93 

Annex II – Statistical data ........................................................................................................................ 96 

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1. INTRODUCTION 1 

1.1. CONTEXT 

Following  the  second  intergovernmental  conference  of  15 October  2024,  which  opened 
accession  negotiations  on  cluster  1  –  fundamentals,  four  intergovernmental  conferences 
were convened leading to the opening of negotiations on four clusters. Albania continued to 
implement  the  Stabilisation  and  Association  Agreement,  and  the  joint  bodies  under  the 
agreement met.  

The  firm  political  commitment  of  the  Albanian  authorities  to  the  strategic  goal  of  EU 
integration  has  been  consistently  stated  as  the  country’s  key  priority,  and  a  high  level  of 
ambition to move forward in the accession negotiations has been generally maintained. The 
ongoing momentum in the accession negotiation process needs to lead to faster EU-related 
reforms.  Albania  maintained  its  record  of  full  alignment  with  the  EU’s  common  foreign  and 
security policy, aligning with the EU position, including on restrictive measures and sanctions 
against  Russia.  Albania’s  stance  sends  a  strong  signal  of  its  strategic  choice  of  EU 
accession and of its role as a reliable partner. 

Albania  has  actively  engaged  and  started  delivering  on  the  implementation  of  the  new 
Growth Plan for the Western Balkans across the four pillars: (i) gradual integration with the 
EU  single  market;  (ii)  regional  economic  integration;  (iii)  fundamental  reforms;  and  (iv) 
increased  financial  support.  Under  the  Reform  and  Growth  Facility  (RGF),  a  performance-
based EU instrument supporting the EU accession process, the country adopted its reform 
agenda, which covers reforms in the areas of: (i) business environment; (ii) human capital; 
(iii) digitalisation; (iv) energy and green transition; and (v) fundamental rights and the rule of 
law.  After  initial  delays  in  setting  up  internal  coordination  structures,  Albania  appointed  a 
RGF national coordinator and continued to work towards the reform agenda targets.  

The Commission’s 2025 rule of law report 2 covered Albania for the second time.   

1.2. MAIN FINDINGS OF THE REPORT 

CLUSTER 1: THE FUNDAMENTALS OF THE ACCESSION PROCESS 

Democracy  

The  overall  framework  allows  for  generally  free  and  fair  elections.  The  parliamentary 
elections held on 11 May 2025, which followed a partial electoral reform, resulted in a fourth 
consecutive  term  for  the  ruling  party.  The  preliminary  conclusions  of  the  Organization  for 
Security and Co-operation in Europe (OSCE) / Office for Democratic Institutions and Human 
Rights  (ODIHR)  election  observation  mission  noted  that  elections  were  competitive  and 
professionally  conducted,  but  identified  some  shortcomings,  including  the  lack  of  a  level 
playing  field  and  abuse  of  public  resources.  The  partial  electoral  reform  amended  the 
Electoral  Code  but  failed  to  address  a  number  of  longstanding  recommendations  from  the 
OSCE/ODIHR and the Venice Commission. A comprehensive electoral reform is needed.  

1 This report covers the period from 1 September 2024 to 1 September 2025. It is based on input from a variety 
of  sources,  including  contributions  from  the  government  of  Albania,  EU  Member  States,  European  Parliament 
reports  and  information  from  various  international  and  non-governmental  organisations.  It  also  includes  the 
results of comparative assessments and indices produced by other stakeholders, in particular in the area of rule 
of law. 
The  report  uses  the  following  assessment  scale  to  describe  the  state  of  play:  early  stage,  some  level  of 
preparation,  moderately  prepared,  good  level  of  preparation  and  well  advanced.  To  describe  progress  made 
during the reporting period, it uses the following scale: backsliding, no progress, limited progress, some progress, 
good progress and very good progress. Where appropriate, interim steps have also been used. 
2 COM(2025) 900 final. 

3 

 
 
 
 
Parliament can exercise its powers in a partially effective way. Political polarisation, lack of 
genuine  political  dialogue  and  clashes  between  the  ruling  majority  and  parts  of  the 
opposition  continued  to  affect  Parliament’s  activity,  while  public  consultation  processes 
remained limited. Parliament is also hampered by limited oversight over the executive, while 
the  politicisation  of  parliamentary  appointments  to  top  positions  in  constitutional  bodies  or 
independent  institutions  established  by  law  remains  a  serious  issue.  Concerns  were  noted 
regarding  the  work,  methodology  and  impact  of  the  ad  hoc  parliamentary  committee  on 
deepening  reforms  for  good  governance,  rule  of  law  and  anti-corruption.  Following  the  11 
May elections, the number of standing committees increased from eight to eleven, of which 
four are chaired by opposition.   

The government continued to show its commitment to EU integration. Following the 11 May 
parliamentary  elections,  a  new  government  took  office  in  September  2025.  The  division  of 
responsibilities between local and central government remains an issue 

Albania’s  bodies  in  charge  of  the  EU  integration  process  are  in  place.  They  successfully 
coordinated  national  positions,  leading  to  the  opening  of  negotiations  on  five  of  the  six 
clusters during the reporting period. EU integration expertise, planning and  interinstitutional 
mechanisms will need to be further strengthened to sustain Albania’s ambition to speed up 
the reforms required by the EU accession process. The EU integration process needs to be 
more 
inclusive,  cross-party,  and  supported  by  effective  consultation  mechanisms. 
Communication efforts on EU integration should intensify.  

Civil  society  organisations  (CSOs)  operate  in  a  partly  enabling  environment.  They  face 
challenges  regarding  registration  requirements  and  limited  public  funding,  along  with  an 
increase in negative narratives and online smear campaigns.  

Public administration reform 

Albania remains moderately prepared in the area of public administration reform (PAR). It 
made  some  progress  during  the  reporting  period,  resulting  in  the  adoption  of  the  new 
Intersectoral  Strategy  Against  Corruption  (ISAC)  2024–2030  and  Medium-Term  Revenue 
Strategy  2024–2027  in  December  2024,  and  of  the  Cross-Cutting  Strategy  on  Public 
Administration Reform 2025-2030 in July 2025. Amendments to the laws on civil service and 
on the organisation of state administration remain to be adopted, with the latter submitted for 
public  consultation.  The  practice  of  budget  revisions  carried  out  through  normative  acts 
adopted  by  the  executive  continues.  Clear  political  steer  for  the  PAR  agenda  from  the 
Minister of State for Public Administration and Anti-Corruption continued.  

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  start implementing the new public administration strategy and review the effectiveness of 
the current monitoring structures; limit the use of normative acts for budget revisions and 
pursue a return to regular budget revision processes; 

→  adopt  and  implement  a  new  legislative  framework  for  the  civil  service,  which  includes 
revised rules on merit-based recruitment, promotion and dismissal in the civil service law 
at all levels, especially senior level, and begin automating the payroll system again; 

→  adopt  and  implement  revised  legislation  properly  regulating  the  typology  and  criteria  to 

set up subordinated institutions and clarifying lines of accountability. 

Chapter 23: Judiciary and fundamental rights  

Albania  is  moderately  prepared  in  the  area  of  judiciary  and  fundamental  rights  and  has 
made some progress during the reporting period. 

Functioning of the judiciary  

4 

 
 
 
Albania  is  between  having  a moderate  and  a  good  level  of  preparation  and  has  made 
some  progress  on  the  functioning  of  the  judiciary.  Albania  continued  implementing  the 
justice  reform.  The  vetting  process  for  all  judges  and  prosecutors  was  finalised  in  first 
instance, further strengthening judicial independence and accountability. Vetting procedures 
on appeal have increased in pace and are now on track to meet the constitutional deadline 
of  June  2026.    The  High  Judicial  Council  (HJC)  has  adopted  by-laws  enhancing  its 
procedures and standards applicable to its members and to judges. The High Prosecutorial 
Council  (HPC)  has  also  enhanced  standards  applicable  to  magistrates.  The  HJC  has 
proceeded with new appointments of magistrates, contributing to a reduction of vacancies at 
first instance level. Challenges in the appointments of non-magistrate members of the HJC 
and  HPC,  and  in  conducting  timely  and  qualitative  evaluations,  appointments,  promotions, 
and  transfers  of  magistrates  remained.  While  the  resilience  of  the  judiciary  has  improved 
overall,  increased  attempts  by  public  officials  or politicians  to exert  undue interference and 
pressure on the judicial system remained an issue of serious concern. A new Cross-Sector 
Justice  Strategy  for  2024-2030  was  adopted.  Sufficient  budget  was  allocated  to  develop  a 
modern, integrated, electronic case management system, but full establishment is currently 
foreseen only for 2030. Pressing issues on judicial efficiency, quality and integrity still need 
to be addressed, in line with the best European standards and practices.  

Sustained  reform  efforts  are  needed  to  continue  to  strengthen  the  judicial  system  and 
maintain  high  standards  of  integrity  after  the  completion  of  the  vetting  process.  The 
Commission’s  recommendations  from  last  year  were  partially  implemented  and  therefore 
remain largely valid. In the coming year, Albania should in particular: 

→  further strengthen accountability by: (i) finalising the vetting process; (ii) enhancing asset 
and  background  assessment  standards,  ensuring  high-quality  and  speeding-up 
evaluation reports for all magistrates; (iii) aligning rules applicable to all non-magistrates 
of the HJC and HPC with those applicable to magistrates, as regards asset declaration 
and background checks; (iv) filling the magistrate-inspector vacancies at the High Justice 
Inspectorate,  and  (v)  reducing  political  interference  on  the  judiciary  and  prosecution 
services; 

→  improve the  quality  of  justice  by:  (i)  filling  vacancies  for  court  chairs,  magistrates,  legal 
advisers  and  court  staff  at  all  levels  of  the  judiciary  and  increasing  the  total  number  of 
magistrates  and 
(ii) 
comprehensively  revising  the  School  of  Magistrates’  entrance  exam  and  initial  and 
continuous training curricula; and (iii) increasing the quality and integrity of the School of 
Magistrates’ staff;  

legal  advisers  at  all 

the  EU  average; 

towards 

levels, 

→  improve judicial efficiency by: (i) adopting comprehensive legal and regulatory measures 
to  increase  efficiency  at  all  levels,  and  to  further  reduce  backlog,  in  line  with  the 
Roadmap for Judicial Efficiency, the principles of justice reform and European standards; 
(ii)  finalising  the  procurement  for  and  first  piloting  of  the  integrated  case  management 
system modules and (iii) expanding the online notification system for access to court files 
and processes to all courts of general jurisdiction.  

Fight against corruption  

Albania  is  moderately  prepared  and  has  shown  some  progress.  The  Anti-Corruption 
Strategy  for  2024-2030  has  been  adopted.  The  Specialised  Structure  Against  Organised 
Crime  and  Corruption  (SPAK)  further  consolidated  its  positive  results  in  fighting  high-level 
corruption  and  made  tangible  progress  towards  a  solid  track  record  in  the  fight  against 
corruption.  However,  corruption  remained  widespread  across  vulnerable  sectors,  affecting 
both the public and private spheres. The institutional framework for prevention of corruption 
continued  to  have  a limited  impact  and  coordination  with law  enforcement  remained weak. 
Shortcomings  regarding  transparency  and  effectiveness  of  asset  declaration  checks  still 
need to be addressed. 

5 

 
 
The  Commission’s  recommendations  from  last  year  were  partially  implemented  and 
therefore remain largely valid. In the coming year, Albania should in particular: 

→  continue  to  strengthen  the  investigation,  prosecution  and  adjudication  of  corruption 
cases and secure more final convictions, in particular at high-level, including the seizure 
and  final  confiscation  of  criminal  assets  resulting  from  corruption-related  offences,  and 
increase proactive referrals by relevant state institutions and law enforcement agencies 
to SPAK; 

→  complete  and  simplify  legislation  on  preventing  corruption  in  line  with  European 
standards,  and  address  the  remaining  recommendations  of  the  Council  of  Europe’s 
Group  of  States  against  Corruption  (GRECO);  conduct  in-depth  risk  assessments  in 
vulnerable  sectors,  implement  effectively  integrity  plans  at  corruption-prone  institutions, 
such as the State Cadastre Agency, and increase the capacity of the General Directorate 
on Anti-Corruption (GDAC); 

→  make  asset  declaration  checks  by  the  High  Inspectorate  of  Declaration  and  Audit  of 
Assets  and  Conflicts  of  Interest  (HIDAACI)  more  effective  and  transparent  by  updating 
procedures  and  ensuring  sufficient  resources,  addressing  undeclared  or  concealed 
assets and by ensuring that asset declarations of politically exposed persons are publicly 
available online. 

Fundamental rights  

Albania’s legal framework sets out a generally good basis for the protection of fundamental 
rights. Significant achievement was made during the reporting period with the adoption of a 
new  Law  on  personal  data  protection  and  seven  of  its  ten  accompanying  pieces  of 
implementing  legislation,  in  full  alignment  with  the  EU  acquis,  as  well  as  the  adoption  of 
implementing legislation on the rights to persons belonging to national minorities, in the core 
areas  of  self-identification  and  the  use  of  minority  languages,  consistent  with  European 
standards. The enjoyment of media freedom and pluralism, of the right to property and of the 
rights of persons belonging to minorities remain problematic. Implementation efforts need to 
intensify overall.  

The  Commission’s  recommendations  from  last  year  were  only  partially  implemented  and 
remain mostly valid. In the coming year, Albania should in particular: 

→  ensure  effective  implementation  of  the  legal  framework  on  the  rights  of  persons 
belonging to minorities and increase the capacity and resources of the State Committee 
on National Minorities and of local authorities; 

→  expand the enjoyment of the right to property and legal certainty by: (i) making progress 
on first registrations; (ii) digitising ownership titles, documents, and maps; (iii) improving 
the  quality  and  accuracy  of  cadastral  data;  (iv)  enhancing  integrity,  transparency,  and 
effectiveness  in  delivering  public  services  at  the  State  Cadastre  Agency;  and  (v) 
advancing  on  compensations  and  guaranteeing  the  right  to  a  fair  trial  in  cases  of 
expropriation and removal of properties; 

→  further  align  with  and  implement  the  EU  acquis  on  equality  and  non-discrimination 
including as regards sexual orientation and gender expression, ensure that the upcoming 
Law on gender equality maintains a high level of ambition in line with EU standards, and 
demonstrate good implementation capacity of the new Law on personal data protection, 
implement  effectively 
the 
deinstitutionalisation of children. 

the  National  Agenda  on  Child  Rights  and  complete 

Freedom of expression  

Albania  is  between  having  some  and  a  moderate  level  of  preparation  in  the  area  of 
freedom of expression and made limited progress during the reporting period. The situation 
remains  largely  unchanged,  with  media  independence  and  pluralism  continuing  to  be 

6 

 
 
affected  by  the  overlap  of  business  and  political  interests,  the  lack  of  transparency  of 
financing  sources,  the  high  concentration  of  media  ownership,  intimidation  and  precarious 
working  conditions  for  journalists.  The  launch  of  a  structured  dialogue  between  Albanian 
institutions  and media  actors  as  well  as  the  adoption of  soft measures  on journalise safety 
were positive developments. Concerns were raised, however, regarding the legality and due 
process  observed  during  the  eviction  by  the  authorities  of  a  media  outlet  from  the  public-
owned offices it occupied. 

The Commission’s recommendations from last year were not implemented and remain valid. 
In the coming year, Albania should in particular: 

→  adopt  a  major  reform  of  the  legal  and  regulatory  framework  to:  (i)  strengthen 
transparency  of  media  ownership,  media  plurality  and  editorial  independence;  (ii) 
strengthen  transparency  of  media  financing  from  private  and  state  resources;  (iii) 
strengthen  the  autonomy  of  the  media  regulator  and  the  independence  of  the  state 
broadcaster;  (iv)  fully  repeal  criminal  provisions  on  insult  and  defamation;  and  (v)  align 
civil aspects of defamation with European standards;  

→  ensure  zero  tolerance  for  intimidation  and  effective  enforcement  in  cases  of  attacks 
against  journalists,  including  judicial  follow-up;  ensure  increased  capacities  of  law 
enforcement  bodies  to  handle  cases  of  violence,  including  on  the  margins  of  protests, 
and  other  criminal  cases  involving  journalists,  notably  by  ensuring  high  human  rights 
compliance in handling incidents involving journalists, through binding instructions, data 
collection and capacity building measures; 

→  improve  Albanian  journalists’  working  conditions,  in  particular  by  strengthening  the 
protection  of  journalists’  employment  and  social  rights  and  ensuring  that  the  Labour 
Code is applied consistently. 

Chapter 24: Justice, freedom and security  

Albania  is  moderately  prepared  in  aligning  with  the  EU  acquis  in  the  area  of  justice, 
freedom  and  security  and  has  made  good  progress  in  this  area.  The  capacity  and 
effectiveness of the Specialised Structure Against Organised Crime and Corruption (SPAK) 
to  disrupt  organised  crime  groups  increased  and  the  use  of  financial  investigations 
improved. Although their full functionality still needs to be demonstrated, an asset recovery 
office and a national early warning system on the detection of new psychoactive substances 
were  set  up  within  the  Albanian  State  Police.  A  national  drugs  observatory  has  been 
established  within  the  Ministry  of  Health,  though  it  is  still  to  become  operational.  Albania 
continued  to  implement  its  migration  strategy,  which  is  aligned  with  EU  priorities.  Further 
efforts are needed to improve access to asylum and to  align the country’s visa policy with 
the EU’s. 

The Commission’s recommendations from last year were partially implemented and remain  
valid to a significant extent. In the coming year, Albania should in particular: 

→  further develop the systematic use of financial investigations when dealing with serious 

and organised crime, including illicit trafficking, terrorism and money laundering; 

→  operationalise the national drugs observatory and increase the functioning and output of 
the  national  early  warning  system  on  the  detection  of  new  psychoactive  substances, 
including by strengthening cooperation with the EU Drugs Agency; 

→  improve  the  asylum  referral  system  and  access  to  asylum  procedures,  continue  to 
address the issue of unfounded asylum applications of Albanian nationals in Schengen 
and  associated  countries,  ensure  that  legal  pathways  developed  for  third-country 
nationals in Albania prevent irregular secondary movements to the EU, and further align 
the country’s visa policy with the EU list of visa-required third countries. 

Fight against serious and organised crime 

7 

 
 
Albania is moderately prepared in the fight against organised crime. Good progress was 
made  in  meeting  last  year’s  recommendations  by  increasing  SPAK’s  capacity  in  financial 
investigations, strengthening the fight against money laundering and seizing assets linked to 
organised  crime.  SPAK  has  also  further  consolidated  cooperation  with  its  international 
counterparts, in particular with EU Member States and EU agencies, to investigate and crack 
down  on  high-risk  criminal  groups  with  initial  tangible  results.  Albania  needs  to  speed  up 
work on aligning its legal framework on organised crime with the EU acquis, strengthen law 
enforcement  capacity  and  improve  the  efficiency  of  investigations,  including  through  the 
development of criminal and financial analysis capabilities.  

The Commission’s recommendations from last year were partially implemented and remain 
largely valid. In the coming year, Albania should in particular: 

→  continue  to  strengthen  its  track  record  of  investigations,  prosecutions  and  final 
convictions in all fields of serious and organised crime, including drug trafficking, money 
laundering and terrorist financing through continued cooperation with EU Member States 
and  EU  agencies,  and  by  increasing  capacity  to  deter  organised  crime  and  ensuring 
further alignment with the EU acquis, notably on the criminalisation of money laundering 
and combating child sexual abuse and exploitation online and offline;  

→  improve the efficiency of the asset recovery system, by strengthening the functioning of 
the asset recovery office responsible for identifying and tracing criminal assets within the 
Albanian  state  police,  notably  its  operational  cooperation  with  asset  recovery  offices  in 
EU  Member  States,  by  improving  the  implementation  of  instruments  to  confiscate 
proceeds of crime and property derived from criminal activities, and by better managing 
frozen and confiscated property also for social reuse;  

→  improve  criminal  and  financial  analysis  capacity,  including  through  reinforced  inter-

agency cooperation and methodologies to tackle complex criminal cases. 

ECONOMIC CRITERIA 

The existence of a functioning market economy 

Albania has a good level of preparation in developing a functioning market economy and 
made some progress in this area. The economy maintained a strong growth momentum in 
2024 thanks to robust domestic demand and tourism. Inflation fell below the central bank’s 
target  while  fiscal  consolidation  accelerated, and the  public  debt  ratio continued to  decline. 
Despite increases, government revenue as a share of GDP remains low, while spending on 
public  investment  is  repeatedly  under-executed.  The  labour  market  situation  improved,  but 
structural problems persist. The banking sector remained stable, well capitalised and liquid, 
while lending to the private sector increased. The business environment remains affected by 
a  weak  rule  of  law,  limited  access  to  finance,  and  shortcomings  in  the  oversight  and 
governance of state-owned enterprises. 

The  Commission’s  recommendations  from  last  year  were  partly  addressed  and  remain 
largely valid. In the coming year, Albania should in particular: 

→  implement  the  Medium-Term  Revenue  Strategy  and  prepare  proposals  to  reduce  tax 
expenditure, prioritising the elimination of exemptions lacking sound policy justification; 

→  increase  the  transparency  and  accountability  of  state-owned  enterprises,  including  by 

publishing their annual financial performance reports; 

→  enhance  the  operationalisation  of  the  public  investment  management  framework, 
including the National Single Project Pipeline, and ensure that the projects entering the 
Medium-Term Budget Programme are mature and of good quality, in order to avoid the 
under-execution of public investments. 

The capacity to cope with competitive pressure and market forces within the EU 

8 

 
 
Albania has some level of preparation to cope with competitive pressure and market forces 
within  the  EU  and  made  limited  progress  in  this  area.  The  education  system  still  faces 
numerous  challenges,  skills  gaps  persist,  and  the  youth  not  in  education,  employment  or 
training  (NEET)  rate  remains  a  concern.  Transport  and  digital  infrastructure  improved,  but 
infrastructure gaps remain. Albania remains competitive as a tourism destination, offering an 
expanding  scope  of  services,  but  industry  and  agriculture  remain  low-productivity  sectors 
that have been contracting. Manufacturing exports fell due to weak demand, exchange rate 
appreciation, and businesses’ low pricing power. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  continue  to  improve  and  better  promote  the  vocational  education  and  training  (VET) 
system in order to increase the number of graduates from VET schools and ensure that 
labour skills align with job market demands; 

→  improve  the  quality  and  inclusiveness  of  the  education  system  and  advance  its  digital 

transformation; 

→  strengthen infrastructure, including building cyber-resilience. 

Chapter 5: Public procurement 

Albania is moderately prepared in public procurement. Limited progress was made in the 
alignment of the legal framework for public procurement. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should, in particular: 

→  continue efforts to improve competitive procurement procedures; 

→  further align the legislative framework with the EU acquis in the area of concessions and 
public-private partnerships, and start work on further alignment with the EU acquis in the 
field of defence and security procurement; 

→  ensure compliance with the EU acquis and the Stabilisation and Association Agreement 
(SAA)  on  intergovernmental  agreements  concluded  with  third  countries  in  the  area  of 
public procurement. 

Chapter 18: Statistics 

Albania  is  moderately  prepared  in  the  area  of  statistics.  Some  progress  was  made  in 
improving the  compilation of  macroeconomic  statistics  in  line  with the  European System  of 
National and Regional Accounts (ESA 2010), the publication of the detailed data of the 2023 
population and housing census, and by continuing to improve data transmission to Eurostat. 

The Commission’s recommendations from last year were partially implemented and remain 
largely valid. In the coming year, Albania should in particular: 

→  continue increasing the production and dissemination of timely and high-quality data and 

make government finance statistics (GFS) data publicly available; 

→  prepare the 2026 agricultural census in line with the relevant EU acquis; 

→  ensure adequate staffing at the Institute for Statistics (INSTAT). 

Chapter 32: Financial control 

Albania is moderately prepared in the area of financial control and partially aligned with the 
EU  acquis.  Despite the  adoption  of  the  anti-fraud  strategy,  limited  progress  was  made  in 
this chapter during the reporting period. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

9 

 
 
→  focus  on  delegating  more  financial  and  management  responsibilities  to  improve 

managerial accountability; 

→  build  on  the  initial  work  of  the  parliamentary  subcommittee  on  audit,  with  a  particular 
focus on ensuring oversight of the executive’s implementation of audit recommendations; 

→  strengthen  controls  and  consolidate  capacities  to  protect  EU  financial  interests,  ensure 

appropriate reporting of irregularities, and implement the anti-fraud strategy. 

CLUSTER 2: INTERNAL MARKET 

Chapter 1: Free movement of goods 

Albania is between having some and a moderate level of preparation in the area of free 
movement  of  goods.  No  progress  on  alignment  with  the  EU  acquis  was  achieved  in  the 
reporting period. 

The Commission’s recommendations from last year were not implemented and remain valid. 
In the coming year, Albania should in particular: 

→  complete  the  alignment  of  its  legislation  with  the  relevant  EU  acquis  on  quality 
infrastructure, i.e. on accreditation, conformity assessment and market surveillance; 

→  significantly strengthen the enforcement capacity of the market surveillance inspectorate; 

→  finalise  and  adopt  an  action  plan  to  comply  with  Articles  34-36  of  the  Treaty  on  the 
Functioning of the European Union (TFEU), fully covering the non-harmonised area, with 
a  timeframe  for  screening  all  legislation  and  practices,  and  introducing  mutual 
recognition clauses or repealing and/or amending legislation and practices as necessary. 

Chapter 2: Freedom of movement for workers 

Albania is between having some and a moderate level of preparation in the freedom of 
movement for workers. Some progress was achieved by concluding bilateral social security 
agreements  with  EU  Member  States  and  further  advancing  the  preparations  to  connect 
Albania’s  employment  services  system  to  the  European  network  of  employment  services 
(EURES). 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  continue  developing  the  employment  services  IT  system  to  enable  its  connection  to 

EURES upon accession; 

→  strengthen  the  enforcement  of  the  Law  on  foreigners  as  per  the  National  Migration 

Strategy 2024-2026; 

→  continue  negotiating  and  concluding  new  bilateral  agreements  on  social  security, 
notably  with  EU  Member  States,  and  develop  IT  infrastructure  for  European  Health 
Insurance Card (EHIC) and Electronic Exchange of Social Security Information (EESSI) 
purposes, as well as administrative capacities for joining the EESSI network.  

Chapter 3: Right of establishment and freedom to provide services 

Albania  is  moderately  prepared  in  the  right  of  establishment  and  freedom  to  provide 
services. No progress was achieved in the reporting period. 

The Commission’s recommendations from last year were not implemented and remain valid. 
In the coming year, Albania should in particular: 

→  start amending the legislation to address the barriers to the freedom of establishment and 

free movement of services identified in the 2023 self-screening exercise; 

10 

 
 
 
→  continue  efforts  to  align  its  legislation  with  the  EU  acquis  and  ensure  appropriate 

institutional capacity in the area of mutual recognition of professional qualifications. 

Chapter 4: Free movement of capital 

Albania  is  between  a  moderate  and  good  level  of  preparation  in  the  area  of  free 
movement  of  capital.  Some  progress  was  made  towards  closer  alignment  with  the  EU 
acquis  on  payments,  which  enabled  Albania  to  join  the  geographical  scope  of  the  Single 
Euro  Payments  Area  (SEPA)  schemes  in  November  2024,  which  became  effective  in 
October 2025. Albania has continued its action against money laundering, in particular with 
the adoption of the National Strategy on the Fight Against Money Laundering and Terrorist 
Financing 2024-2030. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  ensure equal treatment of EU citizens and Albanian citizens on the acquisition of land, in 

line with Albania’s obligation under the SAA; 

→  take action to ensure that the provisions of the EU acquis on the cross-border regulation, 
the  SEPA  regulation,  the  Instant  Payment  Regulation  and  interchange  fees  are 
implemented; 

→  continue  to  implement  the  2024-2030  Anti-Money  Laundering  and  Terrorism  Financing 

Strategy and National Risk Assessment Action Plan 2024-2027. 

Chapter 6: Company law 

Albania is moderately prepared in the field of company law. Limited progress was made 
in the reporting period through the adoption of the Law on auditing and accounting, aimed to 
further align with the EU acquis. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  make progress in aligning with the EU acquis, including by introducing amendments on 
the  use  of  digital  tools,  cross-border  conversions,  mergers  and  divisions,  and  on 
encouraging long-term shareholder engagement; 

→  continue to implement the amended Law on auditing and continue efforts to further align 
the legal framework for accounting and audit with the latest EU acquis in these areas. 

Chapter 7: Intellectual property law 

Albania  is  moderately  prepared  in  the  area  of  intellectual  property  rights  (IPR).  Some 
progress was made with the adoption of the new laws on trademarks and patents. The new 
draft law on copyright was prepared and submitted for consultation and approval. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  ensure  alignment  with  the  relevant  EU  acquis  on  IPR,  and  start  to  implement  the  new 

laws on copyright, trademarks and patents; 

→  continue  to  improve  the  functioning  of  CMOs,  especially  in  terms  of  enforcement  and 

collection of royalties and payments to rights holders; 

→  strengthen  the  enforcement  of  all  aspects  of  the  IPR  system  through  monitoring, 

budgeting, increased awareness, strengthened institutional capacity and training. 

Chapter 8: Competition policy 

Albania  is  between  having  some  and  a  moderate  level  of  preparation  in  competition 
policy.  There  was  limited  progress  during  the  reporting  period,  including  on  legislative 

11 

 
 
alignment with the EU acquis in the area of case referrals in relation to concentrations. 

The  Commission’s  recommendations  from  last  year  were  implemented  only  to  a  limited 
extent and remain valid. In the coming year, Albania should in particular: 

→  ensure  the  operational  independence  of  the  State  Appeal  Commission  (SAC)  and 

significantly increase the administrative capacity of the SAC’s secretariat; 

→  further align the legislative framework in the area of State aid with the EU acquis; 

→  step up efforts to raise awareness  among the judiciary, line ministries and regional and 
local authorities of competition law and State aid rules, to ensure that the SAC is notified 
in advance of aid measures and to strengthen the enforcement of competition rules and 
State aid rules. 

Chapter 9: Financial services 

Albania  is  between  a  moderate  and  a  good  level  of  preparation  in  the  area  of  financial 
services. Some progress was made in further aligning the country’s legislation with the EU 
acquis on private pension funds. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  continue  working  towards  fully  aligning  Albania’s  banking  regulation  with  the  amended 
versions  of  the  Capital  Requirements  Directive  (CRD)/Regulation  (CRR),  the  Bank 
Recovery  and  Resolution  Directive  (BRRD),  and  the  Deposit  Guarantee  Schemes 
Directive  (DGS)  and  the  EU  acquis  on  capital  markets,  including  securities  markets, 
investment funds and financial market infrastructures; 

→  complete alignment with the EU acquis on insurance, including the Solvency II Directive; 

→  ensure that the  Albanian  National  Development Bank  is  well  regulated  and  supervised, 

including its deposit-taking activities. 

Chapter 28: Consumer and health protection 

Preparations are at an early stage in the area of consumer and health protection. There was 
no progress on alignment with the EU acquis in this area. 

The Commission’s recommendations from last year were not implemented and remain valid. 
In the coming year, Albania should in particular: 

→  make  progress  on  aligning  consumer  law  with  the  latest  EU  acquis  to  address 

developments in this area; 

→  complete alignment with the EU acquis on medicinal products for human and veterinary 

use, medical devices and on tobacco control; 

→  increase the  financial  and  human  resources  in the  health  sector,  specifically  in  primary 
healthcare and all-hazard health emergency preparedness, and guarantee equal access 
to  quality  health  services  for  vulnerable  populations,  in  particular  women  and  girls  who 
belong to these groups. 

CLUSTER 3: COMPETITIVENESS AND INCLUSIVE GROWTH 

Chapter 10: Digital transformation and media 

Albania  is  between  a  moderate  and  a  good  level  of  preparation  in  the  field  of  digital 
transformation  and  media  and  made  limited  progress  during  the  reporting  period.  The 
current Law on cybersecurity enabled further alignment with the EU Directive on measures 
for a high common level of cybersecurity across the Union (NIS 2 Directive).  In June 2025, 

12 

 
 
 
Albania  adopted  an  updated  list  of  Critical  and  Important  Information  Infrastructure 
Operators.  The  new  Cybersecurity  Strategy  2025-2030  and  its  Action  Plan  for  2025-2027 
have been adopted. 

The Commission’s recommendations from last year were partially implemented and remain 
largely valid. In the coming year, Albania should in particular 

→  adopt  the  decision  to  extend  the  roll-out  of  the  112  emergency  number  to  the  whole 

country; 

→  finalise the implementing legislation for the Law on electronic communications and the Law 

on cybersecurity; 

→  improve access to the use of e-services, build this capacity and step up the collection of 
statistical  data  on  digital  performance  and  digital  competitiveness  as  per  the  Digital 
Economy and Society Index. 

Chapter 16: Taxation 

Albania is moderately prepared in the area of taxation. Some progress was made in the 
reporting  period,  mainly  through  the  adoption  of  the  Medium-Term  Revenue  Strategy  and 
the report on evaluation of tax exemptions, paving the way for improved tax policy measures 
and reform in the next years. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  reduce  the  number  of  tax  exemptions  in  line  with  the  adopted  Medium-Term  Revenue 
Strategy, and pursue the gradual alignment of VAT and excise duties legislation with the 
EU acquis; 

→  simplify the taxation system to further encourage tax compliance, and further improve the 

use of third-party data in the fight against tax fraud and evasion; 

→  continue  preparations  towards  achieving  interconnection  and  interoperability  with  the 

common EU taxation IT systems. 

Chapter 17: Economic and monetary policy 

Albania is between a moderate and a good level of preparation in the area of economic 
and  monetary  policy  and  made  some  progress  as  the  Bank  of  Albania  maintained  price 
stability. Albania continued its fiscal consolidation and complied with the fiscal rule. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should, in particular: 

→  fully align the Law on the Bank of Albania with the EU acquis; 

→  adopt the law to establish an independent fiscal institution;  

→  align Albania’s budget legislation and practices with the requirements of the EU acquis. 

Chapter 19: Social policy and employment 

Albania  is  moderately  prepared  in  the  area  of  social  policy  and  employment  and  made 
limited  progress  during  the  reporting  period.  No  measures  are  in  place  to  set  up  and 
implement an indexation mechanism for the benefits of economic aid. More work is needed 
on  advancing  legislative  alignment  with  the  EU  Labour  Law  and  occupational  health  and 
safety  acquis,  and  with  EU  acquis  in the  area  of  non-discrimination  and  equality,  including 
gender equality.  

The Commission’s recommendations from last year were partially  implemented and remain 
mostly valid. In the coming year, Albania should: 

13 

 
 
→  set up the Interministerial Council of Occupational Health and Safety and its secretariat, 
including drafting the respective sets of rules/procedures and building the capacity of its 
members,  increase  and  strengthen  cross-sectoral  coordination,  and  boost  municipal 
capacity and staffing; 

→  roll  out  the  Youth  Guarantee  and  its  Implementation  Plan  to  more  regions,  taking  the 

lessons learned from its pilot phase into account; 

→  further increase budget allocation, social services provision and monitoring of the Social 
Fund,  strengthen  the  capacity  of  local  governments  to  secure  sufficient  funding,  and 
develop  a  coordinated  social  service  referral  system,  consistently  implemented  at  local 
level.  

Chapter 20: Enterprise and industrial policy 

Albania is between a moderate and a good level of preparation in the area of enterprise 
and industrial policy and made some progress, in particular through revising the Business 
and Investment Development Strategy (BIDS). 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should, in particular: 

→  accelerate addressing the main challenges to the business environment while improving 
the  predictability  of  regulatory  measures  and  improve  the  implementation  of  the  BIDS, 
notably by ascertaining the needed funding of foreseen actions;   

→  speed up the full alignment with the EU acquis on late payments Directive; 

→  draft and adopt a unified investment law that would address current challenges faced by 

investors, and secure legally sound property titles. 

Chapter 25: Science and research 

Albania  is  between  having  some  and  a  moderate  level  of  preparation  in  the  area  of 
science  and  research.  Some  progress  was  made  with  the  approval  of  the  Smart 
Specialisation  Strategy  and  the  adoption  of  the  Law  on  science  and  scientific  research, 
which is aligned with the relevant EU acquis, as well as the first successful call managed by 
the  Albanian  Start-Up  Agency.  Albania  still  needs  to  adopt  the  required  implementing 
legislation  to  ensure  effective  implementation  of  the  2023-2030  National  Strategy  on 
Scientific Research, Technology and Innovation. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  increase investment in research, in line with its own commitments and the new European 

Research Area priorities, with a view to reaching 1% of GDP by 2030; 

→  implement the Smart Specialisation Strategy and Action Plan; 

→  produce reliable statistics and data on innovation, science and technology with a view to 

improving Albania’s classification in the European innovation scoreboard. 

Chapter 26: Education and culture 

Albania is between a moderate and good level of preparation in the field of education and 
culture.  Some  progress  was  made  with  the  implementation  of  the  National  Strategy  for 
Education 2021-2026 and the adoption of legislative acts to reform higher education. Albania 
still  needs  to  strengthen  the  quality  and  inclusiveness  of  education.  The  implementing 
legislation of the Law on cultural heritage and museums has yet to be finalised. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

14 

 
 
→  further optimise the VET system in line with labour market needs; 

→  further improve the professional development and training of teachers and trainers, with 
a focus on (i) pedagogical skills to implement the competence-based inclusive approach 
and (ii) digitalisation from pre-primary to university levels, including VET education; 

→  adopt the implementing legislation for the Law on cultural heritage and museums. 

Chapter 29: Customs union 

Albania  is  between  a  moderate  and  a  good  level  of  preparation  in  the  area  of  the 
Customs Union. Some progress was made with the amendments to the legal provisions for 
the  customs  code,  the  development  of  the  new  computerised  transit  system  (NCTS)  and 
digitalisation of more customs services. 

The Commission’s recommendations from last year were partially implemented and remain 
valid. In the coming year, Albania should in particular: 

→  adopt  and  implement  the  legal  provisions  on  the  common  transit  procedure  at  national 
level  and  finalise  the  development  of  the  national  component  of  the  NCTS,  as  well  as 
continue preparations for achieving the interconnection and interoperability of its national 
customs IT systems with the EU electronic customs environment; 

→  continue  the  fight  against  the  smuggling  of  illicit  goods,  including  tobacco  products, 
corruption and imports of counterfeit products, including by strengthening administrative 
capacity and improving cooperation between the authorities involved, as well as with the 
European Anti-Fraud Office (OLAF); 

→  complete  the  legal  adjustments  necessary  to  keep  up  with  developments  of  the  EU 
customs acquis, in particular the acts implementing the Union Customs Code as well as 
other EU legislation enforced by customs 

L 

CLUSTER 4: THE GREEN AGENDA AND SUSTAINABLE CONNECTIVITY 

Chapter 14: Transport policy 

Albania  has  some  level  of  preparation  in  the  area  of  transport  policy,  with  limited 
progress achieved in the reporting period. Albania adopted legislation to separate its railway 
company  into  distinct  entities  and  set  up  a  road  traffic  monitoring  centre  with  intelligent 
transport systems (ITS). 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  adopt the  new  National Transport  Strategy,  and its  accompanying  Action  Plan,  and the 
new Road Safety Strategy in line with the EU acquis and the Transport Community Road 
Safety Action Plan; 

→  finalise  the  reform  of  the  Albanian  Road  Authority  to  enable  the  smooth  progression  of 

Service Level Agreement; 

→  implement legislation on the railway sector reform, in line with the Transport Community 

Rail Action Plan. 

Chapter 15: Energy 

Albania has a good level of preparation in the area of energy. It made good progress, in 
particular on the internal electricity energy market. 

The Commission’s recommendations from last year were partially implemented and remain 
largely valid. In the coming year, Albania should in particular: 

15 

 
 
→  accelerate  the  adoption  of  the  updated  2021-2030  National  Energy  and  Climate  Plan 

(NECP) in line with the 2030 Energy Community targets and recommendations; 

→  strengthen the capacity of the Energy Efficiency Agency, continue drafting and adopting 
implementing legislation (including setting up the energy efficiency obligation scheme), in 
line  with 
its  obligations  under  the  Energy  Efficiency  Directive,  and  adopt  the 
implementing regulations on labelling; 

→  continue implementing the Electricity Integration Package and, in particular, join the EU 

Day-ahead market coupling by June 2026. 

Chapter 21: Trans-European networks 

Albania has some level of preparation in trans-European networks. Some progress was 
made  in  developing  transport  and  energy  networks,  and  work  to  prepare  projects  is  still 
ongoing. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  speed up the implementation of the TEN-T (trans-European transport networks) five-year 
rolling  workplan  of  the  Transport  Community  Treaty  and  continue  developing  the  core 
energy  networks  in  line  with  the  national  strategies  and  infrastructure  investment 
prioritisation, under the single project pipeline; 

→  continue  to  align  its  legal  framework  with  the  EU  acquis  and the  regulations  on  TEN-T 
and TEN-E (trans-European energy networks), including fully aligning with guidelines on 
trans-European energy infrastructure, and strengthen administrative capacity; 

→  accelerate the preparatory work and initiate investments to complete the projects on the 

Western Balkans – Eastern Mediterranean European Transport Corridor. 

Chapter 27: Environment and climate change 

Albania  has  some  level  of  preparation  in  this  area,  and  it  made  noprogress  over  the 
reporting period. The country needs to adopt its draft laws on integrated waste management 
and  on  extended  producer  responsibility.  In  March  2025,  the  new  ‘mountain  package’  law 
was  adopted,  with  the  stated  intention  of  promoting  investment  projects  in  forests  and 
pastures through fiscal incentives and land acquisition facilities for investors. This could have 
significant  implications  for  local  land  use  and  environmental  management.  No  major 
developments were reported on water quality, where the relevant implementing legislation is 
still  under  preparation,  nor  on  air  quality  or  civil  protection.  No  particular  development  was 
reported on addressing climate change. Albania should adopt the updated National Energy 
and  Climate  Plan  (NECP)  2021-2030,  since  the  consultation  phase  has  been  completed. 
Further efforts are still needed on implementation and enforcement of the environment  and 
climate  acquis.  The  Law  on  water  resources  and  the  Law  on  the  marine  environment 
protection strategy entered into force in October 2024. The creation of a portfolio of minister 
for the environment in the new government is a welcome development. 

The Commission’s recommendations from last year were therefore implemented to a limited 
extent and remain valid. In the coming year, Albania should, in particular: 

→  achieve 

full  alignment, 

implementation  and  enforcement  of 

the  Directives  on 
Environmental  Impact  Assessment  (EIA)  and  Strategic  Environmental  Assessment 
(SEA)  and  ensure  that  all  infrastructure  investments  comply  with  the  EU  environment 
and  climate  acquis  and  national  and  international  nature  and  water  obligations,  and 
ensure public participation; 

→  take  immediate  measures  to  fight  environmental  crime  and  achieve  full  alignment  with 
the  Environmental  Crime  Directive  and  the  Environmental  Liability  Directive,  and 
strengthen  policy  implementation  and  law  enforcement  for  nature  and  biodiversity 

16 

 
 
protection, especially in protected areas; 

→  update  and  implement  the  National  Adaptation  Plan,  accelerate  the  adoption  of  the 
updated  2021-2030  NECP,  align  with  the  Monitoring,  Reporting,  Verification  and 
Accreditation (MRVA)  acquis  for  the  purpose  of  introducing  carbon pricing  and  aligning 
with the EU Emission Trading System (ETS). 

CLUSTER 5: RESOURCES, AGRICULTURE AND COHESION 

Chapter 11: Agriculture and rural development 

Albania  has  some  level  of  preparation  in  agriculture  and  rural  development.  There  was 
limited progress in building administrative capacity and on legislative alignment. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  ensure that the preconditions for the entrustment of budget implementation tasks under 
III 

the 
programme are met in line with the principles of sound financial management; 

for  rural  development  (IPARD) 

for  pre-accession  assistance 

Instrument 

→  ensure that there  is the administrative capacity  and  technical  support  needed  to  set  up 

the farm sustainability data network (FSDN); 

→  complete legislative alignment with the EU acquis, in particular on quality policy. 

Chapter 12: Food safety, veterinary and phytosanitary policy 

Albania  has  some  level  of  preparation  in  the  area  of  food  safety,  veterinary  and 
phytosanitary  policy.  Limited  progress  was  made  over  the  reporting  period.  The  Animal 
Health and Plant Health laws were adopted. However, further efforts are still needed to align 
the  legislation  under  this  chapter  with  the  EU  acquis  and  enforce  it.  Albania  should 
implement the adopted national food safety sectoral policy. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  work  on  alignment  of  national  legislation  with  the  EU  food  acquis  in  general  and, 
specifically, on adopting the laws on official controls and animal welfare and the General 
Food  Law  Regulation,  and  prepare  a  national  plan  for  the  upgrade  of  establishments 
producing food, feed and animal byproducts to meet EU structural standards; 

→  ensure  that  Albania’s  competent  authorities  have  the  appropriate  resources  needed  to 
properly  implement  and  enforce  the  laws,  including  resources  for  official  controls,  and 
ensure  sufficient  laboratory  capacities  as  well  as  a  clear  separation  between  risk 
management and risk assessment within the National Food Authority; 

→  strengthen  its  capacity  to  design  and  implement  effective  surveillance,  monitoring  and 

vaccination programmes for the main infectious animal diseases, including rabies. 

Chapter 13: Fisheries and aquaculture 

Albania  is  moderately  prepared  in  fisheries  and  aquaculture.  It  made  some  progress  in 
particular  by  continuing  to  operate  the  vessel  monitoring  system  (VMS)  effectively.  As  a 
contracting  party  of  the  General  Fisheries  Commission  for  the  Mediterranean  (GFCM), 
Albania  continues  to  actively  implement  the  recommendations  for  monitoring  its  fishing 
activities. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  strengthen the administrative capacity needed for inspection and control capacities, and 
for data collection and scientific advice, in line with the EU’s common fisheries policy and 

17 

 
 
 
the GFCM and other international agreements; 

→  implement the regional action plan for small-scale fisheries; 

→  adopt measures to support the fishery sector under State aid. 

Chapter 22: Regional policy and coordination of structural instruments 

Albania is moderately prepared in the area of regional policy and coordination of structural 
instruments.  Some  progress  was  made  during  the  reporting  period,  notably  by  moving 
towards  fulfilment  of  enabling  conditions,  introducing  legislative  changes  and  building 
administrative capacity. 

The  Commission’s  recommendations  from  last  year  were  partially  implemented  and 
therefore remain mostly valid. In the coming year, Albania should in particular: 

→  prepare  for  the  effective  implementation  of  the  EU  acquis  under  Chapter  22  and 
strengthen  preparations  and  capacities  for  the  future  cohesion  policy  in  terms  of 
programming, 
financial 
management,  control  and  audit,  enabling  conditions  and  the  partnership  principle;  as 
well  as  guarantee  mechanisms  to  ensure  co-financing  of  multi-annual  programmes  in 
view  of  the  preparation  and  execution  of  project  pipelines  for  future  cohesion  policy, 
including those related to sustainable urban development;  

implementation,  monitoring,  evaluation,  communication, 

→  strengthen  administrative  capacity  for  programmes  under  indirect  management  by 
beneficiary  country  and  territorial  cooperation  programmes  with  Member  States  and 
neighbouring  non-Member  States,  prepare  the  roadmap  for  administrative  capacity 
building at central, regional and local level in the cohesion policy ecosystem, and adopt 
a comprehensive retention policy and ensure stability and continuity of the structures, in 
particular senior management, in preparation for the future cohesion policy; 

→  ensure  coordination  between  competent  authorities  to  strengthen  the  protection  of  the 
EU’s  financial  interests  through  coordinated  implementation  of  national  legislation, 
policies and action  plans to  manage  irregularities,  including  the fight  against  corruption 
and  fraud,  preventing  and  managing  conflicts  of  interest,  and  protecting  persons  who 
report breaches of EU law. 

Chapter 33: Financial and budgetary provisions 

Albania  has  some  level  of  preparation  in  the  area  of  financial  and  budgetary  provisions. 
Limited progress was made on alignment with the EU acquis in the underlying policy fields 
that  affect  the  functioning  of  the  EU  funding  system.  Methodological  improvements 
continued  on  alignment  with  European  system  of  accounts  (ESA)  2010  standards.  There 
were some limited improvements to the data transmission of the excessive deficit procedure 
(EDP)  and  government  finance  statistics  (GFS)  tables.  However,  data  remains  marked  as 
non-publishable. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  continue  aligning  data  on  national  accounts 

the 
comprehensiveness  of  data  transmission  to  Eurostat,  including  on  the  EDP  and 
government  finance  statistics,  as  well  as  transparency  by  removing  the  flag  non-
publishable; 

to  ESA  2010  and 

improve 

→  align  its  legislation  with EU  rules  on  VAT and customs  duties  and  strengthen  efforts  to 

tackle tax evasion and informality; 

→  improve administrative capacity and coordination mechanisms among key stakeholders 

in the own-resources system. 

18 

 
 
CLUSTER 6: EXTERNAL RELATIONS 

Chapter 30: External relations 

Albania has a good level of preparation in external relations. Some progress was made 
during the reporting period, in particular by adopting and implementing the Central European 
Free Trade  Agreement (CEFTA)  protocols  and  through  efforts  to  develop its  export  control 
system. 

The Commission’s recommendations from last year were partially implemented and remain 
mostly valid. In the coming year, Albania should in particular: 

→  continue  to  implement  CEFTA  Additional  Protocol  5  on  Trade  Facilitation,  Additional 
Protocol  6  on  Trade  in Services,  and  Additional  Protocol  7  on  Dispute Settlement,  and 
implement actions under the new Common Regional Market action plan for 2025-2028; 

→  align  the  national  legislation  on  the  screening  of  foreign  investments  with  the  EU  FDI 
Screening  Regulation  and  ensure  full  alignment  of  domestic  legislation  with  the  EU 
Regulation on dual-use goods; 

→  set  up  the  legal  framework  covering  international  cooperation  and  development  policy 

and humanitarian aid, in line with EU policies and principles. 

Chapter 31: Foreign, security and defence policy 

Albania has a good level of preparation in the field of foreign, security and defence policy. 
The country continued to make good progress, maintaining its full alignment with  relevant 
High  Representative  statements  on  behalf  of  the  EU  and  relevant  Council  decisions, 
including EU restrictive measures. In December 2024, the EU-Albania Security and Defence 
Partnership was signed. Albania also stepped up its participation in EU crisis management 
missions and operations under the common security and defence policy (CSDP). 

The Commission’s recommendations from last year were implemented. In the coming year, 
Albania should in particular: 

→  maintain full alignment with the EU’s common foreign and security policy and strengthen 

its capacity to enforce restrictive measures; 

→  consider  further  increasing  its  participation  in  EU  crisis  management  missions  and 

operations; 

→  adopt  a  new  national  small  arms  and  light  weapons  (SALW)  strategy  aligned  with  the 

revised Roadmap for the control of SALW in the Western Balkans (2025-2030). 

1.3. STATE OF PLAY OF THE ACCESSION NEGOTIATIONS 

Following  the  second  intergovernmental  conference  of  15 October  2024  that  opened 
accession  negotiations  on  cluster  1  –  fundamentals,  four  intergovernmental  conferences 
were convened leading to the opening of negotiations on four clusters. 

Clusters 

Chapters/areas 

Date 
opened/chapter closed  

cluster 

19 

 
 
 
 
1. Fundamentals 

All chapters open 

2. Internal Market 

All chapters open 

3. Competitiveness 
and inclusive growth 

All chapters open 

4. Green Agenda and 
sustainable 
connectivity  

All chapters open 

5.Resources, 
agriculture and 
cohesion 

6. External relations  

All chapters open 

Cluster  opened  on  15 October 
2024  

23-Judiciary and fundamental rights 
24-Justice, freedom, security 
5-Public procurement 
18-Statistics 
32-Financial control 
…Economic criteria 
…Functioning of democratic institutions 
…Public administration reform (PAR) 

Cluster opened on 14 April 2025 

Cluster opened on 22 May 2025 

Cluster  opened  on  16  September 
2025 

Draft  EU  common  position 
Council  

in 

Cluster  opened  on  17 December 
2024 

for 

of  movement 

1-Free movement of goods 
2-Freedom 
workers  
3-Right  of  establishment  and 
freedom to establish services 
4-Free movement of capital 
6-Company law 
7-Intellectual property rights 
8-Competition 
9-Financial services 
28-Consumer and health protection 
10-Digital transformation and media  
16-Taxation 
17-Economic and monetary policy  
19-Social policy and employment  
20-Enterprise and industrial policy  
25-Science and research  
26-Education and culture 
29-Customs union 

14-Transport policy 
15-Energy 
21-Trans-European networks 
27-Environment 
change 

and 

climate 

11-Agriculture and rural 
development 
12-Food safety, veterinary and 
phytosanitary policy 
13-Fisheries and aquaculture 
22-Regional policy and coordination 
of structural instruments 
33-Financial and budgetary 
provisions 
30-External relations 
31-Foreign,  security  and  defence 
policy 

   

20 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
2. CLUSTER 1: THE FUNDAMENTALS OF THE ACCESSION PROCESS 

2.1. FUNCTIONING OF DEMOCRATIC INSTITUTIONS AND PUBLIC ADMINISTRATION REFORM  

2.1.1 Democracy  

The  functioning  of  democratic  institutions  in  Albania  is  partially  challenged,  due  to,  among 
other  factors,  a  deeply  polarised  political  situation,  the  need  for  further  electoral  reform, 
failure  by  Parliament  to  implement  certain  Constitutional  Court  rulings,  limited  effective 
parliamentary oversight over the executive, the lack of meaningful public consultations. 

Elections 

The  Electoral  Code  was  amended  in July  2024 and  February  2025,  partially  responding  to 
Constitutional  Court  rulings,  and  reflected  in  the  May  2025  parliamentary  election:  the 
amendments  enabled  out-of-country  voting,  changed  the  preferential  voting  system, 
increased campaign spending limits, modified electoral deadlines and addressed airtime for 
candidates. However, further amendments to the electoral framework are needed to address 
outstanding OSCE/ODIHR recommendations and further align with democratic standards. 

The  parliamentary  elections  held  on  11 May 2025 saw  the  Socialist  Party  secure  53.2%  of 
the  vote,  translating  to  83  seats  in  Parliament,  up  from  74  in  the  previous  term.  The 
Democratic  Party  led  coalition  obtained  only  32.9%  of  the  vote,  falling  to  50  seats,  down 
from  63  in  the  previous  term.  Among  the  smaller  parties,  Albania  Becomes  secured  one 
seat,  the  Opportunity  Party  two seats, the  Social  Democratic Party  (SDP)  three seats,  and 
the Together Movement one seat.  

The OSCE/ODIHR election observation mission’s preliminary conclusions indicated that the 
elections were competitive and professionally conducted but took place in a highly polarised 
environment  and  contestants  did  not  enjoy  a  level  playing  field.  Still,  candidates  were 
generally  able  to  conduct  their  campaigns  freely.  The  introduction  of  out-of-country  voting 
was  well  managed  and  widely  regarded  as  a  landmark  electoral  development.  The 
Specialised  Structure  Against  Organised  Crime  and  Corruption  (SPAK)  adopted  a  strategy 
to  investigate  electoral  corruption.  The  new  coordination  mechanism  between  SPAK,  the 
Central  Election  Commission  (CEC)  and  the  General  Prosecutor’s  Office  led  to  better 
information sharing on electoral crimes and was seen as having a possible deterrent effect. 
Only  limited  changes  to  campaign  financing  have  been  enacted  since  2020,  with  key 
OSCE/ODIHR and Venice Commission recommendations remaining unaddressed. Although 
most  political  parties  signed  a  voluntary  code  of  conduct  on  digital  campaigns  prior  to  the 
campaign,  several  contestants  shared  divisive,  discriminatory  and  manipulative  content. 
Monitoring efforts remained limited in scope and effectiveness. 

Worrying developments were also observed, notably the fact that the ruling party  benefited 
from  the  widespread  use  of  administrative  resources  and  institutional  leverage,  as  well  as 
concerns about the influence of patronage networks.  

During  the  parliamentary  election,  787  female  candidates  ran  for  a  seat  in  Parliament 
(38.47% of all candidates). While this is a positive development, the OSCE/ODIHR election 
observation  mission  highlighted  persistent  gender  stereotyping  and  discriminatory  rhetoric 
against politically active women as significant barriers to participation.  

Parliament 

language 

Parliament  sessions  continued 
tensions, 
to  be  marked  by 
and 
offensive 
occasional 
In 
following  a 
October  2024, 
request 
the  majority, 
Parliament’s  Ethics  Secretariat 

incidents. 

by 

21 

 
 
temporarily  suspended  23  members  of  the  opposition  for  alleged  violent  acts  in  plenary 
session.  This  led  to further  disruptions,  including  frictions  between opposition  MPs  and the 
Republican Guard.  

Parliament  failed  to  implement  certain  Constitutional  Court  rulings  within  the  applicable 
deadline. In an opinion on the matter, the Venice Commission confirmed that the decisions 
of  the  Constitutional  Court  were  compulsory  for  all  state  bodies,  including  Parliament.  
Parliament has not yet followed up on this Venice Commission opinion.  

Parliament’s  oversight  of  the  executive  remained  weak.  Most  legislative  initiatives  are 
tabled by the Council of Ministers. In January 2025, Parliament adopted amendments to its 
Rules of Procedure to introduce a corruption prevention reassessment procedure and post-
legislative  scrutiny  mechanisms.  In  September  2025,  Parliament  voted  to  change  the 
architecture of the parliamentary standing committees for the new legislature.  

During  the  reporting  period,  Parliament  made  a  number  of  appointments  to  independent 
institutions,  including  the  High  Judicial  Council  (HJC)  and  the  High  Prosecutorial  Council 
(HPC).  It  also  appointed  a  commissioner  for  the  right  to  information  and  protection  of 
personal  data,  and  a  public  broadcaster  steering  committee.  The  appointments  of  an 
ombudsperson and a commissioner for protection from discrimination are still pending.  

Parliament’s  implementation  of  the  legal  framework  for  public  consultation  processes 
does  not  consistently  lead  to  timely  and  transparent  follow-up.  In  April  2025,  Parliament 
introduced a new tool for public consultation.   

Following  the  elections,  women  remain  under-represented  in  Parliament,  holding  51  of  the 
140 seats. 

The current legal framework regarding political party financing lacks effectiveness due to the 
lack of a ceiling for candidate expenditure and the lack of clear regulation on advertising.  

Concerns  were  also  raised  regarding  the  ad  hoc  parliamentary  committee  on  deepening 
reforms  for  good  governance,  rule  of  law  and  anti-corruption.  The  risk  of  duplication  with 
other parliamentary bodies dealing with European integration was noted. It is important that 
the  work  of  the  parliament  in  this  area  is  inclusive,  transparent  and  consistent  with  the 
positive  results  of  the  2016  justice  reform,  guaranteeing  the  independence  of  justice 
institutions.  

Governance 

A new government took office following the 11 May 2025 parliamentary elections, composed 
of  nine  men  and  nine  women.  The  appointment  of  a  minister  for  the  environment  is  a 
welcome development. A virtual entity was given the portfolio of Minister of State for Artificial 
Intelligence and Public Procurement under the authority of the Prime Minister. 

During  the  reporting  period,  the  ruling  majority  and  the  main  opposition  party  employed 
rhetoric that was unfavourable towards the judiciary. This raises concerns about the need to 
maintain a clear separation between the executive branch and the judiciary. 

While continuing to put EU-related reform at the centre of its legislative and policy planning, 
the  government  needs  to  refrain  from  rhetorics  and  measures  that  are  not  in  line  with  EU 
standards. The transparency and openness of decision-making by the government needs to 
be  improved.  Coordination  between  ministries  and  executive  institutions  remains  an  issue 
and limits the delivery of quality public services. Further efforts are required to streamline the 
legal  framework  for  the  functions  of  local  government  units,  address  the  low  level  of 
digitalisation and develop inter-municipal cooperation.  

On local  self-government/decentralisation,  while  there  has  been  limited  progress  on  the 
implementation  of  the  Cross-cutting  Strategy  on  Decentralisation  and  Local  Governance 
2023-2030,  some  positive  developments  were  noted.  These  include  the  2024  municipal 
salary  reform  for  civil  servants  and  the  ongoing  impact  of  the  2015  territorial  reform  on 

22 

 
 
increasing the financial autonomy and discipline of local governments with ad-hoc measures 
for 2025, though long-term solutions are needed. There is still a pressing need to increase 
local governments own revenues. 

The  wave  of  resignations  and  in  some  cases  dismissals  across  local  administrations  that 
occurred  in  July  2025  following  the  central  government  public  demand  for  management 
changes in municipalities raises concerns, including in view of the European Charter of Local 
Self-Government.  

EU integration 

Albania’s  EU  integration  coordination  structures,  including  the  Minister  of  State  /  Chief 
Negotiator, the department in charge of EU integration in the Prime Minister’s Office, and the 
interinstitutional  working  groups,  intensified  their  work  during  the  reporting  period.  More 
financial and human resources are required to strengthen the European integration units in 
the line ministries and agencies. 

The  government  adopted  the  National  Plan  for  European  Integration  2025-2027.  Work 
continued  on  developing  the  National  Programme  for  Accession  to  the  European  Union, 
which  aims  to  align  the  domestic  regulatory  framework  with  the  EU  acquis  and  ensure  its 
effective implementation.  

Parliament’s  Standing  Parliamentary  Committee  on  European  Affairs  delivered  its  opinions 
on  draft  negotiation  positions  on  negotiating  clusters,  and  in  2024  reviewed  13  draft  laws 
aiming  to  approximate  the  EU  acquis.  This  Committee  has  been  merged  into  a  new 
Committee  on  European  and  Foreign  Affairs,  which is  no  longer  chaired by the opposition, 
despite the wide cross-party consensus on EU accession. The National Council of European 
Integration  has  continued  its  activities,  including  reviewing  key  documents,  such  as 
roadmaps  on  opening  accession  negotiations  on  the  fundamentals  cluster,  and  raising 
awareness about fulfilling EU accession obligations.  

Communication on European integration has focused on the opening of negotiation clusters 
and on the Growth Plan’s benefits. Further efforts need to be made to ensure transparency 
and public involvement in EU-related reform process.  

Civil society  

CSOs  operate  in  a  partly  enabling  environment,  but  have  faced  an  increase  in  negative 
narratives particularly during the reporting period, including smear campaigns targeting their 
impartiality  and  funding.  The  national  electronic  register  of  non-profit  organisations 
scheduled for the end of 2023 is not yet fully operational, tax incentives remain marginal and 
public funding is insufficient. The lack of specific measures to protect them from intimidation 
and legal threats (e.g. strategic lawsuits against public participation (SLAPP)) contributed to 
this situation. The role and protection of civil society should be further strengthened and the 
structures  to  meaningfully  engage  with  civil  society  need  to  be  reinforced  and  made  fully 
operational, especially in the context of EU accession negotiations. The first meeting in April 
2025  of  the  EU-Albania  Joint  Consultative  Committee,  which  provides  a  new  platform  to 
Albanian CSOs, is an encouraging sign.  

2.1.2. Public administration reform 

Strategic framework for public administration reform 

The strategic framework for public administration is in place. 

The  new  Intersectoral  Strategy  Against  Corruption  (ISAC)  2024–2030  was  adopted  in 
December  2024  (see  under  ‘anti-corruption’  in  Chapter  23).  The  Cross-Cutting  Strategy  on 
Public  Administration  Reform  2025–2030  was  adopted  in  July  2025.  Further  progress  was 
made on implementing the 2022-2026 Digital Agenda, but digital security and equal access 
for  vulnerable  groups  remain  an  issue.  Limited  progress  was  made  on  implementing  the 
2023-2030  Strategy  on  Decentralisation  and  Local  Governance.  Institutional  building,  data 

23 

 
 
collection, analysis, and aggregation capacities need to be further developed. 

The  revised  civil  service  legislation  for  improving  merit-based  and  senior-level  recruitment 
and  the  amending  legislation  to  regulate  subordinated  bodies  remains  to  be  adopted.  The 
structure of the Integrated Policy Management Group is still under review and is largely not 
functional.  The  financial  sustainability  of  reforms  continues  to  depend  heavily  on  external 
funding and needs to be improved. 

Policy development and coordination 

Policy development and coordination aspects still need to be developed. 

The  legal  basis  and  the  institutional  set-up  for  consistent  policymaking  are  in  place,  with 
room for improvement. More than one third of the approved draft laws in 2024 continued to 
originate  from  outside  the  Government  Analytical  Programme.  The  Strategic  Planning 
Committee  met  regularly  and  steered  the  policymaking  process.  The  Integrated  Planning 
System (IPS) currently in place remained unused, mainly due to supporting IT systems being 
non-operational  and  the  complexity  of  IPS  requirements.  Consistency  between  policy 
planning and budgeting remains to be improved. Further action is still needed to strengthen 
the  administrative  capacity  of  line  ministries  and  the  Prime  Minister’s  Office  and  make 
management more accountable. (See Chapter 32 – Financial control). 

The  administrative  capacity  for  evidence-based  policymaking  and  legislative  development 
requires further improvement. In 2024, the use of regulatory impact assessments (RIAs) was 
limited to half of the approved draft laws based on the Council of Ministers’ interpretation of 
the criteria set out in the Council of Ministers’ rules of procedures. The government reported 
53 RIAs in 2024 and 20 RIAs in the period from January to August 2025. The quality of the 
RIAs  requires  improvement.  The  percentage  of  legal  acts  undergoing  public  consultation 
needs to be further increased, based on a more comprehensive interpretation of the criteria 
set out in the Law on public consultation. In 2024, 78 acts were subject to consultation, out 
of  a  total  of  80  adopted  legal  acts.  Secondary  legislation  remains  exempt  from  the 
application of the existing rules on public consultations and RIAs. More action is needed to 
further  strengthen  the  quality  control  of  consultations  and  ensure  proper  follow-up.  The 
participation  of  stakeholders,  in  particular  civil  society,  in  public  consultations  needs  to  be 
further  encouraged.  Public  scrutiny  of  government  work  is  still  weak,  and  parliamentary 
scrutiny of the government’s decision-making remains limited. 

Public financial management 

Public financial management (PFM) structures are broadly in place but need to be improved. 
The  legal  basis  for  PFM  is  mostly  in  place,  with  a  comprehensive  organic  budget  law.  In 
December  2024,  the  government  adopted  a  Medium-Term  Revenue  Strategy  2024  -2027 
detailing tax policy, including the revision of tax exemptions, tax administration and customs 
reforms, with the objective of raising fiscal revenue/GDP by 2.5% by 2027. 

The provisions of the organic budget law are largely followed. However, budget revisions are 
still carried out exclusively through normative acts adopted by the executive. More decisive 
action  is  needed  to  return  to  regular  budget  revision  processes  through  Parliament.  Some 
budgetary  reforms  continued,  including  ongoing  efforts  to  better  integrate  medium-term 
budgets with the single project pipeline. The link between the strategic priorities and budget 
programmes  should  be  further  strengthened.  The  application  of  gender  responsive 
budgeting  continued  in  2024,  with  approximately  9.3%  of  the  budget  being  dedicated  to 
gender-based public policies. The traceability of the gender-based budget allocations needs 
to  be  strengthened.  The  level  of  arrears  has  fallen,  but  ongoing  efforts  to  strengthen 
commitment  compliance  should  continue.  The  debt  strategy  is  being  pursued  by  reducing 
public  debt/GDP,  lengthening  debt  maturities  and  lowering  exchange  risk  exposure.  Fiscal 
risk  monitoring  has  been  strengthened.  However,  fiscal  risk  reporting  and  risk  assessment 
on  fiscal  risk  related  to  state-owned  enterprises  and  public-private  partnerships  remains  to 
be further improved. An independent fiscal oversight institution (Fiscal Council) still needs to 

24 

 
 
be set up. 

Budget  transparency  is  mostly  satisfactory  with  all  key  budget  documents  regularly 
published. Yet, further improvements are needed on the production of consolidated financial 
statements, and on in-depth reporting on extra-budgetary entities. 

Public services and human resources management 

Public  services  and  human  resources  management  require  further  development.  Rules  on 
merit-based recruitment, promotion and dismissal are still applied inconsistently at all levels. 
The  measures  on  salary  increase  taken  at  central  level  have  been  expanded  to  local 
administrations (See Section 2.1.1 Democracy, local self-government/decentralisation). Most 
civil servants continue to be recruited through a group or pool recruitment process. In 2024, 
from  the  total  number  of  appointed  candidates,  61%  were  women  and  39%  men.  From 
January  to  August  2025,  out  of  248  appointments,  163  were  women  and  85  were  man. 
Overall,  the  gender  distribution  is  66%  female  and  34%  male.  Women  account  for  59%  of 
middle-level  managerial positions  and  44%  of  senior-level managerial  positions.  About  one 
third  of  senior  positions are  still  vacant  despite the  availability  of  a  pool of  candidates from 
the  top  management  corps  group.  Recruitment  for  managerial  positions  still  does  not 
properly  comply  with  the  legislation  in  place  in  terms  of  opening  vacancies  to  external 
candidates, which should remain only an exception. In 2024, there were 14 dismissals from 
the civil service, compared with 27 in 2023. The enforcement rate of final court decisions on 
dismissals  and reinstatements  increased to 86.6%  in 2024,  compared  with  84.2%  in  2023. 
However,  government  reactiveness  to  enforcing  such  decisions  in  a  timely  manner  still 
needs  further  improvement.  The  current  Human  Resources  Management  Information 
System  (HRMIS)  still  does  not  cover  the  entire  public  sector  and  cannot  be  used  as  an 
automated  payroll  system.  Efforts  to  redesign  the  HRMIS  accordingly  remain  needed.  All 
Albanian  ministries  have  an  integrity  plan.  At  local  level,  35  out  of  61  municipalities  have 
integrity plans. However, the quality and implementation of integrity plans is still weak. 

training 
The  Albanian  School  of  Public  Administration  continued 
programmes  for  professional  development.  A  new  Director  was  appointed,  and  temporary 
physical premises have been made available for the administration staff only. 

to  deliver  online 

Accountability of administration 

The  accountability  of  the  administration  remains  insufficient.  The  legal  framework  for  the 
organisation  of  the  central  administration  still  lacks  a  foundation  for  the  establishment  and 
accountability of subordinated institutions and autonomous agencies. The typology laid down 
in the  law  is still  applied  inconsistently.  The  organisational  set-up  of  the administration  has 
become  further  centralised,  with  25  authorities/agencies  subordinated  directly  to  the  Prime 
Minister’s  Office.  The  amendments  to  the  law  on  organisation  of  state  administration  were 
submitted  for  public  consultation  and  remain  to  be  adopted.  The  legal  framework  for 
ensuring  managerial  accountability  still  needs  to  be  improved.  More  action  is  needed  to 
further  strengthen  the  right  of  citizens  to  good  administration.  Less  than  half  of  the 
recommendations made by the People’s Advocate (PA) and other independent institutions to 
the  public  authorities  are  implemented.  This  implementation  rate  needs  to  be  improved. 
Cooperation between Parliament and the PA should be further strengthened and the public 
administration  bodies’  lack  of  responsiveness  further  addressed.  On  transparency  and 
access  to  information,  the  Commissioner  for  the  right  to  information  reported  a  steady 
number  of  around  1 000  complaints  in  2024,  often  resolved  after  his  intervention.  Public 
entities  still  need  to  improve  compliance  with  transparency  requirements  and  be  more 
responsive to requests for access to information. 

Service delivery to citizens and businesses 

Service  delivery  to  citizens  and  businesses  needs  to  be  improved.  The  government 
continued to expand its offer of online services. However, outstanding accessibility issues for 
vulnerable  groups,  including  persons  with  disabilities,  remain  unaddressed.  On  reducing 

25 

 
 
the  Regulation  of 
administrative  burdens, 
Administrative  Procedures  in  the  Function  of  Public  Services  Offered  to  Citizens  and 
Businesses remains operational. 

Interinstitutional  Working  Group 

the 

for 

2.2.  RULE OF LAW AND FUNDAMENTAL RIGHTS 

2.2.1.  Chapter 23: Judiciary and fundamental rights  

The EU’s founding values include the rule of law and respect for human rights. An effective 
(independent,  high-quality  and  efficient)  judicial  system  and  an  effective  fight  against 
corruption are of paramount importance, as is the respect for fundamental rights in law and 
in practice. 

Functioning of the judiciary  

Strategic documents 

A  new  Cross-Sector  Justice  Strategy  for  2024-2030  was  adopted  but  implementation  still 
needs  to  be  improved.  The  quality  of  the  strategy  and  its  monitoring  are  generally 
satisfactory. The quality and timeliness of reporting have improved. However, the quality of 
statistical data remains poor.   

Management bodies 

The efficiency of the High Judicial Council (HJC) and the High Prosecutorial Council (HPC) 
in  appointing,  promoting,  transferring  and  evaluating  magistrates  remains  very  low,  which 
affects  judicial  quality  and  efficiency  at  all  levels.  The  HJC  finalised  forty-one  evaluation 
reports and the HPC forty. The HJC and the HPC should continue to reduce the backlog of 
evaluations  and  improve  the  quality  of  the  evaluation  reports  and  adopt  and  implement  an 
evaluation  plan  every  year.  Important  operating  rules  are  still  lacking,  and  overall 
coordination still needs to be reinforced.  

The  2016  justice  reform  strengthened  the  Councils’  independence.  However,  previously 
identified shortcomings remain regarding the appointment of non-magistrate members to the 
HJC  and  HPC.  They  are  not  subject  to  the  same  standards  as  magistrate  members  for 
background checks and asset verification, which affects the transparency and meritocracy of 
the  process.  The  HPC  and  the  HJC  need  to  further  strengthen  ethical  oversight  of  its 
members in practice. The  HJC has adopted specific rules of procedure that regulate its own 
members’  conflicts  of  interest.  The  HJC  has  enacted  regulations  on  minimum  judicial 
timeframes  and  quantitative  standards,  and  standard  templates  for  judicial  decisions. 
Strategic  communication  remains  weak.  The  rules  of  procedure  to  ensure  transparency  in 
relation  to  promotions,  appointments  and  transfers,  including  evaluations  have  been 
approved by the HJC and their implementation should be further ensured. The HPC adopted 
regulations  on  mentoring  of  prosecutor-magistrate  candidates.  Regulating  the  appointment 
of  court  chairs  is  also  important. 
The  HJC  and  the  HPC  need  to 
lack  of 
urgently  address 
specialised 
notably 
seconded  magistrates  and  staff 
needed 
to  perform  evaluation 
reports, in line with the high vetting 
standards.  Councils 
an 
internal  structure  and  staff  to  train 
non-magistrate  staff  in  courts  and 
prosecution offices, as provided for 
in the law. 

the 
resources, 

lack 

Independence and impartiality 

26 

 
 
 
in 

The independence and impartiality 
of the judiciary is satisfactory in the 
higher-level  courts  and 
the 
courts  of  first  instance.  While  the 
judiciary  has 
the 
resilience  of 
improved,  attempts  by  public 
officials  or  politicians 
to  exert 
undue  interference  and  pressure 
have  increased  and  raise  serious 
concerns, 
the 
notably 
unprecedented  public 
reactions 
and  attempts  to  put  pressure  by 
legislative 
the  executive  and 
branches  against  the  Specialised 
Structure Against Organised Crime 
and  Corruption  (SPAK)  and  the  High  Justice  Inspector.  Seven  magistrates  were  placed 
under protection. The self-governing institutions were vocal in denouncing political pressure 
on the judiciary, issuing public statements.  

Albania  needs  to  ensure  a  competitive  and  high  standard  evaluation  and  appointment 
procedure of the Chief Special Prosecutor at the Special Prosecution’s Office, in line with the 
highest  principles  of  merit  and  independence.  While  the  appointment  process  of  the  new 
Director of the National Bureau of Investigations has been open and competitive so far, there 
have  been  delays  in  the  final  appointment  and  the  HPC  should  adopt  clear  rules  and 
procedures  for  future  occasions.  Legal  uncertainty  remained  regarding  the  end  of  the 
mandate of two members of the Constitutional Court, due to diverging interpretations of the 
applicable provisions by Parliament and the High Court, respectively. 

Despite  strong  legal  safeguards,  merit-based  appointments  and  career  development  are 
weakened  in  practice  by  the  HPC  and  HJC’s  slow  pace  of  qualitative  evaluations  for 
magistrates and the continued use of transfers as an alternative to merit-based promotions. 

Accountability 

The accountability of the judiciary is overall satisfactory. The comprehensive transitional re-
evaluation (vetting) of all judges and prosecutors, the operation of the High Justice Inspector 
(HJI)  and  the  continued  progress  in  implementing  the  justice  reform  have  strengthened 
accountability.  Efforts  to  prevent  corruption  post-vetting  should  be  enhanced  across  the 
judicial  system.  The  Councils  and  the  HJI  adopted  a  common  regulation  on  cases  of 
magistrates’  misconduct.  The  Councils  have  also  approved  the  regulatory  acts  to  make 
“asset and background” checks for the remaining first instance vetting cases. 

27 

 
 
The vetting process has further advanced and is close to finalisation. The Appeal Chamber 
increased  the  pace  of  appeals  and  is  currently  on  track  towards  meeting  the  constitutional 
deadline of June 2026. As of 1 October 2025 the final decisions resulted in 426 dismissals 
and  terminations  (52.9%  of  cases), 
in  office 
and  321  confirmations 
(39.9%  of  cases).  53  appeals 
remain  pending.  The  International 
(IMO) 
Monitoring 
the 
continued 
process.  The 
issued  42 
recommendations  for  appeal  and 
eight  dissenting  opinions  against 
Appeal Chamber decisions.  

Operation 
its  oversight  of 

IMO 

legal 

changes  are 

Challenges  persist  regarding  the 
attractiveness  of  the  position  for 
the  HJI 
magistrate-inspectors  at 
and 
still 
expected to address the issue. The 
HJI  needs  to  strengthen  inspection 
protocols  to  tackle  corruption  cases  within  the  judiciary.  Thematic  inspections  remain  a 
priority, including a plan to coordinate with all the relevant institutions on their follow-up. The 
HJI, HJC, HPC and the High Inspectorate of Declaration and Audit of Assets and Conflicts of 
Interest  (HIDAACI)  should  update  their  internal  procedures  and  ensure  sufficient  staff  and 
resources  to  improve  the  quality  and  efficiency  of  integrity  checks  on  magistrates  and 
candidate-magistrates in line with high vetting standards.  

Quality of justice 

The  quality  of  justice  needs  to  be  improved.  Measures  are  still  needed  to  address  the 
previously  reported  issues,  including  (i)  the  quality  of  initial  and continuous  training;  (ii)  the 
consistency of case law; (iii) the high number of judicial vacancies and insufficient amount of 
court staff; (iv) the lack of a modern integrated electronic case management system in courts 
and  prosecution  offices;  (v)  the 
quality,  consistency  and 
timely 
publication  of  judgments;  (vi)  the 
quality  of  court  infrastructure;  and 
the  reliability  of  statistical 
(vii) 
data. 

to 

including 
revision  of 
despite 

Further 
the 
improvements 
judicial  training  system  are  still 
a 
necessary, 
the 
comprehensive 
entry 
limited 
exam, 
changes  made  by  the  School  of 
of 
Magistrates.  The 
continuous  and  initial  training  needs  to  be  finalised  to  address  quality  limitations  and  the 
imminent needs of the judicial system. Legislation still needs to be adopted to ban vetted out 
magistrates  or  magistrates  with  a  15-year  ban  from  high  judicial  office  from  taking  up 
positions  as  training  staff  at  the  School  for  Magistrates.  Common  standards to  consolidate 
drafting of judicial decisions still need to be adopted and implemented. 

review 

Judicial quality is seriously hampered by the lack of progress in appointing court chairs at all 
levels  and  the  insufficient  number  of  court  staff,  particularly  legal  assistants.  The  High 
Judicial Council has appointed 42 new judges in first instance courts of general jurisdiction.  
However,  vacancies  at  the  Appeal  Court  remain  and  should  be  completed  as  a  matter  of 

28 

 
 
priority.  Quotas  determined  by the  HJC  and  the  HPC  for  the  School  of  Magistrates  for  the 
2025-2028 class are an additional concern as they are largely insufficient to ensure that  in 
the  medium  term,  the  needs  of  the  system  will  be  gradually  addressed.  Increasing  the 
number  and  quality  of  candidate  magistrates  and  legal  assistants  admitted  to  the  SoM  is 
essential.  

regarding 

While  the  Government  has  allocated  the  necessary  premises  to  the  Court  of  Appeal,  the 
quality  of  court  infrastructure  remains  overall  poor.  This  has  led  to  overcrowding  and  the 
continued  opaque  practice of  hearings  taking  place  in judges’  chambers.  No progress was 
made  on  providing  adequate  security  standards  for  judges  and  prosecutors.  The  fatal 
shooting  of  the  Tirana  Appeals 
Court  Judge  during  a  court 
hearing  has  further  emphasised 
concerns 
the 
inadequacy of court infrastructure 
as  well  as  detrimental  personal 
attacks  directed  at  judges  and 
prosecutors  and  underscored  the 
need  for  measures  to  guarantee 
the  safety  of  magistrates.  At 
SPAK  level,  there  is  scope  for 
even  greater  transparency  and 
verifiability 
interrogations, 
notably through new interrogation 
rooms. 

of 

Decisive  steps  should  be  taken  by  the  HJC  and  the  HPC  to  ensure  the  consolidation, 
publication, reporting, consistency and reliability of statistical data across the judicial system, 
based  on  a  coordinated  and  harmonised  regulatory  framework  applicable  to  the  whole 
system.  HJC  adopted  a  regulatory  framework  for  setting  up  specialised  chambers,  which 
should be effectively implemented. 

Alternative  dispute  resolution  remains  underused  in  practice.  Training  for  mediators 
advanced,  including  an  improved  public  campaign  by  the  Mediation  Chamber  to  increase 
awareness  and  visibility.  Referral  to  mediation  remains  limited.  Attempts  to  provide  for 
consolidated  information  on  the  possibility  to  use  mediation  and  increase  quality  of  the 
service should continue further.  

Efficiency 

the 

The  efficiency  of 
justice 
system is limited. Efficiency is still 
hampered by the increased length 
of  proceedings  and  a 
large 
backlog  of  cases,  notably  at 
appeal  level.  The  publication  of 
to 
final  decisions 
exceed  the  legal  deadline,  and 
serious  delays  are  caused  by 
insufficient  management  of  court 
hearings  and  absent  defence 
lawyers. The HJC has adopted an 
efficiency  roadmap,  but  needs  to 
take 
including 
revision  of  legislation  in  line  with 

continues 

further 

steps, 

the general principles of justice reform and European standards.  

29 

 
 
Sufficient  budget  has  been  allocated  to  set  up  a  modern  integrated  electronic  case 
management  system  in  courts  and  prosecution  offices,  but  full  establishment  is  foreseen 
only 
is 
detrimental  to  the  overall  quality  of 
justice and needs to be advanced.  

for  2030.  This 

timeline 

Significant  efforts  are  needed  to 
improve  the  digitalisation  of  justice 
An 
systems. 
electronic 
the 
tool  between 
communication 
Tirana  District  Court  and  lawyers 
has  been  successfully  piloted. 
However,  the  lack  of  funding  to 
expand it to all courts, especially the 
General  Appeal  Court,  is  limiting  its 
full  potential  to  improve  access  to 
justice. 

Fight against corruption  

Track record  

The  track  record  in  the  fight  against  corruption  has  improved  for  high-level  cases  and  has 
slightly deteriorated for non-high-level cases.  

The Specialised Structure Against Organised Crime and Corruption (SPAK), comprising the 
Special  Prosecution  Office  (SPO),  the 
National  Bureau  of  Investigation  (NBI) 
and  the  anti-corruption  and  organised 
crime  courts  (SPAK  courts  of  both  first 
further 
instance 
consolidated  its  positive  results  in  the 
investigation, 
and 
convictions 
in  high-level  corruption 
cases,  including  those  involving  high-
level  politicians  and  officials  as  well  as 
cases  involving  the  protection  of  EU 
financial interests.  

prosecution 

appeal), 

and 

first 

court)  delivered  24 

In 2024, the Special Court of Appeal for 
Corruption and Organised Crime (SPAK 
final 
appeal 
convictions  with  106  persons  convicted  in  final  rulings  in  corruption  cases,  including  13 
convictions  in  high-level  cases.  The  Special  Court  for  Corruption  and  Organised  Crime 
(SPAK  court  of 
instance)  convicted  93 
persons  in  cases  of  corruption.  SPAK’s  capacity 
in  financial  investigations  has  increased  and  the 
systematic  use  of  financial  investigations  and 
asset  confiscations  has  continued  to  improve. 
However,  the  number  of  referrals  to  SPAK  from 
other  authorities  needs  to  increase  and  SPAK’s 
capacity  and  internal  organisation  to  handle  aa 
growing  workload  requires  attention.  (See  also 
Chapter 24 – Justice, freedom and security).  

Legal framework  

legal 

The 
fight  against 
corruption  is  broadly  in  place  but  needs  to  be 

framework  on 

the 

30 

 
 
improved regarding preventive measures. Some steps have been taken towards revising the 
conflict-of-interest  legislation,  although  anti-corruption  legislation  remains  complex  and 
incomplete.  Revised  legislation  on  conflict  of  interest,  whistleblowers  protection,  political 
party  financing,  lobbying,  donations  and  sponsorships,  anti-money  laundering,  internal 
control  and  financial  inspection  still  needs to  be  adopted.  The Law  on  the  police has  been 
revised, but the state police remain highly vulnerable to corruption.  

Strategic documents  

The strategic documents are in place and are adequate. Albania adopted the Anti-Corruption 
Strategy for  2024-2030, targeting  vulnerable  sectors such  as  property,  public  procurement, 
health, education, customs and tax, including local governance and the private sector. SPAK 
adopted a Backlog Reduction Strategy 2025-2027, which contributes to the implementation 
of  the  Cross-sector  Justice  Strategy  and  the  National  Strategy  Against  Organised  Crime. 
However,  further  strengthening  of  institutional  capacities,  planning,  coordination  and 
monitoring mechanisms remain needed. 

Institutional framework 

The  institutional  framework  for  the  fight  against  corruption  is  in  place.  Its  preventive 
measures still need to be improved, and issues with its law enforcement aspects remain. 

Since  its  establishment,  SPAK  has  delivered  positive  results  in  fighting  corruption.  Other 
bodies  tasked  with  fighting  corruption,  in  particular  the  General  Prosecution  Office  and  the 
state police, still need to improve their results in fighting corruption.  

Despite efforts, the state police remain highly vulnerable to corruption. The transitional and 
periodic  evaluation  of  state  police  officers  (‘police  vetting’)  and  the  process  of  integrity 
verification  have  continued,  but  their  impact  remains  limited.  In  2024,  the  Police  Oversight 
Agency  continued  to  receive  a  high  number  of  complaints  (over  5 000).  The  Agency 
recommended  disciplinary 
law 
enforcement  employees  to  criminal  prosecution.  Following  the  resignation  of  the  General 
Director  in  July,  the  appointment  procedure  for  the  new  Head  of  Agency  needs  to  be 
conducted  in  line  with  the  highest  principles  of  merit,  competitiveness  and  transparency. 
Measures  to  improve  the  accountability,  independence  and  integrity  of  the  Albanian  state 
police need to be further implemented. 

for  283  employees  and  referred  463 

investigations 

The  institutional  framework  for  preventing  corruption  continues  to  have  a  limited  impact, 
including  in  vulnerable  sectors,  and  coordination  with  law  enforcement  remains  weak.  The 
position  of  Minister  of  State  for  Anti-Corruption  and  Public  Administration  has  been 
maintained in the  new  executive.  The  General  Directorate on  Anti-Corruption  (GDAC)  staff 
are  still  limited  to  approximately  30  employees,  supported  by  anti-corruption  coordinators 
deployed  across  about  20  institutions,  hindering  capacities  to  effectively  oversee  the 
implementation  and  assessment  of  preventive  measures,  along  with  thorough  risk 
assessments.  

The  High  Inspectorate  for  the  Declaration  of  Assets  and  Conflicts  of  Interest  (HIDAACI) 
continued  carrying  out  its  mandate.  Effectiveness  and  transparency  of  verifications  of 
declarations  of  assets  and  interests  by  HIDAACI,  including  high-risk  profiling,  needs  to  be 
increased.  The  declarations  of  assets  need  to  be  made  public  online,  in  line  with  legal 
requirements.  Coordination  with  law  enforcement  needs  to  further  improve.  HIDAACI 
introduced a search functionality to improve access to data yet still upon request, and signed 
a memorandum with the Financial Investigation Unit.  

HIDAACI received 182 reports from public authorities and 258 from businesses last year. At 
the same time, the number of whistle-blowing cases remained low – HIDAACI reviewed six 
new whistleblower reports in 2024.  

31 

 
 
Public officials’ awareness of ethical standards and their enforcement needs to be improved. 
The  quality  and  implementation  of  integrity  plans,  set  up  at  central  and  local  levels,  still 
remains weak.  

In  March  2025,  the  Council  of  Europe’s  Group  of  States  against  Corruption  (GRECO) 
finished  the  fifth  round  compliance  procedure  for  Albania,  concluding  that  18  out  of  24 
recommendations had been satisfactorily addressed. Albania still needs to ensure that rules 
on  post-employment  restrictions  apply  both  to  members  of  the  Council  of  Ministers  and  to 
political advisers. In addition, legislation on contacts with lobbyists still needs to be enacted 
and  the  enforcement  of  rules  to  prevent  conflicts  of  interest  applicable  to  the  Council  of 
Ministers still needs to be demonstrated.  

Fundamental rights  

General framework 

The  general  framework  for  fundamental  rights  needs  to  be  improved.  The  implementation 
and enforcement of fundamental rights need to be improved.  

International human rights instruments 

Cooperation with international human rights monitoring bodies is satisfactory but the follow-
up of their recommendations needs to be improved. Albania is party to the main international 
human rights instruments. However, the country has not signed the Optional Protocol to the 
International Convention on Economic, Social and Cultural Rights. Albania needs to develop 
a  comprehensive  monitoring  and  data  collection  system 
level  of 
implementation  of  human  rights  legislation,  policies,  and  strategies.  Albania  completed  its 
fourth  Universal  Periodic  Review,  supporting  239  out  of  253  recommendations  received. 
Albania  continued  to  benefit  from  its  observer  status  at  the  European  Union  Agency  for 
Fundamental Rights (FRA).  

to  assess 

the 

European Court of Human Rights 

Albania  continues  to  ensure  good  cooperation  with  the  European  Court  of  Human  Rights 
(ECtHR). During the reporting period, the Court found breaches of the European Convention 
on Human Rights relating mainly to the right to respect for private and family life, the right to 
a  fair  trial,  and  the  right  to  liberty  and  security.  Albania  faces  challenges  in  implementing 
ECtHR  judgments. On 1 January  2025,  Albania had  25  leading  ECtHR  judgments  pending 
implementation. There are currently 10 cases under enhanced supervision by the Committee 
of  Ministers  compared  to  16  in  2024).  Albania  needs  to  ensure  that  these  judgments  are 
implemented,  notably  in  the  Strazimiri  v.  Albania  case,  regarding  the  inhumane  and 
treatment  of 
degrading 
forensic 
psychiatric 
patients  and  prisoners 
with  mental  disorders. 
Moreover,  Albania  has 
to  clarify  existing 
yet 
to 
remedies 
address 
expropriation 
unlawful 
and 
of 
demolition 
property  in  the  Sharxhi 
and  others  v.  Albania 
case.  

 Promotion and 
enforcement of human 
rights 

32 

 
 
is 

rights. 

promotion 

continued 
its 

The  legal  and  institutional  framework  for  the  promotion,  protection  and  enforcement  of 
human  rights 
incomplete 
and  needs  to  be  improved. 
Effective 
and 
enforcement  of  human  rights 
is  challenging,  especially  on 
to  property  and 
the 
right 
children’s 
The 
(People’s 
Ombudsperson 
Advocate) 
to 
exercise 
mandate 
satisfactorily. 
It  has  been 
accredited  at  global  level  as  an 
A-status National Human Rights 
Institution  (NHRI)  since  2014. 
Parliament  has  yet  to  reappoint 
an  Ombudsperson  and  a 
Commissioner 
against 
Discrimination, as the mandates 
of  the  current  heads  of  these 
institutions  expired  in  2022  and 
2023,  respectively,  which  risks 
to 
the 
seriously  weaken 
legitimacy of these independent 
institutions.  Human  and  financial 
persist, 
resources 
affecting 
the 
regional offices of both institutions. Overall, the largest number of complaints received by the 
2024 
of 
(295 
overall). 
the 

freedom 
16% 

functioning  of 

shortages 

the 

of 

in 

the 

limitation 

Ombudsperson 
concerned 
personal 
complaints, 
Implementation 
Ombudsperson’s 
recommendations remains overall 
low, 
oversight 
hindering 
effectiveness 
redress  for  violations  of  human 
rights.  

hampering 
and 

Prevention of torture and ill-

treatment 

Albania  provides  adequate  legal  guarantees  on  the  prevention  of  torture  and  ill-treatment 
and the follow-up of cases is adequate. Albania generally complies with its obligations on the 
prohibition of torture and ill-treatment. The functioning of the National Preventive Mechanism 
remained satisfactory; however, the follow-up of its recommendations is low. Albania’s action 
plan to address the main findings and recommendations of the European Committee for the 
Prevention  of  Torture  and  Inhuman  or  Degrading  Treatment  or  Punishment  (CPT)  need  to 
be implemented. No steps have been taken to address serious concerns over the conditions 
for  prisoners  with  mental  health  issues  and  forensic  patients.  Overcrowding,  a  lack  of 
medical and therapeutic staff, and inadequate facilities remain serious concerns.  

Execution of criminal sanctions 

The system for execution of criminal sanctions (including probation) needs to be improved. 
Corruption, poor healthcare and a shortage of staff in the penitentiary system and detention 

33 

 
 
centres remain a concern. While overcrowding remains a challenge, the occupancy rate has 
shown  a  steady  annual  decline,  indicating  gradual  progress  towards  easing  capacity 
pressures. The probation service is operational. However, prevention and rehabilitation need 
to be improved. The use of electronic monitoring has been suspended since 2017 and needs 
to  be  reintroduced  urgently.  Special  attention  should  be  paid  to  the  deradicalisation  of 
prisoners. 

Protection of personal data 

The legal framework for the protection of personal data is adequate but the capacities of the 
Data  Protection  Agency  still  need  to  be  improved.  Good  progress  was  achieved  with  the 
adoption of the new Law on personal data protection in December 2024 in full alignment with 
the EU acquis. Seven out of ten accompanying pieces of implementing legislation have been 
adopted.  Albania  needs  to  ensure  effective  implementation,  including  administrative  and 
budgetary  capacity.  Further  action  is  needed  to  increase  public  awareness  and  public 
institutions’  preventive  capacity.  The  Data  Protection  Commissioner  is  systematically 
consulted  on  draft  legislation  that  can  affect  personal  data,  and  its  recommendations  are 
broadly followed by public and private data controllers.  

Freedom of religion or belief 

Freedom of thought, conscience and religion is generally upheld in Albania. The restitution of 
properties  belonging  to  religious  groups  that  were  expropriated  during  the  communist  era 
remains an unresolved issue. The dependence of some religious groups on financial support 
from third parties creates vulnerabilities. 

---------------------------------------------------------------------------------------------------------------------------
------------------------ 

Freedom of expression  

Intimidation of journalists 

(SLAPP) 

The  framework  for  the  protection  of 
journalists  is  in  place,  but  verbal  and 
physical  attacks,  smear  campaigns 
and  strategic  lawsuits  against  public 
participation 
targeting 
journalists  continued.  Media  freedom 
organisations  denounced  45  cases  of 
violations  of  journalists’  safety  in  2024 
(down  from  46  in  2023).  Cases  of 
intimidation 
against 
threats 
journalists, 
including  by  high  state 
officials and police officers and notably 
against 
female 
investigative  and 
journalists, became more prominent though smear campaigns, politically motivated physical 
and verbal attacks, and disinformation. 

and 

In October 2024, the General Prosecutor’s Office appointed a media adviser as the contact 
person  for  reporting  and  following  up  on  cases  of  attacks  against  journalists  and  media 
workers. A point of contact for the safety of journalists was established both at the Ministry of 
Interior and the police. Impunity persisted due to the continued lack of a robust track record 
of  investigations  and  judicial  follow-up.  In  April  2025,  the  Constitutional  Court  issued  a 
decision  in  favour  of  a  journalist,  unanimously  annulling  previous  judicial  rulings  that  had 
authorised  the  seizure  by  the  Special  Prosecution  Office  of  the  journalist’s  electronic 
devices,  data  and  materials,  on  the  grounds  that  the  seizure  constituted  disproportionate 
interference in the right to protect the confidentiality of journalistic sources. 

Concerns  over  the  legality  and  due  process  of  law  were  raised  regarding  the  authorities’ 

34 

 
 
action  in  preventing  access  of  journalists  from  four  media  outlets  to  the  premises  they 
occupied.  In  August  2025,  a  first  instance  court  assessed  that  restriction  measures  on 
journalists  during  the  eviction  of  a  media  consortium  from  the  state-owned  premises  were 
not proportionate and were contrary to constitutional and ECHR Article 10 obligations related 
to freedom of expression. The Court did not enter into the merits of the property dispute but 
ordered the return of the equipment and documents to journalists.  

The number of digital threats, online harassment and smear campaigns increased. Privacy 
violations represent another serious concern, as journalists’ personal and professional data 
is misused by unauthorised entities. This situation is exacerbated by insufficient institutional 
mechanisms for reporting, addressing and mitigating these digital threats. There is still a lack 
of systemic monitoring and reporting on judicial cases involving journalists. Journalists have 
limited access to legal assistance and limited support from media outlets. 

Legislative environment 

Albania  made  no  progress  in  aligning  the  legislative  framework  with  the  EU  acquis  and 
European  standards.  This  includes  no  progress  to  address  major  challenges  hampering 
media  independence.  High  market  concentration  and  lack  of  transparency  of  media 
ownership, financing sources and economic interests, including public funding, continued to 
negatively affect media independence and plurality. Defamation is still a crime punishable by 
particularly  punitive  criminal  fines.  The  Criminal  Code  still  does  not  provide  for  special 
protection for journalists against violence, attacks or threats while exercising their profession. 
The  legal  framework  does  not  provide  for  safeguards  against  strategic  lawsuits  against 
public participation (SLAPP). A structured dialogue between Albanian institutions and media 
actors  was  launched  in  January  2025  with  the  aim  of  discussing  key  legislative  and 
regulatory  reforms  to  enhance  freedom  of  expression,  including  media  freedom  and 
pluralism.  Following  a presentation  of  specific recommendations in June 2025,  the  work  of 
the  platform  is  still  ongoing.  It  remains  essential  that the  Venice Commission  be  consulted 
on  the  resulting  legislative  amendments  before  they  are  adopted.  The  Law  on  access  to 
information  is  broadly  aligned  with  European  standards;  however,  shorter  and  binding 
deadlines for answers to journalists still need to be set based on best European practices. 

Implementation of legislation/institutions 

The independence of the Audio-Visual Regulatory Authority (AMA) is still not guaranteed as 
the potential for political and corporate influence with regard to the appointment procedures 
for  AMA  board  members  persists,  while  there  have  been  shortcomings  in  enforcing  the 
Broadcasting  Code  on  media  outlets  that  air  pre-recorded  political  content  during  electoral 
campaigns.  

The  ad  hoc  parliamentary  committee  on  tackling  disinformation  and  foreign  interference 
drafted  the  country’s first  National  Strategy  against foreign  interference and disinformation, 
adopted  by  Parliament  in  July  2025.  In  its  implementation  it  is  important  that  the  strategy 
ensures a comprehensive approach and safeguards freedom of expression, media freedom, 
and pluralism in line with the EU acquis and best practices.  

The  implementation  of  the  Law  on  access  to  public  information  remains  weak.  Public 
authorities  continue  the  practice  of  withholding  information  on  the  basis  of  generic 
references  to  ‘public  interest’  that  have  still  not  been  clearly  defined.  In  2024,  the 
Commissioner  for  the  Right  to  Information  and  Personal  Data  Protection  received  365 
complaints  from  journalists  concerning  the  refusal  to  provide  information  and  official 
documents. Of these, 283 cases were resolved by granting the requested information during 
the administrative review process. 

Public service broadcaster 

Procedural  irregularities  in  the  election  process  for  a  new  Director-General  of  the  public 
broadcaster Radio Television (RTSH) in January 2025 further undermined the principles of 

35 

 
 
merit-based selection and increased concerns over the independence of RTSH. In February, 
Parliament dismissed the entire RTSH Steering Council, in breach of applicable legislation, 
which  only  allows  individual  disqualification  of  Steering  Council  members  subject  to  due 
process guarantees. The appointment of some members of the new Council, set up in March 
2025,  raised  concern  because  of  their  political  background.  In  April  2025,  the  new  board 
elected the Director-General of RTSH.  

Economic factors 

High ownership concentration and opaque funding practices continue to compromise media 
independence  and  pluralism.  In  April  2024,  the  AMA  started  publishing  on  its  website 
summarised  information  on  ownership  structures  and  beneficial  owners  of  licensed 
audiovisual  media.  However,  this  webpage  fails  to  indicate  vested  interests  of  owners, 
conflicts of interest, and possible influences on media owners or persons affiliated with them. 
The legal framework still lacks provisions to regulate the distribution of indirect subsidies or 
state advertising to media, and to extend transparency requirements to online media outlets. 
Albania  has  taken  an  initial  step  towards  a  transparent  audience  measurement  system, 
which  is  key  to  ensuring  accountability  in  public  advertising.  Concerns  persist  on  the 
influence of politically affiliated business groups, particularly during the pre-electoral period.  

Internet 

In March 2025, the government decided to suspend access to a major social media platform 
nationwide for 12 months on the grounds of protecting children from harmful content. While 
there  was  no  formal  announcement  on  lifting  of  the  ban,  the  platform  is  accessible  across 
the  country  following  an  agreement  to  ensure  filters  for  hate  speech  in  Albanian.  The 
cybersecurity capacity of media outlets is generally weak. Several cyberattacks against the 
media took place during the reporting period.  

Professional organisations and working conditions 

Self-regulation  in  the  media  sector  remained  weak  and  hindered  by  limited  resources,  a 
polarised  media  landscape  and  ongoing  use  of  inflammatory  rhetoric  in  public  debate.  It 
remains important to ensure support to self-regulatory initiatives and to promote sector-wide 
adherence to ethical codes. 

Limited  job  security  and  poor  working  conditions  for  journalists,  combined  with  self-
censorship and pressure from political actors and media owners, continued to pose serious 
challenges  to  journalists.  Issues  remain  with unpaid  salaries,  excessive  workloads  and job 
insecurity,  particularly  in  local  and  online  media.  Media  freedom  organisations  reported  at 
least 13 new formal complaints to the State Labour Inspectorate between September 2024 
and  March  2025.  Self-censorship  remains  widespread,  driven  by  political  pressure,  legal 
threats and economic dependence.  

---------------------------------------------------------------------------------------------------------------------------
------------------------- 

Freedom of assembly and association is guaranteed by the constitution and continued to be 
generally respected. 

Labour and trade union rights are covered in Chapter 19 - Social policy and employment. 

Property rights 

The  legal  and  institutional  framework  to  enforce  property  rights  is  broadly  in  place.  The 
overall  enjoyment  of  property  rights  is  limited.  Further  progress  has  been  made  on 
digitalisation  but  thus  far  only  91%  of  lands  have  been  registered.  Digitalisation  was 
completed  only  with respect to  43%  of  ownership titles,  69%  of  supporting  documents  and 
10% of cadastral maps. Approximately 80% of previously registered data has still not been 
verified  for  accuracy.  Significant  challenges  persist,  including  widespread  corruption  in 
service  delivery,  unclear  ownership  and  overlapping  property  boundaries  resulting  from 

36 

 
 
inconsistent interventions and faulty measurements in recent decades. Many title deeds and 
cadastral  maps  are  still  in  paper  format,  and  numerous  property  transactions  are  still 
conducted  using  outdated  documents  with  unclear  data,  hampering  legal  certainty  and 
economic  development.  In  June  2025,  the  State  Cadastre  Agency  (SCA)  adopted  a 
roadmap  to  finalise  all  digitisations  by  December  2026  and  all  first-time  registrations  of 
immovable  property  by  December  2028.  The  process  of  legalising  illegal  construction 
projects due before the end of 2028 continued, with some 64% out of 400 000 applications 
legalised and 1% rejected.  

In  light  of  country-wide  demolitions  of  allegedly  illegal  constructions  launched  by  the 
authorities  in  the  summer  of  2025,  it  is  important  that  legalisation,  expropriation  and 
demolition of buildings strictly comply with existing legal frameworks, including the principles 
of transparency and due judicial process.  

In late 2024, a working group was established to develop an integrity plan at the SCA. 

Compensations for properties confiscated during the communist era continued but at a slow 
pace. More than 26 000 requests for compensation have been accepted by the specialised 
Agency  for  Treatment  of  Property  (ATP).  ATP  recognised  ownership  and  compensation 
values in 19 000 cases and only effectively executed about 800 of them. One major issue is 
that only 10% of the property value can be compensated, and that value is still based on the 
government’s valuation map dating back to 2016, with prices often significantly below current 
market values. 

Non-discrimination 

The legal and institutional framework on non-discrimination is incomplete and the capacities 
of equality bodies need to be improved. 

Limited  steps  were  taken  to  fully  align  the  legal  and  institutional  framework  for  non-
discrimination with the EU acquis - including on racial equality and on standards for equality 
bodies  and  European  standards.  In  2024,  the  Commissioner  for  Protection  against 
Discrimination (CPD) continued to handle a stable number of cases, mostly in the areas of 
employment  and  services.  Albania  needs  to  consistently  implement  strategic  measures  on 
combating discrimination and strengthening the rights of LGBTIQ persons and persons with 
disabilities, including sectoral non-discrimination action plans. 

Serious concerns remain with regard to the institutional and legal framework on  hate crime 
and  hate  speech.  Laws  on  hate  crime  and  hate  speech  appear  to  be  consistent  with  EU 
acquis  and  European  standards.  However,  better  enforcement  capacity  and  greater 
awareness  raising  are  needed,  particularly  in  rural  and  remote  areas.  In  2024,  the  CPD 
handled twelve cases of hate speech, including on the grounds of race, gender and sexual 
orientation,  confirming  hate  speech  in  two  of  the  cases.  From  January  to  June  2025,  the 
CPD  handled  eleven  new  cases,  which  are  under  review.  Additional  training,  awareness 
raising and capacity building about hate crime is needed among law enforcement and justice 
professionals. The collection of data and statistics on hate crime is yet to be fully ensured. A 
total of seven cases of hate crime were reported to the police in the reporting period in 2024 
and 8 from January to June 2025 

Gender equality 

legal 

The 
institutional 
and 
framework  for  gender  equality  is 
partially  in  place,  but  legislative 
alignment  with  the  EU  acquis  as 
implementation  and 
well  as 
be 
enforcement 
improved. Weaknesses remain in 
National 
implementing 

need 

the 

to 

37 

 
 
Strategy  for  Gender  Equality  2021-2030  and  its  Action  Plan.  Women  living  in  rural  and 
remote  areas,  Roma 3  and  Egyptian  women,  and  lesbian,  gay,  bisexual,  transgender, 
intersex and queer (LGBTIQ) persons continue to face multiple forms of discrimination. The 
activities in preparing Local Gender Action Plans continued. 

the 

The legal framework for combating 
is  not 
gender-based  violence 
aligned 
Istanbul 
with 
the  EU  acquis. 
Convention  or 
Violence  against  women  and  girls 
and  domestic  violence  remain  a 
critical  concern,  with high levels  of 
to  social 
under-reporting  due 
norms and associated stigma. 47% 
of  women  and  girls  report  having 
been  victims  of  intimate  partner 
police’s  weak 
violence.  The 
enforcement  and  accountability  in 
handling cases of violence against women remains a concern. The continued high number 
of femicides per capita is still a serious concern. Specialised support services for victims of 
violence continue to be donor driven and insufficient, particularly healthcare, the funding of 
shelters, free legal aid, and the reintegration and rehabilitation of victims of violence. Several 
key  laws  are  currently  being  revised,  including  the  Law  on  gender  equality  in  society,  the 
Criminal Code with regard to the crimes of femicide, sexual violence and cyber violence, and 
the  Family  Code  concerning  child  marriages.  It  remains  important  that  revisions  are  fully 
aligned with EU acquis and European standards. 

Rights of the child 

the  legal  and  institutional  framework  on  rights  of  the  child  is  partially  in  place  and 
implementation  needs to  be  improved.  Implementation  efforts  in children’s  rights  protection 
should  also  be  in  line  with  the  EU  acquis  and  draw  guidance  from  key  European 
Commission  recommendations,  in  particular  as  concerns  integrated  child  protection 
systems. 

The  National  Agenda  on  the  Rights  of  the  Child  (NARC)  2021-2026  is  Albania’s  central 
strategic  framework  for  promoting  and  protecting  children’s  rights.  Only  62%  of  the 
measures  in the  NARC had  been fully  implemented.  Laws  intended  to  protect  minors from 
child marriage remain ineffective or applied inconsistently. Child protection services remain 
insufficient,  including  for  child  victims  of  violence  and  domestic  violence.  In  2024,  1  913 
cases  have  been  registered  as  victim  of  violence.  Violence  and  sexual  violence  against 
children, including online, remain a critical area of concern. Child protection services remain 
insufficient,  including  for  child  victims  of  violence.  The  number  of  child  protection  workers 
(241  in  all  61  municipalities)  is  far  below  the  total  number  needed.  In  2024,  2 451  cases 
were  managed  by  Child  Protection  Units,  1 386  of  which  were  newly  identified  cases 
receiving services according to their risk levels. In 2025, there were 1,940 cases of children 
in  need  of  protection  of  which  264  newly  identified  cases.  A  national  deinstitutionalisation 
plan  is  in  place  and  currently  being  updated  together  with  the  development  of  the  new 
alternative care law as well as measures to strengthen service delivery for children in need 
of  family  care.  Access  to  justice  for  children  is  hindered  by  delays,  limited  legal  aid,  and 
inadequate  institutional  coordination.  Despite  the  National  social  Protection  Strategy  2024-
2030 and Social Inclusion Policy 2024-2028, 70% of children remain at risk of poverty.  

Persons with disabilities 

3 In line with the terminology of European institutions, the umbrella term ‘Roma’ is used here to refer to a number 
of different groups, without denying the specificities of these groups. 

38 

 
 
 
The legal and institutional framework on the rights of persons with disabilities is incomplete 
and implementation and enforcement need to be improved. Albania’s framework legislation 
on the rights of persons with disabilities is only partially compliant with the UN Convention on 
the  Rights  of  Persons  with  Disabilities  (UNCRPD),  and  Albania  has  not  yet  ratified  the 
Optional  Protocol  to  the  UNCRPD  on  an  individual  complaints’  mechanism.  Limited  action 
was taken to tackle discrimination  against  persons  with disabilities,  improve  accessibility  in 
line  with  the  EU  acquis,  including  as  regards  the  European  Accessibility  Act  and  boost 
opportunities  in  employment,  education  and  participation  in  political  and  public  life.  The 
quality  of  education  for  children  with  disabilities,  especially  children  with  a  hearing 
impairment,  continues 
limited  progress  on 
to  cause  concern.  There  has  been 
deinstitutionalisation,  which  needs  to  be  dealt  with  urgently  to  move  towards  independent 
living  and 
inclusion  of  persons  with  disabilities.  Some  progress  was  noted  on 
biopsychosocial assessment, but service provision needs to be strengthened. 

LGBTIQ persons 

The  legal  protection  of  the  rights  of  LGBTIQ  persons  needs  to  be  improved  and  further 
aligned  with  the  EU  acquis.  Moreover,  LGBTIQ  persons  face  high  levels  of  discrimination 
and there is a lack of inclusive data collection. 

The  legal  and  institutional  framework  for  the  rights  of  lesbian,  gay,  bisexual,  transgender, 
intersex and queer (LGBTIQ) persons is incomplete and needs to be further aligned with the 
EU acquis and European standards. Albania still does not have legislation recognising civil 
cohabitation,  same-sex  marriage,  parenthood  by  same-sex  couples,  or  legal  gender 
recognition. The medical protocol for transgender and gender-diverse persons has not been 
adopted yet. Most of the measures under the LGBTIQ National Action Plan 2021-2027 have 
not  been  implemented  due  to  lack  of  resources  and  lack  of  political  will.].  Discrimination 
against LGBTIQ persons is prevalent. Tirana Pride took place peacefully on 24 May 2025. 

Procedural rights and victims’ rights 

The legal framework on procedural rights for suspects and accused persons as well as the 
rights of victims of crime is partially aligned with the EU acquis. 

The legal framework for legal aid is comprehensive, and primary and secondary legal aid are 
delivered at central and local levels. However, fees for legal aid cases are still not sufficient 
to  attract  high-quality  legal  representation.  Measures  to  facilitate  access  to  justice  for  the 
most  vulnerable  groups in view  of  the  new judicial  map  are  not  yet  in  place.  Shortcomings 
remain regarding sufficient budget and coordination to protect victims of crime. There was no 
progress  from  the  2024  report  in  addressing  remaining  issues  related  to  the  procedural 
rights  of  suspects  and  accused  persons,  including  elements  pertaining  to  the  right  to 
information in criminal proceedings, access to a lawyer and presumption of innocence. The 
budget for victim support, protection and victim compensation is still largely insufficient and 
needs to be enhanced.   

Protection of minorities 

The  legal  and  institutional  framework  for  the  protection  of  persons  belonging  to  minorities 
needs  to  be  improved  and  further  aligned  with  the  EU  acquis.  Persons  belonging  to 
minorities  face  discrimination.  A  significant  achievement  was  made  with  the  adoption  of 
three  pieces  of  implementing  legislation  in  December  2024,  which  were  needed  to  ensure 
implementation  of 
legislation 
addressed the crucial issues of free self-identification and the use of languages for persons 
belonging  to  minorities,  ensuring  alignment  with  European  standards  and  the  principle  of 
free self-identification. 

legislation.  This 

implementing 

the  relevant 

framework 

Albania  still  needs  to  ensure  effective  implementation  of  the  legal  framework,  notably  by 
allocating  adequate  financial  and  human  resources  to  central  agencies  and  local 
government, and by staffing and training local authorities, including on data collection, based 

39 

 
 
on  annual  projections.  Albania  still  needs  to  ensure  that  the  State  Committee  on  National 
Minorities  has  adequate  resources  and  that  procedures  for  selecting  the  members  of  the 
Committee  on  National  Minorities  are  reviewed  in  line  with  the  recommendations  of  the 
European Commission and of the Advisory Committee of the Framework Convention for the 
Protection of National Minorities. 

Roma 

The  legal  and  institutional  framework  on  Roma  needs  to  be  further  improved  and  Roma 
continue  to  face  discrimination.  The  overall  employment  rate  of  Roma  and  Egyptians 
remains  very  low.  While  access  to  basic  public  health  services  is  ensured,  access  to 
additional  out-of-pocket  health  services  remains  financially  constrained  for  both  vulnerable 
communities. The cost of civil registration remains a challenge when DNA testing is required. 
The  implementation  of  the  National  Action  Plan  for  equality,  inclusion  and  participation  of 
Roma  and  Egyptians  in  Albania  (2021-2025)  and  the  Poznan  commitments  needs  to  be 
significantly  improved.  The  institutional  capacity  of  the  Ministry  of  Health  and  Social 
Protection  remained  weak  throughout  the  reporting  period,  however,  the  appointment  of  a 
new  Deputy  Minister  specifically  in  charge  of  vulnerable  groups,  including  Roma  and 
Egyptians was a positive sign. Additional efforts and resources are required to accelerate the 
inclusion  of  Roma  and  Egyptians,  to  tackle  anti-gypsyism,  discrimination  and  educational 
and  physical  segregation,  to  promote  Roma  participation,  and  to  reduce  the  gaps  with  the 
rest of the population. 

Citizenship rights 

Albania needs to adapt its legislative framework to the EU acquis on EU citizenship rights, 
with the ultimate aim of full alignment ahead of accession. This should include carrying out 
an analysis of the alignment and implementation needs arising from the EU Directive on the 
right to citizens of the Union to move and reside freely in the Member States across all policy 
areas affected and planning timely alignment accordingly. To ensure full compliance with EU 
law4, Albania will need to repeal the legal basis allowing for the development of an investor 
citizenship  scheme,  as  such  schemes  breach  EU  law  and  pose  risks  as  regards  security, 
money  laundering,  tax  evasion,  terrorist  financing,  corruption  and  infiltration  by  organised 
crime.  

2.2.2.  Chapter 24: Justice, freedom and security  

The EU has common rules for border and migration management, visa policy, and asylum.. 
Schengen  cooperation  entails  the  lifting  of  border  controls  inside  the  EU.  There  is  also 
cooperation  in  the  fight  against  serious  and  organised  crime  and  terrorism,  and  judicial, 
police  and  customs  cooperation,  all  with  the  support  of  the  EU  Justice  and  Home  Affairs 
agencies. 

Fight against serious and organised crime 

The legal framework on serious and organised crime is partially aligned with the EU acquis. 
The capacity to fight against serious and organised crime needs to be improved.  

Legal alignment, strategic and institutional frameworks 

Albania is partially aligned with the EU acquis in the field of police cooperation and the fight 
against  organised  crime.  Implementation  of  the  2021-2025  inter-sectoral  strategy  against 
serious  and  organised  crimes  and  the  2023-2025  action  plan  is  in  its  final  stages.  An 
evaluation  report  on  their  implementation  should  be  prepared  to  inform  the  drafting  of  the 
new strategy for 2026-2030. The National Serious and Organised Crime Threat Assessment 

44 See judgment of 29 April 2025, Commission v Malta (Citoyenneté par investissement), C-181/23, Judgement 
ECLI:EU:C:2025:283. 

40 

 
 
 
(SOCTA)  for  the  period  2024-2025  was  approved  in  September  2024  but  is  not  publicly 
available. The assessment of its implementation as well as of its alignment with the national 
strategy against organised and serious crimes cannot therefore be carried out.  

An Asset Recovery Office (ARO) has been set up within the Albanian State Police, although 
its full functionality remains to be demonstrated. The Law on the Asset Recovery Office was 
adopted  in  June  2025  and  its  full  implementation,  including  the  adoption  of  pending 
implementing legislation on the organisation and functioning of the office, should increase its 
capacities to identify and trace criminal assets.  

With  a  view  to  alignment  with  the  EU  Directive  on  asset  recovery  and  confiscation,  the 
capacity  of  the  Agency  for  the  Administration  of  Seized  and  Confiscated  Assets  (i.e.  the 
national  Asset  Management  Office)  is  to  be  reinforced.  In  2024  the  Agency  increased  its 
human  resources  and  set  up  an  inventory  of  seized  and  confiscated  assets.  Operational 
procedures need to be further improved to ensure timely management of assets to preserve 
their economic value. 

Regarding  SPAK,  the  financial  investigation  unit  of  the  Special  Prosecution  Office  (SPO) 
continued  operating,  leading  to  tangible  results,  including  in  cooperation  with  international 
partners.  The  appointment  of  the  Deputy  Director  of  the  National  Bureau  of  Investigation 
(NBI)  in  December  2024  fulfilled  a  precondition,  as  envisaged  by  the  SPAK  Law,  for  the 
recruitment  of  judicial  police  services  officers,  but  their  recruitment  is  still  pending.  The 
number of state databases to which the SPO and NBI have direct access has increased to 
19  and  reached  a  sufficient  level,  but  further  improvements  in  analysis  capabilities  are 
needed. 

District prosecution offices lack the staff, training and resources required to improve criminal 
and financial analysis capacity in complex criminal cases. 

The  2024  Law  on  the  Albanian  State  Police  is  providing  the  adequate  legal  framework  to 
contribute  to  the  reduction  of  corruption  and  conflicts  of  interest  regarding  donations, 
sponsorship and additional paid services. A system for confidential integrity counselling has 
been  set  up.  While  a  whistle-blowing  system  and  post-employment  restrictions  have  now 
been implemented, integrity checks for at-risk functions need to be conducted regularly.  

No progress was made on alignment with the EU acquis on cybercrime and criminalisation 
of  child  sexual  abuse  and  exploitation  both  online  and  offline  during  the  reporting 
period. The legal framework needs to be swiftly aligned with the Directive on combating the 
sexual abuse and sexual exploitation of children and child pornography.  

The legal framework for trafficking in human beings is partially aligned with the EU acquis. 
It should be amended to align with the Directive on preventing and combating trafficking in 
human beings and protecting trafficking victims and the revised Directive which entered into 
force in July 2024. Domestic child trafficking forced begging and child labour are a concern 
despite policies that are consistent with international standards.  

On  small  arms  and  light  weapons,  Albania  should  fully  comply  with  the  EU  Directive  on 
the control of acquisition and possession of weapons, as well as implementing legislation on 
alarm and signal weapons and marking of firearms.  

Implementation and enforcement capacity 

41 

 
 
financial 
Criminal  and 
investigation  analysis  and 
methodologies  need  to  be 
is 
strengthened.  Albania 
its 
increase 
to 
expected 
use  of  preventive  seizure 
and  confiscation  of  assets, 
non-conviction-
including 
confiscation  and 
based 
third-party 
confiscation. 
Financial 
investigations 
have  been  prioritised  by 
SPAK,  which  is reflected in 
an  increase  in  high-level 
cases. 

investigation 
Financial 
to  be 
techniques  need 
improved, 
on 
identification,  analysis  and 
preservation of digital evidence for cryptocurrency and virtual assets. The systematic use of 
financial investigations in parallel to serious and organise crime and money laundering cases 
should be ensured. The level of asset seizures and confiscations remained stable between 
2023  and  2024.  Albania  reported  about  EUR 21 million  worth  of  seized  assets 
(EUR 21 million in 2023) and EUR 10 million worth of confiscated assets (EUR 11 million in 
2023).  

including 

There is a need to guarantee the timely and proper management of seized and confiscated 
assets,  including  virtual  assets  and  cryptocurrency,  as  no  state-owned  digital  wallet  is 
available. 

There  is  still  no  strategic  or  systematic  approach 
to identifying and confiscating criminal assets that 
are abroad or unreachable. In 2024, SPAK issued 
seven  decisions  for  the  preventive  seizure  of 
assets  for  criminal  offences  related  to  organised 
crime.  However,  Albania  needs 
to  steadily 
implement  rules  on  extended  confiscation  and 
precautionary asset freezing to prevent the assets 
losing any of their economic value.  

reuse  of  confiscated  assets 

The 
purposes remains largely ineffective. 

for  social 

On  international  police  cooperation,  a  total  of 
108  police  operations  were  carried  out 
in 
cooperation  with  international  partners  in  2024. 
its 
Albania  should  continue  and  strengthen 
cooperation  with 
in 
international  partners, 
particular  with  EU  Member  States  and  EU  agencies.  There  was  a  6,2%  increase  in 
messages  shared  by  the  Albanian  State  Police  with  international  partners  via  the  Secure 
Information Exchange Network Application (SIENA) in 2024.  

Albania  continued  its  good  cooperation  with  Europol  and  remains  actively  engaged  in  the 
European  Multidisciplinary  Platform  against  Criminal  Threats  (EMPACT):  the  country 
participated  in  120  operational  actions  carried  out  in  the  period  2024-2025  (115  in  2023). 
Albania  also  participated  in  the  INTERPOL  I-24/7  system,  with  25%  more  joint  operations 
than in 2023. 

42 

 
 
Cooperation  between  Albania  and  the  European  Union  Agency  for  Law  Enforcement 
Training  (CEPOL)  continues,  but  Albania  should  make  more  use  of  it  by  integrating  the 
gained knowledge and competencies into the national law enforcement training system. The 
revision of the Working Arrangement with CEPOL is ongoing. 

Albania continued to strengthen the fight against money laundering. The national strategy 
against money laundering and terrorist financing 2024-2030 adopted in July 2024 needs to 
be  implemented  effectively  by  all  relevant  actors  in  coordination  with  relevant  law 
enforcement authorities. (See also Chapter 4 – Free movement of capital) 

Albania  should  leverage  its  access  to  CEPOL  trainings  to  must  develop  its  capacity  to 
investigate cybercrime to meet the EU’s 2022-2025 priorities for EMPACT.  

Albanian  authorities  need  to  strengthen  their  capacity  to  detect,  investigate  and  prosecute 
traffickers  of  human  beings  and  fully  implement  the  National  Referral  Mechanism  for 
victims of trafficking. In 2024, Albania identified 178 victims, including 113 women and girls 
and 96 children.  

On  trafficking  in  firearms,  Albania  continued  to  strengthen  its  operational  response,  with 
progress  noted  on  preventing,  countering,  investigating  and  prosecuting  cases  related  to 
trafficking  of  weapons  and  ammunition.  During  2024,  636  firearms,  32  411  pieces  of 
ammunition and 2375 grams of explosives were seized.  The number of domestic-violence-
related  firearms  incidents  remains  high,  and  the  capacities  of  law  enforcement  to  handle 
cases of gender-based violence should be further improved.  

Cooperation in the field of drugs 

Cooperation in the field of drugs needs to be improved. 

Legal alignment, strategic and institutional frameworks  

Albania is partially aligned with the EU 
acquis  in  the  field  of  drugs  and  still 
does  not  have  a  comprehensive  and 
dedicated national drugs strategy. 

to 

is  party 

the  main 
Albania 
international  conventions  on  drugs  but 
needs  to  ensure  full  alignment  with 
these  conventions  with  regard  to  the 
criminalisation of the trafficking of illicit 
drugs  and  on 
transmission  of 
the 
samples  of  controlled  substances. 
Albania  should  ensure  full  compliance 
with  the  EU  acquis  on  criminal  acts 
and  penalties  in  respect  of  drug 
trafficking  including  in  respect  to 
new psychoactive substances. 

a 

national 

In  July  2025,  Albania 
formally 
established 
drugs 
observatory,  which 
is  still 
to 
become  operational,  while 
the 
the 
functioning  and  output  of 
national  early  warning  system  on 
the  detection  of  new  psychoactive 
substances  set  up  within 
the 
Albanian  State  Police  needs  to  be 
increased.  Further  amendments  to 
the  Law  on  narcotic  drugs  and 

43 

 
 
substances 
psychotropic 
were  adopted  in  December 
2024. 

On  the  legal  cultivation  of 
cannabis  for  medical  and 
industrial  purposes, 
the 
National  Cannabis  Control 
Agency 
is  active,  and 
Albania  has  adopted  21 
implementing 
pieces 
of 
legislation, 
including 
security-related  provisions. 
Strong 
to 
from 
prevent 
being 
to 
unintended  use  are  essential  and  should  be  further  developed  and  put  in  place  strictly  if 
cultivation starts in the upcoming period. 

safeguards 
cannabis 
diverted 

Implementation and enforcement capacity 

International police and judicial cooperation are well established. Albania is actively engaged 
in EMPACT priorities in the field of narcotics. Most of the joint investigation teams in which 
Albania  takes  part  are  in  the  field  of  narcotics,  confirming  last  year’s  trend.  Operational 
cooperation  aimed  at  addressing  drug  production  and  trafficking  in  and  via  Albania  and 
Albanian organised crime groups should be further enhanced. 

Further  efforts  are  needed  in  financial  investigations  to  seize  and  confiscate  the  criminal 
assets  of  drug  traffickers  and  increase  the  identification  and  the  dismantling  of  Albanian 
criminal groups. 

Implementation  of  the  working  arrangements  with  the  EU  Drugs  Agency  requires  more 
proactive  engagement,  better 
information 
exchange. 

interinstitutional  coordination  and  regular 

There has been a significant increase in drugs destruction in 2024, due almost exclusively to 
cannabis  destruction.  The  number  of  cases  of  drug  production  and  trafficking  remained 
broadly stable in 2024 (compared to 2023), but with a substantial increase in the number of 
individuals and legal entities receiving a final court decision and/or a final conviction in 2024. 

Fight against terrorism and prevention of radicalisation and violent extremism 

The  legal  framework  for  the  fight  against  terrorism  and  for  countering  violent  extremism  is 
partially aligned with the EU acquis. The fight against terrorism and the countering of violent 
extremism is broadly satisfactory. 

The  legal  framework  for  critical  infrastructure  protection  is  not  aligned  with  the  EU  acquis. 
The protection of critical infrastructure needs to be improved. 

Legal alignment, strategic and institutional frameworks  

Albania’s  legal  framework  in  the  field  of  terrorism  is  partially  aligned  with the  EU  acquis.  It 
needs  to  align  its  legislation  on  explosive  precursors  with  the  EU  acquis.  A  cross-cutting 
strategy  on  prevention  of  violent  extremism  and  counter  terrorism  2023-2025  and  related 
action plans, and a strategy against money laundering and terrorist financing 2024-2030 and 
related action plans are in place.  

Albania  has  a  national  coordinator  for  countering  violent  extremism,  who  heads  the 
Coordination Center for Countering Violent Extremism, created in 2017.  

The  level  of  preparation  to  protect  critical  infrastructure  remained  low  during  the  reporting 
period. The Law on the protection of critical infrastructure is not yet adopted and should be 

44 

 
 
aligned  with  the  EU  Directive  on  the  resilience  of  critical  entities.  The  protection  of  critical 
infrastructure in the area of cybersecurity is provided for by the 2024 Law on cyber security. 
An updated list of critical and important information infrastructure operators was adopted by 
the government in July 2025. 

Implementation and enforcement capacity 

The  general  terrorism  threat  level  in  Albania  is  assessed  as  low.  Law  enforcement  and 
justice institutions in charge of counterterrorism work professionally and effectively.  Albania 
has  made  progress  in  implementing  the  2023-2025  Strategy  to  prevent  violent  extremism 
and fight terrorism, but the government needs to allocate adequate resources to implement 
this strategy and its related action plan. The Albanian State Police referred at least six cases 
of  criminal  offences  with  terrorist  intent  to  the  Special  Prosecutors  Office  and  the  district 
prosecution offices in 2024 and 2025. Investigative and prosecutorial capacities need to be 
enhanced, especially at local level.  

The  rehabilitation  and  reintegration  of  the  38  Albanian  foreign  terrorist  fighters  and  family 
members, officially returned from Syria/Iraq through repatriation processes is being handled 
effectively.  Authorities  should  allocate  an  adequate  budget  for  this  work  in  order  to  ensure 
sustainability  in  the  medium  and  long  term.  The  government  is  continuing  its  efforts  to 
repatriate  those  who  remain  in  the  Al-Hol  and  Al-Roj  camps  in  Syria.  Possibly  over  70 
Albanian citizens are still remaining in the camps.  

The  local  dimension  of  prevention  of  radicalisation  and  the  national-local  coordination  has 
been reinforced by the creation of the regional security councils, presided by the prefects. 

Online  radicalisation,  radicalisation  in  prisons  and  terrorist  content  online  remain  major 
challenges.  Monitoring  of  online  content  poses  difficulties  as  institutional  capacities  and 
resources  are  limited.  Albania  also  needs  to  improve  its  ability  to  monitor  and  combat  the 
financing of terrorism, implementing the existing legal framework and taking into account the 
impact of new technologies (e.g. cryptocurrencies). 

Judicial cooperation in civil and criminal matters 

Judicial  cooperation 
in  civil  and 
criminal  matters  with  EU  Member 
the  European  Public 
States, 
(EPPO)  and 
Prosecutor’s  Office 
Eurojust 
broadly 
remains 
satisfactory. In 2024, the EPPO sent 
three 
legal 
assistance  to  Albanian  authorities. 
Albania  was  involved  in  152  new 
to 
cases  at  Eurojust 
organised crime, drug trafficking and 
money laundering, with a majority of 
them  (89)  opened  at  the  request  of  the  Liaison  Prosecutor.  The  number  of  Eurojust 
supported joint investigation teams that Albania participated in is 25 for the period between 
1st  March  2024  and  31st  July  2025.  Most  of  the  teams  (16)  continue to  work  in the  field  of 
narcotics. 

for  mutual 

requests 

related 

for 

The 
legal 
framework 
judicial 
in  civil  and  criminal 
cooperation 
matters  is  partially  aligned  with  the 
EU  acquis 
that 
alignment is already possible. On 13 
February  2025,  Albania  ratified  the 
Hague Convention of 2 July 2019 on 
the  Recognition  and  Enforcement  of 

the  extent 

to 

45 

 
 
Foreign Judgments in Civil or Commercial Matters (the 2019 Judgments Convention) which 
will  enter  into  force  for  Albania  on  1  March  2026.  The  2019  Judgments  Convention,  will 
strengthen cooperation between EU Member States and Albania, provide legal certainty and 
predictability  to  parties  involved  in  cross-border  transactions  and  will  enhance  access  to 
justice.  

Legal and irregular migration 

The legal framework for migration is partially aligned with the EU  acquis. The management 
of legal and irregular migration is broadly satisfactory. 

Legal alignment, strategic and institutional frameworks 

A  revised  Law  on  foreigners  was  adopted  in  June  2025.  The  implementation  of  a  national 
migration  strategy  (2024-2030)  adopted  in  May  2024  and  its  action  plan  (2024-2026)  is 
currently  being  implemented.  Continued  coordination  with  all  relevant  services  beyond  the 
Ministry of Interior is needed. The strategy includes the main priorities and goals set out in 
the  EU  action  plan  on  the  Western  Balkans  presented  by  the  Commission  in  December 
2022,  and  is  aligned  with  relevant  national  strategies  and  commitments  made  under  the 
EU’s Global Alliance to Counter Migrant Smuggling. 

Albania  continues  to  take  part  in  the  Global  Alliance  to  Counter  Migrant  Smuggling  and  is 
invited to renew its engagement at the occasion of the Global Alliance's second conference 
scheduled to take place at the end of 2025. 

Albania obtained observer status in the European Migration Network in June 2025.  

Implementation and enforcement capacity 

Albania  cooperated  with  the  EU, 
its  agencies  and  Member  States 
in  implementing  the  EU  action 
plan  on  the  Western  Balkans, 
which  helped  further  reduce  the 
number  of 
irregular  migrants 
apprehended  in  Albania.  Most 
irregular  migrants  were  Syrians, 
Pakistani or Egyptians in 2024. A 
decreasing 
irregular 
arrivals  continued  in  2025.  The 
timely 
authorities’  regular  and 
reporting  on  irregular  migration 
flows and asylum continues. 

trend  of 

Albania currently has enough reception capacity with around 600 beds, including 220 beds 
in  the  asylum  reception  centre  in  Babrru.  The  long-awaited  work  on  setting  up  separate 
reception  and  accommodation 
for  unaccompanied  minors  has  started. 
Unaccompanied children need to be included in an effective national child protection system, 
and  pre-screening  procedures  for  all  migrants  at  all  border  crossings  need  to  be 
standardised. 

facilities 

The  work  towards  an  updated  national  contingency  plan  for  the  possible  arrival  of  a 
substantial number of migrants and asylum seekers accelerated in 2025, with the assistance 
of the EU Agency for Asylum and European Border and Coast Guard Agency (Frontex) as 
well as the International Organization for Migration and the United Nations Refugee Agency. 
The contingency plan still needs to be adopted along with a corresponding budget. 

The ability of border officers to identify vulnerable applicants for international protection and 
migrants  needs  to  improve,  as  does  their  coordination  with  child  protection  and  anti-
trafficking  units.  Albania  should  increase  the  ability  to  conduct  returns  of  migrants  with  no 

46 

 
 
legal  rights  to  stay  in  the  country  and  address  shortcomings  identified  in  its  return 
mechanism. 

Albania  has  a  readmission  agreement  with  the  EU,  which  is  functioning  well,  and 
implementing  protocols,  further  facilitating  its  implementation,  signed  with  14  Member 
States.  According  to  data  provided  by  the  Member  States  to  EUROSTAT  in  2024,  15  125 
Albanian nationals were ordered to leave the EU, and 7 805 were effectively returned. The 
electronic readmission case management system (e-RCMS) with Belgium has been installed 
but has not yet been put into operation. Cooperation between Albania and Frontex on return 
operations is very good. 

reintegration  of 

returnees, 
the  most  vulnerable, 

The 
especially 
needs to improve. 

remained  very 

The number of nationals from non-
EU  countries  voluntarily  returned 
from  Albania  to  their  countries  of 
origin 
low:  24 
assisted  voluntary  returns  were 
processed  in  2024  compared  with 
9  in  2023  (and  6  in  2022).  Albania 
needs 
in 
establishing  practical  cooperation 
on returns of non-EU nationals with 
the  main  countries  of  origin  and  to 
actively step up engagement with these countries. 

to  make  progress 

Albania  should  ensure  that  legal  pathways  developed  towards  third  country  nationals 
prevent irregular secondary movements to the EU. 

Asylum 

The  legal  and  institutional  framework  is  in  place,  but  asylum  management  needs  to  be 
improved in practice. 

Institutional set-up and legal alignment 

The  Law  on  asylum  is  largely  aligned  with  the  EU  acquis.  Cooperation  with  the  European 
Union  Asylum  Agency  (EUAA)  on  its  implementation continues under the second  phase  of 
the Albania-EUAA cooperation roadmap (2024-2027) endorsed in October 2024. 

Albania has the required institutions in place to handle asylum claims. Asylum laws and its 
bylaws  still  need  to  be  implemented  effectively.  This  requires  additional  investment  in 
administrative capacity and the development of a well-functioning asylum system. 

Implementation and enforcement capacity 

Albania  remains  primarily  a  transit  country.  The  number  of  asylum  requests  decreased  in 
2024  compared  with  2023,  in  line 
with a significant drop in arrivals. Out 
of  all  arriving  migrants  apprehended 
for  the  first  time,  7.5%  lodged  an 
asylum request.  

Challenges  persist  with  the  capacity 
of  Border  and  Migration  Police  to 
identify  and  refer  people  who  could 
be in need of international protection 
to 
the  adequate  services.  The 
Directorate  for  Migration,  Asylum, 

47 

 
 
Anti-trafficking  and  Foreigners  needs  more  technical  capacity  and  human  resources  to 
assess asylum cases and make well-informed decisions. 

Since 2018, Albania has granted refugee status to only one person. In 2024, 16 people were 
granted subsidiary protection. 

Visa policy 

Albania’s  visa  policy  is  still  not  fully  aligned  with  the  EU’s,  in  particular  the  list  of  countries 
whose nationals require an entry visa. Progress towards alignment is slow. 

Albania  still  has  a  visa-free  regime  with  eleven  countries  that  are  on  the  EU  list  of  visa-
required countries, of which six enjoy permanent visa exemption and five have a temporary 
visa  waiver  lasting  from  April  to  December  (this  latter  practice  is  incompatible  with  the  EU 
acquis). In April 2025, Albania removed Belarus from the list of countries  benefiting from a 
permanent visa waiver (effective as of October 2025) and Bahrain from the list of countries 
benefiting from a temporary visa waiver., Albania committed to further alignment with the EU 
list  of  visa-required  countries.  In  July  2025,  Albania  proposed  a  roadmap  towards  full 
alignment  with  the  EU  visa  policy,  with  the  envisaged  deadlines  for  terminating  each  visa-
free regime, both permanent and seasonal, which is a positive development 

The  Commission’s  Seventh  Report  under  the  Visa  Suspension  Mechanism  of  6  December 
2024  concluded  that  Albania  had  taken  action  to  address  most  of  the  previous 
recommendations.  Albania  is  expected  to  continue  actions  to  further  reduce  unfounded 
asylum applications by Albanian nationals to EU Member States, on top of ensuring full visa 
policy alignment with the EU and proceeding to more rigorous screening of non-EU nationals 
arriving visa free in Albania. 

Schengen governance and external borders 

The  legislative  and strategic  framework  for  the management  of  external  borders  is  partially 
aligned with the EU acquis.  

The  management  of  borders  is  broadly  satisfactory.  However,  Albania  is  expected  to 
advance  the  work  towards  the  adoption  of  a  Schengen  Action  Plan  to  establish  a  robust 
national Schengen governance system.  

Legal alignment, strategic and institutional frameworks 

The revised Law on border control was adopted in June 2025. Rules on advance passenger 
information (API)  and  passenger  name records (PNR)  are  now  part  of  a separate  law  also 
adopted in June 2025.  

Implementation  of  the  Schengen  acquis  needs  to  be  further  enhanced  through  the 
development of a Schengen governance system supported by a forward-looking Schengen 
Action  Plan,  which  is  under  preparation.  Albania  has  been  invited  to  develop  a 
comprehensive needs analysis to set up a national governance framework in preparation of 
adopting and implementing a Schengen Action Plan. This would ensure efficient and holistic 
implementation  of  its  Schengen  obligations,  including  as  regards  further  investment  in 
infrastructure, equipment, staffing, and training. 

Implementation and enforcement capacity 

The implementation of the updated Frontex Status Agreement of June 2024 is progressing 
well.  

Implementation  of  the  national  integrated  border  management  strategy  2021-2027  is 
ongoing. Border police staffing was significantly increased in 2024. In 2024, Albania carried 

48 

 
 
out  1 063  joint  patrols  in  line  with  respective  protocols  with  Italy,  Montenegro,  North 
Macedonia and Kosovo*, 6% fewer than in 2023.  

Following  formal  approval  of  the  establishment  of  the  National  Coordination  Centre  for 
Integrated Border Management in December 2024, Albania is encouraged to ensure that it is 
fully functioning as soon as possible. The total information management system (TIMS) still 
suffers  from  security  and  data  protection  vulnerabilities,  which  need  to  be  urgently 
addressed. 

Euro counterfeiting (criminal law aspect) 

The  corresponding  legislation  is  broadly  in  line  with  the  EU  acquis  on  the  suppression  of 
counterfeit currency. 

All aspects of customs cooperation are covered in Chapter 29 – Customs Union. 

2.3. ECONOMIC CRITERIA 

2.3.1. The existence of a functioning market economy 

Economic governance 

The  government  remained  committed  to  maintaining  macroeconomic  stability  and 
boosting  growth.  In  2024,  the  fiscal  outturn  improved  compared  to  previous  years  and 
outperformed  budget  targets,  but  this  was  partly  the  result  of  under-executed  capital 
spending. The practice of amending the budget via normative acts rather than by using the 
regular legislative process continued (with three budget revisions in 2024 and two until July 
2025). The Medium-Term Revenue Strategy (MTRS) 2024-2027, adopted by the Council of 
Ministers in December 2024, aims to increase public revenues (by ALL 64.8 billion or about 
2.6%  of  2024  GDP)  mainly  by  improving  tax  and  customs  administration  (85%  of  the 

* This designation is without prejudice to positions on status and is line with UNSCR 1244/1999 and the ICJ 
Opinion on the Kosovo declaration of independence. 

49 

Table 19202220232024Albania - Key economic figuresGDP per capita (% of EU-27 in PPS)1)30343637Real GDP growth 3.24.84.04.0Activity rate of the population aged 15-64 (%), total68.273.275.475.7      female60.066.869.869.3      male76.580.081.082.3Unemployment rate of the population aged 15-64 (%), total13.111.310.19.4      female12.711.710.310.0      male13.410.99.98.9Employment of the population aged 15-64 (annual growth %)1.84.81.6-1.6Nominal wages (annual growth %)3.08.214.09.8Consumer price index (annual growth %)1.76.74.82.2Exchange rate against EUR128.0119.0108.8100.7Current account balance (% of GDP)-7.6-5.9-1.2-2.4Net foreign direct investment, FDI (% of GDP)7.66.65.85.4General government balance (% of GDP)-3.1-3.6-1.3-0.7General government debt (% of GDP)70.764.157.654.2Notes: 1) EurostatSources: INSTAT, Central Bank of Albania, Ministry of Finance and Eurostat2016-21 average 
 
 
 
expected  revenue  increase)  rather  than  changing  tax  policies.  Albania  submitted  its  2025-
2027  Economic  Reform  Programme  (ERP)  to  the  European  Commission  on  time  in  mid-
January  2025.  The  ERP  emphasised  the  government’s  commitment  to  maintaining 
macroeconomic stability, achieving surpluses in the primary balance and abiding to the fiscal 
rules  set  out  in  the  organic  budget  law.  Albania  also  committed  to  socio-economic  and 
fundamental reforms to accelerate growth and convergence with the EU. 

The implementation of the policy guidance set out in the conclusions of the Economic 
and  Financial  Dialogue  of  May  2024  has  been  partial.  Albania  complied  with  the  fiscal 
rules  on  the  budget  balance  and  on  public  debt  and  stepped  up  the  pace  of  fiscal 
consolidation  given  better-than-expected  economic  and  revenue  performance.  Arrears 
continued  to  build  up  throughout  2024  and,  although  the  end-of-year  target  for  their 
reduction  was  achieved,  the  reliance  on  ex post  clearance  through  budget  reallocations 
should gradually  be  phased  out.  Tax revenue  as  a share  of  GDP  increased  in 2024  and a 
stand-alone fiscal risk statement has been drafted but not published. The transparency and 
accountability of state-owned enterprises (SOEs) still needs to be improved. The authorities 
worked  on  the  public-private  partnerships  (PPPs)  law,  but  the  draft  law  is  pending 
parliamentary approval. PPPs are not yet integrated into the National Single Project Pipeline. 

Macroeconomic stability 

by 

economic 

robust 
good 
and 

The  economy  maintained  a  strong  growth  momentum.  Following  4%  GDP  growth  in 
2023, 
expansion 
remained  strong  at  4%  in  2024, 
domestic 
driven 
tourism 
demand, 
performance 
sustained 
construction  activity.  The  rise  in 
consumption  was 
household 
real 
supported  by 
wages  amid  slowing 
inflation, 
and  by  stronger  credit  growth. 
Public  consumption  growth  was 
the 
elevated  on 
second phase of the public wage 
the 
reform.  Job  creation 
services  sector  supported  employment  growth.  Exports  of  services  expanded,  but  goods 
exports  fell  significantly  due  to  the  appreciation  of  the  lek  and  an  unfavourable  external 
environment.  Overall,  the  contribution  of  net  exports  to  GDP  growth  was  negative.  Most 
economic  sectors  recorded  positive  output  growth,  but  agriculture  and  industry  contracted. 
Economic activity continued to expand in 2025, with GDP registering an annual growth rate 
of 3.4% in the first quarter. Albania’s GDP per capita in purchasing power standards stood at 
37% of the EU-27 average in 2024 compared to 30% in 2019. 

the  back  of 

increasing 

in 

The  current  account  deficit  remained  moderate.  It  increased  to  2.4%  of  GDP  in  2024, 
following  a  historic  low  of  1.2%  of  GDP  in  2023.  The  widening  of  the  deficit  in  2024  was 
primarily  driven  by  a  rise  in  the  goods  trade  deficit,  due  to  a  decline  in  exports  and  a 
continued  increase  in  imports  driven  by 
the  rapid  expansion  of  domestic  demand. 
The  services  balance  remained  in  robust 
surplus,  driven  by  tourism.  The  surplus  of 
the  secondary  income  balance  fell,  with 
remittances declining from 4.3% of GDP in 
2023 
their 
nominal  increase).  The  primary  income 
balance  was  slightly  negative  at  0.8%  of 
GDP.  In  the  first  quarter  of  2025,  the 

in  2024  (despite 

to  4.2% 

50 

 
 
current  account  deficit  narrowed,  with  its  rolling  4-quarter  total  standing  at  2.1%  of  GDP 
(mainly due to an increase in exports of goods and services). Net foreign direct investments 
(FDI)  inflows  remained  the  primary  source  of  financing  the  current  account  deficit  in  2024. 
They grew by 7% year on year in 2024, but their share of GDP declined to 5.4%, from 5.8% 
one  year  earlier.  The  real  estate  sector  remained  the  largest  recipient  of  FDI  flows. 
International  reserves  increased  to  EUR 6.2  billion  in  December  2024,  covering  seven 
months  of  imports  of  goods  and  services.  The  external  debt-to-GDP  ratio  has  been  on  a 
declining trend and fell by 0.7 pps to 46.8% in 2024. 

Inflation  fell  below  the  3%  central  bank target.  Annual  inflation  averaged 2.2%  in 2024, 
down from 4.8% in 2023 and a high of 6.7% in 2022. This steady disinflation has been driven 
by  lower  food  and  commodity  prices  and  an  appreciating  domestic  currency.  Imported 
inflation  reached  historically  low  levels  in  2024  amid  exchange  rate  appreciation.  On  the 
other  hand,  domestic  inflationary  pressures  have  moderated  more  gradually  amid  strong 
demand  and  a  tight  labour  market.  Core  inflation  also  fell  in  2024.  The  Bank  of  Albania 
implemented two reductions in the key policy interest rate in 2024, lowering it from 3.25% to 
2.75%,  and  a  further  cut  in  July  2025,  to  2.5%.  In  the  first  two  months  of  2025,  inflation 
recorded a slight decline to 1.9% and then picked up to 2.5% in July 2025. 

Fiscal 
consolidation 
accelerated  in  2024,  but  the 
budget deficit is set to increase 
markedly  in  2025.  The  budget 
deficit  fell  from  1.3%  of  GDP  in 
2023  to  0.7%  of  GDP  in  2024, 
the 
significantly  undershooting 
deficit  target  of  2.3%  of  GDP. 
While  revenues  performed  well, 
this fiscal outcome was partly the 
result  of  public  investment  under-
execution.  The  primary  balance 
surplus stood at 1.4% of GDP (up 
from  0.7%  of  GDP  in  2023),  supporting  the  decline  in  the  public  debt  ratio,  which  fell  by 
3.4 pps  to  54.2%  of  GDP  in  2024.5  However,  gross  financing  needs  remain  elevated.  The 
2025 budget, adopted in December 2024, projects the deficit to increase to 2.6% of GDP. In 
the first eight months of 2025, the budget execution showed a fiscal surplus of 1.6% of GDP. 
Tax  expenditures,  estimated  at  4-5%  of GDP 6,  and  high  levels  of  informality  still  constrain 
the  revenue  base.  As  part  of  the  MTRS  implementation,  in  June  2025  the  government 
finalized a report on existing tax exemptions, but the assessment has not been made public 
and concrete proposals to eliminate those exemptions that are not well justified have not yet 
been developed. In 2025, Albania amended the income tax law and extended its significant 
tax  incentives  for  luxury  hotels7,  which  goes  against  Albania’s  commitment  to  reduce  tax 
expenditures. A higher public-revenue-to-GDP ratio is crucial to sustain investments in both 
physical and human capital while firmly anchoring the downward trend in public debt. 

5  In  February  2025,  Albania  issued  its  seventh  Eurobond,  amounting  to  EUR  650  million,  with  a  ten-year 
maturity  and  a  coupon  rate  of  4.75%.    In  March  2025,  S&P  upgraded  Albania’s  sovereign  debt  credit  rating 
from BB- to BB. The public debt-to-GDP ratio continued to decline in the first half of 2025.   
6 According to national sources, such as the MTRS, which makes references to the ‘Tax Expenditures 2021-
2022’ report. 
7 Under the recently amended income tax law, four- and five-star establishments are exempt from corporate 
income tax for a 10-year period, provided they meet specific investment thresholds and obtain a special status 
as  defined  in  the  Law  on  tourism.  These  hotels  also  benefit  from  exemptions  on  property  tax  and 
infrastructure impact tax and enjoy a reduced VAT rate of 6% on all services offered. Parliament extended the 
deadline for the application period for these tax breaks from 2024 to 2026. 

51 

 
 
 
The  regulatory  framework  for  public  investment  management  (PIM)  has  been 
improved  in  recent  years,  but  challenges  remain.  In  February  2024,  the  government 
updated the PIM guidelines introducing clarifications, including on the role of the Ministry of 
Finance  in  certain  situations,  and  that  of  the  Agency  for  Strategic  Planning  (SASPAC). 
Changes  to  the  legal  framework  were  also  made  in  March  2025,  when  the  government 
approved  amendments  to  the  Decision  of  the  Council  of  Ministers  (DCM)  No 887/2022  on 
PIM procedures, including quarterly updates to the National Single Project Pipeline (NSPP) 
and  increased  flexibility  for  feasibility  studies.  Yet,  the  planning  and  execution  of  public 
investment  projects  continues  to  face  significant  obstacles  in  the  form  of  capacity 
constraints, incomplete project proposals, delays and cost overruns, and an occasional lack 
of  adherence  to  procedures.  The  recurrent  under-execution  in  capital  spending  is  a  clear 
indication that shortcomings exist in the operationalisation of the new legal framework and of 
the NSPP. 

Albania  implemented  an  overall  appropriate  macroeconomic  policy  mix.  It  helped 
sustain  macroeconomic  stability  and  supported  economic  growth.  On  the  fiscal  side,  the 
budget deficit narrowed, the surplus in the primary balance increased while the public debt 
ratio continued its downward path. As disinflation accelerated, with inflation falling below the 
central  bank  target,  monetary  policy  was  eased.  At  the  same  time,  bank  supervision  has 
been  prudent,  with  the  countercyclical  capital  buffer  raised  twice  amid  strong  credit 
expansion. 

Functioning of product markets 

Business environment 

The business environment remains challenging. Businesses welcome the fact that there 
has been some progress on the justice reform and anti-corruption matters, but lengthy court 
procedures  persist  (see  Chapter  23  –  Judiciary  and  Fundamental  Rights).  The  business 
environment also remains affected by weaknesses in the rule of law, informality and limited 
access  to  finance  for  SMEs,  particularly  farmers.  Bureaucracy  and  lengthy  licensing 
procedures,  combined  with  problems  of  consistency  in  case  law,  create  burdens  for 
businesses. Clear policies that encourage effective tax compliance and reduce  tax evasion 
would  help  formalise  more  businesses  and  broaden  the  tax  base.  Granting  of  strategic 
investor  status  and  PPP/concession  contracts  are  often  considered  non-transparent  by 
businesses.  The  country  also  struggles  with  incomplete  and  inconsistent  property  title 
registration,  leading  to  uncertainty  and  disputes  over  ownership  which  deter  investment. 
Although  Albania  has  made  efforts  to  modernise  its  property  system  through  cadastre 
digitalisation, progress has been slow and uneven. Despite efforts towards deregulation and 
facilitation  of  business-related  services,  the  responsiveness  of  public  institutions  to  deliver 
efficient services is slow, while service delivery remains heavily centralised in Tirana, leaving 
rural  regions  underserved.  The  effectiveness  of  public  consultation  processes  continues  to 
show room for improvement. 

State influence on product markets 

The adoption of a unified investment law has been further postponed, while the Law 
on  strategic  investment  has  been  extended  until  2026.  Work  on  establishing  a 
harmonised legal framework for investments started years ago but progress has stalled. This 
initiative  seeks  to  replace  the  existing  Law  on  strategic  investment,  providing  a  more 
cohesive  and  transparent  legal  environment  for  both  domestic  and  foreign  investors8. 
Meanwhile,  in  February  2025,  Parliament  amended  the  Law  on  strategic  investment, 
extending its effects until 2026, and included in the strategic investor category investments 
worth  EUR 50  million  or  more,  irrespective  of  the  sector,  provided  they  received  prior 

8 Under the Reform Agenda, Albania committed to analyse the current legal framework on FDIs, and draft and 
adopt a unified investment law by December 2026. 

52 

 
 
 
approval  from  the  line  Ministry.  While  these  measures  are  designed  to  boost  economic 
activity9,  they  have  also  raised  concerns  about  transparency  and  equitable  access, 
favouritism and lack of competitive processes. 

The  Bank  of  Albania  introduced  an  SME  financing  programme.  In  early  2025,  in 
collaboration with the government, the central bank launched a financing scheme to improve 
credit  access  for  SMEs,  particularly  in  agriculture,  which  is  a  sector  that  accounts  for  only 
2%  of  loans  to  businesses.  The  Bank  of  Albania  aimed  to  finance  the  programme  with 
EUR 250 million,  offering  loans  through  commercial  banks.  It  also  included  a  sovereign 
guarantee  covering  up  to  70%  of  loan  principals.  Interest  rates  are  capped  at  3.5%  or 
lowered  to  2%  if  the  sovereign  guarantee  applies.  The  deadline  for  applications  is  end  of 
2025. 

Privatisation and restructuring 

Regulation  allowing  for  privatisation  of  public  assets,  land  or  movable  assets,  has 
been amended. Albania introduced several amendments to the regulation that provides for 
the  privatisation  of  public  assets.  Under  the  revised  rules,  entities  that  have  secured  long-
term  lease  contracts  for  public  assets  at  symbolic  rates  (e.g.  EUR 1)  and  used  the  state-
owned  assets/land  for  over  a  decade  can  purchase  those  assets  under  certain  conditions. 
The  implementation  of  this  initiative  should  ensure  equal  treatment  of  investors.  The 
government also adopted regulations to facilitate the transfer of public assets to the Albanian 
Investment Corporation for further development and revitalisation programmes in partnership 
with  private  investors.  In  March  2025,  Parliament  adopted  the  ‘Mountain  package’ 
legislation.  This  initiative  aims  to  stimulate  economic  growth  in  Albania’s  mountainous 
regions by promoting investments in sectors like tourism and agriculture, by providing fiscal 
incentives  and  by  offering  some  benefits  on  land  acquisition  for  those  investing  in  these 
areas. It is essential to safeguard Albania’s ecological and biodiversity values and ensuring 
full transparency throughout the process. 

SOEs  pose  fiscal  risks,  and  their  governance  still  needs  to  be  improved.  SOEs,  in 
particular  the  state-owned  energy  utilities,  receive  loans  from  the  central  government  but 
repayment is unpredictable, while the financial viability of some of these companies is weak. 
Due to the risks posed to the budget, monitoring SOEs is crucial. The Fiscal Risk Unit of the 
Ministry of Finance expanded the number of monitored SOEs to 12. Technical assistance is 
also  ongoing  to  improve  SOEs’  financial  reporting  practices  and  the  monitoring  of  their 
financial  performance.  The  publication  of  annual  financial  performance  reports  by  SOEs 
should  become  standard  practice,  while  strengthening  SOEs  oversight  remains  essential. 
Weak  governance  of  SOEs  contributes  to  market  distortions  and  unfair  competitive 
conditions10. =. 

Functioning of the financial market 

The banking sector remained well-capitalised and profitable, while the non-performing 
loans ratio decreased. At aggregate level, banks had a capital adequacy ratio of 19.8% in 
December 2024, which is well above the Albanian minimum requirement of 12%. Following 
very good performance in 2023, banks’ profitability continued to improve in 2024, supported 
by  increasing  net  interest  income,  higher  income  from  fees  and  commissions,  and  the 
decrease in loan-loss provisions. The non-performing loans ratio stood at 4% in July 2025, 
down  from  4.7%  a  year  earlier.  Driven  by  higher  demand  and  favourable  financing 
conditions,  private  sector  credit  accelerated  in  2024.  Nevertheless,  the  level  of  financial 
intermediation remained low – the share of private sector loans in GDP stood at 33% in the 

9 The measures also strengthen the role of the Albanian Investment Development Agency in scrutinising and 
vetting investors. 
10  More  details  on  key  SOE  issues  and  developments  can  be  found  in  the  OECD’s  Western  Balkans 
Competitiveness Outlook 2024: Albania. 

53 

 
 
 
first half of 2025. The high share of government securities among banks’ assets continues to 
expose them to sovereign risk. Good progress has been made in collecting data on banks’ 
exposure  to  the  real  estate  sector  and  in monitoring  credit  standards  for  real  estate  loans. 
The  Bank  of  Albania  took  new  borrower-based  macroprudential  measures  to  address 
potential risks in the real estate sector. It has also increased the countercyclical capital buffer 
to  0.5%  (effective  from  December  2025).  Efforts  to  strengthen  oversight  of  non-bank 
financial institutions should continue.  

In  March  2025,  the  law  establishing  the  Albanian  Development  Bank  as  a  deposit-
taking institution was adopted. The law raises major concerns regarding compliance with 
EU competition and State aid rules in the field of banking. The development bank must have 
an  operational  framework  that  mitigates  moral  hazards  and  fiscal  risks  from  state 
guarantees, and complies with best practices in terms of governance as well as appropriate 
supervision  and  regulation  applicable  to  other  deposit-taking  institutions,  to  ensure 
transparency, sound lending practices, adequate deposit protection and a level playing field 
in the banking sector. 

Functioning of the labour market 

The  labour  market  registered  positive  developments,  but  it  faces  structural  issues. 
Albania’s  labour  market  exhibited  notable  improvements  in  2024,  with  an  increased 
employment rate (a 1.5 pps year-on-year increase to 68.3% in Q4-2024) and higher wages, 
alongside a decline in the unemployment rate (a 0.6 pps year-on-year drop to 9.6% in Q4-
2024)11.  The youth unemployment rate  also  improved compared to one  year  earlier, falling 
from  21.2%  to  19.1%,  but  it  remains  elevated.  The  Youth  Guarantee  Scheme  piloting  in 
three  municipalities  was  extended  until  2027.  Informal  employment  remains  an  issue,  with 
many  workers  lacking  formal  contracts, 
social  security,  and  legal  protections, 
while  the  underreporting  of  wages  is 
eroding 
pensions. 
widespread, 
Emigration, 
skilled 
especially 
workers,  exacerbates  labour  shortages 
in  key  sectors,  contributing  to  a  brain 
drain.  Insufficient  active  labour  market 
policies  hinder  workforce  adaptability 
and  limit  opportunities  for  higher-quality 
employment. The coverage of Albania’s 
remains 
social  assistance 
inadequate.  The  tripartite  collaboration 
between  the  State  Labour  and  Social 
Services  Inspectorate,  trade  unions  and  employer  organisations  remains  weak.  Albania 
adopted in June 2025 a policy document on aging and an action plan for 2025-2030. 

system 

of 

2.3.2. The capacity to cope with competitive pressure and market forces within the EU 

Education and innovation 

The  education  system  faces  challenges,  hindering  the  build-up  of  a  skilled  and 
competitive  workforce.  Albania  continued  to  implement  the  National  Education  Strategy 

11  Data  and  labour  market  indicators  covering  2023  and  2024  have  been  revised  and  calibrated  using  the 
updated resident population according to the results of the 2023  population and housing  census. A reduced 
denominator (15-64 year working age population) contributed to the rise in the employment rate. According 
to  the  census,  the  population  decreased  by  14%  between  2011  and  2023,  from  2.8  million  to  2.4  million 
residents. Population projections show that Albania is likely to record a large fall in population over the next 
three  decades  (see  United  Nations,  Department  of  Economic  and  Social  Affairs,  Population  Division  (2024). 
World Population Prospects 2024). 

54 

 
 
 
2021-2026,  which  aims  to  improve  quality  of  education  and  access  and  adaptation  to  the 
labour market. Nevertheless, the education system is faced with low educational attainment 
and  high  dropout  rates,  particularly  in  rural  areas  and  among  marginalised  communities. 
Albania’s not in education, employment, or training (NEET) rate for youth aged 15-29 stands 
at  approximately  24%  in  2023,  significantly  higher  than  the  EU  average.  The  quality  of 
education is often hindered by outdated curricula, insufficient teacher training and outdated 
infrastructure.  Furthermore,  there  is  limited  access  to  early  childhood  education.  The 
education system also struggles with inclusivity, particularly for children with disabilities and 
those  from  disadvantaged  backgrounds.  The  lack  of  effective  vocational  education  and 
training  (VET)  hinders  workforce  adaptability  and  limits  opportunities  for  higher-quality 
employment.  Nevertheless,  efforts  were  made  to  address  some  weaknesses,  by  updating 
curricula,  introducing  traineeship  programmes,  and  piloting  an  apprenticeship  programme 
(work-based learning) (See Chapter 26 – Education).  

Public spending on research and development (R&D) is limited. Albania aims to spend 
1%  of  GDP  on  R&D  in  2030,  but  currently  figures  are  way  below  the  official  target.  In 
December 2024, Albania adopted the Strategy on Innovative Entrepreneurship. Besides 
increasing  public  R&D  expenditure,  further  efforts  are  needed  to  incentivise  businesses  to 
increase their R&D expenditure and encourage cooperation between the private sector and 
universities. 

Physical capital and quality of infrastructure 

Transport  infrastructure  development  is  advancing.  Albania  continued  its  public 
investment  in  infrastructure,  mainly  roads,  but  also  railways.  Progress  has  been  made  on 
major highways such as the Adriatic-Ionian Highway and Corridor VIII, which are part of the 
trans-European  transport  network  (TEN-T).  The  construction  of  the  Tirana–Durrës  railway 
and  the  railway  connection  to  the  airport  is  ongoing  (approx.  80%  complete),  while  the 
construction of the new airport in Vlora through a concessionary contract is in its final stage. 
According to the authorities, all transport infrastructure projects that are part of the TEN-T for 
all modes of transport are included in the Albanian NSPP. While infrastructure projects are 
advancing, gaps remain, and the recurrent issue of the under-execution of public investment 
is slowing down the build-up of the capital stock. 

in  digital 

infrastructure  advanced 

the 
Investment 
authorisation process for 5G services, granting licences to two mobile operators The number 
of  broadband  subscribers  grew  by  10%  compared  to  2023,  and  the  mobile  broadband 
penetration rate increased by 15.4%. Several operators reportedly upgraded their networks 
to  deliver  faster  internet  services,  primarily  through  advanced  fibre-optic  infrastructure 
capable of supporting high and very high-speed data transmission. 

in  2024.  Albania  completed 

Steps have been taken to improve energy efficiency. In June 2025, Parliament approved 
a  Law  on  energy  performance  of  buildings.  Albania  also  approved  a  long-term  renovation 
strategy focusing on improving energy efficiency in buildings and decarbonising the energy 
sector,  including  also measures  to  reduce  greenhouse  gas  emissions,  integrate  renewable 
energy and improve energy security (see Chapter 15 – Energy).  

Sectoral and enterprise structure 

The  structure  of  the  economy  remains  similar  to  the  previous  year.  The  structural 
survey  of  enterprises  shows  that,  in  2023,  micro,  small,  and  medium-sized  enterprises 
dominated  Albania’s  economy,  comprising  99.9%  of  all  enterprises.  These  businesses 
employed  82.5%  of  the  total  workforce  and  contributed  78.2%  of  the  total  value  added  by 
non-agricultural  sectors.  According  to  the  2023  data  on  the  trade  in  goods  by  enterprise 
characteristics, SMEs accounted for 65% of total goods exports, marking a decline of 8.9% 
compared  to 2022.  The  number  of  newly  registered  foreign  companies  (with  100%  foreign 
ownership)  reached  1 423  in  2024,  reflecting  an  11%  increase  compared  to  the  previous 
year. 

55 

 
 
Economic integration with the EU and price competitiveness 

The  EU  remains  Albania’s  main  trading  and  investment  partner.  Trade  openness  (the 
sum of total exports and imports as a share of GDP) declined from 82.4% in 2023 to 79.5% 
of GDP in 2024, as exports of goods fell. The EU remained Albania’s main trading partner. In 
2024, the  EU  accounted  for  57.4%  of  Albania’s goods trade,  absorbing 71.7%  of  Albania’s 
merchandise  exports  and  providing  51.5%  of  its  goods  imports.  Italy  (43.7%),  Kosovo 
(9.9%),  Greece  (6.3%),  and  Germany  (5.9%)  were  the  leading  export  destinations.  The 
country’s  main  import  partners  were  Italy  (21.1%),  China  (10.9%),  Türkiye  (10.8%)  and 
Greece (7.6%). The EU also remains the main source of FDI inflows, while the EU’s share of 
FDI  stocks  stood  at  54.1%  (from  54.4%  in  2023).  Albania’s  price  competitiveness 
deteriorated, as reflected in the appreciation of the real effective exchange rate, the increase 
in nominal wages and lower goods exports. Manufacturing exports are sensitive to exchange 
rate appreciation, due to their low value added and businesses’ low pricing power. They are 
outweighed  by  services  exports  (in  particular  travel  services,  which  more  than  doubled  in 
value  between  2019  and 2024),  which  provide some  80%  of  Albania’s  total  exports.  SMEs 
accounted for 69% of total goods exports, marking a decrease of 10.3% compared to 2023. 

2.4. PUBLIC PROCUREMENT, STATISTICS, FINANCIAL CONTROL 

Chapter 5: Public procurement 

EU rules ensure that public procurement of goods, services and works in any Member State 
is  transparent  and  open  to  all  EU  companies  on  the  basis  of  non-discrimination  and  equal 
treatment. 

Institutional set-up and legal alignment 

The legal framework on public procurement is largely aligned with the 2014 EU Directive on 
public procurement and procurement of utilities. A number of implementing legislations were 
adopted in September 2024 to implement the amended Law on public procurement (PPL). 

The  transitional  provision  in  the  new  PPL  authorising  central  government  institutions  to 
negotiate and conclude international consultancy agreements in ‘areas of strategic interest’, 
thus  exempting  them  from  opening  competition,  continues  to  raise  concerns  over  its 
compliance with the EU acquis and with the Stabilisation and Association Agreement. 

The Law on concessions and public-private partnerships (PPPs) is partially aligned with the 
EU acquis. Work on a substantial revision of the PPP law with a view to aligning it with the 
EU acquis has not yet been concluded. 

Implementation and enforcement capacity 

Albania’s  public  procurement  market  represented  16.5%  of  GDP  in  2024  (compared  to 
6.7% of GDP in 2023). The use of negotiated procedures without prior publication reduced in 
2024,  both  in  number  of  procedures  (2.3%  of  all  procedures  from  2.9%  in  2023)  and  in 
related value (0.4% of total value from 2% in 2023). There was a significant increase in new 
framework  contracts;  both  in  numbers  (1 601  in  2024,  from  767  in  2023)  and  in  terms  of 
value.  This  is  attributed  in  part  to  the  start  of  operations  of  the  newly  set-up  Central 
Procurement Organisation. 

56 

 
 
The application of the most economically advantageous tender criteria (MEAT) for the award 
of  public  procurement  contracts  increased  in  2024,  both  in  terms  of  awarded  tenders  in 
which it was used (4.8% in 2024 compared with 3.6% in 2023,), and particularly in terms of 
value of associated contracts (41% in 2024 compared with 20.3% in 2023). PPA has issued 
new guidelines on the use of MEAT in September 2024 and has increased related training. 

The  use  of  new  PPPs  and  concessions  remains  at  very  low  levels.  In  2024,  only  one 
procedure was launched and none was awarded.  

The  contracting  authorities  need  to  continue  to  build  capacity  to  manage  public 
procurement processes. Work has started on preparation of technical specifications for an 
upgrade of the electronic procurement system. Ongoing training continued with 3 139 (247 in 
2023)  participants  being  registered  from  443  (98  in  2023)  central,  local  and  independent 
institutions and private entities in 2024. 

On  prevention  of  corruption  in  public  procurement,  Albania  should  focus  on  further 
strengthening the functioning of the overall system to increase competition, compliance and 
professionalisation. 

Efficient remedy system 

The  constitution  and  the  PPL  contain  provisions  on  the  right  to  legal  remedy  that  are 
mostly  in  line  with  the  directives  on  remedies.  The  implementation  capacity  of  the  State 
Appeal  Commission  (SAC)  needs  to  be  further  strengthened  in  view  of  the  significant 
number  of  appeals  it  receives  (1 151  in  2024,  1 019  in  2023).  In  2024,  the  Public 
Procurement  Commission  (PPC)  made  1050  decisions,  42  of  which  were  challenged  in 
court. 

Chapter 18: Statistics 

European  statistics  are  developed,  produced  and  disseminated  by  EU  Member  States, 
guided by the principles and quality criteria set out in the Regulation on European statistics, 
such  as  professional  independence,  impartiality,  reliability,  accessibility  and  statistical 
confidentiality.  Common  rules  are  provided 
the  methodology,  production  and 
dissemination of statistical information, which are further specified in sectoral legislation that 
constitute the EU acquis on statistics. 

for 

On  the  statistical  infrastructure,  Albania’s  legislation  is  in  line  with  European  standards 
and respects the principles of European Statistics Code of Practice, and most classifications 
are in line with EU standards. Staff posts increased to 260 (+24) and recruitment is ongoing, 
but  INSTAT  continues  to  face  capacity  constraints  and  staff  turnover.  INSTAT  needs  to 
continue investing in its IT infrastructure, particularly on cybersecurity. 

On  macroeconomic  statistics,  Albania  completed  its  benchmark  revision  of  annual  and 
quarterly national accounts from 1995, and revised government finance statistics (GFS) for 
the  time  series  2010-2023.  Further  progress  is  needed  to  compile  and  transmit  data  fully 
consistent  with  ESA  2010.  Further  efforts  are  in particular  needed  to compile  and  transmit 
excessive deficit procedure (EDP) and GFS data consistent with ESA 2010 and to address 
observed  anomalies  in  reported  data.  In  addition,  the  labelling  of  GFS  data  submitted  to 
Eurostat  as  “non  publishable”  continues  to  raise  strong  concerns  on  transparency.  Data 
gaps  remain  in  the  areas  of  statistics  of  R&D,  international  trade  in  goods,  foreign  direct 
investment and the international investment position. 

On  business  statistics,  short-term  statistics  are  produced  but  some data sets  are  still  not 
transmitted to Eurostat. 

On social statistics, final census results at different territorial levels were released in 2024. 
Thematic  analysis  of  census  data  should  continue.  The  2021  EU-Labour  Force  Survey 
methodology needs to be implemented and regular data transmission to Eurostat restored. 
Crime statistics are published yearly. 

57 

 
 
Agricultural statistics are partly aligned with the EU acquis. The agricultural census has 
been postponed to 2026 and work should continue to update work plan and budget, ensure 
the adoption of the agricultural census law, finalise the questionnaire and ensure the census 
logistics organised. 

the  EU  acquis.  Despite  some 
Environmental  statistics  are  partly  aligned  with 
improvements in the area further efforts are needed to comply with the EU  acquis. Albania 
needs  to  start  the  compilation  of  Environmental  Goods  and  Services  Sector  Accounts  and 
Environmental  Protection  Expenditure  Accounts.  Energy  statistics  are  partly  aligned,  and 
further work is required to reach full alignment with the EU acquis. Significant efforts should 
be made on transport statistics, including the organisation of the full scale survey on road 
freight transport in 2026. 

Chapter 32: Financial control 

The  EU  promotes  the  reform  of  national  governance  systems  to  improve  managerial 
accountability,  sound  financial  management  of  income  and  expenditure,  and  external  audit 
of public funds. The financial control rules further protect the EU’s financial interests against 
fraud in the management of EU funds and the euro against counterfeiting. 

Public internal financial control (PIFC) 

A specific strategic framework for PIFC is in place. PIFC reports continued to be prepared 
annually. The internal control system remains partially effective and further efforts remain 
needed  to  advance  the  implementation  of  PIFC  reforms.  Risk  management  remains  at  an 
early stage. 

Managerial  accountability  is  embodied  in  the  legislation.  However,  the  number  of 
administrative decisions delegated to lower levels remains very limited in practice. 

The  legislative  framework  on  internal  audit  is  in  line  with  international  standards.  The 
implementation  of  the  new  system  for  the  advanced  certification  of  auditors  continued.  In 
2024, the Central Harmonisation Unit assessed compliance with manuals and instructions 
of  the  internal  audit  activities  of  20  internal  audit  units.  It  found  that  37%,  were  partially  or 
fully compliant, similar as in 2023. 

External audit 

Albania’s legal framework safeguards the independence of the State Audit Institution. The 
institutional capacity of the State Audit Institution stood at 216 staff out of a foreseen 243, 
broadly  similar  as  in  2023.  The  quality  of  audit  work  continued  to  comply  with  the 
standards  of  the  International  Organisation  of  Supreme  Audit  Institutions  (INTOSAI).  The 
impact  of  audit  work  progressed.  99%  of  recommendations  issued  in  2024  audits  were 
accepted,  of  which  47%  were  fully  or  partially  implemented.  Albania  should  improve 
implementation  of  external  audit  recommendations.  The  parliamentary  subcommittee  on 
audit has held several hearings during the reporting period and issued resolutions in relation 
to a number of audits by the Albanian Supreme Audit Institution (ALSAI), which is a positive 
trend. 

Protection of the EU’s financial interests 

Albania  has  some  level  of  alignment  with  the  EU  acquis  in  the  area.  However,  full 
harmonisation  of  its  legislation  with  the  EU  Directive  on  the  fight  against  fraud  to  the  EU’s 
financial interests by means of criminal law remains needed. A national anti-fraud strategy 
was  adopted  in  May  2025.  The  national  anti-fraud  coordination  service  network  met 
regularly.  Yet,  there  is  the  need  to  clarify  the  role  of  the  authorities  of  the  anti-fraud 
coordination service (AFCOS) network in relation to protecting EU’s financial interests. 

Further  efforts  remain  needed  by  Albania  to  develop  a  solid  track  record  on  cooperation 
with the European Commission on investigations and on reporting of irregularities as well 
as  effective  operational  assistance  to  the  European  Anti-Fraud  Office  (OLAF).  In  2024, 

58 

 
 
Albania reported 60 cases of irregularities via the Irregularity Management System. 

Protection of the euro against counterfeiting 

No developments were reported regarding alignment with the EU acquis on the definition 
of counterfeit banknotes and coins on the procedures for gathering, storing and withdrawing 
them  from  circulation.  In  2024,  Albania  withdrew  from  circulation  573  euro  coins  and  214 
euro banknotes, representing 82% of all seized counterfeit currencies. 

3. GOOD NEIGHBOURLY RELATIONS AND REGIONAL COOPERATION 

Good  neighbourly  relations  and  regional  cooperation  form  an  essential  part  of  Albania’s 
European  integration  process.  They  contribute  to  stability,  reconciliation  and  a  climate 
conducive to addressing open bilateral issues and the legacies of the past. 

Albania continued to actively engage in a number of regional cooperation initiatives, such 
as  the  Central  European  Free  Trade  Agreement  (CEFTA),  the  Energy  Community,  the 
Transport  Community,  the  South-East  European  Cooperation  Process  (SEECP)  and  the 
Regional Cooperation Council (RCC). Albania held the chairmanship-in-office of the SEECP 
in 2024-2025, which concluded with a Summit in Tirana on 16 June 2025. Albanian customs 
chaired  the  CEFTA  sub-committee  on  customs  and  rules  and  organised  in  June  in  Tirana 
the  Second  High-Level  Conference  of  Customs  Directors  General  of  the  Western  Balkans 
and  EU  Member  States  reaffirming  the  commitment  to  Deeper  Economic  Integration  and 
Customs Cooperation.  

Albania has actively engaged in the regional dimension of the Growth Plan for the Western 
Balkans,  participating  in  both  ministerial  and  leaders’  meetings,  and  hosted  the  February 
leaders’  meeting  in  Tirana.  The  hosting  of  the  European  Political  Community  Summit  on 
16 May 2025 was a further sign of Albania’s commitment to regional cooperation.  

On  the  Common  Regional  Market  (CRM)  at  the  Berlin  process  summit  in  London  in 
October 2025, the leaders of the region endorsed a revised and streamlined action plan to 
implement the Green Agenda for the Western Balkans, adopted a Western Balkans Climate 
Adaptation Roadmap and committed to make progress in the promotion of regional mobility 
and implementation of relevant regional agreements and CEFTA decisions. Albania signed 
the  fifth mobility  agreement  on  access to  higher education  and admission to  studies in  the 
Western Balkans and adopted the CRM action plan 2025-2028. Albania has ratified all five 
regional mobility agreements. The roadmap for roaming between the Western Balkans and 
the  EU  entered  the  first  phase  of  implementation.  Twelve  major  decisions  were  agreed  by 
the  CEFTA  Joint  Committee  in  October  2024,  following  an  agreement  between  CEFTA 
members that allowed decision making in the organisation to be unblocked. A decision was 
finally taken on the appointment of a director for CEFTA after the post had been vacant for 
two and a half years. This had a significant negative impact of the work of CEFTA and, for a 
short period, saw the Commission suspend its support. 

Albania generally  maintains  good  bilateral relations  with other  enlargement  countries  and 
neighbouring EU Member States. 

Relations with Bosnia and Herzegovina were upgraded after Albania opened an embassy 
in Sarajevo in May 2025, and the two countries’ representatives continue to make high-level 
visits.  

Albania’s  relations  with  Kosovo  remained  good.  In  December  2024,  the  parliaments  of 
Albania and Kosovo held a joint plenary session in Pristina, with the participation of the two 
Prime  Ministers.  The  two  parliaments  adopted  a  joint  declaration  pledging,  among  other 
things,  to  coordinate  their  national  agendas  with  the  goals  of  Albania’s  EU  accession  and 
demanded  serious  engagement  to  advance  Kosovo-Serbia  dialogue  in  close  cooperation 
with  the  EU  and  the  US.  In  March  2025,  Albania  signed  a  joint  declaration  on  defence 
cooperation with Kosovo and Croatia.  

59 

 
 
Relations with Montenegro remained good. High-level and political contacts continued. 

Relations with North Macedonia remained good. Several bilateral agreements are in place 
on joint cooperation in a number of areas, including security, defence, infrastructure, energy, 
education, science and culture.  

Relations with Serbia remained good overall, with regular high-level political contacts.  

Relations with Türkiye were further strengthened with a visit of the Turkish President to the 
country  in  October  2024.  During  this  visit,  a  joint  declaration  on  deepening  the  strategic 
partnership was signed. Türkiye provided regular support to modernise the Albanian armed 
forces including donations in military drones. In July 2025, Albania and Türkiye signed a new 
protocol  on  defence  cooperation,  enhancing  the  existing  cooperation  framework  Türkiye 
continued to put pressure on Albania to deliver on dismantling the ‘Gülen’ movement in the 
country.  During  his  visit  to  Albania,  the  Turkish  President  inaugurated  the  Namazgah 
mosque  in  central  Tirana,  which  is  now  the  largest  mosque  in  the  Balkan  region.  A 
delegation  from  Türkiye’s  Grand  National  Assembly’s  Foreign  Affairs  Committee  visited 
Albania. 

Relations  with  Georgia  remained  good.  Bilateral  relations  are  active  in  international  fora. 
Albania supports Georgia’s territorial integrity and sovereignty. 

Relations with the Republic of Moldova remained good. In May 2025 Albania and Moldova 
signed a Memorandum of Understanding to enhance cooperation on EU accession.  

Relations  with  Ukraine  further  intensified  in  the  reporting  period,  with  the  opening  of  the 
Albanian Embassy in Kyiv at the end of 2024. In September 2024, Albania signed the Joint 
Declaration of Support for the Recovery and Reconstruction of Ukraine along with 30 other 
countries. A bilateral agreement on security cooperation and long-term support was signed 
in  January  2025.  Albania  participated  in  the  Ukraine–Southeast  Europe  Foreign  Ministers’ 
meeting  which  took  place  in  Kyiv  in  January  2025  and  in  the  Ukraine–Southeast  Europe 
Summit  which  took  place  in  Odesa  in  June  2025.  Ukraine’s  Deputy  Prime  Minister  for 
European  and  Euro-Atlantic  Integration  of  Ukraine  who  also  serves  as  Minister  of  Justice 
and  Chief  Negotiator  visited  Tirana  in  July  2025.  In  January  2025,  Albania  and  Ukraine 
signed  a  Memorandum  of  Understanding  to  strengthen  cooperation  in  their  EU  accession 
processes.  

Relations with Greece remained good overall, and political contacts continued.  

In  September  2024, 

Relations  with  Italy  remained  very  good,  as  also  reflected  in  the  exchange  of  high-level 
two  countries  signed  a  bilateral  Memorandum  of 
visits. 
Understanding between the respective national cybersecurity agencies. During the reporting 
period, implementation of the protocol on migration cooperation between Italy and Albania of 
November 2023 continued. Four operations to transfer migrants to Italian centres in Albania 
were carried out. These were legally challenged by the competent Italian judicial authorities. 

the 

4. ABILITY TO ASSUME THE OBLIGATIONS OF MEMBERSHIP 

CLUSTER 2: INTERNAL MARKET 

This cluster covers: free movement of goods (Chapter 1); freedom of movement for workers 
(Chapter  2);  right  of  establishment  and  freedom  to  provide  services  (Chapter  3);  free 
movement  of  capital  (Chapter  4);  company  law  (Chapter  6);  intellectual  property  law 
(Chapter 7); competition policy (Chapter 8); financial services (Chapter 9) and consumer and 
health  protection  (Chapter  28).  This  cluster  is  key  to  Albania’s  preparations  for  the 
requirements  of  the  EU’s  internal  market  and  is  very  relevant  for  the  development  of  the 
Common Regional Market. 

Chapter 1: Free movement of goods 

60 

 
 
 
The  free  movement  of  goods  ensures  that  many  products  can  be  traded  freely  across  the 
EU  based  on  common  rules  and  procedures.  Where  products  are  governed  by  national 
rules,  the  principle  of  the  free  movement  of  goods  prevents  these  rules  from  creating 
unjustified barriers to trade. 

General principles 

Albania  has  a  national  roadmap  for  alignment  of  acquis  in  the  area  of  free  movement  of 
goods,  with  an  Action  Plan  for  legal  alignment  and  capacity  building  in  the  medium  term 
(2023-2025) and the long term (2026-2030) and should increase the pace of its alignment to 
the acquis in this chapter. 

Non-harmonised area 

Albania has extended the scope of its ongoing work on drafting an Action Plan for screening 
national  technical  regulations  to  comply  with  Articles  34-36  of  the  TFEU  in  the  non-
harmonised area. 

Harmonised area: quality infrastructure 

In  January  2025,  further  staff  were  recruited  to  the  ministry  responsible  (Ministry  of 
Economy,  Culture  and  Innovation  (MECI)).  Market  surveillance  needs  to  be  reinforced. 
From September 2024 to July 2025, 1 295 market surveillance inspections were carried out, 
resulting in 26 warnings, 15 fines, and one emergency measure. 

Albania’s  legislation  on  accreditation,  on  market  surveillance  and  on  conformity 
assessment remains partially aligned with the EU acquis. It has a high level of alignment in 
regard  to  standardisation.  Albania’s  General  Directorate  of  Standardisation  continues  to 
address  the  issues  identified  by  the  peer  review  of  the  European  Committee  for 
Standardisation  (CEN)  and  the  European  Committee  for  Electrotechnical  Standardisation 
(CENELEC)  following  its  application to  become a full  member  of  CEN/CENELEC.  National 
standards are adopted in line with EU standards. There are now 115 conformity assessment 
bodies  in  Albania  that  have  been  accredited  by  Directorate  of  Accreditation  (DPA), 
compared with 118 in 2024, including 56 testing laboratories, one calibration laboratory, and 
24 inspection bodies. The General Directorate of Metrology is fully staffed and operational. 
Albania  has  not  prepared  its  legislation  to  be  aligned  with  the  EU  requirements  on 
notification of national legislation. 

Harmonised area: sectoral legislation 

In  the  area  of  ‘new  and  global  approach’  product  legislation,  there  were  no 
developments on alignment with the EU acquis. 

On ‘old approach’ product legislation, there were no developments on alignment with the 
EU  acquis,  including  on  registration,  evaluation,  authorisation  and  restriction  of  chemicals 
(REACH); on chemical classification, labelling and packaging, on motor vehicles, on aerosol 
dispensers,  and  on  detergents.  Albanian  legislation  remains  partly  aligned  on  drug 
precursors, though the list of controlled substances already complies with the relevant lists 
in the EU acquis. 

On  procedural  measures,  there  were  no  developments  on  alignment  with  the  EU  acquis, 
including on the return of cultural objects unlawfully removed from the territory of an EU 
Member State. 

Albania has anti-corruption measures in place on transparency on accreditation, conformity 
assessment,  tariffs,  legal  acts  and  the  activities  of  public  bodies.  Some  agencies  and  the 
customs administration that perform market surveillance have rules on transparency, ethics 
and  conflicts  of  interest,  and  are  subject  to  audits.  However,  more  efforts  are  needed  in 
terms of enforcement. 

Chapter 2: Freedom of movement of workers 

61 

 
 
Citizens of one Member State have the right to work in another Member State and must be 
given the same working and social conditions as other workers. 

On access to the labour market, in the period January-December 2024, 1 314 EU citizens 
benefited  from  the  simplified  procedure.  Employment  in  civil  service  positions  and  in  the 
state police require Albanian citizenship. 

A  national  migration  strategy  for  2024-2030  is  in  place,  accompanied  by  an  action  plan 
2024-2026. In 2024, Albania issued a total of 11 224 work permits, 1 314 among those were 
granted  to  EU  citizens.  In  preparation  for  joining  the  European  network  of  employment 
services  (EURES),  Albania  has  put  in  place  an  integrated  database  for  its  employment 
services  that,  upon  its  connection  to  EURES,  can  facilitate  exchanges  of  information 
between IT departments  on  civil  status,  the tax system, the  compulsory healthcare system 
and  the  economic  assistance  system.  The  National  List  of  Occupations  has  been  aligned 
with 
the  European  Skills,  Competences,  Qualifications,  and  Occupations  (ESCO) 
multilingual classification allowing for database transfer and connection with EURES and the 
ESCO  classification  has  been  implemented  in  the  IT  systems  of  the  Albanian  employment 
service. Early alignment with EURES would help Albania build the necessary infrastructure 
and expertise to support labour mobility. 

On  the  coordination  of  social  security  systems,  Albania  has  agreements  on  social 
security  coordination  in  place  with  9  EU  Member  States  (Belgium,  Luxembourg,  Hungary, 
the Czech Republic, Germany, Austria, Bulgaria, Croatia, and Romania) and 3 enlargement 
partners:  North Macedonia,  Kosovo,  and  Türkiye.  New  agreements  were finalised  over  the 
reporting  period.  Social  insurance  agreements  are  in  place  with  Italy  (effective  as  of  June 
2025) and Montenegro (effective as of July 2025). 

Bilateral  agreements  with  Bulgaria,  Croatia  and  Montenegro  ratified  by  Albania  in  the 
previous reporting period are yet to enter into force. The agreements with Serbia and Poland 
have been finalised and are ready for signature and ratification in Parliament.   

Albania still has no unified system for data exchange, and no progress was made regarding 
the creation of an electronic system for data exchange with the European Union countries. 
Progress  on  digitalisation  process  on  future  participation  in  the  Electronic  Exchange  of 
Social  Security  Information  (EESI)  was  reported.  However,  no  progress  was  made  on  the 
European Health Insurance Card over the reporting period. 

Chapter 3: Right of establishment and freedom to provide services 

EU  natural  and  legal  persons  have  the  right  to  establish  themselves  in  any  Member  State 
and  to  provide  cross-border  services.  For  certain  regulated  professions,  there  are rules  on 
mutual  recognition  of  qualifications.  EU  rules  on  postal  services  focus  on  improving  the 
quality of universal service, gradual market opening to competition, and the establishment of 
an independent regulator. 

On  the  right  of  establishment  and  freedom  to  provide  cross-border  services,  Albania 
has  in  place  the  National  Business  Centre,  which  functions  as  a  one-stop-shop  for 
registering  businesses  and  issuing  licences,  authorisations,  and  permits.  E-Albania  portal 
serves  as  a  single  point  of  contact  for  accessing  electronic  services,  enables  interactions 
with several databases, and provides for pre-filled applications forms. The preparatory work 
to  amend  the  Law  on  services  with  the  EU  Service  Directive  has  continued.  This  includes 
adopting  the  regulatory  Impact  Assessment,  drafting  the  law,  consulting  stakeholders  and 
adopting a services action plan to harmonise Albanian legislation with sectoral directives. 

In  the  area  of  postal  services,  Albanian  legislation  is  aligned  with  the  EU  acquis.  The 
implementation of the 2021-2026 Postal Strategy for the development of the postal sector is 
ongoing.  There  is  currently  one  universal  service  provider  (Albanian  Post  SA)  designated 
until  2025,  and  23  other  postal  service providers  on  the  market.  The Electronic  and  Postal 
Communications  Authority  (AKEP)  is  the  independent  national  regulatory  authority,  re-

62 

 
 
affirmed  in  the  2024  Law  on  Electronic  Communications,  which  entered  into  force  in 
December 2024. 

No progress was made in the area of mutual recognition of professional qualifications. 
Albania  needs  to  intensify  efforts  to  align  its  regulatory  framework  with  the  Professional 
Qualification  Directive  (PQD).  In  February  2025,  Albania  adopted  the  CEFTA  decision 
related to the establishment of a general system of recognition of professional qualifications. 
Work  on  the  action  plan  to  align  the  legislation  with  the  PQD  on  transparency  and 
proportionality review is ongoing.  

Chapter 4: Free movement of capital 

In the  EU,  capital  and  investments  must  be  able  to  move  without  restriction,  with common 
rules for cross-border payments. Banks and other economic operators apply certain rules to 
support the fight against money laundering and terrorist financing. 

On  capital  movements  and  payments,  Albania  has  still  not  met  its  obligation  under  the 
Stabilisation  and  Association  Agreement  enabling  EU  nationals  and  entities  to  acquire 
agricultural  land.  As  part  of  accession  negotiations,  Albania  has  requested  a  transitional 
period of seven years from the time of EU accession for implementing this obligation. During 
the  reporting  period,  the  Council  of  Ministers  has  amended  the  regulation  that  allows  for 
privatisation  of  public  assets  (land  or movable  assets),  including  those investors  who  have 
acquired  long-term  contracts  of  leasing  public  assets  at  EUR 1.  This  can  raise  concerns 
about the fair price of sale for privatised assets. 

On  payment  systems,  the  first  transactions  between  Payment  Initiation  Service  providers 
and banks occurred during the first quarter of 2025, as part of the operationalisation of open 
banking.  Electronic  payments  have  increased  by  24%  annually  in  the  first  half  of  2025, 
boosted  by  the  increase  of  online  payments  and  card  payments.  The  completion  of  the 
necessary alignment with the EU acquis enabled Albania to join the geographical scope of 
the SEPA schemes in November 2024. In January 2025, the Bank of Albania (BoA) initiated 
the  development  of  a  ‘clone’  of  the  TARGET  Instant  Payment  System.  The  BoA  has  been 
working  on  introducing  ISO  20022  and  SEPA  standards  for  the  domestic  market,  and 
enhancing  the  efficiency  of  electronic  payments.  In  September,  the  BoA  introduced 
amendments to regulations of the payment systems: AIPS, AIPS EURO and AECH, as well 
as  the  SWIFT  system  functioning,  reducing  considerably  payment  costs  for  citizens  and 
businesses, thereby encouraging the use of electronic channels.  

On  the  fight  against  money  laundering  and  terrorism  financing,  Albania  continued  to 
implement  the  FATF  recommendations  through  Moneyval.  Albania  started  the  work  on 
completing the Moneyval-FATF questionnaire for Albania’s sixth-round assessment, which is 
to be  discussed  by the Moneyval  Committee  in 2026.  Efforts  continued by Albania  to  align 
the legislation with the fourth and fifth anti-money laundering (AML) Directives, by approving 
two  acts  of  secondary  legislation  designated  to  subjects  involved  in  financial  activities  and 
non-financial  businesses  and  professions.  Furthermore, the  BoA  adopted  the regulation on 
information  accompanying  transfer  of  funds,  and  set  up  a  dedicated  office  on  AML  and 
Countering  Financing  of  Terrorism  (CFT)  risk  monitoring.  In  September,  the  BoA  adopted 
the  regulation  on  the  licensing,  organization,  activity  and  supervision  of  foreign 
exchange  bureaus, 
international  standards  and  Moneyval 
recommendations on anti-money laundering and countering the financing of terrorism. SEPA 
debit and credit schemes became operational on 7 October.  

in  compliance  with 

Albania  continued  to  implement  the  Strategy  on  prevention  of  money  laundering  and 
terrorism  financing  2024-2030,  and  the  action  plan  of  the  national  risk  assessment  2024-
2026.  Inter-  institutional  technical  working  group  monitoring  meetings  were  held  regularly. 
Albania has legislation in place on risk management and licensing requirements for financial 
institutions, including non-bank financial institutions and foreign exchange offices, in line with 
Moneyval recommendations. The register of beneficial owners is operational. The Albanian 

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Financial  Intelligence  Unit  (AFIU)  continued  to  strengthen  its  capacities  through  internal 
trainings.  Between  September  2024  and  July  2025  there  were  1  537  suspicious  activity 
reports,  and  209  were  referred from  the  AFIU to  the  Law  enforcement  agencies.  In  annual 
terms, the total number of suspicious transactions reports submitted to the AFIU in 2024 was 
1 632  or  5%  lower  than  the  previous  year,  and  the  number  of  cases  reported  to  law 
enforcement agencies was 234 or 6% higher as compared to the previous year. The AFIU 
carried  out  70  inspections  of  the  reporting  entities, focusing  on  compliance  review  with  the 
AML/CFT law. During 2024, the BoA inspected 50 foreign exchange offices, focusing on the 
fulfilment of anti-money laundering legislation requirements. These led to 15 fines and eight 
warning notices, and the revocation of licences to 14 FEOs. Reports by real-estate agencies 
to the AFIU has seen an increase in 2024 (5 cases) as compared to 2023 (1 case) although 
more  efforts  remain  needed.  The  Public  Oversight  Body  has  put  in  place  a  risk-based 
approach  for  AML/CFT  supervision,  as  part  of  the  quality  control  process  of  statutory 
auditors and certified accountants’ compliance inspections. 

Chapter 6: Company law 

The  EU  has  common  rules  on  the  formation,  registration  and  disclosure  requirements  of  a 
company,  with  complementary  rules  for  accounting  and  financial  reporting,  and  statutory 
audit. 

Although  there  is  some  alignment  with  the  EU  acquis  in  a  range  of  company  law  and 
corporate governance areas, there was no legislative progress during the reporting period. 
In February 2025, Albania adopted the Regulatory Impact Assessment on approximation of 
legislation with the EU Codification Directive. Further alignment is needed with the Directive 
on  the  use  of  digital  tools  and  the  Directive  on  cross-border  mergers,  divisions  and 
conversions,  as  well  as  with  rules  on  encouraging  long-term  shareholder  engagement 
(Shareholder  Rights  Directive  II)  and  with  some  aspects  related  to  takeover  bids.  A 
corporate governance code for listed companies still needs to be developed in line with the 
OECD principles.  

In  the  area  of  company  reporting,  the  Law  on  accounting  and  financial  statements  is 
partially aligned with the EU 2013 Accounting Directive with progress to be made as regards 
application to SMEs and public-interest entities, as well as on country-by-country reporting. 
In  addition,  Albania  should  continue  aligning  with  Corporate  Sustainability  Reporting 
Directive and the Non-Financial Reporting Directive, bearing in mind ongoing developments 
in the EU acquis. On statutory audit, in December 2024 Albania adopted the amended Law 
on  auditing,  organisation  of  the  profession  of  the  auditor  and  of  the  certified  accountant, 
aiming  further  alignment  with  the  relevant  EU  directives  to  ensure  stronger  oversight, 
enhanced  auditor  independence,  increased  quality  assurance,  and  increased  transparency 
and level of compliance with international standards. Albania should strengthen the capacity 
of  the  Public  Audit  Oversight  Board  and  further  align  its  framework  with  EU  statutory  audit 
rules. 

Chapter 7: Intellectual property law 

The EU has to a large extent harmonised rules for the legal protection and enforcement of 
intellectual  property  rights  (IPR),  covering  notably  patents,  biotechnological  inventions  and 
pharmaceuticals, 
including  supplementary  protection  certificates  (SPCs),  trademarks, 
designs,  geographical  indications  (GIs),  including  craft  and  industrial  GIs,  as  well  as 
copyright and related rights. 

In the area of copyright and related rights, a new law has been developed and is currently 
undergoing review. 

Four  Collective  Management Organisations (CMOs)  were  licenced  in September 2024  and 
together  form  a  one-stop-shop.  The  methodology  on  the  collection  of  remuneration  on  the 
uses of works protected by copyrights and related rights was finalised and is in force. 

64 

 
 
On  industrial  property  rights,  the  laws  on  trademarks  and  patents  were  adopted  in  July 
2025  to  align  with  the  EU  acquis  in  these  areas.  In  2024,  the  sector  of  patents  and  utility 
models  had  742  patent  applications,  of  which  12  were  national  patent  applications  with 
Albanian applicants and 730 were issued by the European Patent Office seeking protection 
in Albania. In the same period, 4 252 applications for trademarks were filed: 1 575 national 
applications and 2 677 international applications. 

The  State  Inspectorate  for  Market  Surveillance  (SIMS)  is  responsible  for  monitoring  the 
enforcement  of  intellectual  property  rights.  In  2024,  the  copyright  division  of  SIMS  carried 
out 342 inspections, resulting in 40 administrative sanctions. The industrial property division 
carried out 407 inspections, resulting in 12 administrative sanctions. 

Chapter 8: Competition policy 

EU rules protect free competition. They include antitrust rules against restrictive agreements 
between  companies  and  abuse  of  a  dominant  position,  and  also  include  rules  on 
concentrations  between  companies  which  would  significantly  impede  effective  competition. 
EU rules also set out a system of State aid control. Governments are only allowed to grant 
State aid if restrictive conditions are met, with a view to preventing distortion of competition. 

Antitrust and mergers 

Albania’s legislative framework is broadly in line with the EU acquis and the SAA. 

In  September  2024,  to  further  align  its  secondary  legislation  with  the  EU  acquis,  the 
Competition  Commission  approved  the  guidelines  on  the  referral  of  cases  related  to 
concentrations.  The  institutional  framework  is  based  on  the  Albanian  Competition 
Authority (ACA), which is an operationally independent authority. It reports to Parliament and 
enjoys adequate prerogatives. On enforcement capacity, the ACA has maintained the total 
number of staff at 46. On implementation, between September 2024 and September 2025, 
the  ACA  issued  100  decisions,  including  four  on  prohibited  agreements,  15  on  abuse  of  a 
dominant  position  and  58  authorising  concentrations.  The  ACA  has  carried  out  preliminary 
and in-depth investigation procedures, resulting in significant fines to companies operating in 
key economic sectors in Albania including construction and agri-business. The ACA should 
continue to raise awareness and strengthen enforcement of competition rules. 

State aid 

On the legislative framework, the framework Law on State aid largely reflects Articles 107 
and  108  TFEU  but  the  implementing  legislation  remains  partly  aligned  with  the  EU  acquis 
only in some areas, such as the General Block Exemption Regulation. 

On  the  institutional  framework,  the  State  Aid  Commission  (SAC)  is  responsible  for 
implementing  the  Law  on State  aid.  Its  operational  independence,  which is  required  by the 
SAA,  has  yet  to  be  guaranteed,  given  that  it  is  an  arm  of  the  Ministry  of  Finance  and 
Economy. In this respect, a policy impact assessment (PIA) was finalised and will serve as a 
technical blueprint, offering options for ensuring the operational independence of SAC.  

The SAC’s enforcement capacity remains insufficient as the staffing of its secretariat needs 
to be significantly increased. On implementation, in the reporting period, the SAC approved 
four decisions on the authorisation of State aid including the support to innovative start-ups 
and SMEs focusing on green and digital transition.  The SAC can issue decisions on illegal 
and incompatible aid and order recovery but has not done so to date. The enforcement track 
record  on  State  aid  control  needs  to  be  significantly  improved.  Advocacy  activities  among 
grantors need to be stepped up to ensure prior notification of aid measures. 

Liberalisation 

The  Law  on  State  aid  applies  to  all  legal  and  natural  persons  performing  an  economic 
activity. There has been no investigation of State aid for public undertakings or undertakings 
with special or exclusive rights. 

65 

 
 
Chapter 9: Financial services 

EU  rules  aim  at  ensuring  fair  competition  among  financial  institutions  and  the  stability  and 
integrity  of  financial  markets,  namely  in  the  fields  of  banking,  insurance,  supplementary 
pensions, investment services and securities. They include rules on authorisation, operation 
and supervision of these institutions. 

In the  area  of  banking and financial  conglomerates,  technical  work  continued  on further 
alignment with the Capital Requirements Regulation and the Capital Requirements Directive. 
Work  on  drafting  the  Law  on  financial  conglomerates  in alignment  with the  relevant  acquis 
has  continued  and  consultation  with  stakeholders  is  expected  within  2025.  The  BoA 
completed  its  first  step-questionnaire  in  February  2025  for  the  technical  advice  to  the 
Commission on the equivalence assessment performed by the European Banking Authority 
and has moved to the second-step questionnaire. In November 2024, the BoA amended the 
legislation on reporting according to the Unified Reporting System, presenting new reporting 
templates  and  requirements  related  to  early  warning  indicators  and  the  operational  risk 
events register. It adopted also new requirements to reporting entities on providing quarterly 
reporting on the structure of direct and indirect capital shareholders/partners. The Albanian 
Deposit Insurance Agency has continued to work on amending the existing Law ‘On deposit 
insurance’ to align it with the EU acquis. There were no developments on further alignment 
with the  EU  banks recovery  and resolution  framework.  Thus, the reform  effort  to  align  with 
the EU acquis should be increased.  

In  December  2024,  the  BoA  communicated  to  the  banks  the  intermediate  minimum 
requirement for own funds and eligible liabilities (MREL) requirement, to be met during 2025 
and  completed  and  updated  the  resolution  plans  for  the  11  banks  operating  in  Albania.  In 
February  2025,  the  BoA  decided  to  maintain  unchanged  the  policy  on  Resolution  Fund 
during  the  year.  The  BoA  monitors  the  performance  of  financial  assets  of  the  Resolution 
Fund each quarter through the Albanian Deposit Insurance Agency. The overall 2027 target 
of funding level for the Resolution Fund is 0.5% of total liabilities of the banking sector (not 
aligned yet with BRRD, according to which the target level of the resolution fund should be 
1% of covered deposits).  

Albania adopted in March 2025 the Law on establishment of the National Development Bank 
through  which  deposit  collection  will  not  be  handled  by  the  Bank  but  by  an  entity  of  the 
Postal  Service  without  licensing  requirements.  The  supervision/relationship  between  this 
entity,  the  National  Development  Bank  and  the  Central  Bank,  should  be  defined  without 
delay. 

On  the  financial  market  infrastructure  Albania  remains  partially  aligned  with  financial 
markets infrastructure legislation. No particular progress has been made during the reporting 
period in this area which requires immediate attention.  

In the area of insurance and occupational pensions, the Albanian Financial Supervisory 
Authority  (AFSA)  has  launched  an  indicative  roadmap  for  alignment  of  legislation  with 
Solvency II Directive. Amendments to the Law on the activity of insurance and reinsurance, 
were  adopted  in  December  2024  and  sent  for  approval  to  Parliament,  aiming  further 
alignment  with  Solvency  II  Directive,  and  the  Insurance  Distribution  Directive.  Efforts  to 
implement  these  amendments  must  be  intensified.    In  2025  AFSA  board  adopted  the 
regulation  on  setting  risk  factors  when  calculating  compulsory  insurance  premiums  for 
transport  sector  and one  setting the  supervisory rules on  life insurance activities  related to 
participation in collective investment undertakings with public offering.  

On investment funds, Albania has started preparations for drafting a regulation on Investor 
compensation scheme following an assessment of EU best practices. 

On  sustainable  and  digital  finance,  in  January  2025  the  BoA  signed  with  the  European 
Investment  Bank,  a  cooperation  agreement  aimed  at  developing  green  finance,  including 
development  of  Green  Taxonomy.  The  BoA  has  worked  on  climate  risk  stress-testing 

66 

 
 
methodologies to evaluate potential risks from climate-related financial shocks and is closely 
monitoring how climate risks impact financial and economic stability. In November 2024 the 
BoA  adopted  a  regulation  on  operational  risk  management  by  banks,  payment  institutions 
and electronic money institutions, to address the operational, cyber and ICT risk. During the 
reporting period, the AFSA has conducted a comparative analysis of the current legislation 
with the Market in Crypto-Assets Regulation (MiCA) and in July an inter-institutional working 
group to align with the EU acquis was set up. The BoA and the AFSA have started the work 
on  drafting  relevant  regulations  on  digital  operational  resilience  that  would  align  it  with 
requirements of EU’s Digital Operational Resilience Act (DORA). 

Chapter 28: Consumer and health protection 

EU  rules  protect  consumers’  economic  interests  and  also  ensure  product  safety,  prevent 
dangerous imitations and establish liability for defective products. The EU also guarantees a 
high  level  of  protection  of  public  health  and  in  particular  also  ensures  high  common 
standards  for  tobacco  control,  blood,  tissues,  cells  and  organs,  and  human  and  veterinary 
medicinal  products.  The  EU  also  has  rules  for  upholding  patients’  rights  in  cross-border 
healthcare  and  in  preparing  for  and  responding  to  serious  cross-border  health  threats, 
including communicable diseases. 

Consumer protection 

On  horizontal  aspects,  Albania  has  a  2023–2030  cross-cutting  Strategy  on  consumer 
protection and market surveillance in place. In the reporting period, the Consumer Protection 
Consumption body (CPC) has received complaints, however, information was not available 
on  how  the  CPC  dealt  with  these  complaints.  There  have  not  been  any  developments  on 
enforcement  and  redress.  On  product  safety,  Albania  is  yet  to  align  with  the  new  EU 
acquis on General Product Safety. Albania is only partly aligned on product liability and on 
consumer  protection.  (For  information  on  market  surveillance,  see  Chapter  1  –  Free 
movement of goods). 

Public health 

In  2024  public  health  expenditure  was  around  2.8%  of  GDP.  General  government 
expenditure on health remains under 10% of total government expenditure, though absolute 
terms it increased, compared with 2030 target of 2030. Albania has the highest rate out-of-
pocket  healthcare  expenses  in  Europe,  with  citizens  paying  59.7%  of  total  health  costs. 
Albania’s  demographic  shift  is  towards  an  ageing  population,  driven  by  lower  fertility  rates, 
increased  life  expectancy,  and  emigration.  On  eHealth,  an  electronic  system  for  collecting 
and reporting health information of medical records (HIS) has been set up. 

National  legislation  on  substances  of  human  origin  is  designed  to  align  with  the  EU 
acquis.  There  was  no  progress  on  alignment  on  human  and  veterinary  medicinal 
products on medical devices, on health technology assessment, or on patient’s rights 
in  cross-border  healthcare,  which  all  remain  partly  aligned  with  the  EU  acquis,  or  on 
cosmetics.  There  has  been  no  progress  in  the  reporting  period  on  antimicrobial 
resistance (AMR). On tobacco control, Albania still needs to accede to the World Health 
Organisation’s  framework  Convention  Protocol  to  eliminate  the  illicit  trade  in  tobacco 
products,  and  to  further  align  with  the  rest  of  the  EU  tobacco  control  acquis  (See  also 
Chapter  16  –  Taxation).  The  ban  on  smoking  in  indoor  public  areas  is  insufficiently  and 
unequally enforced. 

There  have  been  no  developments  on  communicable  diseases  or  on  serious  cross-
border  health  threats,  which  remain  partly  aligned  with  the  EU  acquis,  and  the  foreseen 
new epidemic and pandemic preparedness plan is yet to be adopted, and the country is yet 
to  update  ECDC  on  this.  Albania  needs  to  fight  disinformation  on  vaccines.  Albania  still 
needs  to  develop  a  Health  Security  Action  Plan,  but  it  has  strengthened  its  emergency 
preparedness. There were also no developments on reduction of harmful use of alcohol, 
or on drug abuse and prevention, where prevention activities remain sporadic. A national 

67 

 
 
cancer  control  plan  is  in  place,  and  three  cancer  screening  programmes  are  ongoing. 
Screening  programmes  are  ongoing  on  colorectal,  breast,  and  cervical  cancers.  A  cancer 
registry is yet to be created. On mental health, a 2023 – 2026 Mental Health Action Plan is 
in  place.  Albania  needs  to  broaden  the  range  of  community  services  for  mental  health. 
Malnutrition  remains  a  critical  issue,  while  obesity  in  children  and  anaemia  in  pregnant 
women remain concerning. 

On health inequalities, though the 2021-2025 national action plan for the Equality, Inclusion 
and Participation of Roma aims at enhancing Roma access to quality health and preventive 
services, weaknesses in its implementation remain. There have been no new developments 
on access to health for women, including on sexual and reproductive health. 

On  anti-corruption,  market  surveillance  bodies  have  rules  on  transparency,  ethics  and 
conflicts  of  interest  and  are  subject  to  audits.  On  public  health  there  are  anti-corruption 
measures in place on cosmetics, control systems on control pharmaceutical manufacturers 
and  to  track  veterinary  medicine  stocks.  The  health  sector  was  identified  as  a  vulnerable 
sector in the draft National Anti-Corruption Strategy 2024-2030; however, a comprehensive 
risk assessment of the sector and development of specific measures is yet to be ensured. 

CLUSTER 3: COMPETITIVENESS AND INCLUSIVE GROWTH 

This  cluster  covers:  digital  transformation  and  media  (Chapter  10);  taxation  (Chapter  16); 
economic  and  monetary  policy  (Chapter  17);  social  policy  and  employment  (Chapter  19); 
industrial  policy  (Chapter  20);  science  and  research  (Chapter  25);  education  and  culture 
(Chapter 26); and customs union (Chapter 29). 

Chapter 10: Digital transformation and media 

The  EU  supports 
for  electronic 
communications,  electronic  commerce  and  audiovisual  services.  The  rules  protect 
consumers and support the universal availability of modern services. 

internal  market 

functioning  of 

the  smooth 

the 

On  electronic  communications,  no  progress  was  made  in  implementing  the  112  single 
European emergency number. The Law on electronic communications aiming to further align 
with  the  European  Electronic  Communications  Code  Directive  entered  into  force  in 
December  2024.  The  Broadband  Competence  Office  (BCO)  is  operational  since  January 
2025. However, its staffing is still in process.  

By  the  end  of  2024,  fixed  internet  broadband  showed  a  10%  increase  in  comparison  to 
2023. A gap in fixed internet broadband penetration between urban and rural areas remains. 
Rural  areas,  comprising  around  40%  of  the  total  population,  have  only  19.5%  of  the  fixed 
broadband connections. The broadband penetration rate for families at the end of 2024 was 
up  to  92%,  (88%  in  2023).  By  2024,  the  data  volume  of  active  mobile  broadband  was 
increased by 15.4% compared with 2023. 

In November 2024, the Electronic and Postal Communications Authority (AKEP) has granted 
authorisation for the use of frequencies in the 3.5 GHz band by Vodafone and One Albania, 
thus  paving  the  way  for  the  implementation  of  5G  technology  in  Albania. However,  the 
country  still  needs to release  the  700 MHz  band  from  broadcasting  use  to allow  its  use for 
mobile communications, including 5G. 

In the area of digital services, as regards online public services, during the reporting period 
95% of applications for 1 253 public services were offered online. Albania should enhance its 
efforts  to  align  with  the  Digital  Services  Act  (DSA),  as  well  as  with  the  Digital  Markets  Act 
(DMA) in line with the steps proposed at a TAIEX meeting held in February 2025. There is a 
need  to  address  the  emerging  digital  divide  and  strengthen  the  ability  of  citizens  to 
independently use e-services. In March 2025, the government decided to suspend access to 
a  major  social  media  platform  nationwide  (see  Chapter  23  –  Judiciary  and  Fundamental 

68 

 
 
 
Rights). 

Albania has also significantly contributed to cross-border interoperability in capacity building 
exercises considering the monitoring mechanism under the Interoperable Europe Act. 

On  digital  skills,  the  ICT  curricula  for  first,  second,  and  third  grade  are  in  place  and  being 
taught at the smart labs in 100 pilot schools. 

Under  digital  trust  and  cybersecurity,  Albania  has  continued 
its 
cybersecurity  architecture  and  capacities.  The  authorities  need  to  continue  their  efforts,  in 
the field of critical information infrastructure, both in the public and private sector, and ensure 
that the new national security operations centre becomes fully operational. In June 2025, the 
Government  adopted  an  updated  list  of  operators  of  critical  and  important  information 
infrastructure. 

to  strengthen 

Cybersecurity  capacities  need  to  be  further  strengthened,  including  through  awareness-
raising  activities  and  trainings.  The  new  Cybersecurity  Strategy  2025-2030  and  its  Action 
Plan  2025-2027  have  been  adopted.  Implementation  of  the  EU  5G  Cybersecurity  Toolbox 
measures  should  continue.  Albania  should  adopt  the  Law  on  electronic  identification  and 
trust services, to align with the European Digital Identity regulation.  

Further  efforts  are  needed  for  the  alignment  with  the  ePrivacy  Directive.  On  media,  no 
legislative  developments  took  place.  Authorities need  to  ensure that the Audiovisual  Media 
Authority  is  provided  with  sufficient  material  and  technical  resources  to  increase  its  media 
monitoring and reporting capacity.  

Albania  should  fully  align  with  the  EU’s  Artificial  Intelligence  Act,  ensuring  the  necessary 
enforcement structures. 

Chapter 16: Taxation 

EU  rules  on  taxation  cover  value-added  tax,  excise  duties  as  well  as  aspects  of  corporate 
taxation.  They  also  cover  cooperation  between tax administrations,  including  the  exchange 
of information to prevent tax evasion. 

The  Council  of  Ministers  adopted the  medium-term  revenue  strategy (MTRS)  2024-2027 
in December 2024. This includes a commitment to complete a comprehensive review of tax 
exemptions,  including  under  direct  taxation,  by  mid-2025.  Albania  has  completed  this 
evaluation of exemptions in June 2025. 

On indirect taxation, the standard VAT rate is 20% and the reduced rates are 6% and 10%. 
A substantial number of tax exemptions not set out in the EU acquis remains and none were 
removed in the reporting period. No major changes to the VAT regulations aiming at further 
harmonisation with the EU acquis were introduced in the reporting period. At the same time 
the VAT rate of 6% for services provided in five-star hotels was extended till end of 2026.  

Excise taxation is partially aligned with the EU acquis regarding excise duty for alcohol and 
alcoholic beverages, tobacco, energy products and general rules for the production, keeping, 
storage, movement and controls on excisable products. Alignment on EU excise minima on 
tobacco products is ongoing, through a gradual and scheduled increase of cigarette excise 
rates  from  2025  to  2033,  which  continued  to  be  applied.  Albania  still  needs  to  move  to  a 
mixed  excise  duty  structure  (ad  valorem  and  specific)  for  cigarettes.  National  legislation 
providing for a preferential rate of tax for ‘Albanian rakia’  produced by private individuals  is 
not aligned with EU legislation. National legislation is aligned with the EU law on excise duty 
for energy products, with the exception of electricity and natural gas, which are not subject to 
excise  duty  in  Albania.  Excise  rate  on  some  fuel  products  are  still  below  the  minimum 
according  to  EU  directives.  The  Excise Movement  and Control  System  has been  set  up  at 
national level. 

On direct taxation, the income tax law is partially aligned with the EU acquis. Analysing EU 
direct  tax  legislation  and  transposition  into  the  domestic  legislation  has  started.  By 

69 

 
 
December  2025,  it  is  estimated  to  do  the  first  drafting  of  alignment,  and  a  full  alignment  is 
planned by 2027.  

Albania  should  ensure  that  any  future  voluntary  tax  compliance  law  is  in  line  with  the  EU 
acquis and international standards. 

Albania needs to revise the national tax legislation which imposes tax on imported plastic as 
good/raw material, to ensure alignment with its commitment under the SAA. 

On  administrative  cooperation  and  mutual  assistance,  Albania  has  double  taxation 
agreement  with  23  Member  States  and  committed  to  conclude  agreements  with  the  four 
outstanding ones – Denmark, Cyprus, Portugal and Lithuania. 

The  Law  on  automatic  exchange  of  financial  account  information  applies  the  OECD 
provisions  and  Albania  has  expanded  the  number  of  jurisdictions  with  which  it  exchanges 
information.    Albania  has  automatically  exchanged  financial  account  information  with 
80 jurisdictions (including 26 EU Member States) in 2024 and has received information from 
65 jurisdictions (of which 22 EU Member States) within the framework of the OECD common 
reporting standard. A framework for country-by-country reporting as per OECD BEPS (Base 
Erosion  and Profit  Shifting)  is  in  place,  and  initial  country-by-country  reporting  exchange  is 
under preparation for 2026. In March 2025, the Council of Ministers approved in principle the 
Subject  to  Tax  Rule  (STTR)  multilateral  instrument,  allowing  the  signature  procedure to  be 
initiated. 

On operational capacity, there were 179 vacancies in the tax administration remains at the 
end July 2025 (in 2024, and till 31 July 2025 there were 148 recruitments, 97 left or resigned 
and  15  dismissals).  Digitisation  of  the  fiscalisation  process  is  considered  fully  complete, 
although further work on the use of the generated data is necessary, as well as increase the 
use  of  third-party  data.  Furthermore,  Albania  should  continue  to  prepare  for  achieving 
interconnection and interoperability with EU system. 

Chapter 17: Economic and monetary policy 

EU rules require the independence of central banks and prohibit them from directly financing 
the public sector. Member States coordinate their economic policies and are subject to fiscal, 
economic and financial surveillance. 

On  monetary  policy,  Albania  has  a  high  level  of  alignment  with  the  EU  acquis  on  the 
prohibition of privileged access of the public sector to financial institutions. The legislation of 
Albania  is  partly  aligned  with  the  EU  acquis  on  the  central  bank  independence  and  on  the 
prohibition  of  monetary  financing  to  the  public  sector.  A  working  group  was  established  in 
July to begin work on amending the Central Bank law to align with the acquis. Albania needs 
to take the necessary steps to fully align its legal framework with the EU acquis regarding full 
independence  of  the  BoA,  prohibition  of  monetary  financing  of  the  public  sector  and 
prohibition  of  privileged  access.  Albania  also  needs  to  ensure  that  national  legislation, 
including  the  statutes  of  its  central  bank,  is  compatible  with  the  Statute  of  the  European 
System of Central Banks and of the European Central Banks.  

On economic policy, fiscal rules, including those on the primary balance and the debt ratio, 
were met in 2024 (see also Section 2.3 - Economic criteria). Budget revisions continued to 
be  endorsed  through  normative  acts  in  2024,  similar  to  the  practice  in  the  previous  years. 
Albania  does  not  have  a  fiscal  council  yet,  but  preparatory  work  for  setting  up  such  an 
institution  began.  Albania  works  on  revising  the  pension  scheme,  a  process  which  would 
have to address the gap in the social insurance scheme, including strengthening long-term 
fiscal  projections  and  a  revision  of  methodology  for  setting  the  minimum  and  maximum 
pensions. 

Albania  is  partially  aligned  with  the  requirements  on  the  coordination  and  surveillance  of 
economic  policies  laid  down  by  the  Treaty  on  the  Functioning  of  the  European  Union.  Its 
active  participation  in  Economic  Reform  Programme  (ERP)  exercise,  including  the  latest 

70 

 
 
one for  2025-2027  has contributed to  developing the  administrative  capacity  of the  country 
relevant for this Chapter. Albania’s ERP outlined the country’s key macroeconomic and fiscal 
policies.  The  policy  guidance jointly  adopted  at the  2024  Economic  and Financial  Dialogue 
has been partially implemented. Albania’s ERP would benefit from the inclusion of long-term 
sustainability  of  public  finance  and  productivity  indicators,  improved  analysis  of  key  fiscal 
measures and their budgetary impact, fiscal risks and a more effective public consultation. 

Chapter 19: Social policy and employment 

EU  rules  in  the  social  field  include  minimum  standards  for  labour  law,  equality,  and  non-
discrimination,  health  and  safety  at  work.  They  also  promote  social  inclusion  and  social 
protection, and social dialogue at EU level. 

On  health  and  safety  at  work,  Albania  has  adopted  the  Policy  Document  for  Health  and 
Safety  at  Work  and  its  Action  Plan  2025–2030,  in  line  with  the  EU  strategic  framework  on 
health  and  safety  at  work  2021-2027.  The  establishment  of  the  Interministerial  Council  of 
Occupational Health and Safety and its secretariat is still pending. The revised labour law is 
being implemented.   

On  labour  inspection  activities,  the  launch  of  intelligent  risk  assessment  matrices  led  to 
75% of total inspections (9 860) being planned on risk-based assessment. Despite the very 
limited  capacities  of  the  social  services  inspectorate,  the  number  of  the  inspections 
increased to 126 in 2024 (comparing to 108 in 2023).  The capacities of the social services 
inspectorate need to be strengthened. In 2024, 90% of work-related accidents were reported 
by  employers,  a  2.4%  increase  from  2023,  indicating  a  steady  level  of  reporting  and 
investigation.  The  Interface  between  the  Intelligent  Risk  Assessment  Matrices  (MIRA)  with 
the  e-inspection  platform  would  increase  the  efficiency  of  the  Labour  and  Social  Services 
Inspectorate’s work. 

On social dialogue, the tripartite consultation process needs to be improved. The National 
Labour Council convened only twice in the reporting period while the tripartite collaboration 
remained insufficient. Capacity building for social partners needs to continue. 

On  employment  policy,  the  implementation  of  the  2023-2030  national  employment  and 
skills  strategy  continued.  The  piloting  of  the  Youth  Guarantee  Implementation  Plan  is 
extended until the end of 2027.  The amended Law on youth, adopted in April 2025, includes 
key  provisions  on  young  people  not  in  employment,  education  or  training  (NEET)  and  will 
enable  the  Institute  of  Statistics  to  produce  national  and  regional  profile  reports.  During 
2024,  508  NEET (58%  women)  identified  with  mapped  needs  were  referred  to  appropriate 
offers,  with  66%  positive  exit  rate.  13%  of  them  belong  to  vulnerable  groups  (mainly 
Roma/Egyptians,  youth  with  disabilities,  or  returned  migrants).  Progress  continues  in  the 
implementation  of 
for  recipients  of  economic  aid.  Piloting  and 
implementation of the Employment Promotion Program on Social Reintegration is set to start 
by  the  end  of  2025.The  program  targets  the  inclusion  in  the  labour  market  of  long  term 
unemployed jobseekers. 

the  exit  strategy 

In terms of vocational training (VET), 4 191 beneficiaries of economic aid were employed, 
or  enrolled  in  2024,  compared  with  4 158  in  2023.  The  subsidies  to  the  development  of 
digital  skills  and  coding  continued  in  2024  with  845  participants  (out  of  which  53  were 
unemployed). Employment rate increased in 2024 to 68.3% (66.5% in 2023). 

For labour force  participation  and  unemployment  rate see the  statistical  annex  and  the 
section on the functioning of the labour market under 2.3 Economic criteria. 

On  social  protection  and  inclusion,  the  Strategy  for  Social  Protection  is  being 
implemented.  In  April  2025,  the  government  organised  a  Regional  Event  on  Accelerating 
Childcare Reforms towards EU Accession as a starting point for the Child Guarantee Plan, 
as  part  of  the  strategy.  Albania  has  nominated  a  national  Contact  Point  for  the  European 
Child  Guarantee.  The  Survey  on  Income  and  Living  conditions  published in  February  2024 

71 

 
 
showed  that  19.7%  of  the  population  was  at  risk  of  poverty.  In  the  reporting  period,  this 
proportion  remained  high  for  children,  standing at  26.5%,  with  girls  more affected (27.3%). 
Measures taken to address poverty have been insufficient. For 2025, total budget for Social 
Fund  increased  by  14%,  funding  for  57  services  at  the  municipal  level  and  19  Specialised 
Care Services at the regional level. No mechanism is yet in place on the establishment and 
implementation  of  an  indexation  mechanism  of  the  Economic  Aid  benefits.  Domestic  child 
trafficking forced begging and child labour are a concern despite policies that are consistent 
with international standards. 

Progress  was  made  in  the  monitoring  of  the  National  Action  Plan  on  the  Inclusion  of 
Persons  with  Disabilities  2021-2025.  Efforts  have  been  made  to  ensure  accessibility  for 
persons with disabilities to different institutions, although often this is related only to physical 
accessibility. 

On the inclusion of Roma and Egyptians, further efforts are needed to improve the human 
resources allocated within the Ministry of Health and Social Protection to the coordination of 
Roma-related  policies,  as  well  as 
tackle 
discrimination.  The  National  Electronic  Register  of  Social  Care  Services  is  not  fully 
functional. These efforts were also linked with the application and monitoring of the support 
provided  through  the  Social  Fund.  Challenges  persist,  including  staffing,  hardware 
shortages,  and  concerns  about  the  software  user-friendliness.  In  July  2025  Albania 
appointed  a  Deputy  Minister  of  Health  and  Social  Protection  from  the  Roma  community 
responsible for social inclusion.  

labour  market  mobility  and 

increase 

to 

On  non-discrimination  in  employment  and  social  policy,  full  alignment  with  EU 
legislation still needs to be completed, especially with the Employment Equality Directive and 
the  Racial  Equality  Directive.  The  number  of  persons  with  disabilities  registering  as 
jobseekers increased to 8 000 in 2024 (2 656 in 2023).  

On  equality  between  women  and  men  in  employment  and  social  policy,  gender 
inequality in employment remains, with the employment rate gap between men and women 
extending to 13% in 2024 (10.4% in 2023). The unemployment rate for men was 8.0%, while 
for women was 9.6%. The NEET rate among youth remains high with 2.1 points higher for 
women  (25.6%)  than  men  (23.5%).  The  gender  pay  gap  in  wages  narrowed  to  4.9%  as 
compared to 6.2% in the previous year.  

Albania still  has  to align  its  legislation with the  gender  equality  acquis  in  the  area  of  social 
policies  and  employment,  including  work-life  balance,  pay  transparency  and  women  on 
boards. 

Chapter 20: Enterprise and industrial policy 

industrial  policy  strengthens  competitiveness, 

EU 
facilitates  structural  change  and 
encourages  a  business-friendly  environment  that  stimulates  small  and  medium-sized 
enterprises (SMEs). 

2024 

enterprise 

and 
On 
policy 
industrial 
Albania 
principles, 
adopted 
Smart 
the 
Specialisation  Strategy  in 
(see 
December 
Chapter 25 – Science and 
research)  and  in  April  a 
monitoring 
mid-term 
report 
the 
the 
implementation  of 
Business  Investment  and 
Strategy 
Development 

on 

72 

 
 
(BIDS). A decision on amending the BIDS has been approved in 2025, that focuses on SME 
internationalisation  and skills,  but  hardly  remedies reported  weak  implementation  progress. 
In  February  2025  Parliament  adopted  some  amendments  to  the  Law  on  strategic 
investment,  which  among  others  extended  its  effects  until  end  2026.  The  Albanian 
Investment Development Agency has completed and put online the Export platform, aiming 
to support the internationalization of micro, small and medium-sized enterprises. 

Despite  further  improvements,  concerns  remain  among  business  representatives  on  the 
level  of  public  consultation  by  the  government  and  Parliament,  especially  regarding  EU 
integration.  Businesses  complain  of  undue  bureaucratic  burdens  and  call  for  clearer 
procedures and deadlines. Clarity on implementation of legal acts would eliminate the ‘grey 
zone’  which might  serve  as  an area  on  which specific  businesses might  take  advantage  in 
exchange  of  favours/corruptive  actions.  Progress  on  justice  reform  and  anti-corruption  are 
welcomed by business. 

On  enterprise  and  industrial  policy  instruments,  further  coordination  between  state 
institutions  which  provide  financial  incentives  to  businesses  remains  needed,  to  ensure 
better access to information for the beneficiaries and to focus efforts of the BIDS which are 
related such as AIDA investment promotion, TEDA specialisation and SME supplier support. 
Further  alignment  with  the  EU’s  late  payment  Directive  needs  be  ensured.  Albania’s 
definition  of  SMEs  is  partly  aligned  with  the  EU  Recommendation,  on  the  number  of 
employees,  but  the  national  capacity  to  support  SMEs  remains  limited.  Albania  was 
positively assessed in the 2024 OECD competitiveness outlook, marking progress in 14 out 
of 15 dimensions, stagnating in one, state-owned enterprises.  

On sectoral policies, Albania extended to 2026 the period of application for tax incentives 
to  investors  involved  in  the  construction/development  of  5-star  hotels.  It  introduced  also  a 
‘mountain  package’  to  enhance  investment  in  the  mountain  areas  which  include  tax  free 
incentives,  that  would  require  high  attention  on  preserving  Albania’s  ecological  and 
biodiversity values. In March 2025 Albania was the official Host Country of Internationale 
Tourismus-Börse  (ITB)  Berlin,  the  world’s  leading  travel  trade  show,  marking  its  rapid 
emergence as one of the fastest-growing travel destinations in Europe. The government 
adopted  regulations  that  would  facilitate  the  development  of  the  defence  industry.  The 
government  adopted  regulations  that  would  facilitate  the  transfer  of  assets  to  Albanian 
Investment  Corporation  for  further  development  and  re-vitalisation  programmes,  as  well  as 
regulations on enhancing privatisation of state-owned assets, including land.  

Chapter 25: Science and research 

The EU provides significant support for research and innovation. All EU Member States can 
participate  in  the  EU’s  research  and  innovation  programmes  and  benefit  from  them, 
especially  where  there  is  scientific  excellence  and  solid  investment  in  research  and 
innovation. 

On research and innovation policy, Albania still needs to adopt the required legislation to 
ensure effective implementation of the 2023-2030 National Strategy on Scientific Research, 
Technology and Innovation. In addition, Albania needs to adopt standards for research data 
management established by international organisations. 

Albania  increased  funding  for  R&D  in  2024  to  0.19%  of  the  GDP.  This  remains  below  the 
national target of 1% of GDP that the country intends to achieve by 2030. More actions are 
needed to increase public funding of research and development, incentives for businesses to 
increase their R&D expenditure, and to improve cooperation between the private sector and 
universities.  The  Institute  of  Statistics  (INSTAT)  needs  to  produce  a  complete  data  set  on 
scientific  research  and  innovation.  The  Albanian  Start-Up  Agency  launched  its  first  call  for 
innovative start-ups in December 2024, of a total value of EUR 3 million, with a priority given 
to female-led start-ups, as well as start-ups focusing on green transition and/or digitalisation. 
The Smart Specialisation Strategy was adopted in December 2024 and includes a costed 

73 

 
 
action plan, which should be implemented. Albania was included for a third consecutive year 
in  the  European  Innovation  Scoreboard  as  an  emerging  innovator  performing  below  the 
average  of  Emerging  Innovators  in  the  EU  and  neighbouring  countries.  Albania’s  score 
slightly decreased from 41.7% of the EU average in 2024 to 37.9% in 2025. 

As regards the EU framework programmes, Albania is fully associated to Horizon Europe. 
Its participation in the programme reached a total of 46 signed contracts benefitting Albania, 
worth EUR 7.3 million. The authorities need to further encourage participation of the private 
sector  in  Horizon  Europe.  National  innovation  efforts  need  to  be  aligned  with  the  New 
European  Innovation  Agenda  and  the  Competitiveness  Compass.  Albania  opened  five 
European  Digital  Innovation  Hubs  and  the  first  European  Institute  of  Innovation  & 
Technology (EIT) community hub serving as a gateway between Albanian stakeholders and 
the  EIT  community  programmes.  The  EIT  has set  up  a  Raw  Materials  Regional  Innovation 
Centre in Albania. 

Chapter 26: Education and culture 

The EU supports cooperation in education and culture through funding programmes and the 
coordination  of  Member  State  policies  through  the  ‘open  method  of  coordination’.  The  EU 
and  the  Member  States  must  also  prevent  discrimination  and  ensure  quality  education  for 
children of migrant workers, including those from disadvantaged backgrounds. 

The estimated public spending on education in 2024 represented 2.6% of GDP compared 
with 2.1% in 2023, remaining under the EU average of 4.6%. Following the approval of the 
updated  Curriculum  Framework  and  its  action  plan  in  December  2024,  the  process 
continued  with  an update of  key  competences,  incorporating  innovations  for  primary,  lower 
secondary,  and  upper  secondary  education.  An  updated  curricula  on  the  promotion  of 
cultural  diversity  and  the  inclusion  of  Roma  and  Egyptian  history  and  culture  has  been 
adopted. 

In the pre-school education, 65 914 children were enrolled, 1.2% less compared with the 
previous  school  year  (66  711).  In  the basic  education,  250  617 pupils  were  enrolled, (48% 
girls),  2.89%  less  than  the  previous  year  (258  072),  of  which  136  379  (54.42%)  in  primary 
education and 114 238 (45.58%) in lower secondary education. 89 190 pupils were enrolled 
in upper secondary education, showing a decrease of 2.80% (91 755). Overall, according to 
INSTAT data for the academic year 2024-2025, 528 602 pupils and students were enrolled 
in formal  education,  with  a decrease of  1%  compared  with the  previous year  (533  711). In 
the  same  period,  405  989  pupils  were  enrolled  in  pre-university  education,  marking  a 
decrease of 2.57% (416 717).  

Albania took part to the Teaching and Learning International Survey. Albania participated in 
PISA  2025,  and  the  Ministry  of  Education  and  Sports  developed  a  roadmap  to  target  low 
score students.  

In  the  reporting  period,  the  vocational  education  and  training  (VET)  system  has 
undergone  several  improvements  and  was  changed  to  a  3+1  programme.  Albania  has 
updated  its  legal  framework  to  support  a  dual  VET  system  allowing  the  involvement  of 
private  and  public  employers.  As  of  September  2024,  dual  VET  programs  involving  203 
twelfth-grade students (35 girls/168 boys) piloted in ten VET schools. In the academic year 
2024-2025, the share of students enrolled in VET public schools represented 19% (16 976) 
of the general number of students enrolled in upper secondary education, up from 17.90% in 
the  previous  school  year  (2023-2024).  The  increase  aligns  with  the  National  Employment 
and Skills Strategy target of having one-third of pupils in VET. Albania still needs to establish 
a  legal  basis  for  recognizing  prior  non-formal  and  informal  learning  and  fully  staff  the 
National  Agency  for  VET  and  Qualifications.  These  measures  allow  to  develop  a  quality 
assurance  framework  in  vocational  education  and  training,  aligning  the  curricula  with  the 
European Qualifications Framework (EQF). 

On  higher  education,  Albania  is  a  member  of  the  European  Higher  Education  Area 

74 

 
 
(Bologna process). As set out in the 2024 Bologna Process Implementation Report, Albania 
still  needs  to  work  on  the  full  implementation  of  the  key  commitments,  especially  with 
regards to automatic recognition and quality assurance.  

On inclusive education, progress is being noted on the improvement of inclusive and child 
centred  practices  in  preschool  as  well  as  the  approximation  with  the  EU  “Early  Childhood 
Education and Care Quality”  framework.  5 233 students  with  special  needs  were  attending 
inclusive  classes,  16%  more  than  in  2023  (4 507).  Only  453  students  with  special  needs 
attended  special  schools  in  2024-2025  (518  in  2023).  The  percentage  of  students  with 
disabilities  attending  inclusive  education  represented  92%  of  students  with  special  needs 
compared  to  8%  of  those  attending  special  education.  In  the  reporting  period,  2 266 
assistant  teachers  (which  is  14%  more  compared  with  2023)  were  employed  in  the  public 
pre-university  education  system.  In  the  reporting  period,  13 130  Roma  and  Egyptian 
children  were  registered  in  pre-university  education  compared  to  12 508  in  2023.  To 
facilitate  communication  and  cooperation  between  vulnerable  groups  and  schools,  13 
mediators and 100 qualified teachers of Roma and Egyptian background are employed.  

On  digital  and  green  skills,  the  ICT  curriculum  was  developed  in  line  with  the  digital 
transformation  plan.  This  project  includes  installation of  smart  labs  over 600 public  primary 
and upper secondary schools.   

The  country  benefits  from  the  international  dimension  of  the  2021-2027  Erasmus+ 
programme. There were 15 higher education capacity-building projects selected for funding, 
from  which  9  are  coordinated  by  the  Albanian  Higher  Education  Institutions.  Selected 
mobility  projects  will  fund  over  3  700  students  and  staff  exchanges  from  and  to  Albania. 
Albania is participating in all the European Education Area working groups 2021-2025. 

In 2025,  Albania is  not taking  part  in the  European  Week of  Sport.  The amendment  of the 
Law  on  Youth  was  adopted  in  April  2025,  while  the  implementation  of  the  2022-2029 
National Youth Strategy continued. 

On  culture,  the  implementation  of  the  2019-2025  national  strategy  continued.  Authorities 
have  adopted  two  sub-legal  acts  for  the  Law  on  Cultural  Heritage  and  Museums,  but 
additional  implementing  legislation  is  still  needed  for  full  operation.  Albania  continued  to 
participate in the EU 2021-2027 Creative Europe programme and has acceded to the 2005 
UNESCO  Convention  on  the  Protection  and  Promotion  of  the  Diversity  of  Cultural 
Expressions. 

Chapter 29: Customs union 

All Member States are part of the EU customs union and follow the same customs rules and 
procedures.  This  requires  legislative  alignment  as  well  as  adequate  implementing  and 
enforcement  capacity  and  access  to  and  interoperability  with  the  EU  electronic  customs 
environment. 

On  customs  legislation,  Albania’s  customs  code  is  broadly  aligned  with  the  EU  acquis. 
However,  substantial  efforts  remain  needed  and  are  ongoing  to  keep  up  with  the  further 
developments  in  the  EU  customs  legislation,  in  particular  the  acts  implementing  the  Union 
Customs  Code.  The  levying  of  scanning  fees  for  customs  declarations  continues  to 
contravene the  Stabilisation  and  Association  Agreement,  which  prohibits customs  duties  or 
charges  with an  equivalent  effect  on trade  between the  EU  and  Albania and is  not  aligned 
with the Union Customs Code (UCC). The implementation Plan 2024-2025 of the Business 
Strategy  (2023-27)  of  the  Albanian  Customs  Administration  was  approved  to  address  the 
activities  of  the  Institution  for  the  period  2025  –  2026,  focusing  on  digitalization,  trade 
facilitation and protection of financial interest. 

Preparatory work for the development of a National Single Window and the preparations to 
join the Common Transit Convention are ongoing. An amendment to the legislation has been 
drafted and a contract was signed to work on the technical solutions for the implementation 

75 

 
 
of  the  New  Computerised  Transit  System  (NCTS)  at  national  level.  The  request  to  secure 
the  CCN/CSI  connectivity  has  been  made  which  is  the  main  condition  to  connect  with  the 
common domain and central EU applications for NCTS. 

Albania is implementing its authorised economic operator (AEO) programme, with 18 AEOs 
by  end  2024  and  further  applications  under  review.  Awareness-raising  activities  on  the 
benefits of the programme continued. Agreements signed with Serbia and North Macedonia 
on mutual recognition of AEOS (safety and security) can be implemented. 

As  part  of  the  anti-fraud  effort,  Albania  should  strengthen  combating  customs  fraud,  in 
particular smuggling of tobacco products and by cooperating with the European Anti-Fraud 
Office  (OLAF).  The  country  has  yet  to  accede  to  the  WHO  Framework  Convention  on 
tobacco control protocol to eliminate illicit trade in tobacco products. 

Risk  Management  procedures  in  place  are  in  line  with  the  UCC  and  use  electronic  data 
processing techniques. A dedicated risk selectivity module (and automated environment that 
enables  a  risk-based  selectivity)  is  integrated  with  the  customs  clearance  system.  New 
modules are planned to be implemented/improved in the Selectivity Module. Improvement of 
the  inspection  act  has  been  completed  and    work  is  ongoing  on  the  prearrival  information 
module. The national rules on cash and goods transported in travellers’ baggage still differ 
from  the  EU  acquis  and  should  be  aligned.  The  Albanian  Customs  Administration  can 
impose sanctions for non-declarations or mis-declarations of cash at the border. 

On administrative and operational capacity, the Albanian Customs Administration (ACA) 
reports  973  employees,  and  101  vacancies.  After  ratification  of  the  Agreement  on  the 
participation  of  Albanian  in  the  EU  Customs  Programme  in  June  2025,  Albanian  customs 
can  participate  in  the  Programme.  Albania  also  participates  in  different  fora  at  the  World 
Customs  Organisation.  Several  training  activities,  based  on  the  approved  annual  training 
calendar,  took  place  in  collaboration  with  the  Tax  and  Customs  Administration  Training 
Center. Albania needs to further align in the area of IT systems in operation and their future 
connectivity  with  the  EU  electronic  customs  environment.  A  number  of  large-scale 
investments  are  under  way,  planned,  or  finalised  including  on  NTCS  and  Single  Window, 
integrated  tariff  management  system  and  upgrades  to  the  customs  management  and  risk 
assessment  systems.  To  cope  with  all  the  investments  and  upgrade  there  is  a  need  to 
upgrade human resources and capacity. An IT strategy and roadmap is essential. Efforts are 
also undertaken to increase the digital access to customs services and ACA reports that 47 
customs  services  are  available  through  the e-Albania  portal.  A  laboratory  information  and 
management system (LIMS) is in place, but it needs funding for upgrades. 

In terms of prevention of corruption, a department for anti-corruption and ethics is in place, 
tasked with processing cases and complaints received. The Code of Ethics sets out the rules 
and  principles  of  conduct  that  all  employees  of  the  customs  administration  must  follow. 
is  currently  preparing  an  action  plan  aimed  at 
Albanian  Customs  Administration 
strengthening  integrity  and  promoting  high  standards  of  ethics  and  transparency  within the 
customs administration. 

CLUSTER 4: THE GREEN AGENDA AND SUSTAINABLE CONNECTIVITY 

This  cluster  covers:  transport  (Chapter  14);  energy  (Chapter  15);  trans-European  networks 
(Chapter 21); and environment and climate change (Chapter 27). 

Chapter 14: Transport policy 

The  EU  has  common  rules  on  technical  and  safety  standards,  security,  social  standards, 
State aid and market liberalisation in road transport, railways, inland waterways, multimodal 
transport, aviation and maritime transport. 

Regarding the general transport acquis, the national transport strategy and its action plan 

76 

 
 
 
for  2026-2030  has  not  yet  been  adopted.  More  efforts  are  required  to  fully  implement  the 
Intelligent Transport Systems (ITS) Directive, enhance multimodality and implement relevant 
national laws in compliance with the Transport Community action plans. The development of 
Sustainable Urban Mobility Plans for larger transport agglomerations in line with EU practice 
has not yet been carried out. 

Albania continued to actively participate in the work of the Transport Community. However, 
progress  in  implementing  the  six  Transport  Community  Treaty  action  plans  and  dedicated 
smart  and  sustainable  mobility  strategy  for  the  Western  Balkans  has  been  limited.  For  the 
period  2025-2027,  Albania  should  focus  on  the  implementation  of  the  next-generation 
Transport  Community 
action  plans  endorsed 
in 2025. 

Administrative  capacity 
transport 
the 
across 
sector 
requires 
still 
improvements,  based 
on the five-years action 
plan launched in March 
2023,  to  enhance  the 
capacities  in  planning 
and  implementing  rail 
infrastructure projects. 

road 

transport, 

On 
national legislation is partially aligned with the ITS Directive, but significant progress remains 
needed to align with the EU acquis. Road safety remains a concern, with fatality rates above 
the EU average and discrepancies between national data and WHO’s higher and unresolved 
estimates. Funding is still needed for a CARE-aligned crash data system, and the creation of 
a  dedicated  road  safety  agency  is  still  pending.  The  country  needs  to  strengthen  its 
inspection capacity  on  periodic  roadworthiness  tests.  Albania remains  partially  aligned  with 
the Directive on road infrastructure safety management, with no significant progress.  

During the reporting period, a traffic monitoring centre was set up, but more work is needed 
to ensure the alignment with the ITS acquis and ensure ITS deployment. 

Albania continued implementing a multiannual road maintenance plan. However, the issues 
regarding  the  Albanian  Road  Authority  Service  Level  Agreement,  establishment  of  road 
asset  management  system  and  the  adoption  of  an  efficient  strategy  on  the  funding 
sustainability for road maintenance remain to be addressed. 

On  railway  transport,  the  staffing  process  of  the  Railway  Safety  Authority  has  proven 
challenging  and  is  still  ongoing.  In  December  2024,  a  law  was  adopted  facilitating  the 
separation of the company into two distinct commercial entities: the railway undertaking and 
the  infrastructure  administrator.  Further  efforts  are  needed  to  strengthen  the  institutional 
framework to ensure its effective implementation. 

Albania needs to continue its efforts to fully align with the EU rail safety and interoperability 
rules,  including  the  electronic  register  of  vehicles  and  the  rail  infrastructure  asset 
management system (RIAMS). The National Investigation Authority for Railway and Maritime 
has been set up, and the Head of the Authority has been appointed. 

On  maritime  transport,  Albania  remains  on  the  grey  list  of  Paris  Memorandum  of 
Understanding  on  Port  State  Control  (Paris  MoU).  In  2024,  foreign  Port  State  Control 
authorities  conducted  14  inspections  on  Albanian-flagged  vessels,  all  of  which  resulted  in 
zero detentions. 

Albania still needs to fully align with the EU  acquis on the EU vessel-traffic monitoring and 

77 

 
 
information  system  (VTMIS),  with  installation  ongoing  and  expected  by  end-2025.  In  2024, 
an  environmental  organisation  raised  concerns  over  hazardous  wastes  loaded  onto 
container  ships  at  Durrës  Port,  highlighting  gaps  in  port  oversight  and  capacity.  The  case 
remains under investigation. 

Albania still needs to fully align with the Regulation establishing a European Maritime Single 
Window environment. 

No  further  progress  has  been  made  in  the  area  of  inland  waterway  transport,  which  is 
limited  to  two  lakes  shared  with  neighbouring  countries  and  governed  by  bilateral 
agreements. 

On  aviation,  the  EASA  inspection  conducted  in  May  2025  confirmed  a  good  level  of 
implementation  of  the  EU  aviation  safety  acquis  in  the  domain  of  air  crew.  No  further 
progress has been noted in the implementation of the EU acquis.  

On multimodal transport, Albania has not yet aligned with the combined transport Directive.  

There  were  no  developments  on  passenger  rights,  although  the  legislation  on  passenger 
air rights is largely aligned with EU acquis. 

Chapter 15: Energy 

EU  energy  policy  covers  energy  supply,  infrastructure,  the  internal  energy  market, 
consumers,  renewable  energy,  energy  efficiency,  nuclear  energy  and  nuclear  safety, 
radiation protection and nuclear safeguards. 

Albania  needs  to  accelerate  its  efforts  to  adopt  the  updated  National  Energy  and  Climate 
Plan  (NECP)  2021-2030,  as  the  NECP  has  a  critical  role  in  boosting  the  deployment  of 
renewable energy and ensuring compliance with the 2030 energy targets.  

On security of supply, the national legislation is partially aligned with EU acquis for gas and 
oil, whereas for electricity the alignment with the Risk-preparedness Regulation is pending. 
Full  compliance  with  the  oil  stocks  acquis  and  improvements  in  reporting  and  setting  up  a 
central  oil  stockholding  body  remain  needed.  A  law  on  safety  reserves  for  oil  and  its  by-
products to ensure the alignment with the relevant acquis is expected to be adopted.  

On  the internal  energy market,  alignment  with Electricity  Integration  Package  is  yet to  be 
completed.  A  drafting  of  the  Power  Sector  Law  is  ongoing  and  the  Energy  Community 
Secretariat reviewed the draft law in July 2025. The Regulation on Capacity Allocation and 
Congestion  Management  has  been  approved  in  May  2025  by  the  Energy  Regulatory 
Authority  (ERE).  In  2024,  ALPEX  updated  the  electricity  market  rules  to  align  with  the 
Electricity Market Regulation and the decisions of the Agency for the Cooperation of Energy 
Regulators  (ACER)  regarding  the  Single  Day-Ahead  Coupling  (SDAC)  and  Single  Intraday 
Coupling  (SIDC)  markets.  In  December  2024,  these  amendments  were  approved  by  ERE. 
The  first  intraday  auction  of  the  Albanian  Power  Exchange  (ALPEX),  marking  Albania-
Kosovo market coupling, took place and delivered in December 2024. 

Electricity prices are still not fully liberalised. Customers on 20 kV, 35 kV, and 110 kV grids 
already  benefit  from  a  deregulated  market.  A  December  2024  Ministerial  Order,  set  a 
roadmap to include 10 kV customers from January 2025 and 6 kV customers. from January 
2026. After this date, only low-voltage (0.4 kV) customers will remain regulated. 

In October 2024, Energy Regulatory Authority (ERE) expanded its staff and restructured to 
include new units on renewables and regulatory compliance, improving its capacity to meet 
sector  needs.  The  new  structure  has  new  sectors  and  departments,  meaning  new 
challenges for ERE and new staff to be trained. 

On renewable energy, a December 2024 Ministerial Order set a plan for at least 300 MW 
by  2027,  which  adds  to the  860  MW  of  capacity  already  allocated  since  2019  through  five 
Competitive Procedures (Auctions).  

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In  December  2024,  ERE  adopted  the  Regulation  on  the  Transfer,  Settlement,  and 
Cancellation  of  Guarantees  of  Origin  (GOs),  and  procured  services  to  provide  electronic 
GOs,  now  accessible  to  all  market  participants.  A  new  law  on  biofuels  and  renewable 
transport fuels, partially aligned with EU rules, was approved by Parliament in June 2025. 

Regarding  energy  efficiency,  in  June  2025  Parliament  approved  a  Law  on  energy 
performance  of  buildings  aiming  to  align  with  the  relevant  EU  acquis.  It  also  approved  a 
long-term  building  renovation  strategy,  while  an  action  plan  is  under  development  to  meet 
the 3% annual renovation target for public buildings by 2030. 

However, implementation of existing legislation on the energy efficiency obligation, labelling, 
increasing  electric  vehicles  and  implementing  an  action  plan  for  public  building  energy 
performance remains pending. 

for  developing  and 

implementing  energy  efficiency  plans  remain, 
Key  challenges 
coordinating  the  preparation  and  implementation  of  the  action  plan  at  national  level  within 
the  NECP  with  the  energy  efficiency  planning  at  municipal  level,  including  support  for 
vulnerable  groups,  and  expanding  the  capacity  of  certified  energy  auditors.  Additional 
financing incentives for the annual renovation of public buildings are also needed to achieve 
targets for renovation of public building by 2030. 

In the area of governance, Albania needs to accelerate the finalisation of its updated NECP. 
Timely  completion  of  the  NECP  is  essential  to  guide  energy  reforms,  attract  investments, 
and align with the Energy Community’s governance framework. 

Albania has made no further progress, in the reporting period, on nuclear energy, nuclear 
safety  and  radiation  protection.  In  addition  to  accelerating  efforts  to  align  with  Euratom 
legislation  and  participate  in  the  European  Community  Urgent  Radiological  Information 
Exchange  (ECURIE)  and  the  European  Radiological  Data  Exchange  Platform  (EURDEP), 
Albania should focus  on  strengthening the  capacities of the  Institute  of Nuclear  Physics  as 
well  as  the  Institute  of  Radiation  Protection.  On  nuclear  safeguards,  upon  accession, 
Albania  would  need  to  adjust  nuclear  material  control  systems  to  accommodate  Euratom 
Treaty safeguards provisions.  

Chapter 21: Trans-European networks 

The  EU  promotes 
transport, 
telecommunications  and  energy  to  strengthen  the  internal  market  and contribute  to  growth 
and employment. 

trans-European  networks 

the  areas  of 

(TENs) 

in 

On  transport  networks,  the  strategic  framework  is  partially  aligned  with  the  EU  acquis. 
Further efforts are needed to improve administrative capacity for developing and monitoring 
TEN-T. In 2025, the government approved a Decision of the Council of Ministers endorsing 
the  Document  of  Priority  Policies  2026-2028,  which  sets  out  the  updated  list  of  priority 
projects  for  developing  the  core  and  comprehensive  regional  transport  network  across  all 
modes. 

The  core  road  network development  and  implementation  in Albania notably  in the  Adriatic-
Ionian Corridor and road Corridor VIII continued without significant progress in the reporting 
period. Further efforts are needed to make full use of the Road Asset Management System. 

The  reconstruction  of  the  railway  network  relies  heavily  on  external  financing,  including 
EBRD/EIB  loans,  and  WBIF  grants.  Phases  of  funding  for  the  projects  require  careful 
coordination  to  ensure  timely  completion.  There  are  systematic  delays,  especially  in  the 
signature of loan/grant agreements between Albania and International Financial Institutions 
(IFIs),  coupled  with  important  cost  increases  from  the  original  estimates.  Albania  needs  to 
include the other rail segments of the Corridor VIII in the list of investments to be supported 
by  the  Reform  Growth  Facility.  The  rehabilitation  of  the  Durrës-Tirana  line  and  the 
construction  of  a  new  line  to  the  international  airport  continued  to  progress  in  line  with 

79 

 
 
contractual  obligations.  The  overall  progress  was  estimated  at  87%  of  construction  works. 
The  country  continued  to  implement  a  five-year  action  plan  with  the  aim  to  strengthen  the 
programming  and  project  management  capacity,  to  address  bottlenecks  and  ensure  the 
effective  operationalisation  of  investment  grants  awarded  under  the  Western  Balkans 
Investment Fund platform.  

No  concrete  steps  have  been  taken  to  shift  freight  activities  from  the  ports  of  Durrës  and 
Vlora to the port of Porto Romano. State budget will be used by the government to fund the 
new port of Porto Romano rather than a public-private partnership. While construction is yet 
to begin, the pre-qualification tender of the works for the port of Porto Romano was finalised. 
Preventing corruption is crucial to avoid criminal infiltration in the transportation and logistics 
chain. 

On  energy  networks,  Albania’s  policy  does  not  still  align  with  the  objectives  of  the  trans-
European Networks  for energy  policy,  as  implemented  through  the  TEN-E  Regulation.  The 
country still needs to comply with the revised TEN-E Regulation, as adopted in the Energy 
Community. 

Albania does not have gas network on its territory.  

For electricity, Albania remains connected to Greece, Montenegro and Kosovo, through high 
voltage  networks  of  400 kV,  220 kV,  150 kV,  and  110 kV.  The  construction  of  the  400 kV 
the 
interconnection 
interconnection between Fier and Elbasan substations are ongoing and are expected to be 
completed  by  mid  of  2026.  However,  delays  in  compensating  individuals  for  the 
expropriation  related  to  the  Fier  substation  and  transmission  line  may  affect  the  project 
completion timeline.  

in  Albania  and  North  Macedonia  and  of 

line  between  Fier, 

Albania still needs to develop its regional electricity connections in line with the Central and 
South-Eastern  Europe  Energy  Connectivity  (CESEC)  action  plan  on  electricity  and 
renewable energy and the Projects of Energy Community Interest (PECI) involving Albania 
such as closing the 400 kV Albanian internal ring as well as reconfiguration of 400 kV grid 
and new 400 kV interconnection Albania-Kosovo. 

In November 2024, Albania updated its renewable energy deployment framework and plans 
to revise permitting rules by 2025 to streamline procedures, the net billing support scheme, 
the  rights  and responsibilities  for  renewable  energy  self-producers.  However,  in  December 
2024 the government approved a 170 MW thermal plant in Roskovec, facing opposition from 
locals and a court appeal over environmental concerns. 

Chapter 27: Environment and climate change 

The  EU  promotes  strong  climate  action,  sustainable  development  and  protection  of  the 
environment. EU rules contain provisions addressing climate change, water and air quality, 
waste  management,  nature  protection,  industrial  pollution,  chemicals,  noise  and  civil 
protection. 

Environment 

In  terms  of  horizontal  legislation,  Albania  needs  to  significantly  improve  alignment  and 
implementation,  particularly  the  Environmental  Impact  Assessment  (EIA)  and  the  Strategic 
Environmental  Assessment  (SEA)  Directives.  Institutional  capacity  for  coordinated  and 
strategic  environmental  planning  and  investments  remains  weak,  with  poor  EIA  quality, 
recommendations  rarely  implemented  or  monitored,  low  public  participation  in  decision- 
making and limited enforcement of horizontal legislation. The 2024 amendments to the Law 
on protected areas led to unravelling of their protection. Over the reporting period, inspection 
and  enforcement  capacity  further  weakened,  especially  in  tackling  environmental  crimes  in 
protected areas. Limited funding, high staff turnover, and lack of expertise have eroded the 
central  administration.  Albania  needs  to  improve  environmental  monitoring  and  strengthen 
administrative  capacity  to  meet  EU  standards.  Despite  challenges,  Specialised  Anti-

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Corruption Structure (SPAK) investigations into the Tirana incinerator led to the sentencing 
of  several  municipal  officials,  including  a  former  minister.  An  investigation  into  102 
containers of suspected toxic waste returned from Thailand in October 2024 is still ongoing. 

In September 2024, Albania adopted legal changes that aligned the spatial data legislation 
with  the  INSPIRE  Directive.  Its  National  Geoportal  has  also  been  completed  with  the 
geoinformation layers. 

No  progress  has  been  observed  on  alignment  with  the  EU  air  quality  acquis.  The  air 
monitoring system remains to be extended and improved, as it still has only seven automatic 
stations  nationwide,  non-operational  due  to  insufficient  allocation  of  funds  for  their 
maintenance. 

On  waste  management,  the  government  announced  in  August  2025  the  reform  of  the 
sector,  which  will  consist  in  centralising  waste  collection  and  management,  currently 
devolved  to  municipalities.  The  National  Agency  for  Waste  Economy  (AKEM)  should 
become a state-owned company in 2026 and operate as national waste treatment operator, 
with municipalities becoming its clients. AKEM has still very low capacity and expertise. The 
draft laws on integrated waste management and on extended producer responsibility, aiming 
the  alignment  with  the  relevant  EU  acquis,  remain  to  be  adopted.  Urgent  action  against 
littering  is  needed.  There  is  no  single-use  plastics  bans  yet  in  line  with  the  Single-Use 
Plastics  Directive.  Since  December  2024,  a  pilot  project  on  municipal  waste  separation  at 
source runs in Berat. 

On  water  quality,  further  alignment  with  nine  EU  Directives  is  still  pending.  Five  of  seven 
River  Basin  Management  Plans  (RBMP)  are  implemented  (Drin-Buna,  Semani,  Ishmi, 
Erzeni,  and  Mati  rivers),  with  updates  expected  in  2025;  the  two  others  are  still  pending 
(Shkumbini  and  Vjosa).  Flood  hazard  maps  cover  96%  of  areas  with  significant  flood  risk 
(ASFPR)  and  flood  risk  maps  84%  of  high-risk  areas.  Water  abstraction  from  rivers  and 
protected areas, without consultation with local communities and environmental CSOs, has 
caused local conflicts. Water supply and sewerage services remain low. To further align with 
the EU water acquis, Albania needs to boost funding, enhance the implementation capacity 
and finalise a national water monitoring programme.   

Alignment  with  the  EU  acquis  on  nature  protection,  in  particular  the  habitats  and  birds 
Directives,  needs  further  improvement.  The  2024  legislative  amendments  to  the  Law  on 
protected  areas  led  to  deterioration  on  nature  protection.  Works  for  the  first  large  touristic 
resort in the Buna-Velipoja Protected Landscape, which is in the list of the potential Natura 
2000  sites  in  Albania  started  amid  protests  by  the  local  population.  The  2015  Law  on 
Strategic Investments  has again been  extended,  with its validity  now  prolonged until  2027. 
Its  repeated  extension  continues  to  raise  concerns  about  possible  environmental  impacts, 
particularly in protected areas. The March 2025 ‘Mountain Package’ law may open the way 
for  large-scale  construction  or  investment  projects  in  forests  and  pastures,  reducing  forest 
areas  and  contradicting  the  2020  Forest  Law.  Additionally,  it  risks  to  harm  Albania’s 
ecological  and  biodiversity  values,  in  conflict  with  EU’s  habitats  and  birds  Directives.  The 
construction  of  the  new  Vlora  Airport  within  the  Pishe  Poro-Narta  Protected  Area  is  still 
advancing,  despite  the  request  of  the  Standing  Committee  of  the  Bern  Convention  in 
December 2023 and in December 2024 to suspend the works until a new and sufficient EIA 
procedure is conducted.  

In May, concerns were raised about leachate, oil and bitumen spills, gravel mining and water 
abstraction  within  the  Vjosa  River  National  Park,  which  may  affect  the  integrity  of  the 
protected area. The government referred to work on an Integrated Management Plan but did 
not address these ongoing activities. 

Significant enforcement gaps persist in Albania’s forest and logging laws. Despite moratoria, 
illegal logging and hunting continued unchecked and have increased in intensity, even within 
protected  areas.  The  environmental  risks  of  the  Skavica  hydropower  plant  project  to 

81 

 
 
ecosystem  and  local  communities  persist.  Albania  should  advance  the  identification,  pre-
designation, and protection of the sites that will be covered by the Natura 2000 network. 

On  industrial  pollution  and  risk  management  no  progress  was  made  due  to  persistent 
capacity  and  financial  constraints,  which  hinder  the  implementation  of  legislation  on  the 
prevention of major industrial accidents. 

On  chemicals,  no  progress  has  been  made.  The  REACH  implementing  legislation  on  the 
registration,  evaluation,  authorisation  and  restriction  of  chemicals  still  needs  to  be  adopted 
and  adequate  administrative  structures  to  be  set  up.  The  same  applies  to  alignment  with 
Biocides Regulation. 

Regarding  noise,  no  progress  was  made  in  the  reporting  period  since  Albania  has  not 
prepared  strategic  noise  maps  and  action  plans.  While  noise  level  monitoring  has  been 
carried out in the main cities of Albania, data are not accessible by the public. 

On civil protection, as Participating State of the Union Civil Protection Mechanism (UCPM), 
the country actively participates in the relevant activities.  Albania's response capacities are 
often  overwhelmed,  especially  for  wildfires,  resulting  in  more  frequent  requests  for 
assistance to the UCPM. Albania needs to revise emergency plans, upgrade early warning 
and response infrastructure, and improve operational capacity.  The country should establish 
Trans-European Services for Telematics between Administrations (TESTA) connection as a 
precondition  for  connecting  to  the  Common  Emergency  Communication  and  Information 
System  (CECIS),  alongside  better  use  of  the  Commission’s  Emergency  Response 
Coordination Centre. 

Climate change 

Alignment with the EU acquis on climate remains limited and no particular development was 
reported on addressing climate change. The country’s ability to integrate climate change into 
sectoral  strategies  and  plans  is  still  weak.  Deficiencies  in  the  financial  and  administrative 
capacities  for  climate  change  were  not  addressed  and  hamper  progress  in  the  sector. 
Moreover,  no  emissions  register  is  in  place.  Albania  is  expected  to  adopt  the  updated 
National Energy and Climate Plan (NECP) 2021-2030. The Climate Law should be updated 
to align with the EU’s 2050 climate neutrality target and a long-term low-carbon development 
strategy  until  2050  aligned  with  this  goal  should  be  developed.  In  September  2024,  eight 
municipalities have prepared their local adaptation plans.  

Albania  still  needs  to  align  with  the  Monitoring,  Reporting,  Verification  and  Accreditation 
(MRVA) acquis covering the full EU Emissions Trading System’s (EU ETS) scope. It should 
also  fully  align  with  EU  acquis  on  fluorinated  greenhouse  gases,  ozone-depleting 
substances, and emissions from vehicles and road transport.  

In  March  2025,  Albania  approved  the  construction  of  a  new  thermal  power  plant.  This 
decision could jeopardise the country’s ability to fulfil its climate targets and align with those 
of  the  EU.  Albania  needs    also  to  take  decisive  steps  for  introduction  of  carbon  pricing  to 
facilitate joining the EU ETS upon accession. 

Albania  should  without  delay,  submit  its  first  biennial  transparency  report  and  a  new  and 
ambitious Nationally Determined Contribution under the Paris Agreement, in line with efforts 
to limit global warming to 1.5°C. 

CLUSTER 5: RESOURCES, AGRICULTURE AND COHESION 

This cluster covers: agriculture and rural development (Chapter 11); food safety, veterinary 
and  phytosanitary  policy  (Chapter  12);  fisheries  and  aquaculture  (Chapter  13);  regional 
policy  and coordination of  structural  instruments  (Chapter  22);  and financial  and budgetary 
provisions (Chapter 33). 

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Chapter 11: Agriculture and rural development 

The EU’s common agricultural policy supports farmers and ensures Europe’s food security. 
It  helps  tackle  climate  change  and  the  sustainable  management  of  national  resources; 
maintains rural areas and landscapes across the EU; and keeps the rural economy alive by 
promoting jobs in farming, agri-food industries and associated sectors. This requires strong 
management  and  control  systems.  There  are  also  common  EU  rules  for  marketing 
standards, quality policy and organic farming. 

On  horizontal  issues,  Albania  needs  to  improve  its  institutional  capacity  building  and  to 
align  its  financial  management  and  control  systems  with  those  of  the  common  agriculture 
policy  (CAP).  During  the  reporting  period,  no  progress  was  made  in  developing  the 
integrated  administration  and  control  system  (IACS).  The  farm  register  remains  to  be  fully 
aligned  with  the  EU  acquis.  The  land  parcel  identification  system  (LPIS)  should  be  set  up. 
No progress was made on introducing conditionality requirements for direct payments.  

The setting-up of a farm sustainability data network (FSDN) needs to progress, incorporating 
environment  and  social  data  in  line  with  the  EU  acquis.  Implementation  of  the  strategic 
action  plan  for  the  reform  of  the  advisory  system  should  be  hastened  as  capacity  remains 
low. 

On  the  common  market  organisation  (CMO),  implementing  legislation  was  adopted  in 
November  2024  on  classification  of  grape  varieties  used  for  wine  production  and  on 
definition  of  tasks  of  related  responsible  institutions,  which  are  partially  aligned  with  the 
acquis. Further efforts in this area are needed in order to strengthen the limited institutional 
capacity for implementation. 

On rural development, increased capacity and oversight is needed to start the entrustment 
and  the  efficient  implementation  of  the  IPARD  III  in  full  compliance  with  the  principles  of 
sound financial management. 

No progress to align the legislation on quality policy with the EU acquis was made during 
the reporting period. 

On  organic  farming,  legislation  on  organic  production,  labelling  of  organic  products  and 
their  control  was  adopted  in  October  2024,  further  aligning  with  the  EU  acquis.  Its  proper 
implementation should be ensured. 

On  the  fight  against  corruption,  the  IPARD  bodies  are  obliged  to  prevent,  detect  and 
report irregularities.  

Chapter 12: Food safety, veterinary and phytosanitary policy 

The EU food acquis including hygiene rules for foodstuff production ensures a high level of 
food  and  feed  safety  and  a  high  level  of  protection  of  consumers’  interests.  Animal  health 
and welfare and the safety of food of animal origin are safeguarded together with the quality 
of  seeds,  plant reproductive  material, the  protection  against  harmful  organisms  and animal 
nutrition and the use of plant protection products. 

On general food safety, the legal framework remains partially aligned with the EU General 
Food  Law  Regulation.  The  legislation  on  official  controls  has  yet  to  be  aligned  with  the 
Official  Controls  Regulation  (OCR).  Efforts  are  needed  by  the  competent  authorities 
regarding  enforcement  of  legislation  and  risk  management  concerning  the  placing  of 
food/feed on the market. The National Food Authority (AKU) has yet to strengthen its focus 
on  inspection  statistics,  data  management  and  transparency.  The  transparency  principle  is 
to  be  applied  to  official  control  systems  in  line  with  the  OCR.  Adequate  administrative  and 
financial resources remain necessary to support the performance of official controls also by 
means  of  a  transparent  collection  of  fees.  Albania  still  has  not  drawn  up  a  multiannual 
national control plan. 

For the official laboratory network, validated screening methods to guarantee the reliability of 

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results for the relevant species and commodities need to be put in place, and further efforts 
are necessary to improve developing capacity, accreditation and validation of the methods. 
Resources  must  be  dedicated  to  border  controls,  so  they  are  performed  according  to  EU 
standards. 

On  veterinary  policy,  the  Animal  Health  Law,  was  adopted  in  June  2025  but  its 
implementation  will  only  start  two  years  after  adoption.  Albania  has  in  place  the  main 
elements  for  the  veterinary  services  based  on  the  current  national  law.  The  reform  of  the 
veterinary  sector  remains  incomplete,  with  insufficient  human  resources  at  the  central  and 
local  level.  Significant  efforts  are  still  required  to  establish  the  necessary  capacities  on 
passive and active surveillance. 

Albania  did  not  continue  the  vaccination  campaigns  against  rabies.  Necessary  measures 
should  be  taken  to  align  the  actions  following  the  regional  approach  on  control  and 
eradication  of  rabies.  Albania  continued  the  implementation  of  programmes  for  monitoring 
brucellosis and tuberculosis in cattle herds. While countrywide verification and registration of 
the  number  of  animals  continued,  substantial  work  is  still  required  to  upgrade  the  animal 
register  with  additional  information  on  other  animals  as  referred  to  in  the  EU  acquis,  to 
ensure that solid traceability systems are put in place for food of animal origin. 

Albania further aligned the EU acquis on animal welfare, with the adoption of two bylaws in 
July  2025  on  the  protection  of  animals  at  farm,  during  transport  and  at  the  time  of  killing. 
Efforts are needed to work on their proper implementation, ensuring sufficient administrative 
capacity  for  enforcement,  as  well  as  putting  in  place  the  related  certificates  and  approvals 
required by the legislation. 

Regarding the placing on the market of food, feed and animal by-products, Albania has 
a  low  level  of  alignment  with  the  EU  acquis.  Albania  implemented  its  national  residue 
monitoring  plan,  but  the  referred  residue  monitoring  plans  are  not  comprehensive  enough. 
No  progress  was  made  on  the  legal  basis  for  animal  by-products  (ABPs)  and  an  EU 
compliant system of collection, storage and processing of ABPs is not yet in place.  

On food safety rules, Albania continued to partially align with the acquis on food additives 
and  identification  of  maximum  levels  for  certain  contaminants  in  food.  Regarding  pesticide 
residues, Albania has yet to improve the enforcement of actions taken in  the event of non-
compliance  and  increase  transparency.  No  progress  was  made  on  developing  a  national 
programme to improve milk quality. On specific rules for feeds, Albania made no progress 
on legislative alignment with the EU acquis. 

On  phytosanitary  policy,  the  Plant  Health  Law  was  adopted  in  June  2025,  but  will  be 
applicable only two years after adoption. Albania approved the multiannual pest monitoring 
plan 2025 - 2028. Additional actions notably in relation to detection and eradication of pests 
are yet to be implemented. 

No progress was made during the reporting period on genetically modified organisms. 

Chapter 13: Fisheries and aquaculture 

The  common  fisheries  policy  lays  down  rules  on  fisheries  management,  protects  living 
resources  of  the  sea  and  limits the  environmental  impact  of  fisheries.  This  includes setting 
catch quotas, managing fleet capacity, rules on control and inspection, rules on markets and 
aquaculture  and  support  for  fisheries  and  coastal  communities.  Further,  it  promotes  a 
sustainable aquaculture. 

Regarding  resource  and  fleet  management  and  structural  actions  the  vessel  register 
continued  to  improve,  and  fishery  production  data  are  regularly  maintained  and  updated. 
There is an advanced level of alignment with the EU acquis. Further efforts are needed on 
alignment  on  data  collection  in  particular  as  concerns  reporting  on  sharks,  eel,  biological 
data collection, recreational fisheries and discard plans. Albania continues to be in line with 
the recommendations of the GFCM for the sustainable exploitation of fish stocks. There is no 

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progress regarding small-scale fisheries. 

Inspection  and  control  capacity  to  monitor  24/7  fishing  activity  in  order  to  fight  against 
illegal,  unreported  and  unregulated  (IUU)  fishing  has  been  strengthened,  based  on  a 
functional  and  operating  vessel  monitoring  system  (VSM).  The  online  electronic  inspection 
system provides for a transparent procedure, secure data recording and transmission to the 
concerned authorities. 

The  capacity  to  interpret  and  implement  the  national  legislation  in  this  field  or  the  EU 
common  fisheries  policy  and  data  collection  needs  to  be  further  improved,  in  particular  on 
scientific capacity and data management. 

On market policy, legislation concerning market plans remains to be fully aligned. On State 
aid,  no  support  was  made  available  under  the  national  support  scheme,  as  a  separate 
financing measure for the fisheries sector. 

Regarding aquaculture, public open competition was implemented for Vlora and Shengjin, 
based  on  the  adopted  plans  on  the  allocated  zones  for  aquaculture  (Shengjin,  Durrës, 
Saranda and Vlora). 

Regarding  international  agreements  on  fisheries  and  aquaculture  management,  Albania 
has fully implemented the GFCM recommendations on controlling fishing and confirmed as 
Compliance  category  1.  Albania  should  continue  to  actively  participate  and  implement 
GFCM recommendations. 

As  regards  the  wider  blue  economy,  Albania  is  encouraged  to  promote  regional  maritime 
cooperation with partner countries in the Adriatic-Ionian Sea. 

On  maritime  spatial  planning,  a  Decision  of  the  Council  of  Ministers  was  revised  in 
November 2024. Albania should continue to develop its National Maritime Spatial Plan. 

On the  fight  against  corruption, the  national  Cross-Cutting  Anti-Corruption  Strategy  aims 
to  ensure  accountability  and  ethical  governance,  including  fisheries.  Albania  has  taken 
concrete steps to fight corruption in the fisheries sector by focusing on transparency, digital 
tools, and ethics. This includes using online systems for licences and inspections, applying 
Integrity  Plans  in  the  Fisheries  Directorate,  and  carrying  out  regular  internal  and  external 
audits. 

Chapter 22: Regional policy and coordination of structural instruments 

inclusive  socio-economic  growth. 

Regional  policy  is  the  EU’s  main  tool  for  reducing  regional  disparities  and  investing  in 
‘‘shared 
sustainable  and 
management’’  between  the  Commission  and  EU  Member  States.  The  implementation  of 
cohesion  policy  programmes  requires  appropriate  administrative  capacity  on  programme 
and project level, the establishment of systems of sound financial management and control 
and  also  the  fulfilment  of  other  EU  acquis  elements  such  as  environmental  or  public 
procurement legislation. 

is  operating 

through 

It 

Regarding  the  legislative  framework,  Albania  has  achieved  partial  alignment  with  EU 
legislation and policies for the proper implementation of EU cohesion policy. More efforts are 
needed  on  State  aid  and  legislation  on  Environmental  Impact  Assessments  (EIA)  and 
Strategic Environmental Assessments (SEA), including by aligning with the acquis on State 
aid,  full  harmonisation  with  the  SEA  and  EIA  directives  and  significant  improvement  of  the 
capacity  of  central  and  local  authorities.  Further progress  on  acquis  alignment  on territorial 
classification  and  the  related  National  Strategy  and  Plan  for  Regional  Development  and 
post-2030  General  National  Spatial  Plan  is  needed.  The  Law  on  the  organisation  and 
functioning of the Audit Authority was amended in March 2025 to align with the requirements 
under the Financial Framework Partnership Agreement.  Single audit arrangements need to 
be  fostered  in  the  legal  system  and  mechanisms  need  to  be  established  to  ensure  co-
financing  of  multi-annual  programmes  in  the  area  of  budget  planning.  Council  of  Ministers 

85 

 
 
needs  to  pass  a  decision  on  the  establishment  of  the  partnership  principle  in  line  with  the 
European  Code  of  Conduct  on  Partnership.  Regarding  the  institutional  framework,  the 
Minister  of  State  for  Local  Government  was  nominated  as  negotiator  for  Chapter  22  in 
December 2024 after a gap of several months. The performance of the managing authorities 
responsible  for  the  OPs  and  Interreg  cooperation  programmes  remains  at  risk  due  to 
insufficient  administrative  and  technical  capacities  and  stakeholder  engagement,  limited 
experience  with  programme  implementation,  financial  management  and  control  under 
shared  management  and  indirect  management  by  beneficiary  country  (IMBC),  a  lack  of 
proper  IT  systems  for  monitoring  and  reporting  activities  and  high  staff  turnover. 
Responsibilities at all operational levels need clear definition, the separation of authorisation, 
control, and accounting for commitments and payments, and execution of payments need to 
be guaranteed, and functions between the Managing Authority(ies), intermediate bodies and 
Audit  Authority  need  adequate  separation.  Particular  attention  must  be  given  to  the 
independence of the Audit Authority. The Working Group for Chapter 22 met four times since 
September 2024. 

On  administrative  capacity,  strengthening  human  resources  is  still  critically  necessary 
along  with  staff  retention  policy.  State  Agency  for  Strategic  Programming  and  Aid 
Coordination  (SASPAC)  understaffing,  as 
for  Cross-Border 
the  National  Authority 
Cooperation  (CBC)  and 
Interreg  programmes,  requires  urgent  attention.  Managing 
authorities  and  implementing  institutions  must  address  staffing  shortages,  retention  policy, 
and  capacity  to  ensure  timely  and  effective  project  implementation  and  proper  compliance 
with  required  separation  of  functions  and  duties.  Further  institutional  capacities  on  central 
and  local  level  related  to  project  preparation,  appraisal  and  selection  process  are  needed. 
On  programming,  public  investment  management  procedures  have been  strengthened  by 
amendments  in  2024  and  2025.  The  National  Single  Project  Pipeline  (NSPP)  is  regularly 
updated  and  categorises  projects  based  on  their  maturity  status  but  does  not  include 
municipal-led  projects.  Further  institutional  capacities  on  central  and  local  level  related  to 
project  preparation,  appraisal  and  selection  process  are  needed.  Albania  needs  to  resolve 
any issues of securing co-financing. The national policy for regional development to support 
territorial  development  and  integration  into  national  sectoral  policies  needs  to  be  finalised. 
Delays  in  approving  the  Financing  Agreement  for  IPA  2024  and  the  three  Operational 
Programmes put at risk their timely implementation. Lengthy procedures for amending CBC 
programmes risk delaying cooperation with neighbouring countries and  effective use of EU 
funds. Changes to the approval and signing processes of agreements and amendments are 
needed to speed up the process. Albania needs to demonstrate efficient implementation of 
the partnership principle. 

On  monitoring  and  evaluation,  administrative  capacities  have  been  improved  but  need 
further strengthening. Regular sectoral and IPA monitoring committees discuss the progress 
on  EU  pre-accession  programmes.  Monitoring  and  national  evaluation  systems  still  need 
improvement  to  align  with  cohesion  policy  requirements.  As  regards  territorial  cooperation, 
the monitoring role of the National Authority should be enhanced. 

On financial management, control and audit, the Law on the organisation and functioning 
of  the  EU-Accredited  Agency  for  the  Audit  of  Assistance  Programmes  was  amended  in 
March  2025  to  clarify  the  management  responsibilities.  The  IPA  III  OPs’  risk  management 
and internal control capacities need strengthening. Albania should improve its track record in 
following up audit recommendations. Capacities of staff in management and control systems 
have been improved but need further strengthening. Stronger interinstitutional collaboration 
is needed to prepare and implement legal reforms for post-accession funds under the PFM 
strategy 2023-2030 and action plan 2023-2026. Albania should adopt the public accounting 
law in compliance with the International Accounting Standards for the Public Sector. 

On  fight  against  corruption,  the  anti-corruption  and  anti-fraud  measures  need  to  be 
effectively  implemented,  in  line  with  the  new  Inter-Sectoral  Strategy  for  Anti-corruption 
(ISAC) 2024-2030 and the National anti-fraud strategy 2025-2027. Closer coordination with 

86 

 
 
the  Ministry  for  Public  Administration  and  Anti-Corruption,  the  Ministry  of  Finance  and 
SASPAC is desired. 

On  visibility,  transparency  and  communication,  the  single  website  to  communicate 
about  the  various  programmes  supported  with  EU  funding  under  the  National  IPA 
Coordinator (NIPAC) office and SASPAC is online since September 2025. Engagement of 
the  national  communication  coordinator  in  the  InformEU  and  Interreg  Communication 
Officers Network (ICON) is desired.  

Chapter 33: Financial and budgetary provisions 

This  Chapter  covers  the  rules  governing  the  funding  of  the  EU  budget  (‘own  resources’). 
These  resources mainly  consist  of:  (i)  contributions  based  on  the  gross  national  income of 
each  Member  State;  (ii)  customs  duties;  (iii)  the  non-recycled  plastic  resource  and  (iv)  a 
the  appropriate 
resource  based  on  value-added 
administrative  capacity  to  adequately  coordinate  and  ensure  the  correct  calculation, 
collection, payment and control of own resources. 

tax.  Member  States  must  have 

There  was  some  progress  in  the  underlying  policy  areas  that  indirectly  affect  the  own-
resources system (for progress in these areas, see Chapters 16  – Taxation, 17- Economic 
and monetary policy; 18 – Statistics, 29 – Customs union, and 32 – Financial control). 

On  traditional  own  resources,  Albania  started  the  implementation  of  the  new  Law  on 
income  taxes  which  entered  into  force  in  2024.  Albania  has  in  place  the  Medium-Term 
Revenue  Strategy  2024-2027  and  the  Strategy  on  public  finance  management  2024-2027. 
Implementation  of  the  MTRS  strategy  includes  reform  measures  in  both  tax  policy  review 
and tax and customs administration efficiency. The MTRS objective is an additional increase 
of revenues by 1.8% of GDP at the end of 2027. Albania completed the evaluation of all tax 
exemptions  in  June  2025.  This  needs  to  be  followed  by  concrete  actions  on  starting  to 
remove  some 
the 
implementation  of  the  MTRS,  Albania  assessed  some  progress  in  the  area  of  e-invoicing 
and data exchange with other institutions to identify high-risk taxpayers.  

identified  exemptions.  As  a  result  of  mid-year  monitoring  of 

No  additional  legal  development  towards  further  alignment  with  the  EU  acquis  can  be 
reported.  Tax  exemptions  remain  a  concern  on  domestic  revenue  mobilisation  both  at 
central and local level, including the latest tax exemptions introduced to businesses that will 
invest  in  mountains  and  in  5-star  hotels.  There  has  been  good  progress  in  proceeding 
quickly with VAT refund for businesses. New instructions on the VAT refund procedures for 
NGOs operating with EU grants under IPA require effective implementation. 

On  gross  national  income  (GNI)  resource,  the  Institute  of  Statistics  (INSTAT)  continued 
the regular transmission of GNI and GDP data to Eurostat, under the ESA 2010 transmission 
programme.  INSTAT  published  Albania’s  first  full  set  of  annual  sector  accounts  for  2018-
2023 in March 2025, extended them also to 2013-2017, and has continued efforts to improve 
reporting  on  government  financial  statistics  (GFS)  and  excessive  deficit  procedure  (EDP). 
Preparations  for  establishing  Albania’s  gross  national  income  (GNI)  inventory  in  line  with 
GNI inventory guide have started.  

On  administrative  infrastructure,  progress  is  needed  on  creating  the  relevant  institutions 
involved in the own-resources system and coordination body, and on implementing rules, in 
line with the EU acquis.  

The legal provisions setting out the criteria for initiating public financial inspection, in cases 
of  any  irregularities,  and  serious  financial  mismanagement  situations  are  in  place.  The 
general  tax  directorate  and  the  general  customs  directorate  continued  their  work  on 
identification  of  tax  evasion  and  fraud.  (See  also  Chapters  1,  16,  29  and  32  on  actions 
against  corruption).  Continued  efforts  are  needed  to  formalise  the  widespread  informal 
economy,  improve  the  exhaustiveness  of  the  national  accounts  and  GDP/GNI  calculations 
and combat tax evasion and customs duty fraud.  

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CLUSTER 6: EXTERNAL RELATIONS 

There  are  two  chapters in  this  cluster:  external relations (Chapter  30)  and foreign,  security 
and defence policy (Chapter 31). 

Chapter 30: External relations 

The EU has a common commercial policy towards non-EU countries, based on multilateral 
and bilateral agreements and autonomous measures. There are also EU rules in the field of 
humanitarian aid and development policy. 

On the common commercial policy, Albania continued to coordinate its positions and align 
its  policies  closely  with  those  of  the  EU,  including  within  the  World  Trade  Organisation 
(WTO)  and  its  Dispute  Settlement  Body.  During  the  reporting  period  Albania  intensified 
preparations  for  accession  to  the  WTO  Public  Procurement  Agreement  (GPA),  and  in 
December  2024  submitted  to  the  relevant  body  the  economic  offer  on  the  procurement 
market coverage. 

In the area of regional cooperation, Albania continued its constructive role in the negotiations 
on  CEFTA  items  under  protocols  six  and  seven  and  worked  on  implementation  of  the 
Common  Regional  Market  action  plan.  In  January  2025  Albania  adopted  in  principle  the 
CEFTA protocol seven on dispute resolution. In February 2025, Albania ratified the decision 
of the joint committee of the Pan-Euro-Mediterranean (PEM) convention on the preferential 
rules of origin as regards the use of e-certificates.  

In  the  area  of  dual-use  goods,  export  controls  of  international  transfers  of  military  goods 
and dual-use items are applied in accordance with the 2018 Law that is currently undergoing 
an  amendment.  Despite  the  amendment,  Albania  has  yet  to  achieve  full  alignment  with 
relevant EU acquis. Albania has also yet to align with the EU acquis on screening of foreign 
direct  investments.  In  this  respect,  the  Law  on  foreign  investment  was  amended  in  July, 
enabling the government to work on provisions that would enforce FDI screening. 

As  of  June  2025,  Albania  is  confirmed  as  unilateral  adherent  to  the  Australian  Group.  On 
bilateral  agreements with  third  countries,  Albania has  40  bilateral  investment  treaties  in 
force,  22  of  which  are  with  EU  Member  States.  The  country  has  in  force  five  free  trade 
agreements  (with  the  EU  (SAA),  CEFTA,  EFTA,  with  Türkiye  and  with  the  UK).  In  June 
2024,  the  bilateral  economic  cooperation  agreement  between  Albania  and  Azerbaijan 
entered into force. 

The  regulatory  framework  for  international  cooperation  in  development  policy  and 
humanitarian aid remains to be developed. 

Chapter 31: Foreign, security and defence policy 

Member States must be able to conduct political dialogue under the EU foreign, security and 
defence  policy,  align  with  EU  statements,  take  part  in  EU  actions,  and  apply  agreed 
sanctions and restrictive measures. 

Albania  continued  to  actively  engage  in  political  dialogue  with  the  EU  on  foreign  and 
security  policy  issues.  In  December  2024,  Albania  signed  a  Security  and  Defence 
Partnership  with  the  EU,  establishing  a  platform  for  enhanced  dialogue  on  security  and 
defence.  In  April  2025,  the  first  session  of  the  EU-Albania  Security  and  Defence  Dialogue 
took place in Tirana. In April 2025 Albania participated in the eleventh EU-Western Balkans 
meeting of Political Directors on common foreign and security policy (CFSP). 

The institutional framework enabling Albania’s participation in the EU common foreign and 
security  policy  (CFSP)  is  in  place  and  operational.  Albania  continued  to  maintain  its  full 
alignment  with  statements  by  the  High  Representative  on  behalf  of  the  EU  and  Council 
Decisions  on  sanctions,  including  all  EU  restrictive  measures  against  Russia  and  Belarus 
related  to  Russia’s  war  of  aggression  against  Ukraine.  In  February  2025,  Albania  voted  in 

88 

 
 
 
favour  of  the  UNGA  resolution  ‘Advancing  a  comprehensive,  just  and  lasting  peace  in 
Ukraine’, marking the third anniversary of Russia’s full-scale invasion of Ukraine. 

Albania has legal and institutional arrangements in place to deal with the implementation of 
the  EU  restrictive  measures  it  has  aligned  with.  However,  Albania’s  capacity  for  the 
technical  implementation  and  enforcement  of  the  complex  EU  restrictive  measures  should 
be further reinforced. 

Albania’s  active  cooperation  with  international  organisations  continued.  Albania  is  a 
member  of  the  UN  Human  Rights  Council  for  the  period  2024-2026  and  held  the 
chairmanship-in-office  of  the  South  East  European  Cooperation  Process  (SEECP)  2024-
2025.  The  country  hosted  the  European  Political  Community  summit  in  May  2025  and  will 
host  the  NATO  Summit  2027.  Albania  has  also  adopted  its  second  National  Action  Plan 
2023-2027 on Women, Peace and Security. 

A  bilateral  immunity  agreement  between  Albania  and  the  United  States  remains  in  place, 
granting US citizens exemptions from the jurisdiction of the International Criminal Court. In 
doing  so,  it  does  not  comply  with  the  EU  common  positions  on  the  integrity  of  the  Rome 
Statute  or  with  the  related  EU  guiding  principles  on  bilateral  immunity  agreements. 
Alignment with the EU position remains needed. 

On  conflict  prevention  Albania  continued  supporting  EU  measures  and  documents 
including through contribution to EU missions as well as to UN and NATO missions. 

On  non-proliferation,  Albania  continued  to  implement  its  national  strategy  on  small  arms 
and  light  weapons (SALW)  and  the  related  action  plan  for  2022-2024,  as  well  as the  2018 
Regional Roadmap and other regional forms of cooperation on firearms. The country should 
align its national SALW strategy with the new regional SALW Control Roadmap 2025-2030 
and the 2020-2025 EU action plan on firearms trafficking. 

The  implementation  of  the  2020  national  strategy  against  proliferation of  weapons of mass 
destruction  (WMD)  and  its  action  plan  also  continued.  A  new  draft  national  WMD  strategy 
was prepared by the Ministry of Defence and submitted for consultations with stakeholders. 
Albania  is  a  member  of  the  Executive  Council  of  the  Organisation  for  the  Prohibition  of 
Chemical  Weapons  (OPCW)  for  the  period  2024-2026.  In  June  2025,  Albania  submitted  a 
formal  application  to  join  the  Wassenaar  Arrangement,  however  completion  of  accession 
process is blocked by one of the participating states. 

In terms of security measures, Albania put in place the necessary procedures to make the 
security of information agreement with the EU operational. 

Albania  stepped  up  its  participation  in  EU  military  crisis  management  missions  and 
operations under the common security and defence policy (CSDP). The country deployed 
an  additional  platoon  to  EUFOR  Althea  Multinational  Battalion  in  Bosnia  and  Herzegovina 
and expressed readiness to contribute to the European Union’s Naval Force (EUNAVFOR) 
Operation  ASPIDES  for  maritime  security  in  the  Red  Sea,  the  Indian  Ocean  and  the  Gulf. 
The  country  continues  to  participate  with  a  light  company-sized  unit  to the  EU  Battlegroup 
Concept. In addition, Albania contributes to regional cooperation in military medicine through 
the Balkan Medical Task Force. 

Regarding  hybrid  threats,  Albania  has  a  national  security  strategy  in  place,  with  a  strong 
focus on advancing and developing its capacities for defence against hybrid threats. A new 
National  Cybersecurity  Strategy  2025-2030  and  its  action  plan  2025-2027  have  been 
adopted (see under Chapter 10 – Digital transformation and media). In June 2024, Albania 
joined  the  Helsinki-based  European  Centre  of  Excellence  for  Countering  Hybrid  Threats 
(Hybrid CoE). Albania has aligned with the EU’s July 2025 statement condemning Russia's 
hybrid  campaigns  against  the  EU  and  its  partners.  Additionally,  Albania  has  actively 
engaged in negotiations in the UN Open Ended Working group on security of and in the use 
of  information  and  communications  technologies.  In  July  2025,  the  first  National  Strategy 

89 

 
 
against  foreign  interference  and  disinformation  was  adopted  by  Parliament.  Further  efforts 
are  needed  to  close  the  space  for  foreign  interference  and  information  manipulation, 
including  disinformation,  to  build  societal  resilience  against  this  and  other  forms  of  hybrid 
threats. 

ANNEX I – RELATIONS BETWEEN THE EU AND ALBANIA 

Albania  is  a  candidate  country  since  2014.  The  first  Intergovernmental  Conference on 
accession  negotiations  took  place  on  19 July  2022,  following  the  approval  of  the 
negotiating  framework  by  the  Council.  On  the  same  day,  the  Commission  launched  the 
analytical  examination  of  the  acquis  –  the  ‘screening’  process  –  for  which  the  last  report 
was submitted to Council in March 2025. Intergovernmental conferences were convened to 
open  accession  negotiations  on  cluster  1  –  fundamentals  (October  2024),  cluster  6  – 
external  relations  (December  2024),  cluster  2  –  internal  market  (April  2025),  cluster  3  – 
competitiveness  and  inclusive  growth  (May  2025),  and  cluster  4  –  the  green  agenda  and 
sustainable connectivity (September 2025). The draft EU Common Position to open cluster 5 
– resources, agriculture and cohesion is under discussion in the Council. 

Albania  has  been  participating  in  the  stabilisation  and  Association  process  since  1999. 
The Stabilisation and Association Agreement (SAA) between Albania and the EU came 
into  force  in  April  2009.  The  transitional  period  of  the  SAA  ended  on  31 March  2019,  and 
since  1 April  2019,  Albania is  fully  associated  with the  EU. In the  reporting  period,  Albania 
continued  to  implement,  overall,  its  commitments  under  the  SAA.  Regular  political  and 
economic  dialogue  has  continued  through  the  relevant  joint  bodies  under  the  SAA.  The 
Stabilisation  and  Association  Parliamentary  Committee  met  in  October  2024  and  in  June 
2025.  The  first  meeting  of  the  Joint  Consultative  Committee  with  the  European  Economic 
and Social Council Committee took place in April 2025. 

The  SAA  and  its  Interim  Agreement,  applied  since  2006,  have  allowed  progressive  trade 
liberalisation  and  mutual  duty-free  access  for  most  goods.  Since  2000,  Albania  has  also 
benefited  from  the  ‘autonomous  trade  measures’.  The  EU  is  the  main  trading  partner  of 
Albania, followed by CEFTA countries. Trade integration with the EU is high. In 2024, the EU 
remained the main trading partner of Albania, accounting for 57.4% of Albania’s total trade in 
goods (71.7% of total exports and 51.5% of total imports). Albania’s total trade in 2024 was 
worth EUR 12.6 billion. The country’s trade deficit with the EU amounted to EUR 1.9 billion 
in  2024.  Albania’s  trade  in  goods  with  CEFTA  represented  around  9.7%  of  total  trade  in 
2024, as compared with 10.3% in 2023. 

Visa liberalisation for citizens of Albanian citizens travelling to the Schengen area has been 
in force since December 2010. A readmission agreement between the EU and Albania has 
been in force since 2006. The Commission’s 2024 seventh report under the visa suspension 
mechanism12 concluded that Albania continues to meet the visa liberalisation requirements. 

Albania has continued to fully align itself with all EU CFSP positions and declarations during 
the reporting period. Albania stepped up its participation in EU crisis management missions 
and operations under the CSDP, notably EUFOR Althea in Bosnia and Herzegovina and the 
EU’s Naval Force (EUNAVFOR) Operation ASPIDES. 

A  Security  and  Defence  Partnership  between  Albania  and  the  EU  was  signed  in 
December 2024 and the EU-Albania Security and Defence Dialogue was launched in April 
2025 in Tirana. 

Albania benefits from two bilateral assistance measures under the European Peace Facility 
(EPF), respectively adopted in July 2024 and July 2025, worth overall EUR 28 million. The 
objective  of  EPF  support  is  to  strengthen  the  operational  effectiveness,  mobility  and 

12 COM/2024/571 final. 

90 

 
 
 
protection  of  the  Albanian  Armed  Forces  13.  The  Balkans  Medical  Task  Force,  in  which 
Albania participates, benefits from a EUR 6 million 2022 support measure under the EPF.  

Under  the  Instrument  for  Pre-accession  Assistance  2021  –  2027  (IPA  III)14,  a  fourth 
financing  decision  of  EUR 67.35  million  for  the  Annual  Action  Plan  2024  supports  the  fight 
against  corruption,  local  governance  and  economic  development,  food  safety,  forests,  and 
employment and social inclusion. In addition, the first financing decision of EUR 130 million 
for  three  2024-2027  operational  programmes  supports  efforts  in  digitalisation,  advancing 
Albania’s green agenda, and youth employment. These programmes are complemented by 
a  significant  package  of  multi-country  programmes.  The  rural  development  programme 
IPARD  III  (EUR 112  million  EU  contribution)  has  not  yet  started,  due  to  delays  in  the 
entrustment  process.  Albania  also  participates  also  in  five  cross-border  cooperation 
programmes, transnational cooperation programmes and EU programmes. 

As part of the new IPA III financing decision for 2025-2027 for the Western Balkans adopted 
in  July  2025,  EUR 100  million  are  allocated  for  programmes  in  Albania  on  justice  sector 
reform  and  human rights,  support  to rule  of  law,  democracy,  and  good  governance,  critical 
raw materials and the EU integration process. 

Under the Reform and Growth Facility, Albania could benefit from an indicative allocation 
of  EUR 922.1  million  underpinned  by  a  Reform  Agenda.  Disbursement  of  EU  support  is 
conditional on compliance with the preconditions and delivery on reforms it sets out. Albania 
was  allocated  the  amount  of  EUR 64.5  million  in  loan  prefinancing  under  the  Reform  and 
Growth Facility. 

On 21 March 2025, Albania received EUR 30 million out of the EUR 64.5 million as the pre-
payment of 7% of the total amount provided for under the Reform and Growth Facility. This 
pre-financing  was  disbursed  to  the  state  budget  as  support  for  the  implementation  of  the 
reforms  envisaged  by  the  Reform  Agenda,  while  the  remaining  EUR 34.4  million  will  be 
injected directly to the WBIF and will be used for infrastructure projects in the country.  

The  first  set  of  reforms  was  due  in  December  2024,  consisting  of  sixteen  steps,  while  the 
second  deadline  was  June  2025,  consisting  of  twenty  steps,  across  all  policy  areas  of  the 
Reform  Agenda.  Albania  also  anticipated  five  steps  that  were  due  in  December  2025.  In 
October 2025, the Commission concluded its assessment and considered twenty-one out of 
the 41 steps as achieved. This led to the disbursement of approximately EUR 99.3 million.  

Albania has signed cooperation agreements with all EU justice and home affairs agencies of 
the  EU.  Albania  participates  in  two  transnational  cooperation  programmes.  Albania 
participates with IPA support in these EU programmes: Erasmus+, Creative Europe (Culture 
and  Media  strands),  Horizon  Europe  and  the  European  Cooperation  in  Science  and 
Technology (COST – Agency funded under Horizon Europe), Customs 2020, Fiscalis 2020, 
Single  Market  Programme,  Justice  Programme,  Citizens,  Equality,  Rights  and  Values 
Programme  (CERV),  EU  Fundamental  Rights  Agency  (FRA) (as  an  observer),  the  Digital 
Europe  programme,  Union  Civil  Protection  Mechanism,  European  Solidarity  Corps  (youth 
component  -  volunteering).  To  improve  the  sustainability  in  local  public  finances  and  to 
enhance  the  implementation  of  effective  green  budgeting  practices,  Albania is  participating 
as an observer in a pilot project under the Technical Support Instrument. 

As  of  May  2025,  the  Western  Balkans  Investment  Framework  (WBIF)  has  supported 
Albania  to  the  amount  of  EUR 476  million.  This  has  been  provided  in  the  form  of  IPA  III 
grants  for  flagship  projects  in  the  areas  of  clean  energy,  the  environment  and  climate,  the 
digital future, and sustainable transport. Albania has submitted a pipeline of WBIF projects to 
be  financed  under  the  Reform  and  Growth  Facility,  including  infrastructures  in  the  energy, 
sustainable transport, human development and digital connectivity. 

13 Council Decision (CFSP) 2024/1979 and Council Decision (CFSP) 2025/1562. 
14 Official Journal L 330, 20.9.2021. 

91 

 
 
 
The EU provides support via IPA and the Foreign Policy Instrument to strengthen Western 
Balkans partners’ resilience in facing hybrid threats, including cyber and foreign information 
manipulation and interference. 

92 

 
 
 
 
 
Annex II – Statistical data 
STATISTICAL DATA (as of 11/09/2025) 

Basic data 
Population (thousand) 
Total area of the country (km²) 

National accounts 
Gross domestic product (GDP) (million national currency) 
Gross domestic product (GDP) (million euro) 
GDP per capita (euro) 
GDP per capita (in purchasing power standards (PPS)) 
GDP per capita (in PPS), relative to the EU average (EU-27 = 100) 
Real GDP growth rate: change on previous year of GDP volume (%) 
Employment growth (national accounts data), relative to the previous year (%) 
Labour productivity growth: growth in GDP (in volume) per person employed, relative to the 
previous year (%) 
Unit labour cost growth, relative to the previous year (%) 
*3 year change (T/T-3) in the nominal unit labour cost growth index (2015 = 100) 
Labour productivity per person employed: GDP (in PPS) per person employed relative to EU 
average (EU-27 = 100) 
Gross value added by main sectors 
Agriculture, forestry and fisheries (%) 
Industry (%) 
Construction (%) 
Services (%) 
Final consumption expenditure, as a share of GDP (%) 
Gross fixed capital formation, as a share of GDP (%) 
Exports of goods and services, relative to GDP (%) 
Imports of goods and services, relative to GDP (%) 
Gross fixed capital formation by the general government sector, as a percentage of GDP (%) 

Business 
Industrial production volume index (2015 = 100) 
Number of active enterprises (number) 
Birth rate: number of enterprise births in the reference period (t) divided by the number of 
enterprises active in t (%) 
Death rate: number of enterprise deaths in the reference period (t) divided by the number of 
enterprises active in t (%) 

Note 
1) 
2) 

93 

Note 

Note 

2012 
2 903 i 
: 

2012 
1 324 877 
9 529 
3 290 
7 727 
29.7 
1.0 
: 
: 

2020 
2 846 i 
: 

2020 
1 655 985 
13 380 
4 710 
9 270 
30.5 b 
-  3.3 
: 
: 

2021 
2 830 i 
28 791 e 

2021 
1 866 672 
15 243 
5 420 
10 287 
31.0 
9.0 
: 
: 

2022 
2 794 i 
28 791 e 

2022 
2 149 742 
18 068 
6 500 
12 189 
33.9 
4.8 
: 
: 

2023 
2 762 i 
28 791 e 

2023 
2 364 276 
21 731 
7 887 piw 
: 
: 
4.0 
: 
: 

2024 
2 391 i 
28 791 e 

2024 
2 517 820 p 
25 001 p 
: 
: 
: 
4.0 p 
: 
: 

: 
: 
: 

20.3 
13.0 
16.4 
50.3 i 
89.0 
28.6 
29.1 
47.9 
: 

2012 
78.5 w 
: 
12.0 w 

: 
: 
: 

21.4 
12.8 
13.8 
51.9 i 
88.2 
25.2 
22.5 
37.0 
: 

2020 
89.5 w 
: 
10.8 w 

: 
: 
: 

20.8 
12.8 
13.4 
52.9 i 
84.7 
27.2 
31.1 
44.5 
: 

: 
: 
: 

19.7 
13.3 
13.4 
53.6 i 
83.5 
25.7 
37.2 
47.5 
: 

: 
: 
: 

18.7 
13.2 
13.4 
54.8 i 
82.1 
24.3 
38.4 
43.9 
: 

2021 
113.0 w 
104 031 
12.9 w 

2022 
116.1 w 
113 460 
12.9 w 

2023 
106.3 w 
117 291 
10.8 w 

: 
: 
: 

17.9 p 
12.1 p 
13.8 p 
56.2 pi 
81.9 p 
24.4 p 
36.3 p 
43.2 p 
: 

2024 
98.3 w 
: 
: 

: 

: 

1.0 w 

0.6 w 

0.7 w 

: 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
People employed in SMEs as a share of all persons employed (within the non-financial 
business economy) (%) 
Value added by SMEs (in the non-financial business economy) (EUR million) 
Total value added (in the non-financial business economy) (EUR million) 

Inflation rate and house prices 
Consumer price index (CPI), change relative to the previous year (%) 

Balance of payments 
Balance of payments: current account total (million euro) 
Balance of payments current account: trade balance (million euro) 
Balance of payments current account: net services (million euro) 
Balance of payments current account: net balance for primary income (million euro) 
Balance of payments current account: net balance for secondary income (million euro) 
Net balance for primary and secondary income: of which government transfers (million euro) 
*3 year backward moving average of the current account balance relative to GDP (%) 
*Five year change in share of world exports of goods and services (%) 
Net balance (inward - outward) of foreign direct investment (FDI) (million euro) 
Foreign direct investment (FDI) abroad (million euro) 
of which FDI of the reporting economy in the EU-27 countries (million euro) 
Foreign direct investment (FDI) in the reporting economy (million euro) 
of which FDI of the EU-27 countries in the reporting economy (million euro) 
*Net international investment position, relative to GDP (%) 
Year on year rate of change in gross inflow of remittances (in national currency) from migrant 
workers (%) 

Public finance 
General government deficit / surplus, relative to GDP (%) 
General government gross debt relative to GDP (%) 
Total  government revenues, as a percentage of GDP (%) 
Total government expenditure, as a percentage of GDP (%) 

Financial indicators 
Gross external debt of the whole economy, relative to GDP (%) 
Gross external debt of the whole economy, relative to total exports (%) 
Money supply: M1 (banknotes, coins, overnight deposits, million euro) 
Total credit by monetary financial institutions to residents (consolidated) (million euro) 
*Annual change in financial sector liabilities (%) 
*Private debt, consolidated, relative to GDP (%) 

: 

: 
: 

2012 
: 

2012 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
: 
665.8 w 
: 
: 
: 

2012 
: 
: 
: 
: 

2012 
57.9 iw 
198.6 w 
2 022.7 w 
: 
: 
: 

2) 3) 

2) 
2) 3) 

Note 

Note 

Note 

Note 

94 

: 

: 
: 

2020 
2.2 d 

2020 
- 1 153.3 
- 2 982.1 
1 056.2 
-  227.6 
997.1 
58.2 
-  7.7 
5.5 
893.6 i 
76.4 
28.5 
970.2 w 
535.3 
-  53.5 
5.0 i 

2020 
: 
: 
: 
: 

2020 
63.9 iw 
283.1 w 
5 149.2 w 
10 696.1 
7.5 
58.3 

81.1 

83.5 

83.4 

4 125 i 
5 424 

2021 
2.3 d 

2021 
- 1 166.2 
- 3 828.9 
1 795.8 
-  211.0 
1 077.9 
48.6 
-  8.0 
21.8 
988.8 i 
53.3 
27.3 
1 043.3 w 
679.8 
-  50.2 
5.0 i 

2021 
: 
: 
: 
: 

2021 
64.0 iw 
205.3 w 
5 727.5 w 
12 220.4 
11.6 
54.8 

5 599 i 
7 141 

2022 
6.6 d 

2022 
- 1 062.9 
- 4 267.8 
2 400.4 
-  314.5 
1 118.9 
31.4 
-  7.4 
24.9 
C 
C 
C 
1 361.9 w 
736.3 
-  47.3 
4.6 i 

2022 
: 
: 
: 
: 

2022 
54.1 iw 
145.0 w 
6 184.6 w 
13 659.5 
-  3.4 
49.0 p 

6 877 i 
8 794 

2023 
5.3 d 

2023 
-  269.6 
- 4 539.8 
3 351.7 
-  277.9 
1 196.4 
20.3 
-  4.9 
53.8 
1 253.4 i 
245.2 
98.9 
1 500.4 w 
912.4 
-  42.0 
4.3 i 

2023 
: 
: 
: 
: 

2023 
46.4 iw 
119.8 w 
7 436.6 w 
: 
: 
: 

: 

: 
: 

2024 
2.6 d 

2024 
-  598.1 
- 5 593.1 
3 875.4 
-  182.1 
1 301.7 
19.1 
-  3.2 
56.7 
: 
: 
: 
1 585.0 w 
: 
-  40.6 
: 

2024 
: 
: 
: 
: 

2024 
40.6 piw 
111.6 w 
8 616.2 w 
: 
: 
: 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Interest rates: day-to-day money rate, per annum (%) 
Euro exchange rates: average of period (1 euro = … national currency) 
Trade-weighted effective exchange rate index, 42 countries (2015 = 100) 
*3 year change (T/T-3) in the trade-weighted effective exchange rate index, 42 countries 
(2015 = 100) 
Value of reserve assets (including gold) (million euro) 

4) 

4.47 w 
139.040 
: 
: 

0.73 w 
123.770 
: 
: 

0.65 w 
122.460 
: 
: 

1.55 w 
118.980 
: 
: 

3.20 w 
108.800 
: 
: 

2.90 w 
100.710 
: 
: 

: 

654.9 

938.9 

-  71.8 

911.5 

262.5 

External trade in goods 
Value of imports: all goods, all partners (million euro) 
Value of exports: all goods, all partners (million euro) 
Trade balance: all goods, all partners (million euro) 
Terms of trade (export price index / import price index * 100) (number) 
Share of exports to EU-27 countries in value of total exports (%) 
Share of imports from EU-27 countries in value of total imports (%) 

Demography 
Crude rate of natural change of population (natural growth rate): number of births minus 
deaths (per thousand inhabitants) 
Infant mortality rate deaths of children under one year of age (per thousand live births) 
Life expectancy at birth: male (years) 
Life expectancy at birth: female (years) 

Labour market 
Economic activity rate for persons aged 20–64: proportion of the population aged 20–64 that 
is economically active (%) 
Employment rate for persons aged 20–64: proportion of the population aged 20–64 that are 
in employment (%) 
Male employment rate for persons aged 20–64 (%) 
Female employment rate for persons aged 20–64 (%) 
Employment rate for persons aged 55–64: proportion of the population aged 55–64 that are 
in employment (%) 
Employment by main sectors 
Agriculture, forestry and fisheries (%) 
Industry (%) 
Construction (%) 
Services (%) 
People employed in the public sector as a share of total employment, persons aged 20–64 
(%) 
People employed in the private sector as a share of total employment, persons aged 20–64 
(%) 

Note 

Note 

2012 
3 797 
1 531 
- 2 267 
98.4 iw 
75.5 iw 
62.2 iw 

2012 
5.0 

8.8 
: 
: 

2020 
4 860 
2 190 
- 2 670 
104.1 iw 
74.7 iw 
57.9 iw 

2020 
0.2 

10.0 
75.2 
79.6 

2021 
6 545 
3 012 
- 3 533 
104.5 iw 
72.2 iw 
54.4 iw 

2021 
-  1.2 

8.4 
73.6 
77.7 

2022 
8 002 
4 090 
- 3 912 
99.6 iw 
73.4 iw 
51.6 iw 

2022 
0.2 

6.5 
77.4 
80.9 

2023 
8 038 
4 044 
- 3 994 
97.6 iw 
70.8 iw 
50.9 iw 

2023 
: 

6.1 
: 
: 

2024 
8 889 
3 698 
- 5 191 
: 
71.6 iw 
51.4 iw 

2024 
0.5 

: 
: 
: 

Note 

2012 
71.9 ew 

2020 
75.3 ew 

2021 
75.1 ew 

2022 
79.1 ew 

2023 
81.4 w 

2024 
: 

62.4 ew 

66.3 ew 

66.3 ew 

70.4 ew 

73.4 w 

70.1 ew 
54.9 ew 
56.3 ew 

46.1 ew 
9.1 ew 
8.2 ew 
36.6 ew 
15.7 ew 

74.0 ew 
58.8 ew 
60.3 ew 

36.1 ew 
13.4 ew 
7.0 ew 
43.5 ew 
16.2 ew 

74.6 ew 
58.3 ew 
60.0 ew 

33.8 ew 
13.8 ew 
8.1 ew 
44.3 ew 
17.1 ew 

77.4 ew 
63.7 ew 
67.4 ew 

33.9 ew 
14.3 ew 
7.6 ew 
44.2 ew 
16.1 ew 

79.6 w 
67.5 w 
70.9 w 

39.4 w 
11.8 w 
7.2 w 
41.7 w 
15.9 w 

84.3 ew 

83.8 ew 

82.9 ew 

83.9 ew 

84.1 w 

: 

: 
: 
: 

: 
: 
: 
: 
: 

: 

95 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Unemployment rate: proportion of the labour force that is unemployed (%) 
Male unemployment rate (%) 
Female unemployment rate (%) 
Youth unemployment rate: proportion of the labour force aged 15–24 that is unemployed (%) 
Long-term unemployment rate: proportion of the labour force that has been unemployed for 
12 months or more (%) 
Unemployment rate for persons (aged 25–64) having completed at most lower secondary 
education (ISCED levels 0-2) (%) 
Unemployment rate for persons (aged 25–64) having completed tertiary education (ISCED 
levels 5-8) (%) 

13.4 ew 
14.6 ew 
11.7 ew 
29.8 ew 
10.3 ew 

11.8 ew 
11.6 ew 
12.0 ew 
26.5 ew 
7.0 ew 

11.6 ew 
11.4 ew 
11.8 ew 
27.1 ew 
7.3 ew 

11.0 ew 
10.6 ew 
11.4 ew 
24.9 ew 
7.4 ew 

9.6 w 
9.3 w 
9.9 w 
24.5 w 
6.8 w 

10.5 ew 

9.6 ew 

9.8 ew 

9.3 ew 

8.3 w 

: 

10.0 ew 

8.4 ew 

8.4 ew 

7.3 w 

Social cohesion 
Average nominal monthly wages and salaries (national currency) 
Index of real wages and salaries (index of nominal wages and salaries divided by the 
inflation index) (2016 = 100) 
Gini coefficient 
Poverty gap 

Note 
5) 

2012 
50 093 ew 
: 

2020 
53 662 ew 
105 ew 

2021 
57 190 ew 
110 ew 

2022 
61 898 ew 
111 ew 

2023 
70 539 ew 
121 ew 

: 
: 

33.2 
26.0 

33.0 
25.5 

: 
: 

: 
: 

: 
: 
: 
: 
: 

: 

: 

2024 
: 
: 

: 
: 

Standard of living 
Number of passenger cars relative to population size (number per thousand population) 
Number of mobile phone subscriptions relative to population size (number per thousand 
population) 
Mobile broadband penetration (per 100 inhabitants) 
Fixed broadband penetration (per 100 inhabitants) 

Infrastructure 
Density of railway network (lines in operation per thousand km²) 

Length of motorways (kilometres) 

Education, Innovation and Research 
Percentage of persons aged 30-34 with a tertiary education level (ISCED 2011 levels 5 to 8) 
Percentage of persons aged 30-34 with a tertiary education level (ISCED 2011 levels 5 to 8), 
males 
Percentage of persons aged 30-34 with a tertiary education level (ISCED 2011 levels 5 to 8), 
females 
Participation in early childhood education (children aged 3 and over) 
Participation in early childhood education (children aged 3 and over), males 
Participation in early childhood education (children aged 3 and over), females 
Low achieving 15-year-olds in reading 
Low achieving 15-year-olds in mathematics 

Note 

2012 
: 
1 937.5 w 

2020 
191.0 
1 176.2 w 

2021 
212.0 
1 239.1 w 

2022 
232.0 
1 357.8 w 

2023 
292.0 
1 608.3 bw 

2024 
328.0 
1 415.1 w 

77.0 w 
21 w 

86.7 bw 
26 bw 

87.1 w 
29 w 

Note 

Note 

: 
6 w 

2012 
: 

: 

2012 
14.3 ew 
11.9 ew 

70.4 w 
17 w 

2020 
: 

22 

2020 
33.2 ew 
26.7 ew 

73.1 w 
20 w 

2021 
7.8 i 

25 

2021 
32.1 ew 
25.4 ew 

2022 
7.1 i 

25 

2022 
38.4 ew 
31.9 ew 

2023 
8.8 i 

25 

2023 
36.5 w 
31.2 w 

16.4 ew 

40.0 ew 

39.3 ew 

45.5 ew 

42.0 w 

: 
: 
: 
52.3 
60.7 

79.9 w 
81.9 w 
77.9 w 
: 
: 

76.9 w 
78.5 w 
75.2 w 
: 
: 

82.2 w 
83.1 w 
81.1 w 
73.7 
73.9 

82.9 w 
84.3 w 
81.5 w 
: 
: 

96 

2024 
: 

: 

2024 
: 
: 

: 

: 
: 
: 
: 
: 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Low achieving 15-year-olds in science 
Early leavers from education and training: proportion of persons aged 18-24 with at most 
lower secondary education (at most ISCED 2011 level 2) who are not in further education or 
training 
Early leavers from education and training: proportion of men aged 18-24 with at most lower 
secondary education (at most ISCED 2011 level 2) who are not in further education or 
training 
Early leavers from education and training: proportion of women aged 18-24 with at most 
lower secondary education (at most ISCED 2011 level 2) who are not in further education or 
training 
Proportion of persons aged 25-64 having participated in education and training (last 4 
weeks) 
Proportion of persons aged 25-64 having participated in education and training (last 4 
weeks), men 
Proportion of persons aged 25-64 having participated in education and training (last 4 
weeks), women 
Exposure of vocational education and training (VET) graduates to work-based learning (% of 
population aged 20-34) 
Share of individuals having at least basic digital skills (% of population aged 16-74) 
Share of individuals having at least basic digital skills (% of population aged 16-74), males 
Share of individuals having at least basic digital skills (% of population aged 16-74), females 
Public expenditure on education relative to GDP (%) 
Gross domestic expenditure on R&D relative to GDP (%) 
Government budget appropriations or outlays on R&D (GBAORD), as a percentage of GDP 
(%) 
Percentage of households who have internet access at home (%) 

Environment 
Index of greenhouse gas emissions,  CO2 equivalent (1990 = 100) 
Energy intensity of the economy (kg of oil equivalent per 1 000 euro GDP at 2015 constant 
prices) 
Electricity generated from renewable sources relative to gross electricity consumption (%) 
Road share of inland freight transport (based on tonne-km) (%) 

Energy 
Primary production of all energy products (thousand TOE) 
Primary production of crude oil (thousand TOE) 
Primary production of solid fuels (thousand TOE) 
Primary production of gas (thousand TOE) 
Net imports of all energy products (thousand TOE) 
Gross inland energy consumption (thousand TOE) 

53.1 
31.6 ew 

: 
15.6 w 

: 
16.8 w 

67.4 
15.5 w 

: 
15.7 w 

: 

: 

1.1 w 

1.4 w 

0.8 w 

: 

: 
: 
: 
3.3 iw 
: 
: 

: 

: 

0.7 w 

0.8 w 

0.6 w 

: 

: 
: 
: 
3.3 iw 
: 
C 

: 

: 

0.8 w 

0.8 w 

0.8 w 

2.5 w 

23.8 
24.2 
23.5 
3.1 iw 
0.19 
: 

: 

: 

0.6 w 

0.7 w 

0.6 w 

2.4 w 

: 
: 
: 
2.9 iw 
0.20 
0.06 

: 

: 

0.7 w 

0.6 w 

0.8 w 

1.6 w 

23.3 
25.1 
21.6 
2.9 piw 
: 
0.19 

: 
: 

: 

: 

: 

: 

: 

: 

: 
: 
: 
: 
: 
: 

: 

87.2 

90.9 

98.4 

97.7 

98.2 

2012 
: 
207.1 

72.4 
: 

2012 
1 670 
1 031 
1 
13 
316 i 
2 023 

Note 

Note 

97 

2020 
: 
196.3 

100.0 
: 

2020 
1 494 
758 
69 
41 
793 i 
2 183 

2021 
: 
: 

94.4 
: 

2021 
1 823 
712 
131 
44 
553 i 
2 298 

2022 
: 
: 

103.0 
: 

2022 
1 607 
657 
148 
38 
705 i 
2 209 

2023 
: 
: 

105.4 
: 

2023 
1 799 
642 
188 
38 
488 i 
2 202 

2024 
: 
: 

: 
: 

2024 
: 
: 
: 
: 
: 
: 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Gross electricity generation (GWh) 

4 725 

5 313 

8 963 

7 003 

9 006 

: 

Note 

2012 
: 
1 195.3 
: 
: 
: 
: 
697.4 
: 
: 

2020 
: 
1 165.7 
362.6 
158.4 
2 332.2 i 
: 
684.0 
27.0 
: 

2021 
: 
1 165.6 
336.8 
159.2 
2 255.8 i 
: 
691.4 
24.4 
: 

2022 
: 
1 164.4 
297.7 
137.3 
2 093.3 i 
: 
690.9 
21.3 
: 

2023 
: 
1 044.6 
263.4 
114.8 
1 846.5 i 
: 
701.3 
20.4 
: 

2024 
: 
1 126.5 
272.0 
104.0 
1 791.7 i 
: 
649.9 
17.8 
: 

Agriculture 
Agricultural output volume index (at producer prices) (2015 = 100) 
Utilised agricultural area (thousand hectares) 
Livestock numbers: live bovine animals (thousand heads, end of period) 
Livestock numbers: live swine (thousand heads, end of period) 
Livestock numbers: live sheep and live goats (thousand heads, end of period) 
Raw milk available on farms (thousand tonnes) 
Harvested crop production: cereals (including rice) (thousand tonnes) 
Harvested crop production: sugar beet (thousand tonnes) 
Harvested crop production: vegetables (thousand tonnes) 

Source: Eurostat and/or the statistical authorities in Albania 

: = not available 
  b = break in series 

  C =  confidential value 
  d =  definition differs 
  e = estimated value 
  p = provisional 

i = Eurostat estimate 

  w= data supplied by and under the responsibility of the national 

statistical authority and published on an "as is" basis and without any 
assurance as regards their quality and adherence to EU statistical 
methodology 
* = Macroeconomic Imbalance Procedure (MIP) indicator 

  Footnotes: 

1)  Based on NACE Rev. 2. Coverage is Sections B to D. 
2)  Based on NACE Rev. 2. Coverage is Divisions 05 to 82 and 95. 
3)  The data include all size classes, even large enterprises, for all the 

time series. 

4)  Annual average of the Tribor rate – interbank rate for overnight loans. 
5)  Public sector only. 

: = not available 

98