The process of European Union enlargement cannot be solely a matter of institutions and political decisions; it must also enjoy the support of citizens, both in candidate countries and in EU Member States. It is therefore important to openly discuss the expectations, fears and prejudices surrounding enlargement, while also providing clearer and more convincing answers as to what an enlarged European Union brings to its citizens. This was highlighted at an event held in Podgorica and organised by the Centre for Civic Education (CCE), the Centre for Monitoring and Research (CeMI) and the Institute for the Danube Region and Central Europe (IDM) from Austria.
Zvezdana Kovač, Strategy and Outreach Director at CCE, stressed that Montenegro’s European path has significance beyond its borders, as the country’s progress sends a strong message about the credibility of the enlargement policy and the reality of the European perspective for the entire Western Balkans. “Montenegro’s path to the EU is not only a Montenegrin story. In many ways, it is also a test of the credibility and transformative power of the enlargement process itself. Citizens in EU Member States have concrete concerns – ranging from economic costs and the potential impact on jobs and public services to migration, security and the EU’s ability to function effectively with a larger number of members. Therefore, one of the key challenges is not only whether enlargement will happen, but how to build greater trust and understanding among citizens, both within the EU and in countries aspiring to membership,” Kovač said.
Luka Pavićević, Project Coordinator at CeMI, also underscored the importance of better understanding citizens’ views on both sides of the enlargement process. “As Montenegro moves closer to EU membership, it is important that citizens not only follow the technical progress of the negotiations, but also clearly understand what membership means for their everyday lives and what opportunities it can bring. At the same time, it is equally important to understand how citizens in EU Member States perceive further enlargement, particularly in countries where support for the process is lower. The objective should not simply be to persuade those who are sceptical, but first and foremost to understand their expectations, concerns and the factors shaping their views,” Pavićević said. He stressed that enlargement is not merely about reforms, negotiating chapters and benchmarks, but also about bringing societies closer together, building trust and strengthening connections between citizens of candidate countries and the European Union.
Speaking about the broader significance of enlargement for the future of the European Union, Sebastian Schäffer, Director of IDM, emphasised that “the enlargement debate should not be reduced to an economic calculation of which countries contribute more to the European budget and which benefit more from it, as this overlooks the broader benefits and significance of enlargement for the European Union.” He also highlighted the gap between support for enlargement in candidate countries and in some EU Member States. According to the data he presented, support for the European perspective stands at 80% among citizens of Montenegro, while support for enlargement is, for example, 45% in Austria and 49% in Germany. He also noted that the enlargement process has become increasingly technical and bureaucratic over time, making it difficult to present it to citizens as a shared European political project. “Unlike the major enlargement round of 2004, enlargement today is increasingly viewed through the prism of economic costs, competition and security risks, while its broader political and transformative value has been pushed into the background,” he noted. “In such an environment, fears and nostalgia for an idealised past can provide fertile ground for political manipulation, nationalist narratives and the portrayal of enlargement as a threat rather than an opportunity to strengthen European stability and security,” Schäffer said.
Sophia Beiter, Researcher at IDM, presented the project approach, which brings together organisations from 11 EU Member States where scepticism towards further enlargement is more pronounced, as well as partners from Montenegro, Albania and Moldova. She stressed the importance of examining the process from both perspectives – those of citizens in candidate countries and those of citizens in EU Member States – as a basis for a better-informed public debate on future enlargement. Beiter also presented research findings on how to build a European Union that is simultaneously enlarged, reformed and more citizen centred. “The data indicate that citizens expect enlargement policy to be more clearly grounded in values, to have greater democratic legitimacy, to provide better-quality information and more opportunities for direct exchange and participation, as well as more efficient decision-making,” she underlined. Beiter further noted that the EU should broaden and diversify its communication on enlargement to foster a stronger sense of inclusion and connection with the European project among citizens. “The recommendations include creating more opportunities for direct contact between citizens of Member States and candidate countries, greater openness of European institutions to representatives of candidate countries, and more direct dialogue between citizens and decision-makers. At the same time, future enlargement policy should be more firmly grounded in the rule of law and fundamental rights, with effective mechanisms to ensure compliance with European standards even after accession,” she concluded.
The event brought together around 40 participants from institutions, the diplomatic community, the media, academia and civil society from Montenegro, as well as from EU Member States involved in the project. The discussion also focused on how the EU enlargement process is communicated, both in countries on the path towards EU membership and in EU Member States, particularly those where Euroscepticism is more pronounced. The case of Iceland was also discussed.
The event was organised within the framework of the project “Citizens for EU Enlargement: Building Societal Readiness for an Enlarged European Union” (CitizEn), led by IDM from Austria.
Aleksandra Mihaljević, Project Assistant