European Council President António Costa has argued that enlargement should be treated as a strategic investment rather than a financial burden, pointing to economic growth, job creation and stronger security as benefits of previous expansions.
Speaking at the Euronews EU Enlargement Summit on 3 November 2026, Costa said the accession process must remain fair, consistent and merit-based while the European Union prepares for possible future members. His remarks highlighted Montenegro, Albania, Ukraine and Moldova, as well as the wider Western Balkans.
EU enlargement presented as a strategic investment
Costa described enlargement as central to the European project’s original goals of reconciliation, peace and cooperation. He said the policy could also strengthen the EU’s geopolitical influence, economic resilience and capacity to respond to global shocks.
His argument was based partly on the experience of the 2004 enlargement, when several Central and Eastern European countries joined the Union. According to figures cited in his address, more than 100 million people have joined the EU since then, while the shared economy has grown by more than €2 trillion.
Costa also said countries that joined from Central and Eastern Europe had more than doubled the size of their economies. He attributed 26 million jobs to the newer member states, including more than six million jobs created in those countries themselves.
The figures, he argued, show that enlargement can expand markets, create opportunities for businesses and support prosperity across the Union rather than simply increasing the EU’s responsibilities.
Accession involves reforms, trust and cooperation
The European Council President stressed that joining the EU is not limited to adopting legislation or restructuring public institutions. Candidate countries must also build trust, resolve disputes peacefully and demonstrate a lasting commitment to democratic standards.
He linked successful accession to reforms in areas including:
- the rule of law and accountable institutions;
- the fight against corruption;
- media freedom;
- democratic governance;
- the protection of citizens’ dignity and equal treatment; and
- cooperation between neighbouring countries.
Costa said historic disputes and nationalist rhetoric should not obstruct European integration. In his view, the accession process should help countries replace mistrust and division with practical cooperation.
Membership remains a multi-stage process. The countries mentioned in the address are at different points in their negotiations, and progress does not mean that accession is guaranteed or imminent. Candidate countries must continue implementing reforms and meeting the EU’s membership criteria before negotiations can be completed and treaties ratified.
Montenegro targets progress towards membership
Montenegro was presented as one of the most advanced candidates in the current enlargement process. Costa said the country had provisionally closed additional negotiating chapters and was expected to close another chapter during the week of his speech.
He expressed confidence that Montenegro could complete the remaining work and referred to the ambition of becoming the “28th by 28”. That phrase reflects a political goal for Montenegro to become the European Union’s 28th member by 2028, but it is not a confirmed accession date.
Further negotiations, reforms, unanimous approval by EU member states and national ratification would still be required before Montenegro could join. The country’s progress therefore represents movement in the accession process, not a final membership decision.
Ukraine and Moldova move closer through gradual integration
Costa also pointed to closer cooperation with Ukraine and Moldova. He referred to practical measures such as visa liberalisation, lower roaming costs, energy support and infrastructure investment, saying these initiatives were bringing citizens and economies closer to the European Union before membership.
Ukraine’s progress is taking place while the country continues to face Russia’s war of aggression. The EU accession process therefore has both a reform dimension and a wider geopolitical context.
For Moldova, Costa said progress on reforms and alignment with the EU acquis could allow the country to move quickly once all accession clusters have been opened. The opening of clusters is an important procedural step, but it is not equivalent to completing negotiations or joining the EU.
Western Balkans remain central to EU enlargement
The speech also covered Albania, Serbia, North Macedonia, Bosnia and Herzegovina and Kosovo. Costa said Albania had provisionally closed additional negotiating chapters, while Ukraine and Moldova had opened negotiations on new clusters.
He linked Serbia’s European path to rule-of-law reforms, media freedom and efforts to address corruption. He also said North Macedonia, Bosnia and Herzegovina and Kosovo could make further progress if they accelerated the reforms required for closer integration.
The EU’s approach combines political support with conditions. Candidate countries are expected to meet the same core standards, while disagreements and bilateral disputes can affect the pace of negotiations.
Benefits begin before accession
Costa argued that the advantages of enlargement should not wait until a country formally becomes a member. The EU’s Growth Plan for the Western Balkans and other initiatives are intended to support investment, economic convergence and gradual participation in the Single Market.
Examples of closer integration mentioned in the address include:
- participation in the Single Euro Payments Area;
- improvements at border crossings;
- stronger transport connections;
- digital cooperation;
- lower mobile-roaming costs; and
- investment supporting economic convergence.
These measures can create practical benefits for citizens and businesses while candidate countries continue with the more demanding work of meeting EU membership standards.
What happens next?
The next steps depend on each candidate’s progress and on decisions by the relevant EU institutions and member states. Negotiating chapters and clusters must continue to be assessed, while reforms must be implemented in practice rather than only adopted on paper.
Costa said EU leaders would discuss enlargement and other issues with Western Balkan leaders at a planned EU-Western Balkans Summit in three weeks. Any future membership decision would require the completion of negotiations, an accession treaty and ratification according to the constitutional requirements of the EU and the candidate country.
For Ireland, the speech is relevant because enlargement affects the European Union’s future membership, internal market and foreign-policy priorities. However, Costa’s remarks did not announce a new Irish obligation or change Ireland’s existing position within the Union.
Conclusion
António Costa’s message was that EU enlargement should be judged not only by its administrative cost but also by its long-term contribution to peace, economic opportunity and European security. Montenegro, Moldova, Ukraine and Western Balkan candidates are making progress at different speeds, but none has yet received an automatic path to membership. The central test now is whether reform momentum can be maintained while the EU prepares for a larger Union.