A new ENNHRI Rule of Law report in the enlargement countries looks at the state of the rule of law across the ten EU enlargement countries. It draws on contributions from NHRIs in Albania, Bosnia and Herzegovina, Georgia, Kosovo*, Moldova, Montenegro, North Macedonia, Serbia, Türkiye and Ukraine. The report compares developments across the region, identifying steps forward alongside recurring structural challenges. It also outlines recommendations for strengthening the rule of law in the EU enlargement context.

The report’s main findings

The independence and effectiveness of NHRIs remain uneven across the region. While some institutions have seen progress, concerns remain regarding appointment procedures, financial autonomy, adequate resources and effective implementation of NHRIs’ recommendations. This highlights the need to further bolster the institutional framework for independent human rights oversight. At the same time, many NHRIs continue to strengthen their functioning in compliance with the UN Paris Principles and to contribute to rule of law and fundamental rights-related reforms.

Civic space and the operating environment for civil society organisations and human rights defenders has further deteriorated in several enlargement countries. NHRIs report increasing legal and administrative restrictions, intimidation and strategic litigation against public participation. At the same time, disinformation and online harassment increasingly affect democratic participation and public debate. Despite these challenges, NHRIs continue to support and protect civil society organisations and fellow rights defenders while facilitating dialogue between civil society and public authorities.

NHRIs also identify persistent structural human rights challenges affecting children, persons with disabilities, Roma communities and people deprived of their liberty. At the same time, digitalisation is creating new human rights risks that require stronger safeguards. Armed conflict and occupation continue to have profound human rights consequences in Georgia, Moldova and Ukraine. Across these areas, NHRIs continue to monitor compliance with human rights standards, issue recommendations and advocate for reforms to address structural issues.

Finally, justice systems still face structural shortcomings. These include lengthy judicial proceedings, staff shortages, delays in implementing domestic and European Court of Human Rights’ (ECtHR) judgments, and corruption. These are undermining access to justice and the effective protection of human rights. Nevertheless, NHRIs carry on contributing to improving justice systems. They are doing so through legislative opinions, monitoring, complaint handling and recommendations to improve accountability and access to justice.

Recommendations for strengthening the rule of law

Based on its members’ insights, ENNHRI has developed a series of recommendations.

ENNHRI calls on national authorities to:

• Strengthen the independence, effectiveness and adequate resourcing of NHRIs in line with the UN Paris Principles.
• Protect civil society space and ensure an enabling environment for civil society organisations and human rights defenders by strengthening protection mechanisms, ensuring meaningful participation in decision-making , and providing predictable and sustainable funding.
• Limit the use of fast-track legislative procedures and promote inclusive, transparent law-making.
• Address persistent structural human rights challenges, including detention conditions.
• Strengthen judicial capacity and ensure the timely implementation of domestic and ECtHR judgments.

ENNHRI calls on the EU and other regional actors to:

• Maintain support for NHRIs and civil society throughout the enlargement process.
• Consistently recognise strong and independent NHRIs as a benchmark under Chapter 23 of the EU accession process.
• Strengthen the monitoring of the human rights compliance of measures addressing disinformation.
• Support justice sector reforms and the effective implementation of ECtHR judgments.

More information on the report and topic

Read the regional analysis and all individual country reports.

These complement ENNHRI’s 2026 report on the rule of law in the EU, as well as its upcoming one on the Council of Europe region.

Read more on ENNHRI’s work on democracy and the rule of law.

*This designation is without prejudice to positions on status, and is in line with UNSC 1244 and the ICJ Opinion on the Kosovo Declaration of Independence