Questions and answers on the 2025 Rule of Law Report

What is the Rule of Law Report?

The Rule of Law Report is an annual preventive and monitoring tool which looks at rule of law developments across the EU and several enlargement countries. Since its first edition in 2020, the Report has become a vital point of reference at EU and national level. Its dedicated monitoring, which puts an emphasis on a preventive and dialogue-based approach, has brought a stronger common understanding. The Report helps identify risks, develop solutions, and provide targeted support early on to strengthen the rule of law in the EU.

The Report consists of a communication - summarising key horizontal trends - and individual country chapters covering recent rule of law developments in all Member States and four enlargement countries (Albania, Montenegro, North Macedonia, Serbia), covering four key areas: justice systems, the anti-corruption framework, media freedom and pluralism, and other institutional issues linked to checks and balances. In the case of the Member States, the Report also includes specific recommendations, aiming to assist them in their efforts to take forward ongoing reforms and identify where improvements are needed.

The Rule of Law Report is a preventive tool in the ‘EU Rule of Law Toolbox' and a central element of the Annual Rule of Law Cycle, a process of monitoring and dialogue involving the Commission, the Council and the Parliament, as well as Member States, national parliaments, civil society and other stakeholders. The report serves as a basis for discussions in the EU to prevent problems from emerging or deepening, and to identify and share best practices.

Why is the Single Market included in the Rule of Law Report?

Respect for the rule of law is essential for delivering policies that promote competitiveness and empower citizens to actively participate in both society and the economy. The rule of law has a direct impact on prosperity and competitiveness: a fair and clear legal framework gives certainty to businesses, confidence to investors, and reassurance to consumers. The rule of law is also an economic asset, providing a stable, rule-based environment guaranteed by independent courts and institutions. The rule of law is an important consideration for companies operating across borders. Businesses, in particular, small and medium-sized enterprises, need a stable and predictable economic environment.

As set out in President von der Leyen's Political Guidelines, this year's report puts a particular emphasis on issues that have a direct link with the proper functioning of the Single Market, such as sound lawmaking, public procurement rules and the stability of the regulatory environment. While issues with a direct link to the proper functioning of the Single Market have been covered since 2020, as of this year, relevant aspects are covered more prominently and systematically across all country chapters under the Report's four pillars. For example, the efficiency, quality and independence of justice systems are central to business performance and investment decisions. Anti-corruption measures help to ensure a level-playing field for businesses, and a media environment based on clear and open rules will be in the commercial interests of media service providers. Effective checks and balances are critical to ensure equal treatment under the law and for the impartial application of the law.

The 2025 report includes a number of new areas of reporting such as the handling of commercial cases by the judiciary, the stability of the regulatory environment, the effective functioning and independence of regulatory authorities, and the judicial review of administrative decisions.

In developing this dimension further, the Commission involved Member States and business associations closely, with dedicated outreach, a consultation process and a questionnaire to provide written feedback. This process was carried out in complementarity with other work strands, such as the European Semester, the Annual Single Market and Competitiveness Report and the Single Market and Competitiveness Scoreboard.

What are the principles for choosing the recommendations?

The Report and its recommendations are prepared in line with the Report's methodology. They are based on continuous dialogue with and among Member States. In line with the preventive nature of the report, the objective of the recommendations is to: (i) support Member States in their efforts to take forward reforms; (ii) encourage positive developments; and (iii) identify where improvements or a follow-up may be needed, also with a view to addressing systemic challenges.

The recommendations aim to guide Member States to take appropriate measures to address the challenges and concerns raised in their respective country chapters. There are no recommendations for enlargement countries, as such recommendations are issued exclusively in the context of the annual Enlargement Package.

In preparing the Rule of Law Report's recommendations the following principles have been observed, as established in the Report's methodology:

All Member States are subject to country-specific recommendations in full respect of the principles of equal treatment and proportionality;
The recommendations are based on an in-depth assessment in the country chapters, and the application of objective criteria grounded in EU law or European and international standards;
The recommendations are proportionate to the identified challenges. They also encourage the pursuit of positive reform efforts;
The recommendations are sufficiently specific to allow Member States to provide concrete and actionable follow-up, while taking the national competences, legal systems, and institutional context into account;
In preparing the recommendations, the Commission has paid close attention to consistency and synergies with other processes, such as the European Semester, the Conditionality Regulation and the national Recovery and Resilience Plans;
Subsequent editions of the Rule of Law Report will cover the follow-up to the recommendations.

The recommendations do not in any way prejudge any proceedings the Commission may initiate under other legal instruments, such as infringement procedures or the Conditionality Regulation.

How have Member States addressed the recommendations made in the 2024 report? How does the Commission assess them, and how does it help implement them?

This year's Report confirms that there is a positive trajectory in many Member States, as important reforms have been taken forward across the four key areas covered by the report – justice, anti-corruption, media freedom and institutional checks and balances. While challenges remain in some Member States, and in a few cases the situation is serious, the overall engagement with the process remains strong, and Member States have addressed a substantial number of the 2024 recommendations, in full or in part.

The Commission has been engaging with Member States - both at technical and political level - providing technical expertise and support where needed with a view to implementing the 2024 recommendations.

The report includes an assessment of progress made by Member States on implementing the 2024 recommendations, based on a qualitative analysis of developments since July 2024 and considering the overall context in the Member States. The 2025 Report found that 57% of the recommendations made in 2024 have been followed up by Member States, either fully or partially. In this context, the Commission also recognises that some recommendations may take longer to address, for example due to electoral cycles.

Based on the analysis in the country chapter and the assessment of progress made on the previous report's recommendations, the 2025 Report includes again a set of country-specific recommendations for each Member State.

In line with the announcement in President von der Leyen's Political Guidelines, the new generation of EU spending instruments, to be presented as part of the next multiannual financial framework, will ensure that compliance with the principle of the rule of law remains a must for EU funds. EU financial support for investment and reforms to promote the rule of law can offer real added value. This can feed into a broader effort to track the effective implementation of recommendations issued in the Report.

Several instruments and funding opportunities are already in place to support structural reforms through technical assistance and the funding of projects. For example, since 2017, the Commission has had a dedicated Technical Support Instrument for rule of law reforms in Member States. Other Commission programmes, such as those for Justice and Citizens, Equality, Rights and Values, also help Member States address challenges, including through calls for proposals open for civil society and other stakeholders.

As regards enlargement countries, the Commission will continue to engage with partners in the context of the accession process. The rule of law is also an essential element of the new Western Balkans Reform and Growth Facility. To fully benefit from this unprecedented support mechanism, countries need to prepare and implement an agreed reform agenda, including concrete steps on the Rule of Law. The Commission also supports reforms in the rule of law with financial and technical assistance in the enlargement region through the Instrument for Pre-Accession Assistance (IPA), which helps build up the capacities of the beneficiary countries throughout the accession process.

How were the enlargement countries included in the Report selected and when will further countries be added?

In 2024, the Commission invited Albania, Montenegro, North Macedonia, and Serbia to participate in the 2024 Report on the basis of objective, merit-based criteria; both as regards the formal stage of advancement in their respective accession process, and the level of preparedness, specifically concerning matters related to the rule of law.

As announced by President von der Leyen in her Political Guidelines, further enlargement countries will be added to the Report, if and when they are ready.

How did the Commission prepare the 2025 Rule of Law Report?

The 2025 edition is the result of an inclusive process with Member States, the four enlargement countries and stakeholders, following the same methodology as with previous Reports.

In November 2024, Member States were consulted on the questionnaire used to collect input for the sixth report. Between December 2024 and January 2025, the Commission received written input from Member States and around 270 written contributions from stakeholders about specific developments, both in Member States and at EU level. This year, the enlargement countries also received a questionnaire complementing the information provided in the context of the enlargement process.

To further develop the Single Market dimension, the Commission also reached out to business associations and Member States to identify issues of particular relevance through a dedicated outreach, a consultation process and a questionnaire to provide written feedback. During the virtual country visits, the Commission consistently involved national business associations and other relevant additional stakeholders. Between January and April 2025, over 650 meetings took place online across all 27 Member States and the four enlargement countries. In this context, the Commission discussed rule of law developments with over 980 national authorities, including judicial authorities, law enforcement and other stakeholders, such as journalist and judges' associations. All countries were given the opportunity to provide factual updates on their country chapters ahead of the adoption.

The EU Rule of Law Network, which was set up in 2020, continued to provide a channel of communication between the Commission and the Member States. Enlargement countries have also been invited to appoint a contact point, and since May 2024 they have participated as observers to this network.

Which stakeholders were consulted on this report?

The Commission carried out targeted stakeholder consultations, which provided general and country-specific contributions from a variety of EU agencies, European networks, national, European civil society organisations and professional associations and international and European actors. These included: the Fundamental Rights Agency, the European Network of Councils for the Judiciary (ENCJ), the Network of the Presidents of the Supreme Judicial Courts of the European Union, the European Network of National Human Rights Institutions (ENNHRI), the Council of Bars and Law Societies of Europe (CCBE), the Council of Europe, the UN Office of the High Commissioner for Human Rights and the Organisation for Economic Co-operation and Development (OECD) as well as national and international civil society and journalists' organisations. For the inclusion of the Single Market dimension, the Commission engaged also with business associations and other relevant stakeholders, at both EU and national level.

The sources for the report include a number of studies and reports, such as the Media Pluralism Monitor, relevant Eurobarometers, and the EU Justice Scoreboard.

How does the Rule of Law Report relate to other procedures?

The Rule of Law Report is a preventive mechanism, raising awareness and facilitating solutions early-on to prevent deterioration. It complements several other mechanisms and instruments at EU level, each with their own purpose. When preparing the Report's recommendations, the Commission pays close attention to consistency and synergies with other processes, such as the European Semester, the national Recovery and Resilience Plans, and the Conditionality Regulation. The Rule of Law Report is one of the sources of information used by the Commission to identify breaches of the principles of the rule of law that may be relevant for the Conditionality Regulation.

Article 7 of the Treaty on European Union (TEU)

The Article 7 TEU procedure remains an exceptional response instrument for the EU to act where there is a clear risk of a serious breach, or the existence of a serious and persistent breach, of the values of Article 2 TEU, including the rule of law.

Infringement procedures

Infringement procedures have a specific aim, namely, to ensure the correct application of EU law by Member States. Under the Treaties, the Commission may take legal action against a Member State that fails to implement EU law by launching an infringement procedure and ultimately referring the matter to the Court of Justice.

General regime of conditionality

The general regime of conditionality is a budgetary instrument designed to remedy adverse effects of breaches of the principles of the rule of law on the Union budget. When identifying and assessing breaches of the principles of the rule of law that may be relevant for the application of the general regime of conditionality, the Commission takes the Report into account, as well as sources from other institutions (for instance, the European Anti-Fraud Office, the European Public Prosecutor's Office, and the European Court of Auditors).

Recovery and Resilience Facility

To address a number of rule of law relevant country-specific recommendations under the European Semester through concrete reforms and investments, several Member States included concrete milestones and targets in their Recovery and Resilience Plans. These are now being gradually implemented.

The EU Justice Scoreboard

The EU Justice Scoreboard presents annual comparative data on the functioning of national justice systems and other indicators relevant for the Single Market. It is one of the sources of information which informs the Rule of Law Report, the Rule of Law Conditionality Mechanism, and the European Semester.

Enlargement Reports

The annual Enlargement reports cover the state of preparedness and progress made by candidate countries, including on all rule of law aspects. They provide guidance to the enlargement countries on reform priorities for the year ahead. The annual Enlargement Package and country reports will continue to play the same role as before in the accession process. The inclusion of a selected number of Enlargement countries is based on their state of preparations as well as progress in the formal accession process. The inclusion of the four enlargement countries in the Rule of Law Reports aims to put them on equal footing with Member States and support their reform efforts and accession process, helping maintain a sustainable pattern of high standards after accession. The two exercises are therefore complementary.

More information

2025 Rule of Law Report

2025 Rule of Law Report – the rule of law situation in the European Union

2025 Rule of Law Report – Recommendations

2025 Rule of Law Report – Country Chapters

2025 Rule of Law Report - Country Chapter Abstracts and Recommendations

2025 Rule of Law Report - Country-specific institutional background

2025 Rule of Law Report – Methodology

The Annual Rule of Law Cycle – Factsheet

The EU's Rule of Law Toolbox – Factsheet

2025 Rule of Law Report – Press release

Special Eurobarometer 561: Citizens' attitudes towards corruption in the EU in 2025