Remarks by Executive Vice-President Virkkunen and Commissioner McGrath on the Rule of Law Report

Executive Vice-President Virkkunen

The rule of law lies at the heart of our Union. The EU's prosperity, security and democratic resilience depend on respect for the rule of law and the Union's common value.

In a world with rising political polarisation, pressures on democratic institutions, on our economy and growing external threats, defending the rule of law is more than ever essential.

Independent justice systems, effective anti-corruption frameworks, free and pluralistic media, and strong checks and balances are key in this effort. They protect citizens' rights and ensure trust in public institutions and democracy, and provide the legal certainty that supports investment, competitiveness, and economic growth.

Like the previous editions, this year's report is based on a very close partnership with the Member States and a strong engagement with civil society organisations. Dialogue is at the core of this exercise.

I will start with positive news: Overall, in the last year, we saw the positive effects of the rule of law cycle and the intense dialogue with our member states.

We continued progress in many Member States, with significant reforms completed or underway across all areas.

However, work must continue. the progress is uneven and reforms often slower than expected.

Before Michael will guide you in more detail through the report, let me highlight a few elements.

Media freedom and pluralism are central to the rule of law. They ensure accountability, allow free expression, and their erosion often signals broader democratic backsliding.

Thanks to the Rule of Law Report we see that many Member States are taking measures in these areas – making their media regulators more independent, make state advertising more transparent, and protecting journalists.

But it is also a result of the European Media Freedom Act – the EMFA, which started to apply last August.

EMFA includes specific provisions on the transparent and fair allocation of state advertising, the transparency of media ownership and the independent functioning of public service media. It also introduces measures to protect journalistic sources and confidential communications.

These obligations under the EMFA, replace of course the recommendations of our rule of law report. That is why we have adjusted our approach.

The Rule of Law Report will, however, continue to monitor developments in these areas and consider their broader impact.

Looking ahead, the Commission intends to strengthen the media pillar of the Rule of Law Report. We will systematically monitor and report on how recent trends — such as rapid digitalisation and the rise of local news deserts — impact media freedom and pluralism.

Another very important aspect to me was to strengthen the link between the rule of law and access to EU funds, building on existing instruments. This is precisely what we have done in our MFF proposal. We have strengthened the links between the Rule of Law Report's recommendations and EU financial support.

Rule of Law report will be an important element when assessing compliance of Member States with rule of law and fundamental rights safeguards in the National and Regional partnership plans.

We have also made the recommendations as targeted and operational as possible, to help Member States identify rule of law reforms and investments to fund via the National and Regional Plans.

But let me be clear: there will be no automaticity between the rule of law recommendation and access to EU funds.

This Rule of Law report was a joint effort, and I want to thank everyone involved.

The Commission will continue working with the European Parliament and Council to further improve the Rule of Law cycle, strengthening dialogue and follow-up so that recommendations lead to meaningful reforms.

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Commissioner McGrath

For seven editions now, the Rule of Law Report examines rule of law developments across all Member States.

Since 2022, the Report includes recommendations.

These serve as drivers of reform – and lead to close cooperation between the Commission, Member States, and other EU institutions.

In 2024, four enlargement countries were included in the Report – because the rule of law is a fundamental for EU accession.

And, in 2025, the Single Market dimension was enhanced – because the rule of law ensures stability and certainty for businesses, which is essential for Europe's competitiveness.

The Rule of Law report is an annual exercise, but one that is always evolving to reflect new priorities.

This year, I visited Budapest following the elections, where I saw with my own eyes what restoring the rule of law means to the people of Hungary.

They were convinced that the law cannot be a tool of – but must be a check on – power.

Like many things in life, we appreciate the rule of law most once it's gone, and it was a cause for celebration in Hungary to be able to work to restore it!

So, the rule of law may sound abstract at times, something that concerns only lawyers and courts, but its presence – and absence – is really tangible.

It means that everyone is equally held to the same rules and standards that have been agreed democratically, and that are upheld with transparency and accountability.

Corruption can be brought to light and punished – meaning public money serves citizens not private interests, and journalists can speak truth to power and inform citizens – meaning those in power are scrutinised.

The annual Rule of Law Report is for Europe what is a regular health check for people.

It helps prevent problems from emerging or deepening.

Prevention is better than cure!

The Report is based on a solid, transparent and objective methodology that ensures equal treatment for all Member States.

It was developed over the years in cooperation with the Member States and is published transparently on the Commission's website.

Every year, the Commission carries out hundreds of meetings with national authorities, judicial institutions, civil society organisations, and other stakeholders – in each and every Member State, and in the four enlargement countries included in the Report.

And the Report presents its findings across four key pillars, covering:

• justice systems,
• anti-corruption frameworks,
• media pluralism and freedom,
• and other institutional checks and balances.

The Report promotes an open dialogue with Member States.

It forms the basis of the rule of law dialogue in the General Affairs Council.

It informs debates in the European Parliament.

And it serves as a basis of transparency and accountability for citizens.

This year's Report confirms a broadly positive trajectory – with some important reforms completed or in progress.

Nearly 1 in 2 (47%) of the recommendations made in 2025 have since been addressed by Member States – either fully or partially.

Of course, some recommendations might take longer to address due to legislative or electoral cycles.

So the picture remains uneven across the Member States and pillars, with some challenges persisting in places.

But there are important positive examples from across our Union.

For example:

• In Bulgaria, a reform preventing political influence in the Supreme Judicial Council was adopted last year.
• In Hungary, new laws increase transparency and create tools to fight corruption.
• In Romania, a new law on lobbying obliges Members of Parliament to register meetings on laws with third parties.

Free, open, and pluralistic media has also been strengthened more broadly, with many Member States acting to ensure compliance with the European Media Freedom Act – otherwise known as EMFA.  

As Henna mentioned, some issues previously addressed through Rule of Law recommendations are now covered by legally binding provisions under EMFA.

Our approach has therefore evolved: where EMFA now provides the framework, we will no longer have recommendations in the Rule of Law Report, but we will follow-up on those issues through the enforcement of EMFA.

I am determined to make EMFA not just groundbreaking legislation, but a reality on the ground. I will continue working with Member States and stakeholders to ensure its effective application.

Because free and independent media are not a luxury of democracy – they are one of its foundations.

The results in this seventh edition of the Rule of Law Report demonstrate the importance of Europe having an ‘early warning system'.

As a preventative tool, it leads to transparent dialogue and consistent cooperation.

Looking ahead, President von der Leyen has long said that the rule of law is a must for EU funds.

This is why the Commission's proposal for the next EU long-term budget – the Multiannual Financial Framework – strengthens the link between the Rule of Law Report's recommendations and EU financial support.

And – to strengthen the rule of law further – before the end of this year the Commission will present a series of anti-corruption initiatives in the coming months:

• a review of the EU's Anti-Fraud Architecture;
• an EU Anti-Corruption Strategy;

and the strengthening of the EPPO following its evaluation and the third report of the PIF Directive – the Directive on the protection of the Union's financial interests.

With our Union facing growing political polarisation, pressure on democratic institutions, economic uncertainty and increasing external threats, the rule of law is not simply a principle to defend - it is part of the solution.