Changes from report parliamentary committee draft to plenary report

Added10. Welcomes the long-overdue decision to lift EU measures against Kosovo, including the release of EUR 216 million in priority contracts and programming in December 2025 and the release of the remaining EUR 205 million in early 2026; considers that these measures stood in clear contradiction to Kosovo’s demonstrated commitment to European values and its alignment with EU policies, and were no longer justified given that all necessary requirements have been met; notes the negative impact that these measures have had on Kosovo’s society, particularly on local communities, civil society organisations and small and medium-sized enterprises (SMEs); questions the lack of transparency and predictability, the inadequate public information and the prolonged duration of the measures, despite Kosovo having met the requirements laid down by the EU;

Democracy and the rule of law

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Changed10.11. Welcomes the overall positive assessment of the conduct of the parliamentary and local elections in 2025, noting that they were conducted in a peaceful, competitive and inclusive manner;manner under a revised electoral framework aligned with earlier EU election observation mission recommendations; commends the authorities for introducing an electronic voting system in Kosovo; notes, however, that some shortcomings were identified in the conduct of the elections and urges the Kosovo authorities to take these into account in the organisation of future elections;

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Changed11.12. Welcomes the participation of Kosovo Serbs in the 2025 parliamentary and local elections and the four newly appointedelected Serb mayors taking over from their Albanian predecessors in the Serb-majority municipalities;municipalities in the north of Kosovo; expresses concern, however, over the pressure exerted on voters dependent on Serbian social assistance and employment to vote for Srpska Lista representatives in the 2025 February parliamentary election;

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Removed12. Regrets continued attempts to politicise independent institutions, including pressure on the Central Election Commission, and governance shortcomings within the Independent Media Commission;

Added13. Regrets the continued attempts to politicise independent institutions, including the Central Election Commission, and the governance shortcomings within the Independent Media Commission; calls on Kosovo to further align the legal framework governing the Independent Media Commission with Council of Europe recommendations and EU standards in order to strengthen regulatory independence, legal certainty and public trust in media oversight; calls on the authorities to ensure merit-based appointments, transparency in recruitment procedures and full respect for the independence of these institutions; stresses that resilient democratic institutions are a first line of defence against manipulation of the information environment, covert influence and politically driven distortion of public debate; calls on Kosovo to establish an institutionalised democratic resilience framework bringing together the National Assembly, the government, independent regulators and the election administration, with clearly defined responsibilities, regular risk assessments and public reporting;

Removed13. Remains concerned about the limited implementation of the rule of law strategy and insufficient follow-through on reforms, incomplete membership of the Kosovo Judicial Council and Kosovo Prosecutorial Council, and delays in implementing justice reforms;

Added14. Welcomes the fact that civil society organisations operate in a generally favourable environment and calls on the authorities to ensure that civil society is meaningfully involved, from an early stage, in the preparation and implementation of EU-related reforms; stresses the importance of increasing accountability and transparency in relation to public funding for civil society organisations; underlines that civil society is vital in fostering democracy and pluralism and promoting good governance and social progress;

Removed14. Expresses concern over limited progress in the fight against corruption overall; notes with concern Kosovo’s decline in the Global Corruption Index for 2025, where it ranks 76th out of 182 countries and territories, three places lower than in 2024, reversing a previous trend of gradual improvement;

Added15. Commends the authorities for consulting the Venice Commission on the package of draft laws on the judiciary, including the law on the Kosovo Prosecutorial Council; remains concerned, however, about the limited implementation of the rule of law strategy and insufficient follow-through on reforms by the government, the incomplete membership of the Kosovo Judicial Council, and the delays in implementing justice reforms; expresses concern at the government’s failure to adopt the necessary sub-legal act outlining the organisational structure of and the cooperation mechanisms between the Special Investigation Unit of the Kosovo Police and the Special Prosecution Office; welcomes the progress made regarding the appointment of the new Chair of the Kosovo Prosecutorial Council and expects the new composition to be finalised once the National Assembly resumes work; welcomes the recruitment of 17 new judges by the Kosovo Judicial Council in a transparent and merit-based process and urges Kosovo’s President to confirm the appointments without delay; urges Kosovo to take decisive action to address the shortcomings and ensure that legislation on the integrity and accountability of the judiciary is aligned with European standards and the relevant recommendations of the Venice Commission;

Removed15. Welcomes the fact that some progress has been made in the fight against organised crime; calls for a swift adoption of a national strategy and action plan against organised crime;

Added16. Welcomes the fact that Kosovo reduced the administrative burden through the implementation of the administrative burden prevention and reduction programme for 2025-2028 and its action plan for 2025-2026; welcomes this improvement and the adoption of amendments to the law on public officials and calls on Kosovo to further improve its public administration and its merit-based civil service system; notes that Kosovo’s strategic framework for public administration is in place, but is not being implemented efficiently;

Removed16. Commends EULEX’s continued role in assisting Kosovo’s authorities in establishing sustainable and independent rule of law institutions;

Added17. Expresses deep concern over the insufficient progress made in the fight against corruption overall; regrets the lack of tangible structural progress in this area despite the commitments made, and stresses that corruption remains a systemic problem that undermines the functioning of public institutions and public trust; notes with concern Kosovo’s decline in the 2025 Corruption Perceptions Index, with it ranking 76th out of 182 countries and territories, three places lower than in 2024, which marks a worrying regression of the previous trend of gradual improvement but still positions Kosovo ahead of some other countries in the region; calls on the authorities to adopt and implement, without delay, concrete, effective and verifiable measures to improve prevention, investigation and prosecution in the area of corruption; calls, in particular, for the swift adoption of a national anti-corruption strategy and action plan for 2025-2028, for stronger use of asset declarations and integrity plans, and for more effective application of confiscation tools in corruption cases; stresses the need to strengthen the independence and operational capacity of anti-corruption bodies and to ensure effective coordination between prosecutors, police and financial intelligence units; draws attention to the fact that the Commission’s previous recommendations on strengthening the capacity of the Agency for the Prevention of Corruption and on implementing anti-corruption legislation are still to be implemented; calls for the continuous improvement of the quality of investigations in high-level corruption cases;

Added18. Is concerned that limited progress has been made in the fight against organised crime; calls for the swift adoption of a national strategy and action plan against organised crime; highlights the importance of tackling criminal networks by strengthening international cooperation through intelligence sharing and by enhancing collaboration between law enforcement and prosecution actors; calls on Kosovo’s neighbours to allow Kosovo to participate in international cooperation at all levels in order to maximise the impact of the fight against organised crime; emphasises the need to deepen cooperation in the fight against drugs; calls for further alignment regarding the fight against terrorism;

Added19. Underlines EULEX’s continued efforts in assisting Kosovo’s authorities in establishing sustainable and independent rule-of-law institutions; notes that persistent challenges, including limited enforcement powers, have constrained the impact of its work; calls for the mission’s added value, scope and strategic objectives to be reassessed continuously to ensure its relevance and efficiency;

Added20. Is concerned at the reported cases of excessive use of force and misconduct by some officers of the Kosovo Police in the north of Kosovo; calls on the Kosovo Police to ensure that its personnel fully abides by all requirements relating to the rule of law and human rights; recalls the shared responsibility of all political representatives and all people in Kosovo for upholding peace and the rule of law;

Fundamental freedoms and human rights

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Changed17.21. Notes that while the legal and institutional framework for human rights is broadly in place, its implementation remains insufficient; welcomes the adoption of the strategy for the protection and promotion of the rights of communities; welcomes Kosovo’s implementation of the judgment of the Constitutional Court on Dečani Monastery’s land ownership; calls on Kosovo to invest in more effective implementation of the human rights framework;

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Removed18. Emphasises the need to strengthen the implementation of legislation safeguarding the rights of people belonging to non-majority communities;

Added22. Acknowledges that Kosovo’s constitution is very progressive in terms of minority rights; notes with regret, in that respect, that the petition signed by nearly 500 people who have historically self-identified as Bulgarian, which was registered at the National Assembly of Kosovo in January 2023, has still not been considered, and recommends that their rights be enshrined in law and ensured in practice in order to protect the historical, cultural and political identity of the Bulgarian minority; calls on Kosovo to ensure that all minorities recognised under the law on the protection and promotion the rights of communities and their members are fully incorporated into the country’s constitution;

Removed19. Notes Kosovo’s pluralistic media landscape but regrets the lack of progress in ensuring freedom of expression; regrets that Kosovo’s ranking for media freedom has fallen 24 places to 99th in the 2025 World Press Freedom Index;

Added23. Notes that the prison system in Kosovo is broadly aligned with the UN and Council of Europe standard minimum rules; calls for better protection of the rights of prisoners, particularly of women prisoners, prisoners belonging to a minority and prisoners with mental health problems;

Removed20. Reiterates its concern over attacks and threats against journalists and media workers; calls for an improved prosecutorial response and alignment of media-related legislation with the EU acquis and other relevant international standards;

Added24. Emphasises the need to strengthen the implementation of legislation safeguarding the rights of vulnerable groups and people belonging to non-majority communities, notably concerning their representation in public institutions and the use of languages, including by ensuring equal and effective access to state education in their mother tongue, as well as access to healthcare and public services, respect for linguistic and property rights, adequate representation in central and local administration, and protection of tangible and intangible religious, traditional and cultural heritage; calls on Kosovo to step up its efforts to provide minority groups with equal opportunities and adequate representation in political and cultural life, public media, the administration and the judiciary; calls for religious minorities to be protected in Kosovo and for access to places of worship to be ensured;

Removed21. Stresses the need to ensure the sustainable funding and independence of the public broadcaster; calls for balanced and representative supervisory oversight of Radio Television of Kosovo, Kosovo’s public broadcaster;

Added25. Regrets the fact that women from minority groups, particularly from the Roma, Ashkali and Egyptian communities, face numerous forms of discrimination, particularly in education, employment and access to healthcare; expresses concern that the administration in Kosovo does not adequately represent minority communities and that the number of women in senior positions remains low;

Removed22. Expresses concern about the increasing disinformation about inter-ethnic tensions being spread by foreign actors, particularly during election periods; calls for a strengthened institutional response and improved media literacy;

Added26. Calls on Kosovo to enhance its implementation of existing mechanisms protecting the rights of non-majority communities, religious communities and the LGBTIQ+ community by finalising the new Civil Code, the adoption of which is still pending; remains concerned that discriminatory language directed against women and LGBTIQ+ people persists;

Added27. Stresses the need to strengthen gender equality and women’s rights in Kosovo; notes that the legal and institutional framework on gender equality and combating gender-based violence is largely in place; welcomes the increased funding for specialised support services, including shelters for victims of gender-based violence, the fully functional database recording cases of domestic violence, and the ongoing awareness-raising efforts; expresses concern, however, that gender-based violence persists and that implementation and enforcement remain insufficient, particularly given that women, especially those from minority communities, continue to face multiple forms of discrimination;

Added28. Reiterates its call on the authorities to improve internal dialogue and genuinely and directly engage with the independent civil society organisations of Kosovo Serbs, in particular in the north, with the aim of building trust, facilitating the daily life of Kosovo Serbs and successfully integrating them;

Added29. Commends the government for approving the strategy for the rights of persons with disabilities 2025-2030 and the associated action plan for 2025-2027; regrets the fact, however, that the UN Convention on the Rights of Persons with Disabilities has not yet been adopted by Kosovo; expresses concern over Kosovo’s insufficient alignment with the EU acquis in this regard and the discrimination and barriers faced by persons with disabilities, including children, in access to education, healthcare and social services; calls on the authorities to strengthen the protection of their rights and to adopt the draft law on status recognition, services and benefits;

Added30. Underlines the importance of protecting Kosovo’s multicultural heritage, including that of the Croatian community, while supporting sustainable local development and community engagement; welcomes the EU-funded project implemented by the United Nations Development Programme to preserve and revitalise the cultural heritage of Janjevo;

Added31. Regrets the fact that the new draft law on textbooks is still pending adoption by the Kosovo National Assembly; is concerned that implementation of Kosovo’s education strategy for 2022-2026 is lagging and that funding for basic public education continues to decrease; calls on Kosovo to finalise the adoption of the draft law on textbooks, complete the revision of current textbooks and provide sustainable and systematic training to teachers;

Added32. Notes Kosovo’s pluralistic media landscape, but stresses that it remains fragile and vulnerable to various forms of pressure; deeply regrets the lack of progress made on ensuring freedom of expression and the effective protection of journalists; regrets the fact that Kosovo’s ranking for media freedom has fallen 24 places to 99th in the 2025 World Press Freedom Index, which constitutes a significant and worrying regression; notes that freedom of the press is a core European value and that Kosovo needs to take more effective action than it is currently taking to safeguard it;

Added33. Reiterates its grave concern over the deterioration of the media environment and the climate in which information professionals work, and particularly over the attacks and threats against journalists and media workers, including the use of offensive language directed at the media by high-ranking Kosovo officials during the electoral campaign; regrets the fact that the draft law on the protection of journalistic sources is still awaiting adoption, leaving journalists without adequate legal protection; stresses that there must be zero tolerance for physical attacks against journalists and calls for strengthened investigation and prosecution of all threats against media personnel and for the alignment of media-related legislation with the EU acquis, in particular the European Media Freedom Act and the EU Anti-SLAPP Directive, and with other relevant international human rights obligations; calls on the authorities to take immediate, concrete measures to guarantee the independence of the media, combat intimidation and ensure an environment that supports free and pluralistic journalism;

Added34. Expresses serious concern over reports of pressure exerted on journalists by political actors and organised criminal groups, which has led to instances of self-censorship; notes that journalists may refrain from engaging in critical investigative reporting out of concern for their physical safety or job security; further highlights reports that public authorities may withdraw advertising from media outlets that publish critical content, thereby exerting indirect economic pressure;

Added35. Expresses concern that the adoption of the draft law on Radio Television of Kosovo (RTK), Kosovo’s public broadcaster, remains pending and therefore calls for its swift adoption; stresses the need to ensure the sustainable funding and independence of the public broadcaster; regrets the fact that the position of RTK General Director has been vacant since September 2024 and that the RTK Board has lacked a quorum since December 2024, rendering the public broadcaster effectively dysfunctional and unable to fulfil its role; calls for balanced, representative and politically independent supervisory oversight of RTK; calls on the Kosovo authorities to appoint the members of the RTK Board and the RTK General Director through a transparent and merit-based process, thus guaranteeing the effective functioning of public service broadcasting in Kosovo; stresses that any reform of the public broadcaster must safeguard editorial independence, avoid political influence and ensure sustainable and transparent financing;

Added36. Notes with concern that the 2025 Trafficking in Persons Report highlights that the relevant authorities in Kosovo have not fully met the minimum standards for the elimination of trafficking in human beings, despite demonstrating increased efforts, including improved prosecution rates and enhanced victim support;

Added37. Expresses concern about the increase in disinformation being spread by foreign actors in countries in the region, including about interethnic tensions, notably by Russian and Serbian state-linked sources and particularly during election periods, further contributing to the political polarisation; remains seriously concerned by malign foreign interference, destabilisation efforts and hybrid threats, including AI-generated disinformation and coordinated online campaigns aimed at influencing political processes and public opinion; calls for a strengthened institutional response and improved media literacy, to be achieved through measures including strengthened teacher training and modern learning resources and enhanced cooperation with independent media, fact-checking organisations and relevant EU programmes, in order to promote critical thinking and responsible digital engagement; calls on Kosovo and its regional partners to remain united and to further strengthen regional cooperation, as well as European cooperation with Kosovo, on countering external threats, disinformation, foreign interference and cyber and hybrid threats that seek to undermine the European perspective of the country and the region;

Added38. Commends Kosovo for its active engagement in a number of regional cooperation initiatives, such as the Central European Free Trade Agreement, the Energy Community, the Transport Community, the South-East European Cooperation Process and the Regional Cooperation Council;

Added39. Commends the Kosovo authorities for the successful implementation of the roadmap for a sustainable solution to the illegal possession, misuse and trafficking of small arms and light weapons and explosives; welcomes the high level of compliance with the rules laid down in the UN Firearms Protocol;

Reconciliation and good neighbourly relations

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Removed23. Recalls that normalisation of relations with Serbia and implementation of the Belgrade-Pristina Dialogue commitments remain an integral part of Kosovo’s European perspective;

Added40. Recalls that normalisation of relations with Serbia and implementation of all agreements reached within the Belgrade-Pristina Dialogue remain an integral part and a fundamental and necessary component of Kosovo’s European perspective; stresses that concrete, lasting and verifiable progress in this area is vital in order to strengthen regional stability and advance the country’s European perspective; emphasises that normalisation cannot be seen as a secondary concern, but must remain an absolute political priority; underlines the importance of further strengthening the EU’s facilitation efforts between the parties with a view to overcoming the current stalemate;

41. Reiterates its full support for the EU-facilitated Dialogue and welcomes the extended mandate of Peter Sørensen as the EU Special Representative for the Belgrade-Pristina Dialogue until 29 February 2028;

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Removed25. Reiterates the importance of constructive engagement on the part of the authorities of Kosovo and Serbia in order to achieve a comprehensive, legally binding normalisation agreement, based on mutual recognition and in accordance with international law; calls on both Kosovo and Serbia to implement the Brussels and Ohrid Agreements, including the establishment of the Association/Community of Serb-Majority Municipalities, and the lifting of Serbia’s opposition of Kosovo’s membership in regional and international organisations, and to avoid unilateral actions that could undermine the dialogue process;

Added42. Reiterates its call to improve the quality of the dialogue process through the participation of women, increased transparency towards the public, and the meaningful involvement of civil society;

Removed26. Expects Kosovo and Serbia to fully cooperate and take all the necessary measures to swiftly bring to justice the perpetrators of the 2023 terrorist attack in Banjska; deplores the fact that Serbia still has not prosecuted the culprits, most notably Milan Radoičić, the Vice-President of Srpska Lista;

Added43. Reiterates the importance of constructive engagement on the part of the authorities of Kosovo and Serbia in order to advance the implementation of the Agreement on the Path to Normalisation and the implementation annex thereto, which remains valid and legally binding on both parties; calls on both Kosovo and Serbia to implement the Brussels and Ohrid Agreements in full, including through the establishment of the Association/Community of Serb-Majority Municipalities and the lifting of Serbia’s opposition to Kosovo’s membership in regional and international organisations, and to avoid unilateral actions that could undermine the dialogue process;

Removed27. Notes the unresolved fate of up to 1 590 missing persons, with only 26 cases resolved between April 2024 till September 2025;

Added44. Welcomes the agreement reached on 14 March 2026 on the implementation of Kosovo’s legislation on foreigners, which introduces mitigating measures for members of the Serb community; notes that this arrangement helps to ensure continuity in access to public services and avoids the risk of de facto exclusion of Kosovo Serbs; stresses that such solutions contribute to confidence-building and represent a positive step towards the normalisation of relations between Belgrade and Pristina and the promotion of good neighbourly relations;

Removed28. Reiterates the importance of KFOR and commends its sustained efforts to ensure a safe and secure environment in Kosovo and in the Western Balkans region in general;

Added45. Takes note of the closure of dozens of Serbia-supported institutions in an uncoordinated manner in the north of Kosovo;

Added46. Expects Serbia to fully cooperate with Kosovo to finally bring to justice the perpetrators of the 2023 terrorist attack in Banjska; condemns the fact that Serbia still has not prosecuted the culprits, most notably Milan Radoičić, the former Vice-President of Srpska Lista; reiterates that all individuals responsible for acts of violence must be held accountable and face justice without delay, in line with the rule of law and due process; strongly condemns the attack on the Ibër-Lepenc/Ibar-Lepenac canal in the north of Kosovo in November 2024, and calls for the perpetrators to be swiftly apprehended and brought to justice; calls on Serbia to respond without further delay to Kosovo’s January 2025 request for mutual legal assistance in relation to this attack and to cooperate fully with the investigation;

Added47. Notes the fact that the fate of up to 1 590 missing persons remains unresolved, with the fate of only 26 missing persons having been resolved between April 2024 and the end of the reporting period in September 2025; calls on both Kosovo and Serbia to engage constructively and in good faith in all technical discussions aimed at clarifying the fate of the remaining missing persons, including through the Sub-Working Group on Forensic Issues, and to refrain from any politicisation; welcomes the first meeting of the Joint Commission on Missing Persons, convened by the Chief Negotiators of Kosovo and Serbia in January 2026 within the framework of the EU-facilitated dialogue, and calls for further cooperation to accelerate the identification of mass graves and the exchange of information;

Added48. Calls on Serbia to open and share all relevant police, military and archival documentation related to the 1998-1999 war in Kosovo in order to support truth, justice and accountability, including in cases of conflict-related sexual violence; notes that a general agreement to share such information has not yet been implemented and expresses concern over the extension of secrecy classifications, which risks further delaying justice and recognition for survivors;

Added49. Recalls the importance of ensuring full access to the archives of the former Yugoslav secret service (UDBA) and Yugoslav People’s Army Secret Service (KOS), including those held in Pristina and in Belgrade, in order to thoroughly research and address communist-era crimes and criminal organisations; underlines that opening these archives throughout the region would contribute to truth-seeking, justice for victims, reconciliation and the consolidation of democratic governance;

Added50. Invites Kosovo to continue its engagement in a number of regional cooperation initiatives; reiterates the importance of the NATO-led Kosovo Force for broader security and commends its sustained efforts in building and maintaining a safe and secure environment in Kosovo and in the Western Balkans region in general; recalls the importance of the mission for the ongoing development of the Kosovo Security Force through the provision of advice, training and capacity building; calls on the Member States contributing to Kosovo Force to refrain from reducing their presence;

Added51. Calls for renewed efforts to safeguard religious and cultural heritage in Kosovo, including Orthodox, Islamic, Catholic and other sites, as part of a broader commitment to pluralism, reconciliation and respect for Europe’s shared cultural legacy;