European leaders will gather in Brussels for the first EU Enlargement Forum to discuss what it means to “complete the Union.” Yet the true measure of completion will not be set inside conference halls. It will be defined by the trust, expectations and frustrations of people living closest to the EU’s borders.
The war in Ukraine has transformed enlargement from a procedural exercise into a core element of Europe’s security and democratic strategy. Accession talks are moving faster, but the foundations that make enlargement possible—legitimacy, trust and social inclusion—are uneven across the neighbourhood.
From Policy to People
The Forum represents a shift in how the EU approaches future members. It brings together leaders, civil society and youth delegates at a time when public opinion in candidate countries is hopeful but also fragile. The central question is whether Europe can match political ambition with social legitimacy.
To understand how people themselves view the EU and the future, the RE-ENGAGE project collected evidence in six countries: Serbia, Bosnia and Herzegovina, Albania, Georgia, Moldova and Ukraine. Participants were asked who they trust to provide security and opportunity, and which international partners they would turn to in times of crisis.
What Citizens Told Us
RE-ENGAGE combines national surveys, focus groups and vignette experiments that test behaviour and attitudes in potential crisis scenarios. The research provides one of the clearest comparative pictures of how people see the EU’s credibility, democratic value and staying power.1
Across all six countries, trust between people and their immediate communities is consistently high. Trust in national institutions, however, differs widely and is tied to personal experience with public services and the quality of daily life.
Serbia: Trust in national institutions is among the lowest recorded. Citizens link their distrust to poor public services and to a belief that the EU has tolerated President Aleksandar Vučić’s hybrid system in exchange for stability. Only 6 percent believe EU democracy support has improved governance, although 69 percent still see the EU as essential to Serbia’s economy.
Bosnia and Herzegovina: Institutional distrust is similarly high, while attitudes toward the EU remain positive. Many view the EU as essential for security and the rule of law, but half believe current EU support does not match local needs.
Albania: Trust indicators improve and confidence in EU engagement is stronger. More than half of respondents believe EU democracy support has helped.
Georgia: Trust in authorities is among the lowest in the region. Fewer than 40 percent believe EU support reaches the right places, although a strong majority still sees the EU as a positive democratic actor.
Moldova: Fieldwork shows relatively high trust in public institutions and strong satisfaction with services. Seventy-seven percent view EU support as well placed. Yet there is limited awareness of major EU programmes, which highlights a communications challenge rather than a policy failure.
Ukraine: Preliminary findings mirror Albania. Support for the EU remains high and expectations are realistic despite the pressures of war.
Taken together, the data shows that goodwill toward the EU exists, but connection and visibility do not always follow. Citizens give the EU higher trust where support improves daily life and is clearly communicated.
Completing the Union
If enlargement is to secure Europe’s future, completion must involve both institutional progress and social credibility.
First, the EU must deepen and widen at the same time. The Granada Declaration committed member states to link internal reform with future accessions, but little movement has followed. The upcoming enlargement policy review should provide a timeline, concrete objectives and clarity on next steps.
Second, enlargement will succeed only if societies see themselves as partners. Civil society, media, local governments, opposition parties, academia and the private sector all have a stake in the process. Their involvement should be structured, visible and continuous.
Third, reforms and early integration benefits need to reinforce one another. A meaningful reform plan would send a clear signal that member states are committed to enlargement. At the same time, successful implementation of the Growth Plans for the Western Balkans and Moldova can turn Europe from a political aspiration into a daily reality.
RE-ENGAGE findings underline that people trust the EU most when support is close, visible and rooted in local communities.
From Enlargement to Resilience
Enlargement is no longer only about completing Europe’s map. It is now a central tool for preventing disinformation, elite capture and coercive economic influence. Yet external resilience depends on internal strength. The EU’s credibility abroad is shaped by cohesion, public support and a shared understanding of the risks.
Eurobarometer polling shows uneven support for enlargement across current member states. While Nordic and Baltic publics strongly back accession for Ukraine and Moldova, others remain hesitant. With only 41 percent support overall, policymakers must explain what Europe stands to lose if enlargement stalls. This requires dialogue with citizens, not only messaging to elites.
To move forward, the EU should:
• Expand gradual integration tools such as roaming rules, SEPA, Horizon and Erasmus+ so benefits arrive early
• Communicate results more transparently and locally, through delegations and member state embassies
• Support civil society in monitoring reforms
• Ensure that people can feel progress before accession becomes formal
Europe’s Moment of Credibility
As the EU debates how to complete the Union, its success will not be defined by declarations or timelines. It will be seen in everyday places—schools, workplaces, town halls and civic groups—where people decide whether Europe is not only present, but meaningful.
1 All data used in this article is drawn from RE-ENGAGE original fieldwork, including surveys, focus groups and vignette experiments in six countries. Findings are preliminary. Full publications will be released in late 2025.
