Bosnia and Herzegovina’s EU path: from candidacy status optimism to 113 failed promises

Membership of the European Union has long represented one of the primary foreign policy objectives of Bosnia and Herzegovina (BiH). The country's commitment to European integration is rooted in both political and economic considerations. The European perspective of Bosnia and Herzegovina was formally confirmed at the Thessaloniki Summit in 2003, where the Union reaffirmed that the future of the Western Balkans (WB) lies within the EU framework. In February 2016, BiH formally submitted its application for membership in the Union, and in December 2022 the European Council granted the country its official candidate status.

Optimism of the public

The aspiration to join the EU also enjoys broad public support. According to a public opinion survey conducted by the Directorate for European Integration, 71.2 per cent of citizens support BiH's accession to the EU. Respondents most frequently associate membership with greater economic opportunities, freedom of movement, improved living standards, and stronger institutional governance. Such levels of support demonstrate that European integration remains one of the few strategic objectives capable of attracting consensus among a significant portion of the country's population. Consequently, the granting of candidate status generated considerable optimism regarding the acceleration of reforms and the prospect of bringing Bosnia and Herzegovina closer to full EU membership.

While the public thought that the euphoria of candidacy status might lead to the increased fulfilment of responsibilities and fast entry to the Union, the reality was far from it. Although the European Council decided in March 2024 to open accession negotiations with BiH, this decision was accompanied by continued emphasis on the implementation of the fourteen key priorities identified by the European Commission in 2019. Particular emphasis was placed on areas such as the rule of law, democratic institutions, public administration reform, and the fight against corruption. Progress in fulfilling these requirements remained uneven. Several key legislative reforms, including judicial reforms, anti-corruption measures, and electoral legislation, continued to face delays due to disagreements among domestic political actors and the country's complex institutional framework. At the time that the candidate status was gained, only a limited number of required priorities were fulfilled. Similar concerns persisted throughout 2024 and 2025. Reports monitoring the country's European integration process highlighted limited progress in implementing promised reforms, while numerous measures remained blocked by political disputes between different levels of government and competing party interests. European officials repeatedly stressed that the pace of accession would depend not on political declarations but on the concrete adoption and implementation of reforms. As the European Council President António Costa emphasized during his visit to Sarajevo, it remained the responsibility of the domestic authorities to determine whether they would accelerate the fulfilment of the conditions necessary for EU membership. Consequently, the optimism that followed candidate status gradually gave way to concerns that Bosnia and Herzegovina's European path was once again being slowed by longstanding governance challenges and limited political consensus.

The 113 promises

One of the most notable developments in 2025 was the eventual adoption of the Reform Agenda 2023–27. Bosnia and Herzegovina finalized this document more than a year after the other WB countries due to prolonged political disagreements among domestic actors. The Reform Agenda has become one of the central instruments through which BiH is expected to demonstrate its commitment to the European integration process. The document contains 26 reforms, 113 reform steps, and 372 specific activities distributed across four policy areas: green and digital transition, private sector development and business environment, human capital development, and the rule of law and democratic governance. The implementation period extends until 2027, with clearly defined milestones and deadlines that are subject to monitoring by the European Commission. Crucially, the disbursement of funds under the EU Growth Plan is conditional upon the successful completion of these reform steps. Bosnia and Herzegovina is expected to receive approximately one billion euros through the mechanism, but access to these resources depends on demonstrated progress rather than political commitments alone. As of June 2026, BiH has not delivered on any of the 113 promises. Failure to implement the agreed reforms may therefore result in delayed or reduced financial support, while also undermining the country's credibility within the accession process and slowing its progress towards EU membership.

Lagging behind

Bosnia and Herzegovina's path towards the European Union illustrates the persistent gap between political ambition and practical implementation. The granting of candidate status in 2022 and the opening of accession negotiations in 2024 represented historic milestones that generated optimism among both citizens and policymakers. These developments created a unique political momentum that could have been used to accelerate reforms, fulfil key obligations, and secure substantial financial support through the EU Growth Plan. Instead, much of this momentum was lost amid familiar patterns of political disagreement, institutional fragmentation, and delayed decision-making. The failure to deliver on any of the 113 reform commitments by mid-2026 raises serious questions about the country's capacity to translate formal progress into tangible results. This is particularly concerning when compared to other Western Balkan countries, most notably Albania and Montenegro, which have made considerably faster progress in their accession processes. If current trends persist, BiH risks falling further behind its regional peers and missing a strategic opportunity to advance its European integration. The country's future within the European Union remains achievable, but only if political actors demonstrate a greater willingness to prioritize reforms over short-term political interests. Otherwise, the optimism that accompanied candidate status may ultimately be remembered as another missed opportunity on Bosnia and Herzegovina's long road to EU membership.

Aida Topić is a Bachelor of Arts in International Relations and European Studies. Currently, she is enrolled at the University of Maribor, completing her Master's degree in European Legal Studies. At the same time she is acting as an Intern at the Institute of European Studies at the University of Wrocław.