Commission reports on the progress of aspiring EU members
The reports highlight developments in areas such as academic freedom, governance, innovation and international cooperation, creating new opportunities for universities and research institutions, offering stronger networks, better access to funding, and improved conditions for mobility and quality assurance.
The reports cover:
- Montenegro
- Albania
- Ukraine
- the Republic of Moldova
- Serbia
- North Macedonia
- Bosnia and Herzegovina
- Kosovo
- Türkiye
- Georgia.
Details of the progress made in each country in the fields of education and research can be found below.
Science and Research
- Montenegro completed the Smart Specialisation Strategy 2019–2024 in December 2024 and is preparing a final evaluation report.
- A new strategy for 2026–2031 is in preparation, with a 2025 action plan serving as a transition.
- R&D funding increased to around 0.4% of GDP in 2024, but further efforts are needed.
- The Innovation Fund continued to support innovative start-ups and SMEs and maintained strong collaboration with the European Innovation Council through the certified Plug-In scheme.
- According to the 2025 European Innovation Scoreboard, Montenegro remains an Emerging Innovator, performing at 45.3% of the EU average.
- Participation in Horizon Europe improved, with 31 grants signed, totalling €4.83 million.
Education and Culture
- In April 2025, Montenegro adopted the Education Reform Strategy 2025–2035 and its Action Plan 2025–2026, built around four pillars: quality and equity, teacher support, governance and financing, and infrastructure.
- Reforms continue in VET and higher education in line with the Osnabrück Declaration and Bologna Process, focusing on labour market alignment, automatic recognition, and quality assurance. One university participates in a European Universities alliance.
- Gender balance in education is strong; in higher education, 63% of graduates are women.
- Green skills are integrated into subjects but lack a dedicated strategy.
- Montenegro actively participates in the Erasmus+ 2021–2027 Programme and European Education Area working groups, enhancing international cooperation.
Science and Research
- Albania still needs to adopt legislation to ensure effective implementation of the National Strategy on Scientific Research, Technology and Innovation 2023–2030 and establish international standards for research data management.
- R&D funding increased to 0.19% of GDP in 2024, still far below the 1% target for 2030. More measures are needed to raise public and private R&D investment and strengthen cooperation between universities and businesses.
- The Institute of Statistics must produce a complete dataset on scientific research and innovation.
- The Albanian Start-up Agency launched its first call for innovative start-ups in December 2024 (€3 million), prioritising female-led, green, and digital start-ups.
- A Smart Specialisation Strategy with a costed action plan was adopted in December 2024.
- According to the 2025 European Innovation Scoreboard, Albania remains an Emerging Innovator, though its performance declined from 41.7% to 37.9% of the EU average.
- Albania is fully associated with Horizon Europe, with 46 signed contracts worth €7.3 million. Authorities should further promote private sector participation.
- Albania launched five European Digital Innovation Hubs and the first European Institute of Innovation & Technology (EIT) community hub, linking national stakeholders with the EIT ecosystem.
Education and Culture
- Public spending on education in 2024 was 2.6% of GDP (down from 2.1% in 2023), remaining well below the EU average (4.6%).
- As a member of the European Higher Education Area, Albania still needs to fully implement key Bologna commitments, particularly regarding automatic recognition and quality assurance.
- Under Erasmus+ (2021–2027), 15 capacity-building projects were funded (9 led by Albanian HEIs) and mobility projects will support over 3,700 student and staff exchanges.
- Albania actively participates in all European Education Area working groups (2021–2025).
Science and Research
- War-related destruction continues to undermine infrastructure, human capital, and investment in research and innovation.
- Public R&D spending remains low at 0.37% of GDP (2024).
- European Innovation Scoreboard 2025: Ukraine classified as an Emerging Innovator, performing at 29% of the EU average, with a widening gap.
- Law on Research Activities in Higher Education (April 2025) aims to align with the EU-Ukraine Association Agreement and improve research performance.
- New performance-based assessment methodology for research institutions introduced in 2024.
- Strategy for Digital Development of Innovation until 2030 adopted (December 2024), aligning with EU innovation policy.
- Science-business cooperation and private R&D investment remain limited.
- Active engagement in Horizon Europe:
- 225 Ukrainian organisations participating,
- Representation in 14 Programme Committees,
- 22 national contact points covering 19 thematic areas.
- Working group (Jan 2025) established to prepare an updated ERA Roadmap 2025–2027; inter-agency cooperation needs strengthening.
- Smart Specialisation: temporary advisory body created (Nov 2024) and regional S3 teams established.
Education and Culture
- Education data collection and use need improvement; 2025 report published on 2024 operational plan.
- Action Plan for Education Restoration (Sept 2024) focuses on rebuilding institutions and training staff for post-war recovery.
- Ensuring quality and inclusive education near conflict zones remains difficult.
- National Qualifications System Law adopted; dual education active in 176 institutions across 87 professions.
- Higher Education:
- Resolution (Oct 2024) allows institutions to award professional qualifications where standards are absent.
- Higher Education Strategy adopted; operational plan 2025–2028 pending.
- 35 universities involved in European University Alliances as associated partners.
- Further alignment with Bologna process needed, especially in quality assurance.
- Digital learning: 306 regional digital learning centres established by Jan 2025.
- Erasmus+ (2021–2027): 3,192 Ukrainian students and staff benefited from mobility in 2024; active participation in European Education Area Working Groups (2021–2025).
- Anti-corruption measures: independent textbook certification committee and digital enrolment mechanisms introduced.
- Education infrastructure: 86 investment projects submitted via the DREAM platform (2025) under a transitional model.
Science and Research
- National Programme for Research and Innovation 2024–2027 under implementation to strengthen research capacity and integrate Moldova into the European Research Area (ERA).
- Smart Specialisation Programme “Smart Moldova” (2024–2027) launched in March 2025; National Fund for Innovation and Technology Transfer created with EUR 1.75 million (2025–2026) to boost science–business collaboration.
- Support to researchers increased:
- ~30 grants for young researchers awarded,
- PhD scholarships and Government Excellence Scholarships raised in 2025,
- Revised guidance on hourly rates for R&I project staff to align with EU standards.
- Higher education and research integration reform continued (launched 2023), with institutional mergers, especially in agriculture.
- Horizon Europe participation improved; Moldova took part in “DANUBIUS-RI”, granted European Research Infrastructure status (June 2025).
- Horizon Europe National Office and national contact points carried out awareness-raising on Horizon Europe and ERA; EIT started extending its programmes to Moldova.
- Public R&D funding remains low at 0.22% of GDP (2024) despite a slight rise (+0.7 pp vs 2023); far below EU average (2.24%) and EU target (3%).
- Venture capital investment in R&D showing an upward trend.
- European Innovation Scoreboard 2025: Moldova classified as Emerging Innovator, scoring 19% of EU average.
Education and Culture
- Education reform continues, focusing on inclusion, equity, quality, gender responsiveness, and resilience.
- Public spending on education (2024): 5.4% of GDP, above EU average (4.6%).
- Digital education:
- Major initiatives to foster digital and STEAM skills,
- Teacher digital training programme (DigCompEdu) launched in 2024,
- 70 national trainers preparing cascade training for teachers (from April 2025).
- Gender equality:
- Gender-sensitive approaches mainstreamed in education policies,
- Violence, harassment, and bullying remain widespread concerns,
- Anti-harassment mechanisms piloted in higher education institutions.
- National Qualifications Framework (NQF) operational roadmap (2023–2027) in place; Moldova preparing EQF referencing as EQF Advisory Group member.
- Higher education:
- Progress on Bologna Process commitments, though automatic recognition and external quality assurance need improvement,
- 3 universities part of European University Alliances as associated partners.
- Erasmus+ (2021–2027): Moldova actively participates; member of 4 out of 7 European Education Area working groups (2021–2025).
Science and Research
- Serbia continues implementing the 2021–2025 Start-up Ecosystem Strategy and working to align with the European Research Infrastructure Consortium (ERIC) Regulation.
- Concerns over academic freedom and institutional autonomy:
- Two government decrees (March 2025) limited researchers’ time for research, cutting salaries by up to 87.5% during the academic interruption; back payments ongoing.
- Boards of two major research institutes dismissed by authorities; legality challenged in court.
- Measures undermine eligibility for ERC grants and weaken cooperation under the Quadruple Helix model.
- Science Fund: operational with 13 programmes and total budget of EUR 106.5 million.
- R&D investment: remains low at 0.88% of GDP (2023).
- Smart Specialisation Strategy: in its fifth year, with the second action plan extended to end-2025.
- Innovation ecosystem:
- Innovation Fund, four science and technology parks, and 14 incubators remain active.
- Katapult accelerator and Serbia Ventures Programme (up to EUR 5 million investments) strengthening the ecosystem.
- Integration with the European Innovation Council and New European Innovation Agenda still limited.
- Number of validated European patents remains modest.
- European Innovation Scoreboard 2025: Serbia = Emerging Innovator, score 51.5, above group average but with a widening gap to EU.
- Private sector R&I spending is rising.
- Active participation in Horizon Europe, EUREKA, and COST programmes.
Education and Culture
- 2030 Education Strategy and action plan under implementation, though with delays.
- Disruptions in education (2024–2025):
- Student protests and strikes by education staff caused interruptions; attacks and threats against students and professors reported.
- Teaching resumed under a revised calendar.
- Institutional autonomy concerns:
- Dismissals of principals and non-renewal of teachers’ contracts;
- Complaints of political and union-based discrimination under review by the Commissioner for Equality.
- Amendments to key education laws (March 2025):
- Proposed changes to the Law on Textbooks risk monopolising publishing and politicising curricula.
- Public spending on education: modest at 3.2% of GDP (below EU average 4.6%); higher education funding up 20% but system-wide salary cuts applied during protests (retroactive payments ongoing).
- Higher education:
- Member of the Bologna Process, 3 universities in European University Alliances.
- New micro-credentials framework adopted but not yet implemented.
- Lifelong learning participation: 5.5% (2024).
- ENQA membership still suspended; no progress on quality assurance recommendations.
- Tertiary attainment (25–34): 37.2% (below EU avg. 45%).
- Digital education:
- Ongoing digital transformation; 67% of students lack sufficient digital competence (ICILS 2023).
- Alignment with the EU Digital Education Action Plan still needed; green skills not yet integrated in curricula.
- Erasmus+ participation: strong; Serbia involved in 794 projects (2024), coordinating 230+ projects worth EUR 19.4 million.
- Participates in all European Education Area working groups (2021–2025).
Science and Research
- Budget for science increased, reaching almost EUR 11 million for 2025 (+58% compared to 2024); EUR 5.5 million allocated to the Smart Specialisation Strategy
- EIT Community RIS Hub (ECO MK) signed memorandum with Chamber of Economy, set up dedicated website, and held multiple promotional events.
- The first European Digital Innovation Hub (EDIH) was established; a competence centre for open science was created at a state university to support training, data management and open science policies.
- The Fund for Innovation and Technological Development was closed (Aug 2025). A new Law on Innovation Activity, Scientific and Technological Development and Entrepreneurship created a single authority – the Agency for Innovation, Scientific and Technological Development and Entrepreneurship and took over FITD mandates and began designing a new innovation support model.
- R&D investment remains low (0.38% of GDP, 2022), with marginal private-sector participation in research.
- According to the 2025 European Innovation Scoreboard, North Macedonia performs at 40% of the EU average, with a widening innovation gap. More efforts needed in venture capital expenditure and support for business R&D.
- Horizon Europe participation continues to increase, with strong results under Pillar II: Global Challenges and European Industrial Competitiveness.
- The national technology transfer roadmap has not yet been developed; participation in the new ERA and the European Innovation Agenda needs strengthening.
Education and Culture
- The 2018–2025 education strategy remains in place, but monitoring is weak; a new strategy is needed.
- Public education spending fell to 3.17% of GDP (2024), below the EU average; the share of the state budget dropped to 9.15%.
- ECEC capacity grew by 1,072 places, but enrolment remains low (37.4% for 0–6 years, 46.8% for 3–6 years).
- Post-secondary education concept adopted (Jan 2025).
- Higher education enrolment increased to 53,535, 59.3% women; quality assurance and accreditation remain key challenges; three universities joined EU alliances.
- NQF (National qualifications framework) Law adopted; 14 of 16 sectoral committees established; 10 qualifications approved.
- Roma inclusion improved: 44 mediators, rising enrolment, numerous scholarships (150 in higher education).
- Digitalisation progressed: SELFIEforTEACHERS tool offering insights to improve teachers’ digital skills, digital textbooks, EMIS pilot; Law on Textbooks adopted (Dec 2025).
- Participation in 671 Erasmus+ projects in 2024; National Agency faces compliance scrutiny.
- No reports on the National Youth Strategy 2023–2027.
Science and Research
- The legislative framework for research and innovation remains fragmented; a new strategy, action plan and Smart Specialisation Strategy are still needed.
- Estimated R&I funding remains below 0.3% of GDP, far below ERA objectives.
- There is no countrywide ERA policy; universities independently decide on related matters.
- According to the 2024 European Innovation Scoreboard, Bosnia and Herzegovina performs at 33.1% of the EU average, below the Emerging Innovators average (48%), with a widening performance gap.
- Progress is needed to ensure comprehensive and reliable R&I statistics, including for the EIS and ERA monitoring.
- Bosnia and Herzegovina participates in Horizon Europe as an associated country, receiving EUR 1.7 million in 2024 (down from EUR 3.2 million in 2023).
Education and Culture
- The country needs to shift from a content-based to a competency-based education system; further curriculum harmonisation is required.
- There is no system for monitoring education quality; demographic decline continues to reduce student numbers.
- Issues remain over the name of the Bosnian language in Republika Srpska; politicised and biased historical narratives persist in curricula.
- Bosnia and Herzegovina, as part of the European Higher Education Area, still needs to fully implement key Bologna commitments, especially regarding NQF, automatic recognition and quality assurance.
- Steps towards inclusion were taken through the 2025 Council of Ministers decision, but the 2020 roadmap still requires full implementation; funding and infrastructure for special needs education remain insufficient.
- Support for digital transformation is limited; an advisory board for digital education is a positive step, but more action is needed in line with the EU Digital Education Action Plan 2021–2027.
- The NQF is not yet referenced to the EQF, and there is no recognition system for prior learning; quality assurance and accreditation require improvement for future ENQA membership.
- Bosnia and Herzegovina benefits from the international dimension of Erasmus+ (2021–2027) and participates in all EEA working groups; four universities are partners in European University alliances.
Science and Research
- No major legislative progress; the Law on Innovation and Entrepreneurship and the Smart Specialisation Strategy remain in draft form.
- Funding for scientific research is not separately identified; it is bundled within the general higher-education budget. Innovation support measures exist but require strengthening.
- Kosovo is encouraged to make greater use of European Institute of Innovation and Technology (EIT) opportunities.
- Participation in Horizon Europe remains low: 171 applications, 15 successful, totalling EUR 1.59 million (success rate 9.36%).
- In April 2025, Kosovo joined the European Digital Innovation Hubs Network with the inauguration of its first EDIH.
Education and Culture
- The 2024 budget execution reached EUR 447 million (94% of the planned EUR 474 million), equal to 4.5% of GDP.
- Implementation of the Education Strategy 2022–2026 lags behind; funding for basic education decreased by 4.7% (2023–24).
- The Kosovo Accreditation Agency joined EQAR in July 2025. Kosovo is not part of the European Higher Education Area, but three HEIs participate as associated partners in European University alliances.
- Digital education advanced through Shkollat.org and a new Department for Technology and Digitalisation, but digital literacy and access gaps remain, especially for disadvantaged students.
- Kosovo benefits from Erasmus+ (2021–2027) but does not participate in the European Education Area working groups. Kosovo joined eTwinning (2024), EPALE (2025), and became a candidate member of EERA (2025).
- The Youth Strategy 2024–2032 is being implemented but faces early-stage challenges.
Science and Research
- Participation in Horizon Europe continues to improve, though the Innovation Pillar remains weak except for strong engagement in EIT initiatives. An EIT Community Hub became operational in early 2025.
- The Industry and Technology Strategy 2030 sets ambitious targets: R&D spending at 3% of GDP and 500,000 R&D personnel by 2030.
- Targets in the 2023 Strategy were only partially met; high-tech exports and FTE R&D personnel improved, but R&D spending remains low at 1.42% of GDP (2023), below the EU average of 2.24%.
- Smart Specialisation Strategies are being piloted in three regions (West Mediterranean, Eastern Anatolia, Ahiler), with progress in identifying competitive advantages and supporting innovation.
- Brain drain continues to increase, especially among graduates in ICT, molecular biology and engineering, posing risks for future scientific capacity.
- According to the 2025 European Innovation Scoreboard, Türkiye is an emerging innovator at 58% of the EU average, with a narrowing innovation gap.
Education and Culture
- Public education spending rose to 3.93% of GDP (2024), still below the EU average (4.6%); education accounted for 14.6% of the national budget.
- Higher education enrolment fell from 46.02% → 42.72%.
- Implementation of the National Vocational Qualifications System continues; more occupational standards and qualifications were added, though fewer certification bodies remain active.
- Türkiye updated its NQF referencing to the EQF in 2025. It is a member of EAfA.
- In higher education, Türkiye remains advanced in Bologna implementation but faces significant quality disparities across 208 institutions. Some programmes still do not conform to Bologna degree structures.
- The Higher Education Quality Council awaits renewal of ENQA membership and EQAR registration.
- Concerns over academic freedom persist; Türkiye ranks in the bottom 10% globally, and a 2025 law reaffirmed the President’s exclusive authority to appoint university rectors.
- Interest in Erasmus+ continues to grow; Türkiye took part in 2,675 projects in 2024 and participates in all European Education Area working groups.
- In youth policy, services are expanding, but democratic participation mechanisms remain limited. A National Youth Council is being prepared, but major youth networks remain unrecognised. Concerns persist over excessive pre-trial detention of students participating in protests.
Science and Research
- Georgia continued aligning its research and innovation system with EU standards; Open Science principles were integrated into the 2022–2030 education and science strategy.
- Training and capacity-building strengthened compliance with European open-science standards; around 60% of publications use open-access resources, in line with the EU average
- A draft 2025–2027 sectoral action plan was published in April 2025 to operationalise the unified education and science strategy and serve as a national ERA roadmap.
- No progress was made on promoting innovation in line with the five flagship areas of the EU Innovation Agenda; university–business cooperation remains weak due to limited institutional capacities.
- The Smart Specialisation Strategy 2024–2030 was adopted for the pilot region of Imereti, with an accompanying 2024–2026 action plan. The planned Kutaisi Technological Hub is still under preparation.
- Georgia was not included in the 2024 European Innovation Scoreboard due to missing statistical data.
- Participation in Horizon Europe continues to increase since Georgia became an associated country in 2021.
- R&D investment remains very low: GERD has stagnated at 0.24% of GDP since 2020, far below the EU average (2.24%) and the EU target (3%).
Education and Culture
- Government spending on education increased slightly to 3.93% of GDP (2024), still below the EU average (4.6%).
- Higher-education enrolment increased in 2024. Georgia remains part of the European Higher Education Area, but still needs to fully implement core Bologna commitments, including degree structures and automatic recognition. Three HEIs participate as associated partners in European Universities Alliances.
- Significant backsliding in quality assurance: ENQA suspended the membership of the National Centre for Educational Quality Enhancement in November 2024 due to concerns over independence and accreditation practices.
- Inclusive education weakened: the Ministry’s inclusive education department was abolished in April 2025, downgrading prioritisation of inclusion.
- Digital and green skills are integrated as cross-cutting competences in the curriculum, but further work is needed to align reforms with the EU Digital Education Action Plan 2021–2027.
- Georgia continues to benefit from the international dimension of Erasmus+ (2021–2027).
- Dialogue on cultural policy with civil society was halted following amendments removing mandatory NGO involvement from public decision-making.
