2025 Rule of Law Report

Communication and country chapters

The 2025 Rule of Law Report examines developments across all Member States, both positive and negative, in four key areas for the rule of law: the justice system, the anti-corruption framework, media pluralism and freedom, and other institutional issues related to checks and balances. It includes country chapters for all 27 Member States, as well as four enlargement countries, which rely on a qualitative assessment carried out by the Commission, analyse new developments since the previous Report and the follow-up to the challenges and developments identified in the 2024 edition. 

Since 2022, the Report includes concrete recommendations to all Member States. The analysis in the 2025 Report therefore also contains a qualitative assessment of the progress made by the Member States towards implementing the previous years’ recommendations. The 2025 recommendations either build on last year’s recommendations, depending on the progress made, or address new challenges. They aim to further assist the Member States in their efforts to take forward ongoing reforms and help them identify where improvements are needed.

The Commission has prepared this Report based on continued dialogue with the national authorities and in consultation with stakeholders across the EU, while fully preserving political responsibility for its assessment and the recommendations issued. The next edition will follow-up on the developments and will continue to assess the implementation of the recommendations.

As of the 2025 Report, and as set out in President von der Leyen’s Political Guidelines, the Commission is giving a particular emphasis to the Single Market dimension, monitoring developments across Member States.

Under the new mandate, the Commission has also made further efforts to improve the readability and accessibility of the country chapters, by focussing even more on developments and reducing the complexity and length. Contextual information about all countries can now be found directly online on the page linked below.

2025 Rule of Law Report - communication and country chapters

Methodology

The assessment contained in the country chapters has been prepared in line with the methodology as last updated in 2022, following discussion with the Member States, also with a view to reflect the inclusion of recommendations in the Report. The country chapters do not purport to give an exhaustive description of all rule of law issues in every country, but to present significant developments. The assessment refers to EU law requirements, including those resulting from the case-law of the CJEU. In addition, the recommendations and opinions of the Council of Europe provide a useful frame of reference for relevant standards and best practices.

The Rule of Law Report is the result of close collaboration with national authorities and relies on a variety of sources. All Member States and enlargement countries were invited to contribute to the process, provide written input and participate in dedicated country visits held between January and April 2025. For these country visits country, the Commission organised more than 650 meetings with national authorities, independent bodies and stakeholders, including civil society organisations (the detailed schedule of country visits can be found in the Documents section below). In addition, the Commission at political level has discussed the Report with national authorities and governments, as well as with representatives in national Parliaments. Prior to the adoption of this Report, national authorities have been given the opportunity to provide factual updates to their country chapter.

The network of national rule of law contact points established in 2020 to help setting up the Rule of Law Cycle, has continued to function as an ongoing channel of communication with Member States for the preparation of the Report as well as to exchange best practices. Since 2024, the four enlargement countries also participate as observers to this network.

2025 Rule of Law Report - methodology

Input from Member States and enlargement countries

All Member States were invited to provide information on significant developments, primarily since the adoption of the 2024 Rule of Law Report, based on an updated questionnaire, discussed with Member States. The input is structured around the four pillars covered by the Report - the justice system, the anti-corruption framework, media pluralism and media freedom, and other institutional issues related to checks and balances – and was provided in an agreed template. An additional targeted questionnaire reflecting the most relevant aspects of the Single Market dimension was also shared with Member States. The written input was supplemented by exchanges during the country visits, sometimes followed by further written contributions or follow-up meetings. The enlargement countries also provided written input, complementing the information provided in the context of the enlargement process.

2025 Rule of Law Report - input from Member States and enlargement countries

Targeted stakeholder consultation

As part of the preparation of the 2025 Rule of Law Report, the European Commission invited stakeholders to provide written contributions through a targeted stakeholder consultation opened from 29 November 2024 to 24 January 2025. An additional targeted consultation reflecting the most relevant aspects of the Single Market dimension was launched on 20 December 2024. The consultation has provided around 270 horizontal and country-specific contributions from a variety of contributors including EU agencies, European networks, national and European civil society organisations, business stakeholders and professional associations and international and European organisations. The Council of Europe and the UN Human Rights Office also provided an overview of its recent opinions and reports. The information obtained from this consultation has contributed to the assessment of the Commission with factual findings on developments at national level.