Preparing Locally for EU Accession: Why Local Governments Matter
How prepared are local governments for EU accession, and what support do they need to succeed? These questions were at the heart of a seminar organised by SALAR International and the Swedish Association of Local Authorities and Regions (SALAR), bringing together policymakers, mayors, local government associations and EU stakeholders from Bosnia and Herzegovina, Moldova, North Macedonia and Ukraine.
The seminar built on findings from SALAR International's EU Impact Assessments for local governments in Bosnia and Herzegovina, North Macedonia and Ukraine, while a fourth assessment is currently underway in Moldova. The assessments analyse how EU accession is likely to affect municipalities and identify the institutional, financial and administrative changes needed at local level. They also provide an evidence base for dialogue between local and national authorities, equipping local government associations with practical advocacy tools while supporting national decision-makers with evidence to inform reforms and accession planning.
At the seminar, key findings from the assessments were presented alongside reflections from mayors and representatives of local government associations, who shared first-hand experiences of the opportunities and challenges municipalities face on the path towards EU membership.
Local governments turn reforms into reality
A recurring message throughout the discussions was that while accession negotiations take place at national level, implementation happens locally. Municipalities are responsible for delivering many of the reforms required by EU membership, yet they are still too rarely involved in shaping them.
As Srdan Cvijetic, Head of Section for Trade and Internal Market, Directorate for European Integration (BiH), noted, "the accession process cannot be carried out only at the national level," while Durmish Guri, Director, Projects and Programmes, Council of European Municipalities and Regions, stressed the need to involve local authorities much earlier and more systematically in the negotiation process.
Common challenges across candidate countries
The impact assessments revealed many shared challenges across the enlargement countries. Decision-making remains largely centralised, consultation with municipalities often comes too late, and local authorities continue to face difficulties accessing EU funding.
At the same time, the discussions highlighted important differences. Moldova was recognised for having made tangible progress in strengthening consultation between national and local authorities and has taken important steps towards a more systematic involvement of the local level in the EU accession process. While challenges remain, participants pointed to this as a positive example of how multi-level governance can be strengthened over time.
Capacity emerged as one of the strongest themes throughout the discussions. Administrative and technical resources differ widely between municipalities, making it harder for some to prepare for the responsibilities that come with EU membership. Rather than lowering expectations, participants agreed that investment in local capacity is needed now - "the solution is not to lower the threshold, but to strengthen capacity before accession," said Mihaela Sticea, Head of Fundamental Values and Political Criteria Coordination Department, Bureau for European Integration, Moldova
Participants also emphasised that the EU acquis is already being implemented locally. This makes the preparedness of municipalities a decisive factor for successful enlargement and reinforces the importance of involving local governments not only as implementers, but as partners in the reform process.
Capacity matters as much as funding
Participants also explored how EU financial instruments could better support local reform efforts. While more accessible funding is important, there was broad agreement that financial resources alone are not enough.
Public administrations need the knowledge and skills to manage EU procedures, implement legislation and absorb EU funds effectively. As many participants observed, "what matters most is strengthening the capacity of public servants," while Durmish Guri, Director, Projects and Programmes, Council of European Municipalities and Regions argued that "capacity-building must be long-term—not a series of one-off projects."
Peer-to-peer cooperation between municipalities was highlighted as an effective way to strengthen local expertise, exchange experience and build long-term capacity across the enlargement region.
A stronger local voice in enlargement
The seminar reinforced the importance of involving local governments throughout the policy cycle—from planning and reform design to implementation and monitoring. As one speaker noted, "territorial ownership is at the core of implementing cohesion policy."
Participants also reflected on the broader enlargement agenda, recognising that preparing candidate countries goes hand in hand with preparing the European Union itself. Jozef Michálek, European Commission, Directorate-General for Regional and Urban Policy, remarked, "it is impossible to continue with enlargement if there is no reform internally in the EU."
The discussions ultimately pointed to the same conclusion: successful EU enlargement depends not only on political commitment and funding, but also on strong local institutions, capable public administrations and effective cooperation across all levels of government.
Looking ahead
The work continues this autumn. While the EU Impact Assessment for Moldova enters its final phase, stakeholders from across the enlargement region will meet in Sarajevo in late September to further explore how local governments can be better integrated into the accession process. In mid-November, a conference in Moldova will present and discuss the findings of the assessment with national institutions, municipalities, local government associations and EU representatives.
Together, these activities reflect SALAR International's continued commitment to ensuring that the local dimension of EU enlargement is backed by evidence, informed dialogue and stronger cooperation between local, national and European levels.