The Council of the European Union adopted on June 5 the Council Decision (CFSP) 2025/1161, amending Joint Action 2008/124/CFSP and extending the mandate of the European Union Rule of Law Mission in Kosovo (EULEX KOSOVO) until June 14, 2027.
The decision entered into force on the date of its adoption.
This extension follows the strategic review of the mission, in which the Political and Security Committee agreed that the Mission should be prolonged until June 14, 2027.
The financial reference amount to cover EULEX KOSOVO’s expenditure for the period from June 15, 2025, to June 14, 2027, is set at EUR 170,866,980. Of this, EUR 64,492,980 is intended for the implementation of the Mission’s mandate in Kosovo, and EUR 106,374,000 is allocated for support to the relocated judicial proceedings within a Member State.
According to the Decision:
“The Commission shall sign a grant agreement with a registrar acting on behalf of a registry in charge of the administration of the relocated judicial proceedings for the amount of EUR 106 374 000.”
The Council also amended Article 20 of the Joint Action to reflect the new expiry date of June 14, 2027.
As noted in the document:
“Nothing in this Decision should be understood as prejudicing the independence and the autonomy of the judges and prosecutors active in judicial proceedings in the context of EULEX KOSOVO.”
A footnote in the Council Decision reaffirms the EU’s position: “This designation is without prejudice to positions on status, and is in line with UNSCR 1244 (1999) and the ICJ Opinion on the Kosovo declaration of independence.”
Repeated Mandate Extensions
The mandate of EULEX has been extended multiple times. Most recently, the Council adopted Decision (CFSP) 2023/1095 on June 7, 2023, extending the Mission until June 14, 2025.
In 2021, the EU Council extended EULEX’s mandate for two years and also transferred to the Mission the operational support task for the EU-facilitated Dialogue until the end of 2022. Kosovo President Vjosa Osmani, in a letter to the EU High Representative, agreed to a one-year technical extension of the Mission.
Osmani stated that EULEX would have “a technical mandate, without executive powers,” focused solely on “monitoring, mentoring, and advising,” and that a further one-year extension would depend on her positive evaluation of the Mission’s performance.
Past Efforts to End EULEX’s Mission
Kosovo authorities have previously attempted to end EULEX’s presence. In 2020, then-President Hashim Thaçi initially refused to extend the Mission’s mandate. However, through an exchange of letters with EU High Representative Josep Borrell, a one-year extension was agreed.
EU officials at the time reminded media that EULEX is an international mission established under UNSCR 1244 and Council documents predating 2008, and that Kosovo’s formal consent was not legally required—though, they noted, it would be “welcome” for Kosovo to renew its consent via a letter exchange.
In the 2020 letter exchange, Thaçi wrote:
“This designation is without prejudice to positions on status, and is in line with UNSCR 1244 (1999) and the ICJ Opinion on the Kosovo declaration of independence”—a position that was confirmed by Borrell’s response.
A previous exchange of letters was conducted in June 2018 with then-High Representative Federica Mogherini.
Under the 2018 amended mandate, EULEX Kosovo was also tasked with supporting relocated judicial proceedings in The Hague, under Kosovo’s relevant legislation. In practice, EULEX assisted investigations of the Specialist Prosecutor’s Office, including delivering summons and facilitating interviews on Kosovo territory.
From Executive Powers to Advisory Role
EULEX’s core objective has been to support Kosovo institutions in establishing an independent, multi-ethnic, and effective justice system, police, and customs services.
Over time, the Mission’s executive powers have been substantially transformed into an advisory and partnership role, particularly in supporting the implementation of agreements from the Belgrade-Pristina Dialogue.
EULEX continues to act as a “second security responder,” intervening when Kosovo Police is unable to manage certain security situations.
Criticism from Kosovo Serb Community
Recent criticism of EULEX has primarily come from Kosovo Serbs. Several civil society organizations from northern Kosovo suspended cooperation with EULEX in 2024, citing deep dissatisfaction with the Mission’s engagement with the local community.
The suspension followed an incident in North Mitrovica, in which Miloš Subotić was allegedly unlawfully detained and beaten. The Kosovo Police Inspectorate recommended suspending two officers involved, but EULEX’s response was described by local actors as insufficient.
The rift further widened mistrust between EULEX and the Serb community, which has long questioned the Mission’s efficiency and impartiality. Civil society groups argue that EULEX failed to build trust among both Serbs and Albanians, with analysts noting the Mission’s perceived lack of transparency and concrete results in combating organized crime and corruption.
NGOs have repeatedly urged EULEX to regularly update the public on its findings and conduct transparent reporting on investigations. According to these groups, responses from the Mission have reportedy remained overly formal and lacking in substance.
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