Plenary Session of the National Convention for European Integration, 19 November 2025

Since 2014, the National Convention for European Integration (NCEI) has been instrumental in promoting dialogue on EU-related reforms. This initiative, implemented by European Movement Albania and financially supported by the European Union (2023-2026), aims to institutionalise public debate and foster cooperation between state institutions and non-state actors. The annual plenary session of the National Convention for European Integration had as its thematic focus issues related to Chapter 23 – Judiciary and Fundamental Rights, reflecting on the criteria and standards during the negotiations, as well as the challenges encountered and the ways in which state institutions, civil society, media and other interested groups can work together to meet the benchmarks and expectations of the European Union. The session with panelists and experts in discussions covered key topics such as human rights, equality and inclusion, freedom of expression and media, as well as the right to information and protection of personal data, with contributions from representatives of the institutions of the Commissioner for the Right to Information and Protection of Personal Data, the Commissioner for Protection from Discrimination, the Audiovisual Media Authority, the Ombudsperson, the School of Magistrates, as well as representatives from civil society, the media and academia.

OPENING PANEL: Safeguarding Rights and Freedoms in Albania’s EU Accession Journey

The Plenary Session of the National Convention for European Integration for the period 2023-2024 began with a welcome panel, with representatives of institutions moderated by Noljan Lole, Journalist, RTSH, discussing the progress Albania has made, the challenges that remain, and the ways in which public institutions, civil society, media, and other interest groups can work together to meet EU benchmarks in the context of respecting fundamental rights.

Lole introduced the panelists, and underlined that Albania needs information and civic participation to understand the tasks that need to be fulfilled within the framework of European integration.

The meeting was opened by Gledis Gjipali, Executive Director of the European Movement in Albania (EMA), who emphasized that within the framework of the National Convention, a series of discussion forums on these topics have been organized in synergy with the Partnership Platform for European Integration. Gjipali stated that the European Convention is a platform for consultation and discussion between non-state actors and the country’s institutions on EU membership. The aim is for the recommendations drawn from the roundtables to serve to advance the process, to make it closer to interest groups and citizens.He emphasized that it is not a process that belongs only to the public administration, while the destination we want to reach has been clear for years. On the other hand, Gjipali emphasized that inclusiveness and information must be increased. Gjipali thanked the experts, colleagues and participants for their interest, cooperation and commitment to an open dialogue, emphasizing the importance of this civic engagement and how beneficial it is for all interested parties.

During his speech, Besnik Dervishi, Commissioner for the Right to Information and Personal Data Protection, emphasized the importance of information and data protection as fundamental rights, underlining that the new Law No. 104/2024 harmonised with the GDPR strengthens European standards. He emphasized that the European Commission’s 2025 Report on Albania has assessed the considerable progress, as well as the appropriate and improved legal framework.He stated that the right to information and the protection of personal data are closely linked to the integration process and are conditions without which we cannot become part of the EU. Dervishi emphasized that the protection of personal data is advancing and that it extends to all areas, both economic and social, but it remains necessary to create a culture for the protection of this right. The contribution of the Commissioner’s Office has started from the screening process by providing the first test model. A key point in the drafting of the legislation has been the adoption of Law 124/2024 on the Protection of Personal Data. Dervishi stated that this is an achievement for the Commissioner’s Office, which was the first to fulfill one of the fourteen intermediate benchmarks for the first cluster. Regarding the Law on the Right to Information, the report cites that it is in broad alignment with the European standard. But what remains important for Dervishi is the establishment and strengthening of institutional capacities for the effective implementation of legislation. The institution needs human resources combined with financial ones, and the implementation of training to build capacity. He stated that although the law on the Commissioner was adopted in 2014, the Commissioner was only established at full capacity in 2022. Finally, he emphasized that an important role should also play CSOs and should exert more pressure on public institutions.

Head of Audiovisual Media Authority, Armela Krasniqi took the floor, underlining that freedom of expression is one of the main pillars and a necessary standard for EU membership. Krasniqi emphasized that the institution is in a process of legal transformation, where work is also being done to draft the digital services act that belongs to the media regulatory institution. But according to Krasniqi, the AMA continues to lack full jurisdiction over any type of media, including online media and digital video distribution platforms such as (Youtube, TikTok, Facebook, etc). Despite this gap in legislation, AMA has still played an active role as a communication intermediary between citizens and these platforms. During 2025, AMA undertook the initiative of a comprehensive review of Law 97/2013 as amended, including a comparative analysis of existing provisions. In collaboration with peer experts from European authorities and with the support of partner institutions, AMA has identified legal areas that require harmonisation and are specifically in the public consultation phase.One of the areas that has marked progress from an institutional perspective is media transparency, as it can be identified who is investing money in the media. Also, a regulation has been approved on how the transparency of the ownership structure of each media outlet will be carried out. Today, a simple-to-use platform exists that provides information on media ownership transparency and the ultimate beneficiaries. Krasniqi also focused on the challenges of audience measurement, which she assessed as a very complex process. She stated that Albania continues to be one of the countries that still does not carry out audience measurement, but according to her, this should not be seen simply as a state obligation but also aims to involve the media industry itself to be proactive in carrying out this process. In conclusion, she emphasized the role and cooperation with civil society actors and activists, where, according to her, the fact that there are representatives from civil society as members of the institution’s board, aiming for its transparency and independence, is important.

Olta Aliaj, Commissioner at the Ombudsperson, recalled the essential role of the institution in protecting human rights and the commitment to increasing the efficiency and access of citizens to its services. She emphasized that Chapter 23 is a reflection of the values ​​of the rule of law and within the framework of the negotiation process, the Ombudsperson has provided his contribution regarding the intermediate points and in the Parliamentary Committee on Governance and the Rule of Law. The Law on the Ombudsperson is in line with European standards, except for Article 28, said Aliaj, which was also highlighted in the Commission’s report for 2025, which is related to the publication of the institution’s annual work reports and its review by the Parliament. The lack of budget, human capacity, and implementation of the Ombudsperson’s recommendations remain problematic. According to Aliaj, only 23% of recommendations have been accepted and fully implemented, while 14% of accepted recommendations have not been implemented. She underlined that there is still a lot of work to be done, especially by the Assembly regarding the supervisory and monitoring role regarding institutions that partially implement the recommendations of the Ombudsperson. The effects of the justice reform also remain a challenge, with lengthy court proceedings, a high number of detainees, a lack of coordination between institutions, and problems in implementing legislation.

The first technical panel of the Plenary Session of the National Convention for European Integration, on the topic of “Promoting Equality and Inclusion – Practical Approaches to Human Rights and Anti-Discrimination”, focused on Albania’s ongoing efforts to meet standards in the field of equality and anti-discrimination, as well as on the indicators used to monitor progress.. Also, the challenges of policy implementation, ensuring compliance with the legal framework and addressing gaps in promoting equality were addressed, highlighting the role of CSOs in supporting, monitoring and complementing institutional efforts.

The panel, moderated by Ermelinda Muçaj, Project Officer, European Movement in Albania (EMA), brought together representatives of civil society organizations and public institutions operating in the field of fundamental rights.

Erida Skëndaj, Executive Director of the Albanian Helsinki Committee, emphasized that the role of civil society organizations should be oriented towards two essential functions: contribution to legislative processes and participation in decision-making mechanisms. She noted the necessity of systematically addressing the marginalisation of vulnerable groups, as well as the importance of collecting and using detailed and disaggregated data, which form the basis for designing comprehensive policies. A particular concern is related to the long-term provision of sustainable financial resources for the social protection of citizens.  The lack of financial resources also directly impacts the capacity of civil society organizations to develop advocacy, monitoring and support activities. In terms of identifying other structural challenges faced by CSOs, Skëndaj highlighted the high costs of initiating legal proceedings and limitations in human capacity, which often hinder the efficiency of civil society engagement. She also drew attention to the excessive length of court proceedings in the country, where a case can take 6–7 years to be reviewed, as a result of the backlog in the judicial system. Skëndaj further underlined the importance of the uninterrupted functioning of key institutions for the protection of fundamental rights. She stressed the importance of the timely and prompt re-election of the Ombudsman and the Commissioner for Protection from Discrimination, emphasizing that these institutions play a critical role in guaranteeing democratic standards and overseeing respect for human rights.

Klodiana Keta, from the Directorate for Administrative Investigation at the Commissioner for Protection from Discrimination, focused on the legal basis that guarantees protection against discrimination based on race, religion or gender. She brought to attention several EU directives, such as: Directive 2000/43/EC, which requires the establishment of equality bodies and the provision of effective complaint and sanction mechanisms; Directive 2006/54/EC, which ensures gender equality in employment and prohibits discrimination in pay, working conditions and social security. Keta emphasized that the Commissioner for Protection from Discrimination remains the sole institution responsible for guaranteeing effective protection against any form of discrimination, through reviewing complaints, administrative investigations, imposing sanctions and representation in court; monitoring the implementation of the law and raising public awareness. She informed that during 2024, 265 complaints were registered for review, while in total the CPD has handled 380 cases (367 complaints and 13 ex-officio initiatives). In conclusion, as stated in the European Commission report, cases of hate speech have increased significantly, and in 2024, the CPD continued to handle a stable number of cases, mainly in the areas of employment and services.

Aida Bushati, Lecturer at the School of Magistrates, emphasized that this school, as the only institution responsible for the initial and continuous training of judges and prosecutors in Albania, plays a key role in strengthening European human rights standards and implementing anti-discrimination legislation in the country. She explained that European institutions regularly monitor the School for the quality of curricula, teaching methodology, and transparency of the candidate admission process. Unlike other cases, where the judiciary often does not face increased institutional pressure during the stages of accession negotiations, in Albania it has not been reflected with the same intensity. However, the School of Magistrates has increased the weight of modules related to fundamental rights, anti-discrimination and EU standards. Such topics are included in the initial training through constitutional law courses, concrete cases of the Court of Justice of the EU (CJEU), but also through the analysis of the jurisprudence of the Strasbourg Court (ECHR). She emphasized that the continuous training of serving magistrates has gained increased importance, especially regarding freedom and equality, as an essential element of consolidating a functional and independent judiciary.

 Idlir Peci, Lecturer at the School of Magistrates, added that it is necessary to increase the accessibility of judges and prosecutors to European law, both at a theoretical and practical level. According to him, the School has begun working with concrete files and practical scenarios on discrimination issues, which are based on the latest jurisprudence of the ECHR and the ECJ. These cases aim to develop the analytical and interpretative skills of magistrates, preparing them to handle complex situations related to equality, hate speech and the protection of vulnerable groups. Peci emphasized the need to expand training beyond Tirana, especially in rural areas where opportunities for professional training are more limited, thus making professional updating more inclusive and equitable. Another essential element, according to him, is the awareness of young magistrates about the importance of their social position and the responsibility they bear in guaranteeing justice. Lecturers have a duty to convey good practices and concrete examples, as theoretical cases do not always match the dynamics of judicial reality. He also emphasized the necessity of learning techniques that help judges not abuse their inner convictions and be protected against internal pressures of the judicial system or political influences as a critical element for guaranteeing independence and impartiality of decisions.

Participants also discussed the views of judges and their personal judicial reasoning, which can affect the impartiality of judicial decisions, as well as the efficiency of selecting and admitting qualified candidates through admission tests to the School of Magistrates.  The question was raised whether Albanian institutions are fully responding to the legal requirements and innovations within the framework of the European integration process.

The second technical panel, with the participation of representatives from civil society and public institutions, and moderated by Nirvana Deliu, Project Director at the European Movement in Albania, focused on the discussion between freedom of the media and expression on the one hand, the need for transparency and information, and the right to privacy and protection of personal data, as well as the balance that needs to be found between these rights.

Sami Nezaj, Executive Director of the Center for Transparency and Freedom of Information, opened the panel by presenting the assessment of the European Commission’s Report on Albania for 2025, where for Nezaj, Albania has been stagnating for several years and is not making progress regarding freedom of expression and the media. He then listed what he believes are the main issues facing the media in Albania today, emphasizing first and foremost the need that Albania has for a national legal framework harmonized with the Anti-SLAPP Directive. He emphasized that work should also be done to mitigate penalties for defamation, which often harm journalists and lead them to self-censorship. Although for Nezaj there is not only self-censorship, but also censorship in the Albanian media sphere, which is another issue that must be taken into consideration. According to him, the close ties between politics, business, and media ownership cause the media to not only self-censor, but also to censor when interests are affected, creating a high level of control over the media in Albania by these groups. Nezaj concluded his speech by emphasizing a new challenge that the media is facing today: digitalisation and artificial intelligence, where, according to him, it is necessary to regulate especially online media, but also to train journalists regarding technological innovations and the ethical use of artificial intelligence.

After Nezaj’s reflection, the discussion focused on the work of the Commissioner for the Right to Information and Personal Data Protection, where Besa Velaj, Cabinet in Chief, at this institution, provided a clear overview of the work of the Commissioner’s Office regarding the protection of personal data. She stated that there is an increased volume of work due to the intensification of the European integration process, numerous reports, monitoring, but also new legal and sub-legal initiatives that are being undertaken. Velaj stated that if a comparison were made as to which freedom would be more important between the right to protection of personal data and the right to public information, the protection of personal data would have to prevail. Today, Albania has a law harmonised with the GDPR, which is the first law that has also followed the ex-ante procedure.

In the context of freedom of expression and the right to public information, Velaj underlined that work has continued on the implementation of a code of ethics specifically for the media and journalists, which clearly defines the balance between freedom of expression, the right to information and the freedom to protect personal data. For Velaj, as for the other panelists, the main challenge remains the management and control of online media and social networks.

Mirela Oktrova, Head of the Complaints Council at the AMA, also admitted that in addition to self-censorship, there is also censorship, which was discussed and analysed previously. It is important, she said, to guarantee freedom of expression, and for this, media education must be promoted not only for journalists, but also for society and other actors. According to her, there is a thin line separating censorship from freedom of expression. AMA has strived for these education and awareness campaigns, especially in cases where it does not have the authority to intervene legally. Legal education of society on their rights and obligations is also important. About 75% of the complaints received by the Complaints Commission come from individuals who are largely unaware of the law and are not clear about what they are asking for. Oktrova also made an important distinction between what we call public interest and the interest of the public, where information is often provided that does not directly constitute public interest. For this reason, professional and ethical behaviour by media representatives when sharing information with the general public is important.

The plenary session and its thematic panels were accompanied by discussions, open questions and comments shared between participants from civil society and other interest groups and experts and panelists.

The final panel, organised in cooperation with the National Council for European Integration (NCEI) on the premises of the Parliament, aimed to address the recommendations arising from the discussions in the above panels at the parliamentary level.