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Ursula von der Leyen’s second term at the helm of the European Commission is structured around seven thematic priorities that reflect the executive branch’s effort to integrate diverse policy areas in pursuit of the prosperity of the European citizenry. The Commission’s 2025 Work Programme introduces 51 new initiatives and places particular emphasis on simplification and the reduction of administrative burden, highlighting the shift towards “a faster and simpler Union”. At the same time, there is a clear tendency for the EU to assume a more active role in policy domains where supranational involvement has traditionally been limited. For Greece, both the Union’s achievements to date and its forthcoming actions have a direct impact on key national sectors. Meanwhile, the Greek government is preparing for the decisive role it will play in the negotiations on the new Multiannual Financial Framework 2028–2034.

• The forthcoming State of the European Union address, though generally framed in broad terms, provides a clear indication of the EU’s trajectory for member states, citizens, businesses, and external partners, enabling them to adapt and align with upcoming initiatives.
• It is not merely a stock-taking exercise; rather, it represents a critical test of credibility, as it will raise the question of whether and to what extent the Commission can translate its announcements and ambitions into tangible measures. The shift from theory to action will determine both the Commission’s institutional credibility and citizens’ trust in the European project.
• At the same time, the new structure of the Commission will also come under scrutiny. Nine months after the creation of new portfolios within the College of Commissioners, it remains to be assessed whether these have delivered on their intended functions.
• Greece, holding the Presidency of the Council of the EU in the second half of 2027, will be at the forefront of negotiations that will determine the scope of financial instruments across all policy areas. For Athens, the challenge will be not only to forge common ground among member states but also to advance its own national priorities.

The article is authored by Panos Politis Lamprou, Junior Research Fellow, ELIAMEP.

Introduction

Ursula von der Leyen’s second term at the helm of the European Commission is structured around seven thematic priorities, based on the political guidelines she presented before the European Parliament in July 2024. The priorities for the 2024–2029 period are as follows: sustainable prosperity and competitiveness, European defense and security, supporting people, strengthening societies and the social model, preserving quality of life, protecting democracy and safeguarding values, Europe in the world, and preparing the Union for the future.

The 2025 Work Programme was published in February 2025 and is organized around these political priorities, while also taking into account the guidelines and mission letters assigned to members of the College of Commissioners. In total, it introduces 51 new initiatives, at least 18 of which are legislative. Particular emphasis is placed on simplification, with more than 60% of the legislative proposals falling within this scope. The Commission President has repeatedly stressed the urgent need to reduce administrative burden and simplify legislation. In her political guidelines, she explicitly referred to her vision of “a faster and simpler Union.”

In view of this year’s State of the Union address, during which Ursula von der Leyen is expected to present the achievements of the College of Commissioners since taking office (1 December 2024), attention now turns to the analysis of the policies to be advanced in the near future. The address, though generally framed in broad terms, provides a clear indication of the EU’s trajectory for member states, citizens, businesses, and external partners, enabling them to adapt and align with forthcoming actions.

While awaiting the address, it is useful to examine what has been achieved so far. This analysis is structured around the Commission’s political priorities and presents illustrative examples of its most significant actions from December 2024 to the present. These actions have taken different forms (e.g. legislative proposal, strategy, action plan, roadmap, etc.), depending on the political maturity and objectives of each initiative.[1]

The analysis then turns to the Greek perspective on both the Commission’s achievements and its planned actions. The final section looks ahead to what can be expected in this year’s State of the Union address. 

Sustainable Prosperity and Competitiveness

Mario Draghi’s September 2024 report served as the foundation for the Competitiveness Compass, published at the end of January 2025. In short, the Compass sets out how the Union can: (a) strengthen innovation, (b) shift towards cleaner and more affordable energy, and (c) diversify its supply chains. In this direction, the Commission has released a series of strategies and other documents (e.g. the Clean Industrial Deal in February, the Startup and Scaleup Strategy and the Single Market Strategy in May, and the Quantum Europe Strategy in July). As expected, however, a considerable share of the Commission’s output consists of (proposals for) legislative initiatives aimed at simplification. In particular, six “Omnibus” packages covering a wide range of policy areas have been tabled. Moreover, the political agreement in principle reached in the trade negotiations with four MERCOSUR states (December 2024) underscores the Union’s continued commitment to promoting free and mutually beneficial trade. As shown in Table I, proposals for six legislative initiatives, one strategy, and one plan are expected to be submitted later this year.

Table I: Illustrative list of pending Commission initiatives for 2025 (sustainable prosperity and competitiveness)

Type Title Legislative proposal Revision of the Sustainable Finance Disclosures Regulation Legislative proposal Digital Package Legislative proposal European Business Wallet Legislative proposal Accelerating industrial decarbonisation Legislative proposal Revision of the REACH Regulation (on chemicals) Legislative proposal Digital Networks Strategy/Legislative proposal Bioeconomy Strategy Plan Sustainable Transport Investment Plan

 

European Defense and Security

European defense and security have become a top priority for the Commission due, among other factors, to the war in Ukraine, broader Russian assertiveness, and U.S. disengagement from Europe. In this adverse geopolitical environment, Ursula von der Leyen created the portfolio of the Commissioner for Defense and Space, signaling the importance of this new dimension. The Commission subsequently announced the White Paper on the Future of European Defense and the “ReArm Europe” plan, which could channel up to €800 billion into strengthening Europe’s defense readiness.

Beyond strictly military initiatives, the Union appears to be embracing the ideas of the Niinistö’s Report of October 2024 and promoting strategies linked to the concept of “total defense.” Within this framework, the Preparedness Union Strategy, the proposal for a Critical Medicines Act, the Medical Countermeasures Strategy, the Stockpiling Strategy, combined with the Internal Security Strategy, the proposal for a Common European System for Returns, and the Action Plan on Cybersecurity for Hospitals and Healthcare Providers, all aim to provide a holistic safety net against multiple threats. Preparedness has thus become a central concern within the European family. In several national capitals, discussions are underway on reviving military conscription, moving towards a Scandinavian-style “total defense” model combining military and civilian dimensions. While the implementation of the SAFE Regulation appears to be the Commission’s main priority, Table II presents the three initiatives expected to be announced in the near term.

Table II: Illustrative list of pending Commission initiatives for 2025 (European defense and security)

Type Title Legislative proposal New rules on drug precursors Legislative proposal Firearms Trafficking Directive Strategy Migration and Asylum Strategy Supporting People, Strengthening Societies and the Social Model

The cost of living, social inequalities, and the center–periphery divide have undermined the European way of life, while the modern era demands new skills for businesses and workers to adapt to evolving circumstances. With the aim of reinforcing the European social model, the Commission launched the Union of Skills in March, designed to upgrade citizens’ skills and enable the Union to attract and retain talent in critical sectors within its borders. Although the 2025 Work Programme does not include new initiatives on the housing crisis, the Commission President has pledged to: (a) present a plan for affordable housing, and (b) cooperate with the European Investment Bank to establish an investment platform for affordable and sustainable housing.[2] By the end of the year, three initiatives are expected to be published to strengthen the social dimension, as indicated in Table III.

Table III: Illustrative list of pending Commission initiatives for 2025 (supporting people, strengthening societies and the social model)

Type Title Action Plan European Pillar of Social Rights Roadmap Quality Jobs Agenda Consumer Agenda 2030 Preserving Quality of Life

Agriculture is considered an integral part of the European way of life. Its support is a prerequisite for the Union’s sustainable growth and competitiveness. With the goals of food self-sufficiency and support for the food value chain, the Commission has placed particular emphasis on simplifying the procedures of the Common Agricultural Policy, while announcing the Vision for Agriculture and Food (February) to make farming and food sectors more attractive to young people. At the same time, the Commission has tabled a proposal to amend the European Climate Law (July), seeking to establish a 2040 climate target. Finally, the Ocean Pact and the Water Resilience Strategy, both announced in June 2025, aim to boost the blue economy and protect water resources, whose resilience “is regarded by the EU as a matter of security and crisis preparedness”. According to the current Work Programme, no new initiatives are expected in this policy area.

Protecting Democracy and Safeguarding Values

At a time when liberal democracy is under challenge, strengthening democratic resilience and societal preparedness are key objectives for the Commission. Furthermore, the defense and reinforcement of the rule of law remain a central duty of the EU’s executive branch as the “guardian of the Treaties.” In this context, the Roadmap for Women’s Rights (March) seeks to eliminate gender-based violence and ensure equal treatment of women. By year’s end, three initiatives are expected to be presented, as shown in Table IV.

Table IV: Illustrative list of pending Commission initiatives for 2025 (protecting democracy and safeguarding values)

Type Title Communication European Democracy Shield[3] Strategy Strategy to Support, Protect and Empower Civil Society Strategy Equality Strategies for LGBTIQ and Anti-Racism Europe in the World

As the international environment grows increasingly dangerous and hostile to EU interests, the European family must be able to leverage its strength and build meaningful partnerships with like-minded actors. Accordingly, the Union unveiled its Black Sea Strategy (March), built on three pillars: (a) security, (b) sustainable development and connectivity, and (c) environment and preparedness. Beyond the eastern flank, however, the Union is also placing emphasis on its southern neighborhood, as evidenced by the creation of a dedicated Mediterranean portfolio within the College of Commissioners and the establishment of a new Directorate-General for the Middle East (DG MENA). At the same time, preparations for the announcement of a Mediterranean Pact and the development of a coherent Middle East strategy reflect the Union’s clear interest in its southern dimension. Additionally, the EU is seeking to deepen ties with other regions across the globe, illustrated by the growing number of security and defense partnerships.[4] In the field of transatlantic relations, the Union reached an agreement with President Trump in July 2025 on tariff levels, while also striving to secure U.S. support for any future peace-monitoring mission in Ukraine. Table V presents the two initiatives expected to be announced shortly.

Table V: Illustrative list of pending Commission initiatives for 2025 (Europe in the world)

Type Title Pact Pact for the Mediterranean Joint Communication EU–India Preparing the Union for the Future

One of the Commission’s most significant priorities is the next Multiannual Financial Framework (MFF) for 2028–2034. Early preparation of the proposal ensures stability and predictability in the Union’s resources. According to the Commission’s proposal, the new budget will approach €2 billion, representing on average 1.26% of the EU’s Gross National Income per year. The innovation lies in structuring the funds around four pillars: (a) national and regional partnership plans, including cohesion and agricultural policy; (b) cross-cutting programmes and instruments, such as EU funds; (c) external dimension and Common Foreign and Security Policy; and (d) European public administration. At the same time, the Commission is expected to table proposals to prepare the Union for potential enlargement.

The Greek Perspective: Priorities and Challenges

For Greece, the Union’s actions have a direct impact on key national sectors. In the field of security and defense, Athens supports the new European initiatives and, in July 2025, formally submitted a request for loans worth at least €1.2 billion under the SAFE Regulation, seeking to bolster its defense capabilities through low-interest borrowing. Nonetheless, certain contentious issues remain, the most sensitive being the partial involvement of the Turkish defense industry in European schemes. Regarding the Union’s interaction with third actors, Greece seeks closer cooperation with like-minded partners while promoting stability in relations with the United States for both strategic and trade reasons. The Black Sea Strategy holds particular significance for Greece, as it explicitly states that “it proposes multiple avenues to forge closer cooperation with… Turkey,” highlighting that coordinated engagement with the neighboring country is “important” and that Turkey is “an EU partner of strategic importance.” At the same time, Greece aims to draw the attention of other member states to regions that have been partly sidelined due to the war in Ukraine, such as the Mediterranean and the Middle East, which directly affect the Union’s overall policy agenda (e.g. the war in Gaza and the crisis in the Red Sea).

With regard to preserving quality of life, as a coastal state with a strong shipping and fisheries sector, Greece is particularly interested in the sustainability of oceans and the management of marine resources, in cooperation with Cyprus and the Cypriot Commissioner responsible. The agricultural sector also remains crucial, especially amid growing pressures. As a predominantly agricultural country, Greece advocates for policies that will support farmers’ incomes during this difficult period. Transport is likewise a Greek priority, with an emphasis on safe and sustainable networks, reflected in the country’s strong interest in key positions both in the College of Commissioners and in the European Parliament. In the field of tourism, Greece, as a major tourist destination, looks forward to the European strategy for sustainable tourism, which is expected to include proposals to enhance the sector’s resilience and competitiveness. Finally, the housing crisis is becoming one of the most pressing social challenges in Europe. In Greece, it creates a suffocating environment for young people and the middle class, both struggling to cope with housing costs. As a key factor of social cohesion and demographic stability, Athens is keen to see whether the Commission will advance more targeted housing policies, drawing also on EU financial instruments.

All of these political priorities are closely linked to the issue of the new MFF 2028–2034. Greece, holding the Presidency of the Council of the EU in the second half of 2027, will be at the forefront of negotiations that will determine the scope of funding across all the aforementioned policy areas. For Athens, the challenge will be not only to find common ground among member states but also to advance its own priorities.

What Lies Ahead?

The multitude of initiatives launched by the Commission may be welcomed as a sign of dynamism and an eagerness to act across key policy domains. However, the central question is not the announcement of new strategies, but their timely and effective implementation. The shift from theory to practice will ultimately determine the credibility of the institutions and citizens’ trust in the Union. In this context, the role of member states becomes pivotal.

Against this backdrop, this year’s State of the Union address will not merely be a stock-taking exercise, but rather a “credibility test.” The key question will be whether, and to what extent, the Commission can turn its ambitions into concrete action for the Union’s collective good. At the same time, the new structure of the Commission will also come under scrutiny. The creation of the two new portfolios for Defense and Space, and for the Mediterranean signals the Union’s evolving priorities in critical sectors and regions where its previous contribution and involvement were comparatively limited. Nine months after their establishment, it will be assessed whether these portfolios have delivered on their intended r

[1] As provided by the Treaties (Article 17 TEU), the European Commission holds the “right of initiative” and is responsible for proposing new EU legislation in policy areas where it has competence. For such proposals to acquire the force of secondary law, they must be adopted either through the ordinary legislative procedure or a special legislative procedure. In parallel, there are non-legally binding acts that serve as documents outlining political direction in specific areas. These carry less weight than legislative acts (which are adopted by the European Parliament and/or the Council of the EU), as they primarily express the Commission’s views. Although they emerge following consultations with stakeholders and member states, these may not fully endorse the same positions (or their exact implementation). Strategies, usually framed as “communications” to other institutions, set out the Commission’s stance and priorities on specific issues. Action Plans, Pacts, and Roadmaps generally fall into this same category.

[2] In December 2024, the European Parliament established a temporary Special Committee on the Housing Crisis in the EU, tasked with examining the causes of the current crisis and submitting specific proposals to address it.

[3] In December 2024, the European Parliament decided to create a Special Committee on the European Democracy Shield to assess existing and planned legislation and policies. According to an EPRS briefing, the communication is “widely expected to be postponed”.

[4] The EU currently has security and defense partnerships with eight partners (Albania, North Macedonia, the United Kingdom, Japan, Canada, Moldova, Norway, and South Korea).

597072 Marina Živaljević

In response to a request from the Police Directorate to contribute to the overall effectiveness of the Regional Security Centre (RSC) “North”, the OSCE Mission to Montenegro provided technical equipment for six security centres and three police stations in Bijelo Polje, Berane, Kolašin, Mojkovac, Rožaje, Plav, Andrijevica, Gusinje, and Petnjica.

Head of the Mission, Ambassador Jan Haukaas, yesterday met with Police Director, Lazar Šćepanović, and Head of the RSC North, Haris Đurđević, in Bijelo Polje. During the meeting, they acknowledged the Mission’s longstanding support for the police and how its future activities could be shaped to further strengthen professionalization, build capacity, and enhance public trust in the police.

“The Mission remains committed to supporting the police with capacity-building and the provision of expertise, while adapting to emerging needs”, said Ambassador Haukaas. He further noted that the Mission is also interested in contributing towards further strengthening crisis response, transparency, and resilience against organized crime. “Our priority areas remain the fight against serious and organized crime, combatting trafficking in human beings, and reducing risks linked to small arms and light weapons,” stated Ambassador Haukaas.

Police Director Šćepanović said that the Mission, from the very beginning of its presence in Montenegro, has provided a significant contribution to enhance the collective security of the country. He stressed, “This technical support is of exceptional importance to supporting the field work and enhancing the capacities of the RSC ‘North’, especially considering the particular regional challenges and its continuous need to improve material and technical capacities.”

On this occasion, Šćepanović highlighted the efforts of the Police Directorate in Montenegro’s ongoing reform processes, particularly those related to justice, freedom and security, as well as the development and implementation of harmonized security policies aligned with European standards and the OSCE. He stated that “The primary focus is on organized crime, corruption, human trafficking and illegal migration, the suppression of narcotics smuggling, modern forms of hybrid threats – including disinformation - and the establishment of mechanisms to enhance resilience and countering external influences on the security sector.”

Head of the Centre Đurđević thanked the Mission for the provision of technical equipment, which has enhanced the RSC North’s overall capacity. He stated that “Part of the technical equipment has been distributed in the newly established RSC North’s headquarter, while the rest has been distributed to other municipalities,” explained Đurđević.

An-OSCE supported training course on strategic analysis in combating money laundering and financing of terrorism took place in Ashgabat from1 to 4 September 2025.

The OSCE Centre in Ashgabat organized the four-day event in close co-operation with Egmont Centre of FIU Excellence and Leadership (ECOFEL), Egmont Group of Financial Intelligence Units. The training course was specifically designed for staff members from the Financial Monitoring Service at the Ministry of Finance and Economy of Turkmenistan aiming to enhance their professional capacities and empower them to effectively implement specific points of the Plan on Technical Assistance to Turkmenistan on addressing recommendations from the second round of Mutual Evaluations by the Eurasian Group on Combating Money Laundering and Financing of Terrorism (EAG).

International experts explored the subtle intricacies involved in strategic analysis, highlighting  the characteristics of critical thinking and the importance  of structured analytical techniques to help counteract fixed mindsets and biases. Participants also discussed the differences between qualitative and quantitative analysis and the various stages of the intelligence cycle.

“The OSCE actively supports national reforms and transparency initiatives, as well the development and implementation of more effective policies and mechanisms to help participating States in enhancing good economic governance, establishing robust anti-money laundering systems, and promoting sound financial and resource management,” said Olivera Zurovac-Kuzman, Economic and Environmental Officer of the OSCE Centre in Ashgabat. 

“The OSCE Centre in Ashgabat is actively co-operating with Turkmenistan to strengthen its national AML/CFT system, including by improving legislative frameworks and conducting capacity-building activities within the framework of the Plan on Technical Assistance to Turkmenistan aimed at addressing recommendation from the second round of Mutual Evaluations by the EAG,” added Zurovac-Kuzman.

The course also provided detailed insights into the stages of the intelligence cycle, including  planning, collection, evaluation, collation and review of information sources. Experts shared requirements on strategic analysis findings reporting.

Le général Thierry Burkhard fera demain son adieu aux armes. Sa carrière, atypique, doit inspirer les

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