The European Union’s ambition to expand its roaming area beyond current member states sounds simple on paper. In reality, it is turning into a slow, politically sensitive, and commercially complex process. While the goal is to make connectivity cheaper and simpler for millions of people, the path toward that goal is anything but straightforward.

At the center of the discussion is the European Commission’s plan to extend the EU’s “Roam Like at Home” regime to candidate countries. Recent developments show progress, but also rising tensions among governments, regulators, and telecom operators who fear that moving too fast could destabilize already fragile markets.

A milestone for Ukraine and Moldova

On 1 January 2026, Ukraine and Moldova officially joined the EU roaming area. For citizens, this is a tangible and symbolic step toward European integration. Ukrainians and Moldovans travelling within the EU can now make calls, send texts, and use mobile data without additional roaming charges. The same applies to EU citizens visiting Ukraine and Moldova.

From a consumer perspective, this is a big win. For years, roaming charges acted as a hidden barrier to mobility, business, and everyday communication. For countries like Ukraine, which has seen massive population movement since 2022, affordable connectivity is not just a convenience but a necessity.

However, what looks like a success story to users is viewed more cautiously by policymakers and industry insiders. Ukrainian and Moldovan officials have been quick to point out that this achievement came after a long and demanding process. According to both governments, aligning with EU roaming rules took nearly three years of regulatory reforms, technical adjustments, and negotiations with operators.

Their message is clear: this was not a shortcut, and it should not become one for others.

The next candidates raise eyebrows

In October, European Commission President Ursula von der Leyen announced that Albania and Montenegro could be next in line to join the roaming area later this year. While the statement was welcomed politically, it immediately raised concerns across the telecom sector.

Operators and regulators are questioning how countries could move faster than Ukraine, which had strong political backing and urgent geopolitical reasons for integration, yet still needed years to comply. The fear is that accelerating the process for some candidates could undermine the credibility of the entire system.

Digital ministers from Ukraine and Moldova told Euractiv that free roaming should not be separated from the broader EU accession framework. In their view, early access without the same level of scrutiny risks creating structural imbalances. Countries that have already gone through rigorous procedures do not want to see the rules softened for newcomers.

Why operators are worried

Telecom operators are not opposing expansion in principle. Many of them support broader roaming zones and lower consumer prices. The problem lies in how fast and under what conditions this expansion happens.

Under the current EU roaming model, operators charge each other wholesale fees when customers roam abroad. These fees are capped at €1.10 per gigabyte of data, €0.019 per minute for calls, and €0.003 per SMS. This system works because it is carefully balanced and regularly adjusted based on traffic flows and market data.

Expanding the roaming area changes those flows instantly. Countries with strong outbound tourism tend to benefit financially, while those with more inbound roaming traffic often pay more. Southern destinations such as Italy, Greece, and Spain typically receive more wholesale revenue. Smaller markets in the Baltics or Nordics often argue that free roaming costs them more than it brings in.

Adding Albania and Montenegro, especially during peak summer months, could amplify these imbalances. Tourists would roam heavily in these destinations, while operators elsewhere would face higher wholesale payments.

The head of the telecom industry lobby GSMA, László Tóth, warned that allowing countries to join the roaming area before completing the full EU accession process could divert resources away from network investment. For operators, this is a serious concern at a time when 5G rollouts and infrastructure upgrades already require massive capital.

Delays and unanswered questions

Originally, the European Commission planned to present its roaming expansion strategy in November. That timeline has now slipped, with the proposal postponed until spring 2026. This delay reflects the complexity of the issue and the growing pushback from both governments and industry players.

Another challenge is the legal structure itself. Non-EU countries can only join the roaming area through bilateral agreements. This means that Albanians and Montenegrins would enjoy roaming benefits within the EU, but not necessarily when travelling to other non-EU participants. The result is a patchwork system that can confuse consumers and complicate operator agreements.

On top of that, some costs still exist even within the EU roaming framework. Calling or texting someone in another country can still incur charges, something consumer groups have long criticised. In December, the EU took a step forward by introducing new rules allowing operators to offer free cross-border calls and texts, but this is optional rather than mandatory.

The bigger picture: roaming as a political tool

Roaming policy has evolved far beyond telecom regulation. It has become a political signal, a consumer rights issue, and a soft-power instrument. Offering free roaming is a visible and popular way to demonstrate European integration, especially in candidate countries.

Similar strategies can be seen elsewhere. In the Western Balkans, regional roaming agreements have already reduced prices significantly. Globally, some operators like Vodafone and Orange have experimented with multi-country plans that blur national borders for users. Meanwhile, travel eSIM providers are gaining ground by offering transparent, borderless data packages without relying on inter-operator roaming agreements.

These alternatives matter because they put pressure on traditional roaming models. If EU expansion moves too slowly or creates uneven outcomes, consumers and businesses will increasingly turn to eSIMs, global data plans, and over-the-top communication apps.

Conclusion: expansion is inevitable, but shortcuts are risky

The expansion of the EU roaming area is not a question of if, but how. Ukraine and Moldova have shown that integration is possible, even under difficult circumstances, but their experience also proves that it takes time, discipline, and alignment with EU rules.

Fast-tracking countries like Albania and Montenegro may look attractive politically, but it risks weakening the carefully balanced roaming ecosystem that has taken years to build. Market distortions, reduced investment incentives, and unequal treatment of candidate countries could ultimately undermine consumer trust.

For Alertify readers, the takeaway is clear. Free roaming remains one of the EU’s strongest consumer success stories, but its future depends on cautious expansion and realistic economics. As roaming, eSIM adoption, and global connectivity models continue to converge, policymakers will need to decide whether roaming is primarily a political symbol or a sustainable telecom framework.

Reliable reporting from Euractiv, industry input from GSMA, and ongoing regulatory updates from the European Commission will be essential sources to watch. The next year will likely define whether EU roaming grows as a stable system or fragments under the weight of its own ambitions.