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Accession of Serbia to the European Union

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Ongoing accession process of Serbia to the EU

Accession of Serbia to theEuropean Union

Status

Candidate negotiating

Earliest possible entry

2029

Application

European perspective	21 June 2003
Potential candidate	21 June 2003
Membership application	22 December 2009
Candidate status	1 March 2012
Screened & negotiations commence	25 March 2015

Negotiations

Clusters open

Chapters open

Clusters closed

0% complete

Chapters closed

2^†

8.6% complete

^†Chapter 25 – Science and research and Chapter 26 – Education and culture are provisionally closed. Chapter 34 - Institutions is currently not applicable.

Memberships & Treaties

Association Agreement
1 September 2013
Economic and monetary policy
EUFree Trade Agreement	1 September 2013
World Trade Organization (WTO)	Undergoing accession process.^[1]
Euro & theEurozone	The euro is widely accepted in Serbia, although the official currency is theSerbian dinar
Travel
Schengen visa liberalisation	19 December 2009
Energy
Energy Community	Member since 9 August 2006
Euratom	Serbia is not a member. Serbia does not have any nuclear power, but it does have a moratorium on the development of nuclear energy.^[2]
ENTSO-E	Elektromreža Srbije is a member.
Foreign and military policy
North Atlantic Treaty Organization (NATO)	Individual Partnership Action Plan since 15 January 2015 Main article:Serbia–NATO relations
Organization for Security and Co-operation in Europe (OSCE)	1 August 1975 (asYugoslavia)
Human rights and international courts
Council of Europe (CoE)	since 2003 (asSerbia and Montenegro)
International Criminal Court (ICC)	Serbia and Montenegro deposited their instrument of ratification of the Rome Statute on 6 September 2001. The Rome Statute entered into force on 1 July 2002.^[3]
International Court of Justice (ICJ)	Main articles:Bosnian genocide case andCroatia–Serbia genocide case

Impact(27+1)

Population	446,828,803	455,052,321 1.5%
Area	4,233,262 km² 1,634,472 mi²	4,310,736 km² 1,664,385 mi² 1.8% (excludingKosovo)
HDI	0.896	0.890 0.67%
GDP (PPP)	$25.399 trillion	$25.572 trillion 0.68%
GDP per capita (PPP)	$56,928	$56,196 1.29%
GDP	$17.818 trillion	$17.256 trillion 0.4%
GDP per capita	$39,940	$37,920 5.3%
Gini	30.0	30.1 0.39%
Official Languages	24	25Serbian 1

Politics of Serbia


Constitution Constitutional Court President: Snežana Marković
Executive President (list) Aleksandar Vučić Government Prime Minister Đuro Macut Cabinet
Legislature National Assembly President:Ana Brnabić Current membership
Judiciary Supreme Court President: Jasmina Vasović
Elections Recent elections Presidential:2017 2022 Parliamentary:2023 next Provincial:2020 2023 Local:2024 2025 Political parties
Administrative divisions Autonomous provinces Municipalities and cities Administrative districts Statistical regions
Foreign relations Ministry of Foreign Affairs Minister:Ivica Dačić Diplomatic missions of /in Serbia Nationality law Passport Visa requirements Visa policy EU accession Political status of Kosovo
Serbia portal
v t e

Serbia applied tojoin theEuropean Union (EU) in 2009 and has been a candidate for membership since 2012 (along withnine other states), whilenegotiations started in 2014 and are still ongoing.^[4]^[5]^[6]

History

[edit]

Relations between the European Union and the Federal Republic of Yugoslavia (later the State Union ofSerbia and Montenegro) got a fresh start following theoverthrow of Slobodan Milošević in 2000, and the EU officially declared the Balkan states potential candidates for membership following the EU-Western Balkans Summit inThessaloniki in 2003.^[7]

On 7 November 2007, Serbia initiated aStabilisation and Association Agreement (SAA) with the European Union. The SAA came into force on 1 September 2013. TheEuropean Commission recommended making Serbia anofficial candidate on 12 October 2011. TheCouncil of the European Union also made the recommendation on 28 February 2012. Serbia received fullcandidate status on 1 March 2012. In December 2013, the Council of the European Union approved opening negotiations for Serbia's accession. Serbia officially applied for European Union membership on 22 December 2009 and was granted official candidate status on 1 March 2012. Negotiations on accession to the EU started on 21 January 2014.

Until 2020, Serbia had been receiving €2.9 billion of developmental aid from theInstrument for Pre-Accession Assistance, a funding mechanism for EU candidate countries.

In 2024, Serbian PresidentAleksandar Vučić stated that Serbia would meet all the criteria to join the European Union by 2026 or 2027, however, not promising an immediate accession in either 2026, 2027, or even 2028.^[8] These statements reflect his earlier ones, when he stated that Serbia would probably have to wait for six years to join the European Union, in 2030.^[9] The 2030 target was later supported by thePresident of the European Council,Charles Michel, during theBled Strategic Forum, who stated that such enlargement should be ready to proceed by 2030.^[10] However, in 2025, during a meeting in Rome regarding the Western Balkans "expansion",Minister of Foreign Affairs of Italy,Antonio Tajani, with the presence of theEuropean Commissioner for Enlargement,Marta Kos, stated that a possible entry year for the nation could be 2029 instead.^[11]^[12]

Chronology of relations with the EU

[edit]

Timeline
Date	Event
1998	The Council of the European Union establishes political and economic conditionality for the development of bilateral relations.
21 June 2003	TheStabilisation and Association Process is confirmed as the European Union's policy for the Western Balkans countries.
October 2004	The European Council conclusions open up a process for a Stabilisation and Association Agreement.
October 2005	Negotiations for a Stabilisation and Association Agreement started.
1 November 2007	Stabilisation and Association Agreement is initialed.
1 January 2008	Entry into force of the Visa Facilitation and Readmission Agreement.
18 February 2008	The European Council adopts revised European Partnership for Serbia.
29 April 2008	The Stabilisation and Association Agreement and Interim agreement on trade and trade-related issues signed.
19 December 2009	Visa requirements lifted for Serbian citizens travelling to Schengen Area.
22 December 2009	Application for Membership in the European Union.
14 June 2010	Ratification process of the Stabilisation and Association Agreement by EU member states started.
31 January 2011	Responses to the European Commission's Questionnaire submitted.
14 October 2011	The European Commission announced its opinion on the Application for membership in the European Union, recommending granting Serbia the status of a Candidate for EU membership.
1 March 2012	The European Council grants the status of a Candidate for EU membership.
28 June 2013	The European Council endorsed the European Commission's recommendation to start membership negotiations.
1 September 2013	Entry into force of the Stabilisation and Association Agreement.
25 September 2013	Screening of the EU acquis started.
21 January 2014	Start of membership talks, first Intergovernmental Conference held.
25 March 2015	Screening of the EU acquis completed.
14 December 2015	Opening of chapters 32 ("Financial Control") and 35 ("Other Issues – Item 1: Normalisation of relations between Serbia and Kosovo*").
18 July 2016	Opening of chapters 23 ("Judiciary and Fundamental Rights") and 24 ("Justice, Freedom and Security").
13 December 2016	Opening of chapters 5 ("Public Procurement") and 25 ("Science and Research"); Chapter 25 ("Science and Research") provisionally closed.
27 February 2017	Opening of chapters 20 ("Enterprise and Industrial Policy") and 26 ("Education and Culture"); Chapter 26 ("Education and Culture") provisionally closed.
20 June 2017	Opening of chapters 7 ("Intellectual Property Law") and 29 ("Customs Union").
11 December 2017	Opening of chapters 6 ("Company Law") and 30 ("External Relations").
25 June 2018	Opening of chapters 13 ("Fisheries") and 33 ("Financial and Budgetary Provisions").
10 December 2018	Opening of chapters 17 ("Economic and Monetary Policy") and 18 ("Statistics").
27 June 2019	Opening of Chapter 9 ("Financial Services").
9 December 2019	Opening of Chapter 4 ("Free Movement of Capital").
1 February 2021	Entry into force of new methodology for membership talks.
14 December 2021	Opening of chapters 14 ("Transport Policy"), 15 ("Energy"), 21 ("Trans-European Networks"), and 27 ("Environment and Climate Change").

Membership talks

[edit]

No further progress on the opening or closing of chapters have been achieved since December 2021. Benchmarks were met for the opening of all three remaining chapters in cluster 3 (chapter 10, 16 and 19) in December 2024, but this was postponed due the opening being conditional on"substantial further progress made by Serbia, in particular in accordance with...the rule of law (chapter 23+24) and the normalisation of relations with Kosovo".^[13]^[14]

Screening and Chapter Dates

Progression

34 / 34

100% complete

34 / 34

100% complete

22 / 34

64.7% complete

2 / 34

5.9% complete

Acquis Chapter^[15]

Screening Started

Screening Completed

Chapter Opened

Chapter Closed

Overview

34 out of 34

22 out of 34

2 out of 34

1. Free Movement of Goods

2014-06-17

2014-09-12

–

2. Freedom of Movement For Workers

2014-01-23

2014-03-25

–

3. Right of Establishment & Freedom To Provide Services

2014-01-30

2014-03-13

–

4. Free Movement of Capital

2014-10-13

2014-12-15

2019-12-10

–

5. Public Procurement

2014-03-21

2014-05-13

2016-12-13

–

6. Company Law

2014-12-11

2015-02-05

2017-12-11

–

7. Intellectual Property Law

2014-09-24

2014-11-13

2017-06-20

–

8. Competition Policy

2014-03-31

2014-11-05

–

9. Financial Services

2015-01-21

2015-03-17

2019-06-27

–

10. Information Society & Media

2014-05-22

2014-07-02

–

11. Agriculture & Rural Development

2014-03-18

2014-09-16

–

12. Food Safety, Veterinary & Phytosanitary Policy

2014-02-03

2014-10-24

–

13. Fisheries

2014-09-30

2014-11-14

2018-06-25

–

14. Transport Policy

2014-12-16

2015-02-27

2021-12-14

–

15. Energy

2014-04-29

2014-06-12

2021-12-14

–

16. Taxation

2014-10-14

2015-03-06

–

17. Economic & Monetary Policy

2014-12-02

2015-03-12

2018-12-10

–

18. Statistics

2014-05-20

2014-11-26

2018-12-10

–

19. Social Policy & Employment

2014-02-10

2014-06-26

–

20. Enterprise & Industrial Policy

2014-04-03

2014-07-02

2017-02-27

–

21. Trans-European Networks

2014-04-29

2015-02-27

2021-12-14

–

22. Regional Policy & Coordination of Structural Instruments

2014-10-01

2015-01-29

–

23. Judiciary & Fundamental Rights

2013-09-25

2013-12-10

2016-07-18

–

24. Justice, Freedom & Security

2013-10-02

2013-12-13

2016-07-18

–

25. Science & Research

2014-10-06

2014-12-01

2016-12-13

26. Education & Culture

2014-02-20

2014-04-04

2017-02-27

27. Environment

2014-09-15

2014-11-21

2021-12-14

–

28. Consumer & Health Protection

2014-12-04

2015-02-04

–

29. Customs Union

2014-03-26

2014-06-04

2017-06-20

–

30. External Relations

2014-07-02

2014-10-09

2017-12-11

–

31. Foreign, Security & Defence Policy

2014-07-15

2014-10-10

–

32. Financial Control

2013-10-17

2013-11-26

2015-12-14

–

33. Financial & Budgetary Provisions

2015-01-27

2015-03-24

2018-06-25

–

34. Institutions

–

35. Other Issues: Relations with Kosovo*

2014-01-22

2015-03-25

2015-12-14

–

Progression

34 / 34

100% complete

34 / 34

100% complete

22 / 34

64.7% complete

2 / 34

5.9% complete

November 2025 European Commission Report^[16]

Progression

12 Unopened Chapters
22 Open Chapters
2 Closed Chapters

5.9% complete

Some level of preparation

4 / 33

Moderately prepared

18 / 34

Good level of preparation

11 / 33

Acquis chapter

Chapter Status

Acquis Status

1. Free Movement of Goods

Unopened

Moderately prepared

2. Freedom of Movement For Workers

Unopened

Moderately prepared

3. Right of Establishment & Freedom To Provide Services

Unopened

Moderately prepared

4. Free Movement of Capital

Open

Good level of preparation^†

5. Public Procurement

Open

Moderately prepared

6. Company Law

Open

Good level of preparation

7. Intellectual Property Law

Open

Good level of preparation

8. Competition Policy

Unopened

Moderately prepared

9. Financial Services

Open

Moderately prepared

10. Information Society & Media

Unopened

Moderately prepared

11. Agriculture & Rural Development

Unopened

Some level of preparation

12. Food Safety, Veterinary & Phytosanitary Policy

Unopened

Moderately prepared

13. Fisheries

Open

Moderately prepared

14. Transport Policy

Open

Good level of preparation

15. Energy

Open

Moderately prepared

16. Taxation

Unopened

Good level of preparation^†

17. Economic & Monetary Policy

Open

Good level of preparation^†

18. Statistics

Open

Good level of preparation^†

19. Social Policy & Employment

Unopened

Moderately prepared

20. Enterprise & Industrial Policy

Open

Moderately prepared

21. Trans-European Networks

Open

Good level of preparation^†

22. Regional Policy & Coordination of Structural Instruments

Unopened

Moderately prepared

23. Judiciary & Fundamental Rights

Open

Some level of preparation

24. Justice, Freedom & Security

Open

Moderately prepared^††

25. Science & Research

Chapter Closed

Good level of preparation

26. Education & Culture

Chapter Closed

Good level of preparation

27. Environment & Climate Change

Open

Some level of preparation

28. Consumer & Health Protection

Unopened

Moderately prepared

29. Customs Union

Open

Good level of preparation

30. External Relations

Open

Moderately prepared

31. Foreign, Security & Defence Policy

Unopened

Moderately prepared

32. Financial Control

Open

Moderately prepared

33. Financial & Budgetary Provisions

Open

Some level of preparation

34. Institutions

Currently not applicable for Serbia

35. Other Issues – Normalization with Kosovo

Open

No assessment scale

Legend:

Chapters inbold indicate completed chapters.

^† indicates chapters in which the European Commission has simultaneously awarded the chapterboth "moderately prepared" AND "good level of preparation".

^†† indicates chapters in which the European Commission has simultaneously awarded the chapterboth "some level of preparation" AND "moderately prepared".

totally incompatible early stage considerable efforts needed some level of preparation further efforts needed moderately prepared no major difficulties expected good level of preparation well prepared / well advanced

Report History
Acquis chapter	2010^[17]	2012^[18]	2013^[19]	2014^[20]	2015^[21]	2016^[22]	2018^[23]	2019^[24]	2020^[25]	2021^[26]	2022^[27]	2023^[28]	2024^[29]	2025^[16]
1. Free Movement of Goods	Further efforts needed	Further efforts needed	Moderately prepared	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
2. Freedom of Movement For Workers	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
3. Right of Establishment & Freedom To Provide Services	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
4. Free Movement of Capital	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation^†
5. Public Procurement	Considerable efforts needed	Considerable efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
6. Company Law	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
7. Intellectual Property Law	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
8. Competition Policy	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Good level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
9. Financial Services	Considerable efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
10. Information Society & Media	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
11. Agriculture & Rural Development	Early stage	Early stage	Considerable efforts needed	Considerable efforts needed	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
12. Food Safety, Veterinary & Phytosanitary Policy	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
13. Fisheries	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
14. Transport Policy	Some level of preparation	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
15. Energy	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
16. Taxation	Further efforts needed	Considerable efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation^†	Good level of preparation^†
17. Economic & Monetary Policy	Further efforts needed	Considerable efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation^†	Good level of preparation^†	Good level of preparation^†
18. Statistics	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation^†	Good level of preparation^†
19. Social Policy & Employment	Some level of preparation	Some level of preparation	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
20. Enterprise & Industrial Policy	Some level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
21. Trans-European Networks	Considerable efforts needed	Considerable efforts needed	Considerable efforts needed	Some level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation^†	Good level of preparation^†
22. Regional Policy & Coordination of Structural Instruments	Considerable efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
23. Judiciary & Fundamental Rights	Considerable efforts needed	Some level of preparation	Further efforts needed	Further efforts needed	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
24. Justice, Freedom & Security	Considerable efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Moderately prepared^††	Moderately prepared^††
25. Science & Research	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
26. Education & Culture	Further efforts needed	Further efforts needed	Further efforts needed	Some level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
27. Environment	Early stage	Considerable efforts needed	Considerable efforts needed	Some level of preparation	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
28. Consumer & Health Protection	Further efforts needed	Further efforts needed	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
29. Customs Union	Further efforts needed	Further efforts needed	Moderately prepared	Further efforts needed	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
30. External Relations	Some level of preparation	Some level of preparation	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
31. Foreign, Security & Defence Policy	Further efforts needed	Moderately prepared	Moderately prepared	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
32. Financial Control	Early stage	Early stage	Considerable efforts needed	Considerable efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
33. Financial & Budgetary Provisions	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
34. Institutions	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia	Currently not applicable for Serbia
35. Other Issues - Normalization with Kosovo	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale	No assessment scale
Legend: Chapters inbold indicate completed chapters. ^† indicates chapters in which the European Commission describes it asBETWEEN "Moderately prepared" AND "Good level of preparation". ^†† indicates chapters in which the European Commission describes it asBETWEEN "Some level of preparation" AND "Moderately prepared". totally incompatible early stage considerable efforts needed some level of preparation further efforts needed moderately prepared no major difficulties expected good level of preparation well prepared / well advanced

Clusters of negotiating chapters^[30]
Clusters	Acquis Chapter	State of Play	Cluster Opened	Cluster Closed
Overview	Overview	22 out of 34	2 out of 6	0 out of 6
Fundamentals	23. Judiciary & Fundamental Rights	Opened	Opened	–
	24. Justice, Freedom & Security	Opened
	Economic criteria	–
	Functioning of democratic institutions	–
	Public administration reform	–
	5. Public Procurement	Opened
	18. Statistics	Opened
	32. Financial Control	Opened
Internal Market	1. Free Movement of Goods	Serbia working on fulfilment of opening benchmarks	–	–
	2. Freedom of Movement For Workers	Draft EU Common Position in Council
	3. Right of Establishment & Freedom To Provide Services	Draft EU Common Position in Council
	4. Free Movement of Capital	Opened
	6. Company Law	Opened
	7. Intellectual Property Law	Opened
	8. Competition Policy	Serbia working on fulfillment of opening benchmarks
	9. Financial Services	Opened
	28. Consumer & Health Protection	Draft EU Common Position in Council
Competitiveness and inclusive growth	10. Information Society & Media	Draft EU Common Position in Council	–	–
	16. Taxation	Opening Benchmarks Assessment Report in Council
	17. Economic & Monetary Policy	Opened
	19. Social Policy & Employment	Opening Benchmarks Assessment Report in Council
	20. Enterprise & Industrial Policy	Opened
	25. Science & Research	Closed
	26. Education & Culture	Closed
	29. Customs Union	Opened
Green agenda and sustainable connectivity	14. Transport Policy	Opened	Opened	–
	15. Energy	Opened
	21. Trans-European Networks	Opened
	27. Environment	Opened
Resources, agriculture and cohesion	11. Agriculture & Rural Development	Opening Benchmarks Assessment Report in Council	–	–
	12. Food Safety, Veterinary & Phytosanitary Policy	Serbia working on fulfilment of opening benchmarks
	13. Fisheries	Opened
	22. Regional Policy & Coordination of Structural Instruments	Opening Benchmarks Assessment Report in Council
	33. Financial & Budgetary Provisions	Opened
External relations	30. External Relations	Opened	–	–
External relations	31. Foreign, Security & Defence Policy	Screening Report in Council	–	–
	34. Institutions	–	–	–
	35. Other Issues: Relations with Kosovo*	Opened	Opened	–

Main political issues

[edit]

Obstacles for accession include therequirement to recognize statehood for Kosovo, foreign policyalignment with Russia,democratic backsliding, and domestic policies such as rule of law and media freedom.^[31]^[5]^[32]

Kosovo

[edit]

The biggest obstacle to Serbia's accession to the EU is its strained relationship withKosovo, which escalated after the2008 Kosovo declaration of independence.^[5] The Serbian government has declared that the status of Kosovo should not be tied to the EU negotiations. In 2012, the EU Enlargement Commissioner,Štefan Füle, denied that the European Union would insist on Serbia's recognition of Kosovo before it can join the organisation.^[33]

In 2013, the governments of Kosovo and Serbia completed theBrussels Agreement, which was hailed as a major step towards normalising relations and enabled the start of EU accession talks with Serbia.^[34] Later that year,Kosovo's Minister of Foreign Affairs Enver Hoxhaj suggested that the EU should approve theaccession of Kosovo and Serbia simultaneously due to concerns that if Serbia was admitted first they could veto Kosovo's membership.^[35] However, Serbia's accession negotiations were not halted.

In 2021, the European Parliament adopted a report on Serbia, which, amongst other things, emphasized that the normalization of relationships between Serbia and Kosovo is "a priority and a requirement for EU accession."^[36]

In 2024, the opening of remaining chapters in Cluster 3 was postponed partially due to"substantial further progress made by Serbia, in particular in accordance with...thenormalisation of relations with Kosovo", further evidencing an expectation that the country address the issue as part of accession negotiations.^[13]^[14]

Serbia’s electoral framework faced criticism for requiring comprehensive reform. Recommendations from the OSCE Office for Democratic Institutions and Human Rights (ODIHR) remained unimplemented, including measures to ensure voter transparency, campaign oversight, and media independence. A parliamentary working group on electoral reform, chaired by a civil society organization (CSO) representative, failed to reach consensus, leading to the withdrawal of opposition and CSOs by February 2025. Local elections in Zaječar and Kosjerić in June 2025 were deemed "neither free nor fair" by domestic CSO observers, citing a climate of fear, institutional pressure, and heavy police presence. Gender representation in politics remained inadequate, particularly at the local level, despite a 40% gender quota for electoral lists.^[16]

Parliamentary Challenges

[edit]

The Serbian Parliament faced issues of limited autonomy, infrequent sessions, and lack of genuine political debate. The government dominated the legislative agenda, with nearly all laws proposed by the executive. Plenary and committee sessions were marked by tensions, offensive language, and occasional verbal and physical incidents. The Speaker was criticized for biased responses during debates. In November 2024, 68 acts, including the state budget, were adopted without discussion, and opposition motions to dismiss the Speaker were excluded from the agenda, violating constitutional rules. Public hearings were limited, with only 11 held in 2025 and two in 2024.^[16]

EU Integration

[edit]

Serbia aimed to meet EU membership criteria by the end of 2026, adopting a revised National Program for the Adoption of the Acquis (NPAA) and a plan for fulfilling EU accession obligations in 2025. However, progress in aligning with the EU acquis was slow, with centralized coordination structures limiting civil society involvement. The Ministry for European Integration served as the focal point for consultations, but the National Convention on the EU (NCEU), a CSO platform, suspended cooperation with authorities in February 2025, citing a deteriorating environment for civil society and lack of meaningful participation.^[16]

Governance

[edit]

The practical exercise of presidential powers sparked debate, with concerns that the President’s influence exceeded constitutional limits. Following the Novi Sad tragedy, two ministers resigned in late 2024, and the Prime Minister resigned on January 28, 2025. A new government, with no change in political composition or ministerial posts, was appointed on April 16, 2025, including nine women and representatives of national minorities. The autonomy of independent bodies remained limited, with their recommendations often ignored. Local self-government faced challenges, including weak administrative capacity and delays in adopting the Law on Vojvodina’s financing resources.^[16]

Civil Society

[edit]

Civil society organizations (CSOs) operated in an increasingly hostile environment, facing verbal attacks, smear campaigns, and strategic lawsuits against public participation (SLAPPs). Reports emerged of spyware targeting human rights defenders and journalists. In February 2025, police searched the offices of four CSOs, accusing them of money laundering, an action widely perceived as intimidation. A proposed law on foreign influence agents, though not discussed in Parliament, further threatened CSOs. In response, 29 CSOs withdrew from government working groups, and the Council for Cooperation and Development of Civil Society saw frozen memberships due to inadequate responses to attacks on activists.^[16]

Security Oversight

[edit]

The parliamentary Committee for the Oversight of Security Services dismissed allegations of excessive measures, such as the use of a sonic device during a March 15, 2025, protest in Belgrade. The civilian security agency (BIA) was reported to have detained and questioned activists during the protests, with claims of an attempted "colour revolution." A law granting access to state security files remained unadopted.^[16]

Impact and Legacy

[edit]

The 2024–2025 protests highlighted deep-seated issues in Serbia’s democratic institutions, including electoral integrity, parliamentary effectiveness, and civil society freedoms. The government’s response, oscillating between tolerance and repression, underscored tensions in Serbia’s political landscape. The events also strained Serbia’s EU accession process, with calls for more transparent and inclusive reforms to align with democratic standards.^[16]

Public opinion on EU membership

[edit]

Serbian public support for the country joining the EU has significantly waned over the years, while at the same time leaning toward maintaining strong ties withRussia andChina which are seen as reliable allies. Serbia’s EU membership has experienced growing skepticism stemming from slow accession negotiations progress, and the Kosovo dispute.^[38]

The European Union's push for Serbia to normalize relations with Kosovo, which is seen in Serbia as including implicit recognition, in particular is a major factor contributing to waning support. The vast majority of the Serbian public view Kosovo as an integral part of Serbia, and the EU’s stance is seen as pressuring Serbia to relinquish its sovereignty. Russia and China’s support for Serbia’s position on Kosovo (non-recognition) bolsters their favorability over the EU.^[39]

The most recent poll, from March 2025, found that if a referendum on joining the EU took place, 38.9% would vote in favour of joining the EU, with 43.2% voting against, and 17.9% unsure or abstaining.^[40]

According to the 2025 annual survey of opinion in Serbia, 38% of citizens have a positive attitude towards the EU (11% very positive, 27% fairly positive), while trust in the EU is 38%. It is also revealed that 33% of citizens would vote in favour of Serbia's membership of the EU if a referendum was held, while 41% of citizens believe that EU memebership would bring more advantages than disadvantages.^[41]

Data by the SerbianMinistry of European Integration
Date	Question	Yes	No	Undecided
2002^[42]	Join EU?	68%	13%	19%
2003^[42]	Join EU?	72%	8%	20%
2004^[42]	Join EU?	71%	12%	17%
2005^[42]	Join EU?	64%	12%	24%
2006^[42]	Join EU?	70%	12%	18%
2007^[43]	Join EU?	69%	15%	15%
2008^[44]	Join EU?	61%	13%	26%
2009^[45]	Join EU?	65%	14%	21%
2010^[46]	Join EU?	57%	18%	25%
2011^[47]	Join EU?	51%	28%	21%
2012^[48]	Join EU?	41%	31%	27%
2013^[49]	Join EU?	51%	22%	27%
2014^[50]	Join EU?	44%	25%	31%
2015^[51]	Join EU?	48%	28%	24%
2016^[52]	Join EU?	47%	29%	24%
2017^[53]	Join EU?	52%	24%	24%
2018^[54]	Join EU?	55%	25%	20%
2019^[55]	Join EU?	54%	24%	22%
2022^[56]	Join EU?	43%	32%	25%

Data by polling agencies
Date	Agency	Question	Yes	No	Undecided
2008^[57]	Strategic Marketing	How would you vote on a referendum on joining EU?	61%	–	–
2010^[58]	Gallup Balkan Monitor	Do you support accession of Serbia to EU?	63%	–	–
2011^[59]	NSPM	Do you support accession of Serbia to EU?	49.7%	37.6%	12.7%
2012^[60]	B92/Ipsos Strategic Marketing	How would you vote on a referendum on joining EU?	49%	34%	5%
2013^[61]	Ipsos Strategic Marketing	Do you support accession of Serbia to EU?	53%	–	–
2014^[62]	Eurobarometer	Do you support the enlargement of EU?	58%	26%	16%
2015^[63]	NSPM	Do you support accession of Serbia to EU?	46.8%	31.5%	11.7%
2016^[64]	NSPM	Do you support accession of Serbia to EU?	44.5%	43.0%	12.5%
2017^[65]	NSPM	Do you support accession of Serbia to EU?	51.2%	36.3%	12.5%
2018^[66]	NSPM	Do you support accession of Serbia to EU?	46.5%	38.7%	14.8%
2019^[67]	NSPM	Do you support accession of Serbia to EU?	47.1%	34.9%	18.0%
2021^[68]	NSPM	Do you support accession of Serbia to EU?	42.7%	38.9%	18.4%
2022^[69]	Ipsos	How would you vote on a referendum on joining EU?	35%	44%	21%
2023^[70]	Smart Plus	How would you vote on a referendum on joining EU?	44%	30%	15%
2024^[71]	NSPM	Do you support accession of Serbia to EU?	42.8%	36.8%	20.4%
2025^[72]	NSPM	How would you vote on a referendum on joining EU?	41.1%	39.8%	19.1%

Bilateral relations with EU member states

[edit]

References

[edit]

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External links

[edit]

Ministry of Foreign Affairs of Serbia
The EU integration Office
War crimes, conditionality and EU integration in the Western Balkans, by Vojin Dimitrijević, Florence Hartmann,Dejan Jović, Tija Memišević, edited by Judy Batt, Jelena Obradović, Chaillot Paper No. 116, June 2009,European Union Institute for Security Studies

Enlargement andpartners of theEuropean Union

Previous enlargements

1973 (Denmark,Ireland,United Kingdom)
1981 (Greece)
1986 (Portugal, Spain)
1995 (Austria,Finland,Sweden)
2004 (Cyprus,Czech Republic,Estonia,Hungary,Latvia,Lithuania,Malta,Poland,Slovakia,Slovenia)
2007 (Bulgaria, Romania)
2013 (Croatia)
Statistics

Candidates

Negotiating

Screened	Albania status Montenegro status Moldova status relations North Macedonia status Serbia status Ukraine status relations

Pre-negotiations

Suspended negotiations

Turkey
- status
- relations

Potential candidates

Kosovo
- status

Partnerships

Eastern Partnership	Armenia status relations Azerbaijan relations Belarus (suspended) relations
Northern Dimension	Iceland relations Norway relations Russia relations
Customs union	Andorra relations Monaco relations San Marino relations
Free trade agreements	Liechtenstein relations Switzerland relations United Kingdom relations Trade and Cooperation Agreement

Other geographically
European countries

v t e Foreign relations of Serbia
Africa	Algeria Angola Egypt Ethiopia Libya Somalia South Africa Zimbabwe
Americas	Argentina Brazil Canada Cuba Mexico Peru United States Venezuela
Asia	Armenia Azerbaijan Bangladesh Cambodia China India Indonesia Iran Iraq Israel Japan Kazakhstan Myanmar Nepal North Korea Pakistan Palestine Saudi Arabia South Korea Syria Turkey United Arab Emirates
Europe	Albania Austria Belarus Belgium Bosnia and Herzegovina Republika Srpska Bulgaria Croatia Cyprus Czech Republic Denmark Estonia Finland France Germany Greece Hungary Italy Ireland Latvia Lithuania Luxembourg Malta Moldova Montenegro Netherlands North Macedonia Norway Poland Portugal Romania Russia San Marino Slovakia Slovenia Spain Sweden Switzerland Ukraine United Kingdom Vatican City
Oceania	Australia Palau
Multilateral relations	United Nations European Union NATO Open Balkan Craiova Group
Disputes	Kosovo (political status) Croatia (border dispute)
Related topics	Ministry of Foreign Affairs Diplomatic missions of /in Serbia
see also:Foreign relations of Yugoslavia &Serbia and Montenegro

Foreign relations of the European Union

Bilateral relations

Africa

Americas

Asia

Europe

Internal

External

Oceania

Former

Yugoslavia

General

†= Disputed state, may not be recognised as an independent state by some or all European Union members.

Multilateral relations and initiatives

Organisations

Initiatives

Administration and policies

Foreign and Security Policy	Global Strategy Neighbourhood Policy Enlargement Security and Defence Policy
Administration	Humanitarian Aid and Civil Protection Department Directorate-General for International Cooperation and Development External Action Service Foreign Affairs Council High Representative Josep Borrell Parliamentary Foreign Affairs Committee Foreign Policy Instruments Service Diplomatic missionsof the EU (ambassadors) /to the EU Special Representatives
Funding	Instrument for Pre-Accession Assistance Global Europe

Common Security and Defence Policy of theEuropean Union

Leadership

Structure

External Action Service	Command structure on the civilian/military strategic and operational levels (Military Planning and Conduct Capability within theMilitary Staff,Civilian Planning and Conduct Capability,Joint Support Coordination Cell) Intelligence and Situation Centre (Club de Berne) Crisis Management and Planning Directorate Security & Defence College
Agencies	Defence Agency Institute for Security Studies Satellite Centre
Council preparatory bodies	Committee of Permanent Representatives Political and Security Committee Politico-Military Group Military Committee Committee for Civilian Aspects of Crisis Management
European Commission bodies	Directorate-General for Defence Industry and Space
Funding	Defence Fund

Policies

Equipment

Decorations

Permanent Structured Cooperation (PESCO)
Headline Goal 2010
Military Erasmus
Military Mobility (PESCO)
Intelligence School (PESCO)
Kortenberg building
NATO relations (Berlin Plus agreement,Joint Declaration)

Berlin Process

Conferences

Bodies

Southeast Europe Transport Community

Non-member states

Screened candidates	Albania Montenegro North Macedonia Serbia
Unscreened candidates	Bosnia and Herzegovina Ukraine Georgia Moldova
Unscreened potential candidates	Kosovo