Accession of Serbia to the European Union

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Serbia applied to join the European Union (EU) in 2009 and has been a candidate for membership since 2012 (along with nine other states), while negotiations started in 2014 and are still ongoing.

Accession of Serbia to the European Union
StatusCandidate negotiating
Earliest possible entry2029
Application
European perspective21 June 2003
Potential candidate21 June 2003
Membership application22 December 2009
Candidate status1 March 2012
Screened & negotiations commence25 March 2015
Negotiations
Clusters open2
Chapters open22
Clusters closed0
Chapters closed2†

†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
EU Free Trade Agreement1 September 2013
World Trade Organization (WTO)Undergoing accession process.
Euro & the EurozoneThe euro is widely accepted in Serbia, although the official currency is the Serbian dinar
Travel
Schengen visa liberalisation19 December 2009
Energy
Energy CommunityMember since 9 August 2006
EuratomSerbia is not a member. Serbia does not have any nuclear power, but it does have a moratorium on the development of nuclear energy.
ENTSO-EElektromreža Srbije is a member.
Foreign and military policy
North Atlantic Treaty Organization (NATO)Individual Partnership Action Plan since 15 January 2015
Organization for Security and Co-operation in Europe (OSCE)1 August 1975 (as Yugoslavia)
Human rights and international courts
Council of Europe (CoE)since 2003 (as Serbia 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.
International Court of Justice (ICJ)
Impact (27+1)
Population446,828,803455,052,321
1.5%
Area4,233,262 km2
1,634,472 mi2		4,310,736 km2
1,664,385 mi2
1.8%
(excluding Kosovo)
HDI0.8960.890
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%
Gini30.030.1
0.39%
Official Languages2425 Serbian
1

History

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

On 7 November 2007, Serbia initiated a Stabilisation and Association Agreement (SAA) with the European Union. The SAA came into force on 1 September 2013. The European Commission recommended making Serbia an official candidate on 12 October 2011. The Council of the European Union also made the recommendation on 28 February 2012. Serbia received full candidate 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 the Instrument for Pre-Accession Assistance, a funding mechanism for EU candidate countries.

In 2024, Serbian President Aleksandar 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. 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. The 2030 target was later supported by the President of the European Council, Charles Michel, during the Bled Strategic Forum, who stated that such enlargement should be ready to proceed by 2030. 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 the European Commissioner for Enlargement, Marta Kos, stated that a possible entry year for the nation could be 2029 instead.

Chronology of relations with the EU

Timeline
Date Event
1998 The Council of the European Union establishes political and economic conditionality for the development of bilateral relations.
21 June 2003 The Stabilisation 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

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".

Screening and Chapter Dates
Progression 34 / 34 34 / 34
 22 / 34
 2 / 34
Acquis Chapter Screening Started Screening Completed Chapter Opened Chapter Closed
Overview 34 out of 34 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 2016-12-13
26. Education & Culture 2014-02-20 2014-04-04 2017-02-27 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
 34 / 34
 22 / 34
 2 / 34
November 2025 European Commission Report
Progression
  • 12 Unopened Chapters
  • 22 Open Chapters
  • 2 Closed Chapters
 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 Currently not applicable for Serbia
35. Other Issues – Normalization with Kosovo Open No assessment scale
Legend:

Chapters in bold indicate completed chapters.

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

†† indicates chapters in which the European Commission has simultaneously awarded the chapter both "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 2012 2013 2014 2015 2016 2018 2019 2020 2021 2022 2023 2024 2025
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 in bold indicate completed chapters.

† indicates chapters in which the European Commission describes it as BETWEEN "Moderately prepared" AND "Good level of preparation".

†† indicates chapters in which the European Commission describes it as BETWEEN "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
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 – –
31. Foreign, Security & Defence Policy Screening Report in Council
34. Institutions – – –
35. Other Issues: Relations with Kosovo* Opened Opened –

Main political issues

Obstacles for accession include the requirement to recognize statehood for Kosovo, foreign policy alignment with Russia, democratic backsliding, and domestic policies such as rule of law and media freedom.

Kosovo

The biggest obstacle to Serbia's accession to the EU is its strained relationship with Kosovo, which escalated after the 2008 Kosovo declaration of independence. 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.

In 2013, the governments of Kosovo and Serbia completed the Brussels Agreement, which was hailed as a major step towards normalising relations and enabled the start of EU accession talks with Serbia. Later that year, Kosovo's Minister of Foreign Affairs Enver Hoxhaj suggested that the EU should approve the accession of Kosovo and Serbia simultaneously due to concerns that if Serbia was admitted first they could veto Kosovo's membership. 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."

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...the normalisation of relations with Kosovo", further evidencing an expectation that the country address the issue as part of accession negotiations.

Alignment with the EU's foreign policy

Serbia refused to join international sanctions against Russia following its 2022 invasion of Ukraine. In response, the European Parliament passed a resolution that stated in part it "strongly regrets Serbia’s non-alignment with EU sanctions against Russia, which damages its EU accession process".

Democratic backsliding

Electoral Issues

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.

Parliamentary Challenges

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.

EU Integration

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.

Governance

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.

Civil Society

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.

Security Oversight

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.

Impact and Legacy

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.

Public opinion on EU membership

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 with Russia and China which are seen as reliable allies. Serbia’s EU membership has experienced growing skepticism stemming from slow accession negotiations progress, and the Kosovo dispute.

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.

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.

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.

Data by the Serbian Ministry of European Integration
Date Question Yes No Undecided
2002 Join EU? 68% 13% 19%
2003 Join EU? 72% 8% 20%
2004 Join EU? 71% 12% 17%
2005 Join EU? 64% 12% 24%
2006 Join EU? 70% 12% 18%
2007 Join EU? 69% 15% 15%
2008 Join EU? 61% 13% 26%
2009 Join EU? 65% 14% 21%
2010 Join EU? 57% 18% 25%
2011 Join EU? 51% 28% 21%
2012 Join EU? 41% 31% 27%
2013 Join EU? 51% 22% 27%
2014 Join EU? 44% 25% 31%
2015 Join EU? 48% 28% 24%
2016 Join EU? 47% 29% 24%
2017 Join EU? 52% 24% 24%
2018 Join EU? 55% 25% 20%
2019 Join EU? 54% 24% 22%
2022 Join EU? 43% 32% 25%
Data by polling agencies
Date Agency Question Yes No Undecided
2008 Strategic Marketing How would you vote on a referendum on joining EU? 61% – –
2010 Gallup Balkan Monitor Do you support accession of Serbia to EU? 63% – –
2011 NSPM Do you support accession of Serbia to EU? 49.7% 37.6% 12.7%
2012 B92/Ipsos Strategic Marketing How would you vote on a referendum on joining EU? 49% 34% 5%
2013 Ipsos Strategic Marketing Do you support accession of Serbia to EU? 53% – –
2014 Eurobarometer Do you support the enlargement of EU? 58% 26% 16%
2015 NSPM Do you support accession of Serbia to EU? 46.8% 31.5% 11.7%
2016 NSPM Do you support accession of Serbia to EU? 44.5% 43.0% 12.5%
2017 NSPM Do you support accession of Serbia to EU? 51.2% 36.3% 12.5%
2018 NSPM Do you support accession of Serbia to EU? 46.5% 38.7% 14.8%
2019 NSPM Do you support accession of Serbia to EU? 47.1% 34.9% 18.0%
2021 NSPM Do you support accession of Serbia to EU? 42.7% 38.9% 18.4%
2022 Ipsos How would you vote on a referendum on joining EU? 35% 44% 21%
2023 Smart Plus How would you vote on a referendum on joining EU? 44% 30% 15%
2024 NSPM Do you support accession of Serbia to EU? 42.8% 36.8% 20.4%
2025 NSPM How would you vote on a referendum on joining EU? 41.1% 39.8% 19.1%

Bilateral relations with EU member states

  • Austria
  • Belgium
  • Bulgaria
  • Croatia
  • Cyprus
  • Czech Republic
  • Denmark
  • Estonia
  • Finland
  • France
  • Germany
  • Greece
  • Hungary
  • Ireland
  • Italy
  • Latvia
  • Lithuania
  • Luxembourg
  • Malta
  • Netherlands
  • Poland
  • Portugal
  • Romania
  • Slovakia
  • Slovenia
  • Spain
  • Sweden

See also

wikipedia, wiki, encyclopedia, book, library, article, read, free download, Information about Accession of Serbia to the European Union, What is Accession of Serbia to the European Union? What does Accession of Serbia to the European Union mean?

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