Accession of Serbia to the European Union

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Accession of Serbia to the European Union
StatusCandidate negotiating (screening complete)
Earliest possible entry2029–2030
Application
European perspective21 June 2003
Potential candidate21 June 2003
Membership application22 December 2009
Candidate status1 March 2012
Screened & negotiations commence25 March 2015
Clusters open7
Chapters open26
Clusters closed0
0% complete
Chapters closed2†
5.7% 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
EU Free Trade Agreement1 September 2013
World Trade Organization (WTO)Undergoing accession process.[1]
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.[2]
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.[3]
International Court of Justice (ICJ)
Impact (27+1)
Population446,828,803455,052,321
Increase 1.5%
Area4,233,262 km2
1,634,472 mi2		4,310,736 km2
1,664,385 mi2
Increase 1.8%
(excluding Kosovo)
HDI0.8960.890
Decrease 0.67%
GDP (PPP)$25.399 trillion$25.572 trillion
Increase 0.68%
GDP per capita (PPP)$56,928$56,196
Decrease 1.29%
GDP$17.818 trillion$17.256 trillion
Increase 0.4%
GDP per capita$39,940$37,920
Decrease 5.3%
Gini30.030.1
Negative increase 0.39%
Official Languages2425 Serbian
Increase 1

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.[4][5][6]

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.[7]

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, but did not promise an immediate accession in 2026, 2027, or 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 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.[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 the European 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

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

In June 2026, EU officials had discussed proposals to open Cluster 3 (Competitiveness and inclusive growth) after the Serbian parliament rolled back a series of controversial judicial reforms.[15]

Clusters of negotiating chapters[16]
ClustersAcquis ChapterState of PlayCluster Opened Cluster Closed
OverviewOverview22 out of 342 out of 6 0 out of 6
Fundamentals 23. Judiciary & Fundamental RightsOpenedOpened –
24. Justice, Freedom & SecurityOpened
Economic criteria –
Functioning of democratic institutions –
Public administration reform –
5. Public ProcurementOpened
18. StatisticsOpened
32. Financial ControlOpened
Internal Market 1. Free Movement of GoodsSerbia working on fulfilment of opening benchmarks– –
2. Freedom of Movement For WorkersDraft EU Common Position in Council
3. Right of Establishment & Freedom To Provide ServicesDraft EU Common Position in Council
4. Free Movement of CapitalOpened
6. Company LawOpened
7. Intellectual Property LawOpened
8. Competition PolicySerbia working on fulfillment of opening benchmarks
9. Financial ServicesOpened
28. Consumer & Health ProtectionDraft EU Common Position in Council
Competitiveness

and inclusive growth

 10. Information Society & MediaDraft EU Common Position in Council– –
16. TaxationDraft EU Common Position in Council
17. Economic & Monetary PolicyOpened
19. Social Policy & EmploymentDraft EU Common Position in Council
20. Enterprise & Industrial PolicyOpened
25. Science & ResearchClosed
26. Education & CultureClosed
29. Customs UnionOpened
Green agenda

and sustainable connectivity

 14. Transport PolicyOpenedOpened –
15. EnergyOpened
21. Trans-European NetworksOpened
27. EnvironmentOpened
Resources, agriculture

and cohesion

 11. Agriculture & Rural DevelopmentOpening Benchmarks Assessment Report in Council– –
12. Food Safety, Veterinary & Phytosanitary PolicySerbia working on fulfilment of opening benchmarks
13. FisheriesOpened
22. Regional Policy & Coordination of Structural InstrumentsOpening Benchmarks Assessment Report in Council
33. Financial & Budgetary ProvisionsOpened
External relations 30. External RelationsOpened– –
31. Foreign, Security & Defence PolicyScreening Report in Council
34. Institutions–––
35. Other Issues: Relations with Kosovo*OpenedOpened –
Screening and Chapter Dates
Progression34 / 34
100% complete
34 / 34
100% complete
22 / 34
64.7% complete
2 / 34
5.9% complete
Acquis Chapter[17]Screening StartedScreening CompletedChapter OpenedChapter Closed
Overview34 out of 3434 out of 3422 out of 342 out of 34
1. Free Movement of Goods2014-06-172014-09-12––
2. Freedom of Movement For Workers2014-01-232014-03-25––
3. Right of Establishment & Freedom To Provide Services2014-01-302014-03-13–
4. Free Movement of Capital2014-10-132014-12-152019-12-10–
5. Public Procurement2014-03-212014-05-132016-12-13–
6. Company Law2014-12-112015-02-052017-12-11–
7. Intellectual Property Law2014-09-242014-11-132017-06-20–
8. Competition Policy2014-03-312014-11-05––
9. Financial Services2015-01-212015-03-172019-06-27–
10. Information Society & Media2014-05-222014-07-02––
11. Agriculture & Rural Development2014-03-182014-09-16––
12. Food Safety, Veterinary & Phytosanitary Policy2014-02-032014-10-24––
13. Fisheries2014-09-302014-11-142018-06-25–
14. Transport Policy2014-12-162015-02-272021-12-14–
15. Energy2014-04-292014-06-122021-12-14–
16. Taxation2014-10-142015-03-06––
17. Economic & Monetary Policy2014-12-022015-03-122018-12-10–
18. Statistics2014-05-202014-11-262018-12-10–
19. Social Policy & Employment2014-02-102014-06-26––
20. Enterprise & Industrial Policy2014-04-032014-07-022017-02-27–
21. Trans-European Networks2014-04-292015-02-272021-12-14–
22. Regional Policy & Coordination of Structural Instruments2014-10-012015-01-29––
23. Judiciary & Fundamental Rights2013-09-252013-12-102016-07-18–
24. Justice, Freedom & Security2013-10-022013-12-132016-07-18–
25. Science & Research2014-10-062014-12-012016-12-132016-12-13
26. Education & Culture2014-02-202014-04-042017-02-272017-02-27
27. Environment2014-09-152014-11-212021-12-14–
28. Consumer & Health Protection2014-12-042015-02-04––
29. Customs Union2014-03-262014-06-042017-06-20–
30. External Relations2014-07-022014-10-092017-12-11–
31. Foreign, Security & Defence Policy2014-07-152014-10-10––
32. Financial Control2013-10-172013-11-262015-12-14–
33. Financial & Budgetary Provisions2015-01-272015-03-242018-06-25–
34. Institutions––––
35. Other Issues: Relations with Kosovo*2014-01-222015-03-252015-12-14–
Progression34 / 34
100% complete
34 / 34
100% complete
22 / 34
64.7% complete
2 / 34
5.9% complete
November 2025 European Commission Report[18]
Acquis chapterStatus as of Nov 2025Chapter Status as of July 2026
Overview4 chapters with some level of preparation,
1 chapter with some/moderate preparation,
17 chapters with a moderate level of preparation,
5 chapters with a moderate/good level of preparation,
6 chapters with a good level of preparation		12 unopened chapters,
20 open chapters,
2 closed chapters
1. Free Movement of Goods Moderately prepared Chapter unopened
2. Freedom of Movement For Workers Moderately prepared Chapter unopened
3. Right of Establishment & Freedom To Provide Services Moderately prepared Chapter unopened
4. Free Movement of Capital Moderate / Good Chapter open
5. Public Procurement Moderately prepared Chapter open
6. Company Law Good level of preparation Chapter open
7. Intellectual Property Law Good level of preparation Chapter open
8. Competition Policy Moderately prepared Chapter unopened
9. Financial Services Moderately prepared Chapter open
10. Information Society & Media Moderately prepared Chapter unopened
11. Agriculture & Rural Development Some level of preparation Chapter unopened
12. Food Safety, Veterinary & Phytosanitary Policy Moderately prepared Chapter unopened
13. Fisheries Moderately prepared Chapter open
14. Transport Policy Good level of preparation Chapter open
15. Energy Moderately prepared Chapter open
16. Taxation Moderate / Good Chapter unopened
17. Economic & Monetary Policy Moderate / Good Chapter open
18. Statistics Moderate / Good Chapter open
19. Social Policy & Employment Moderately prepared Chapter unopened
20. Enterprise & Industrial Policy Moderately prepared Chapter open
21. Trans-European Networks Moderate / Good Chapter open
22. Regional Policy & Coordination of Structural Instruments Moderately prepared Chapter unopened
23. Judiciary & Fundamental Rights Some level of preparation Chapter open
24. Justice, Freedom & Security Some / Moderate Chapter open
25. Science & Research Good level of preparation Chapter closed
26. Education & Culture Good level of preparation Chapter closed
27. Environment & Climate Change Some level of preparation Chapter open
28. Consumer & Health Protection Moderately prepared Chapter unopened
29. Customs Union Good level of preparation Chapter open
30. External Relations Moderately prepared Chapter open
31. Foreign, Security & Defence Policy Moderately prepared Chapter unopened
32. Financial Control Moderately prepared Chapter open
33. Financial & Budgetary Provisions Some level of preparation Chapter open
34. Institutions Nothing to adopt Nothing to adopt
35. Other Issues - Normalisation with Kosovo No assessment scale Chapter open
Legend:
  Well advanced
  Good / Well advanced
  Good level of preparation
  Moderate / Good
  Moderately prepared
  Some / Moderate
  Some level of preparation
  Early stage / Some
  Early stage
Report history
ClustersAcquis Chapter November 2010[19] October 2012[20] October 2013[21] October 2014[22] November 2015[23] November 2016[24] April 2018[25] May 2019[26] November 2020[27] October 2021[28] October 2022[29] November 2023[30] October 2024[31] November 2025[18]
1. Fundamentals Public administration reform ----Moderately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
23. Judiciary & Fundamental RightsConsiderable efforts neededSome level of preparationFurther efforts neededFurther efforts neededSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparation
24. Justice, Freedom & SecurityConsiderable efforts neededFurther efforts neededFurther efforts neededFurther efforts neededSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome / ModerateSome / Moderate
Economic criteria ----Moderately preparedModerately preparedModerately preparedModerately preparedModerate / GoodModerate / GoodModerate / GoodGood level of preparationGood level of preparationGood level of preparation
5. Public ProcurementConsiderable efforts neededConsiderable efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
18. StatisticsFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerate / GoodModerate / Good
32. Financial ControlEarly stageEarly stageConsiderable efforts neededConsiderable efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
2. Internal Market 1. Free Movement of GoodsFurther efforts neededFurther efforts neededModerately preparedFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
2. Freedom of Movement For WorkersFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
3. Right of Establishment & Freedom To Provide ServicesFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
4. Free Movement of CapitalFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerate / Good
6. Company LawFurther efforts neededFurther efforts neededModerately preparedModerately preparedGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
7. Intellectual Property LawFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
8. Competition PolicyFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedGood level of preparationModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
9. Financial ServicesConsiderable efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
28. Consumer & Health ProtectionFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
3. Competitiveness
and inclusive growth		 10. Information Society & MediaFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
16. TaxationFurther efforts neededConsiderable efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerate / GoodModerate / Good
17. Economic & Monetary PolicyFurther efforts neededConsiderable efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerate / GoodModerate / GoodModerate / Good
19. Social Policy & EmploymentSome level of preparationSome level of preparationFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
20. Enterprise & Industrial PolicySome level of preparationModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
25. Science & ResearchFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
26. Education & CultureFurther efforts neededFurther efforts neededFurther efforts neededSome level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
29. Customs UnionFurther efforts neededFurther efforts neededModerately preparedFurther efforts neededModerately preparedGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
4. Green agenda
and sustainable connectivity		 14. Transport PolicySome level of preparationFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparationGood level of preparation
15. EnergyFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
21. Trans-European NetworksConsiderable efforts neededConsiderable efforts neededConsiderable efforts neededSome level of preparationModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerate / GoodModerate / Good
27. EnvironmentEarly stageConsiderable efforts neededConsiderable efforts neededSome level of preparationEarly stageSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparation
5. Resources, agriculture
and cohesion		 11. Agriculture & Rural DevelopmentEarly stageEarly stageConsiderable efforts neededConsiderable efforts neededEarly stageSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparation
12. Food Safety, Veterinary & Phytosanitary PolicyFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
13. FisheriesFurther efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
22. Regional Policy & Coordination of Structural InstrumentsConsiderable efforts neededFurther efforts neededFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
33. Financial & Budgetary ProvisionsEarly stageEarly stageEarly stageEarly stageEarly stageEarly stageEarly stageSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparationSome level of preparation
6. External relations 30. External RelationsSome level of preparationSome level of preparationFurther efforts neededFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
31. Foreign, Security & Defence PolicyFurther efforts neededModerately preparedModerately preparedFurther efforts neededModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately preparedModerately prepared
34. InstitutionsN/AN/AN/AN/AN/AN/AN/AN/AN/AN/AN/AN/AN/AN/A
35. Other Issues - Normalisation with KosovoNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scaleNo assessment scale
Legend:
  Well advanced
  Good / Well advanced
  Good level of preparation
  Moderate / Good
  Moderately prepared
  Some / Moderate
  Some level of preparation
  Early stage / Some
  Early stage

Legacy evaluations:

  Further efforts needed
  Considerable efforts needed

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.[32][5][33]

Democratic backsliding

Serbia’s EU accession is hindered by democratic backsliding, including weakened rule of law, media restrictions, and an “illiberal” concentration of power under Aleksandar Vučić, alongside government responses to protests that have raised concerns in Brussels. Progress is further slowed by Serbia’s limited alignment with EU foreign policy—particularly its ties with Russia and China and refusal to join sanctions—as well as the unresolved normalization dispute with Kosovo. Combined with slow adoption of EU legislation and stalled negotiations, these factors have effectively put Serbia’s accession process on hold.[34]

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.[18]

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.[18]

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.[18]

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.[18]

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.[18]

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.[18]

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.[18]

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.[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.[35]

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.[36] 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.[37] 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."[38]

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.[13][14]

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".[39]

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.[40]

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.[41]

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.[42]

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 membership would bring more advantages than disadvantages.[43]

Data by the Serbian Ministry of European Integration
DateQuestionYesNoUndecided
2002[44] Join EU? 68% 13% 19%
2003[44] Join EU? 72% 8% 20%
2004[44] Join EU? 71% 12% 17%
2005[44] Join EU? 64% 12% 24%
2006[44] Join EU? 70% 12% 18%
2007[45] Join EU? 69% 15% 15%
2008[46] Join EU? 61% 13% 26%
2009[47] Join EU? 65% 14% 21%
2010[48]Join EU? 57% 18% 25%
2011[49] Join EU? 51% 28% 21%
2012[50] Join EU? 41% 31% 27%
2013[51] Join EU? 51% 22% 27%
2014[52] Join EU? 44% 25% 31%
2015[53] Join EU? 48% 28% 24%
2016[54] Join EU? 47% 29% 24%
2017[55] Join EU? 52% 24% 24%
2018[56] Join EU? 55% 25% 20%
2019[57] Join EU? 54% 24% 22%
2022[58] Join EU? 43% 32% 25%
DateAgencyQuestionYesNoUndecided
2008[59] Strategic Marketing How would you vote on a referendum on joining EU? 61% – –
2010[60] Gallup Balkan Monitor Do you support accession of Serbia to EU? 63% – –
2011[61] NSPM Do you support accession of Serbia to EU? 49.7% 37.6% 12.7%
2012[62] B92/Ipsos Strategic Marketing How would you vote on a referendum on joining EU? 49% 34% 5%
2013[63] Ipsos Strategic Marketing Do you support accession of Serbia to EU? 53% – –
2014[64] Eurobarometer Do you support the enlargement of EU? 58% 26% 16%
2015[65] NSPM Do you support accession of Serbia to EU? 46.8% 31.5% 11.7%
2016[66] NSPM Do you support accession of Serbia to EU? 44.5% 43.0% 12.5%
2017[67] NSPM Do you support accession of Serbia to EU? 51.2% 36.3% 12.5%
2018[68] NSPM Do you support accession of Serbia to EU? 46.5% 38.7% 14.8%
2019[69] NSPM Do you support accession of Serbia to EU? 47.1% 34.9% 18.0%
2021[70] NSPM Do you support accession of Serbia to EU? 42.7% 38.9% 18.4%
2022[71] Ipsos How would you vote on a referendum on joining EU? 35% 44% 21%
2023[72] Smart Plus How would you vote on a referendum on joining EU? 44% 30% 15%
2023[73] Demostat How would you vote on a referendum on joining EU? 39.76% 39.76% 20.48%
2024[74] NSPM Do you support accession of Serbia to EU? 42.8% 36.8% 20.4%
2025[75] NSPM How would you vote on a referendum on joining EU? 41.1% 39.8% 19.1%
2026[76] Ninamedia How would you vote on a referendum on joining EU? 45% 32% 23%
2026[77] NSPM How would you vote on a referendum on joining EU? 47.1% 42.9% 10%

Bilateral relations with EU member states

See also

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Further reading

  • Radojičić, Mirjana S. (2015). "Evropska unija i Kosovsko pitanje – međunarodno-etička perspektiva". Zbornik Radova Filozofskog Fakulteta u Prištini. 45 (1): 167–184. doi:10.5937/zrffp45-7157.
  • Samardžić, Slobodan (2009). Samardžić, Slobodan (ed.). "The Kosovo-Metohija problem from the European integrations angle". Serbia in the European Union Association Process, Službeni Glasnik: 193–238.
  • Jovanović Nadica; Gardašević Jovana; Vapa-Tankosić Jelena (2015). "Strategija procesa proširenja Evropske unije i društveno-ekonomski efekti integracije Republike Srbije". Poslovna Ekonomija. 9 (2): 191–212.
  • Gajić, Tamara (2015). "Ulazak Srbije u EU, civilno društvo i politička kultura". Politikon. 10: 119–131.