Serbia’s EU Accession Stalls as EU Members Disagree on Cluster 3

Serbian President Aleksandar Vucic told a Belgrade conference of EU-candidate parliament speakers that “We … should not expect miracles or major EU enlargements in the coming years.” His comment coincided with the Commission’s request that EU ambassadors approve an accession “Cluster 3” for Serbia, covering services. The proposal, needing unanimity, faces a likely veto from the Netherlands and other member states.

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Serbia has been an EU candidate since 2012, part of the Western Balkans group. Montenegro targets 2028 accession; Albania has accelerated its bid, while Serbia and the others lag. The Commission’s Cluster 3 would be Serbia’s third negotiation phase. The Netherlands alone can block the decision, and other capitals share its view. Belgrade has enacted nearly two dozen reforms to meet EU standards, and 2025 trade with Ukraine totalled about $442 million.

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Vucic reiterated that the European path remains Serbia’s preferred route and urged reforms despite no near-term enlargement. The Commission’s internal briefing said Serbia has remedied earlier backsliding and merits progress. The Netherlands warned that extending a new cluster to a country with close Russian ties would send the wrong signal while Ukraine and Moldova have yet to finish their own negotiating phases.

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Netherlands officials argue that rewarding Serbia before it meets democratic and judicial benchmarks undermines accession credibility. A senior EU diplomat warned that using enlargement as a ‘geopolitical tool’ works only until candidates join, after which it becomes a “headache of geopolitical magnitude.” Human-rights NGOs cite a confidential Commission report describing intensified pressure on civil-society groups and journalists, including smear campaigns against rule-of-law advocates.

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The Commission’s public briefing praises Serbia’s recent reforms, yet a separate confidential report flags ongoing human-rights concerns and stalled large-scale corruption probes, such as the Novi Sad railway canopy collapse that killed 16. No consensus exists on whether the alleged backsliding has been fully addressed, and the timeline for a Cluster 3 decision remains unclear.

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• “We ... should not expect miracles or major EU enlargements in the coming years,” — Aleksandar Vucic, President of Serbia

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• “The opening of Cluster 3 in Serbia’s EU accession negotiations is long overdue,” — Nemanja Starovic, Serbian Minister for EU Integration

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• “We remain fully committed to pursuing further reforms and would be encouraged to see these efforts acknowledged through a merit-based decision,” — Marko Duric, Serbian Foreign Minister

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• “pressure on civil society organisations and journalists intensified, including smear campaigns against individuals and organisations advocating for the rule of law and the fight against corruption.” — Confidential European Commission report

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EU ambassadors will meet in Brussels to vote on the Cluster 3 proposal. Serbia’s parliamentary elections later in 2026, following President Vucic’s announced shift to a prime-ministerial candidacy, could reshape the reform agenda and influence the final decision.

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