The European Commission is intensifying its efforts to persuade EU member states to advance Serbia's membership negotiations by opening Cluster 3, covering competitiveness and inclusive growth. In an information note circulated ahead of Wednesday's meeting of EU ambassadors, the Commission argues that Belgrade has addressed key concerns through reforms to the judiciary, electoral legislation, and media regulation, as well as increased cooperation with the bloc's foreign and security policy.
Cluster 3 has been blocked since the Commission first proposed its opening in 2021, due to persistent worries over the rule of law, media freedom, Serbia's foreign policy alignment, and the normalisation of relations with Kosovo. The new push comes as the Commission seeks to maintain momentum in the enlargement process, which has gained renewed attention following Russia's invasion of Ukraine.
Reforms and Remaining Gaps
According to the document, dated 3 July and seen by European Pulse, Serbia has implemented substantial elements of the commitments it made to address member states' concerns. These include repealing controversial amendments to judicial laws, which had been criticised for undermining judicial independence. The Commission also notes progress on media freedom, with the appointment of minority representatives to the Council of the Regulatory Authority for Electronic Media, and amendments to four election-related laws.
On foreign policy, while Serbia has not aligned with EU sanctions against Russia over the full-scale invasion of Ukraine, the Commission acknowledges that Belgrade has cooperated with the bloc to counter sanctions circumvention, provided substantial support to Ukraine, and intensified high-level political contacts with Kyiv. This nuanced stance reflects Serbia's balancing act between its EU aspirations and historical ties with Moscow and Beijing.
However, the Commission admits that "further work is still required" on judicial reform and the prosecutorial system. The document states that Serbia has "remedied the backsliding" identified earlier this year and taken steps to strengthen the Prosecutor's Office for Organised Crime, but acknowledges that deeper structural changes are needed.
The assessment comes after Serbian President Aleksandar Vučić defended his country's ties with China during an official visit to Beijing in May, highlighting the geopolitical complexities that continue to shadow Belgrade's EU path.
Member State Skepticism
Despite the Commission's positive assessment, unanimous backing from all 27 member states is required to open a new accession cluster, and several EU capitals remain unconvinced. Concerns persist over democratic backsliding, judicial independence, and the broader rule of law in Serbia. The Commission's push is likely to face opposition from countries such as the Netherlands, which have historically been strict on enlargement conditionality, and from those wary of rewarding Belgrade without clearer progress on normalising relations with Pristina.
The debate over Cluster 3 is part of a wider discussion on EU enlargement reform, with the Commission seeking to regain control of the process as member states drive the agenda. For more on this dynamic, see our analysis on EU Enlargement Reform: Brussels Seeks to Regain Control as Member States Drive Debate.
Serbia's former Prime Minister Ana Brnabić recently stated that "we are not little Russians," as Belgrade continues to balance its EU ambitions with its relationship with Ukraine. Read more in Serbia's Ex-PM Brnabić: 'We Are Not Little Russians' as Belgrade Balances EU and Ukraine Ties.
The Commission's note also highlights that Serbia's work is far from complete, and the opening of Cluster 3 would be a conditional step, subject to continued progress. The ball now lies in the court of member states, who must decide whether the reforms are sufficient to justify advancing the accession process.
