EU ambassadors meeting in Brussels on Wednesday failed to secure the unanimous support needed to open the next phase of Serbia's accession negotiations, three EU diplomats confirmed. Eight of the 27 member states opposed opening Cluster 3, which covers competitiveness and inclusive growth, dealing a setback to Belgrade's EU ambitions.
The opposing states are the Netherlands, Sweden, Finland, Belgium, Estonia, Lithuania, Bulgaria, and Croatia. Denmark, Luxembourg, and Latvia remain unconvinced but less firmly opposed. France, a key power broker, supports moving ahead; President Emmanuel Macron has said the bloc needs a “strong and democratic Serbia” by its side.
Why the Opposition?
One EU diplomat, speaking on condition of anonymity, said the eight states' opposition centred on Serbia's “problematic” rule-of-law issues and its “non-alignment with sanctions” against Russia. Serbia has not joined EU sanctions imposed after Russia's full-scale invasion of Ukraine, though the European Commission noted that Belgrade has cooperated to counter sanctions circumvention, provided substantial support to Kyiv, and intensified high-level political contacts.
Another diplomat said several member states agreed with the Commission's positive assessment, arguing that Serbia “has met” or is “on track” to meet the criteria for Cluster 3. Supporters worry that blocking progress could further alienate the Western Balkans country and fail to reward its reform efforts.
Serbia formally applied for EU membership in 2009 and became a candidate in 2012. Twenty-two of the 35 negotiating chapters have been opened, with two provisionally closed. Unanimous support from all 27 member states is required to open or close any cluster.
Former Serbian Prime Minister Ana Brnabić has rejected claims that her country is pro-Russian, telling Euronews that Serbia has backed Ukraine since the invasion began and decrying what she called EU accession “double standards.”
The European Commission shared a document with member states on Monday explaining why it believes recent steps justify opening Cluster 3. The document, seen by Euronews, says Serbia has implemented substantial commitments, including repealing controversial judicial amendments, and made progress on media freedom, the electoral framework, and foreign-policy cooperation. However, it acknowledged that “further work is still required” on judicial reform and the prosecutorial system.
European Commissioner for Enlargement Marta Kos has been a vocal supporter. “In light of the recent, some positive developments, the Commission renewed its recommendation to the Council to open Cluster 3 in the accession negotiations with Serbia,” she said on Tuesday during a European Parliament debate in Strasbourg. “The Commission will also continue to incentivise further reform progress for the benefit of all Serbian citizens and the whole Serbian society.”
The deadlock highlights the broader challenge of EU enlargement, where member states increasingly drive the debate. For more on this dynamic, see EU Enlargement Reform: Brussels Seeks to Regain Control as Member States Drive Debate. The Commission has also drafted reforms to reclaim initiative from capitals, as reported in EU Commission Drafts Enlargement Reforms to Reclaim Initiative from Member States.
Serbia's path to EU membership remains uncertain. The Commission's positive endorsement has not swayed all capitals, and the eight opposing states show no sign of relenting. The next steps will depend on whether Belgrade can address rule-of-law concerns and align more closely with EU foreign policy, particularly on Russia sanctions.
