Serbia: Current Issues and U.S. Policy

Steven Woehrel
Specialist in European Affairs

Serbia faces an important crossroads in its development. It is seeking to integrate into the European Union (EU), but its progress has been hindered by tensions with the United States and many EU countries over the independence of Serbia’s former Kosovo province.

Serbia’s government is a coalition led by pro-EU forces. The global economic crisis poses serious challenges for Serbia. Painful austerity measures have been required for Serbia to receive loans from the IMF and other international financial institutions. High unemployment and poor living standards could result in the coming to power of forces more skeptical of close ties with the United States and the EU after parliamentary elections are held in May 2012.

Serbia’s key foreign policy objectives are to secure membership in the European Union and to hinder international recognition of Kosovo’s independence. In December 2009, Serbia submitted an application to join the EU, but the EU has delayed a decision on whether to accept Serbia as a membership candidate. The EU may accept Serbia in March 2012, if it judges Belgrade has made sufficient progress in reaching agreements with Kosovo on a series of issues, and in implementing them. However, even if Serbia is accepted as a candidate, many years of negotiations will be required before it can join the EU.

Serbia has vowed to take “all legal and diplomatic measures” to preserve its former province of Kosovo as legally part of Serbia. So far, 76 countries, including the United States and 22 of 27 EU countries, have recognized Kosovo’s independence. Russia, Serbia’s ally on the issue, has used the threat of its Security Council veto to block U.N. membership for Kosovo. After the International Court of Justice ruled in July 2010 that Kosovo’s declaration of independence did not contravene international law, the EU pressured Serbia to hold talks with Kosovo. EUbrokered talks on trade, freedom of movement and other issues began in March 2011.

In December 2006, Serbia joined NATO’s Partnership for Peace (PFP) program. PFP is aimed at helping countries come closer to NATO standards and at promoting their cooperation with NATO. Although it supports NATO membership for its neighbors, Serbia is not seeking NATO membership. This may be due to such factors as memories of NATO’s bombing of Serbia in 1999, U.S. support for Kosovo’s independence, and a desire to maintain close ties with Russia.

U.S.-Serbian relations have improved since the United States recognized Kosovo’s independence in February 2008, when Serbia sharply condemned the U.S. move and demonstrators sacked a portion of the U.S. Embassy in Belgrade. During a 2009 visit to Belgrade, Vice President Joseph Biden stressed strong U.S. support for close ties with Serbia. He said the countries could “agree to disagree” on Kosovo’s independence. He called on Serbia to transfer the remaining war criminals to the ICTY, promote reform in neighboring Bosnia, and cooperate with international bodies in Kosovo. The United States has strongly supported the EU-led talks between Kosovo and Serbia, while making clear that it plays no direct role in them.


Date of Report: February 15, 2012
Number of Pages: 13
Order Number: RS22601
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