Serbia has failed to achieve key progress in the areas of the rule of law, the fight against corruption, and media freedom, which continue to represent the main obstacles to further advancement in negotiations for membership of the European Union (EU).
This is stated in the latest document issued by the European Commission, which assesses Serbia’s progress in Chapters 23 and 24.
The document is prepared in the period between the two annual progress reports published by the European Commission each autumn.
The European Union expresses serious concern over increased political pressure on the judiciary, the lack of results in prosecuting high-level corruption, the growing number of attacks on journalists, and the deterioration of the electoral environment.
The document notes that the reporting period was marked by student protests and demands for government accountability, while at the same time violent incidents, pressure on civil society and the media, and limited progress in implementing reforms essential to Serbia’s continued path towards EU integration were recorded. This is one of the most important documents for any country seeking progress in the European integration process, as it constitutes a key element of accession negotiations.
Radio Free Europe (RFE/RL) obtained access to the document, which was discussed earlier this week among diplomats from EU member states.
Reporting period marked by domestic tensions
According to the document, the domestic situation was characterised by heightened tensions. It states that freedom of assembly was generally respected and protests were permitted, but the safety of participants was not always guaranteed, with several violent incidents directed against demonstrators and journalists being recorded. It highlights that only some perpetrators have been prosecuted so far.
“As regards allegations of excessive use of force by the police during protests, proceedings are still ongoing and no convictions have yet been handed down against the police officers charged. Pressure on civil society organisations and journalists has intensified, including smear campaigns targeting individuals and organisations advocating the rule of law and anti-corruption efforts,” the document states.
It adds that observers of the local elections held in March this year witnessed violence in all but one of the municipalities they visited. Among other issues, they recorded a range of irregularities, deteriorating campaign conditions, allegations of voter intimidation, vote-buying, and the misuse of administrative resources and public office for campaign purposes. Further blurring of the distinction between the state, local authorities, and the ruling party, as well as ongoing problems within the media environment, were also noted.
Referring to reports by international observers, the document positively assesses measures taken to improve the integrity of the electoral register.
Negative impact of the so-called Mrdić Laws
The European Commission’s non-paper on the rule of law in Serbia concludes that excessive pressure on the judiciary and prosecution service has “significantly increased”, causing serious concern.
A dedicated section of the document focuses on judicial laws adopted in January this year, which it says were passed under an urgent procedure without a transparent and inclusive consultation process.
Experts involved in drafting the report assess that these amendments negatively affect the functioning of the Prosecutor’s Office for Organised Crime (POOC), weaken prosecutorial autonomy, and constitute unnecessary interference in the handling of serious and organised crime cases. “Furthermore, as previously stated, the withdrawal of police investigators from the operational groups established within the POOC, which were set up as an investigative mechanism under Article 11 of the Law on the Organisation and Competence of State Authorities in Combating Organised Crime, Terrorism and Corruption, hampers ongoing investigations and reduces the effectiveness of investigations conducted by the POOC,” the document states.
The report concludes that Serbia should, without delay, implement the recommendations of the Venice Commission by repealing or substantially amending the provisions adopted in January 2026.
It also notes that certain provisions of the adopted amendments run counter to the objective of earlier constitutional reforms carried out within Serbia’s EU accession process, namely strengthening judicial independence and prosecutorial autonomy.
Significant increase in political pressure on the judiciary
The report on Chapters 23 and 24 concludes that political pressure on the judiciary and prosecution service has intensified considerably, including pressure linked to criminal proceedings of high public interest. According to the document, the competent institutions have taken only limited action to investigate such cases of interference and establish accountability.
It highlights that officials in Belgrade, including representatives of the highest state institutions and members of parliament, have continued to make inappropriate public comments about ongoing investigations and court proceedings, including the work of individual prosecutors and judges.
The report specifies that these comments included criticism of judicial decisions as well as threats to dismiss judges and prosecutors. It notes that associations of judges and prosecutors have in some instances defended their colleagues, while the High Judicial Council and the High Prosecutorial Council have largely remained passive and failed fully to perform their role in responding to cases of improper influence, despite this being provided for in their rules of procedure.
“Neither the National Assembly nor the Government has so far reacted in cases involving inappropriate public comments by their members, despite the apparent inconsistency of such comments with their respective codes of conduct,” the document states.
No progress in major corruption cases
The document concludes that no progress has been achieved in a number of large-scale corruption cases. In this context, it notes that investigations into possible corruption launched following the collapse of the railway station canopy in Novi Sad have not yet been completed.
It adds that the Prosecutor’s Office for Organised Crime reported insufficient cooperation from the police regarding the submission of complete evidentiary documentation and that cooperation between the prosecution service and the police has deteriorated in recent months.
According to the report, the POOC continues to face operational obstacles and attempts at improper influence, which intensified further during the reporting period.
The document also mentions the case of two prosecutors whose mandates were not renewed, despite their work on two cases of major public interest: the Novi Sad canopy collapse and the seizure of five tonnes of marijuana in Konjuh. According to the report, this has negatively affected ongoing investigations and judicial proceedings involving high-level corruption and organised crime.
The report assesses that the Law on the Prevention of Corruption is generally well designed, but significant shortcomings remain, particularly regarding the monitoring and verification of asset declarations. It also points out that the law does not apply to all senior public officials who are particularly exposed to corruption risks.
It notes that no further measures have been taken following amendments to the Public Procurement Law in sectors at high risk of corruption.
“Many contracts are awarded outside the framework of standard public procurement legislation through special laws designed for individual projects and intergovernmental agreements used for major infrastructure projects, with provisions enabling certain participants to enjoy privileged access to tender procedures,” the document states.
It adds that such practice is not in line with the EU acquis. “The risk of corruption arising from the circumvention of public procurement procedures therefore remains high,” the report emphasises.
The document also notes that the Government has not implemented the European Commission’s long-standing recommendation to establish a constructive relationship with the Anti-Corruption Council, which serves as its advisory body. The Council is reportedly not consulted on draft legislation, while its recommendations are not being implemented.
Increase in attacks on journalists
The European Commission document monitoring Serbia’s progress in Chapters 23 and 24 concludes that the number of attacks on and instances of pressure against journalists has increased, while the authorities have not consistently condemned such incidents. This includes physical assaults, some of which occurred in the presence of police officers who failed to intervene.
It notes that only a small number of reported cases have resulted in final convictions. Cases of police force being used against journalists, preventing media workers from reporting on protests, and the short-term detention of journalists were also recorded.
Women journalists, the document states, are particularly exposed to threats and attacks, especially online.
“Repeated verbal attacks by senior officials against journalists have continued and have a chilling effect on freedom of expression,” the document emphasises.
The report also notes that the reporting period was marked by coordinated bot attacks on the social media accounts of independent media outlets and civil society organisations. It concludes that a documentary series broadcast on several television channels, including channels with national broadcasting licences, contributed to a smear campaign against several journalists, while the authorities failed publicly to condemn its airing.
It is further noted that members of the Council of the Regulatory Authority for Electronic Media (REM) have still not been appointed, leaving the audiovisual market without a functioning regulator, particularly in relation to responding to breaches of media legislation.
“Certain television channels have begun broadcasting without the necessary licences, including via the Telekom Srbija cable network. Public officials appeared on these channels while they simultaneously received public funding,” the document states.
The European Commission assesses that Serbia has not taken significant measures to combat foreign information manipulation and interference. In this context, it notes that RT Balkan, the Russian state media outlet sanctioned by the European Union, continues to broadcast in Serbian through Telekom Srbija, a majority state-owned cable operator, on the basis of a licence issued in 2024 by the previous composition of the REM Council.
No improvement in the prosecution of war crimes
The document concludes that no progress has been achieved in the area of war crimes prosecution. It states that Serbia should take additional steps to accelerate the processing of war crimes cases and address a backlog of more than 1,731 preliminary investigation files, which remains a serious cause for concern.
It notes that cooperation between the War Crimes Prosecutor’s Office and the Office of the Prosecutor of the International Residual Mechanism for Criminal Tribunals has continued. Cooperation with Bosnia and Herzegovina has also continued, whereas there is almost none with Croatia and Kosovo.
The document emphasises that Serbian courts have not awarded financial compensation to victims in any criminal war crimes proceedings. “The unresolved fate of persons missing from the conflicts of the 1990s remains one of the key issues to be addressed in the Western Balkans. Despite continued progress in identifying victims, 7,608 persons are still listed as missing as a consequence of the conflicts,” the rule of law report states.
(Radio Free Europe, 01.06.2026)
https://www.slobodnaevropa.org/a/srbija-izvestaj-evropska-komisija/33768374.html