The European Commission’s effort to jump-start Serbia’s European Union accession process by opening Cluster 3 is unlikely to gain the necessary support from member states, as several countries remain sceptical about the move, and the Netherlands stands ready to issue a veto, five diplomats and officials told Politico.
The disagreement reflects a broader debate over the purpose of EU enlargement. According to two officials, the European Commission increasingly characterises enlargement as a geopolitical tool designed to encourage countries in the bloc’s neighbourhood to pursue closer ties with Europe and steer clear of rival powers.
However, some member states fear that membership candidates could be rewarded before making sufficient progress on democratic and judicial reforms.
Opening the third cluster would launch negotiations on aligning Serbian regulations regarding cross-border services with the EU single market, including the recognition of professional qualifications and measures to facilitate cross-border business. The European Commission recommended opening the cluster a long time ago, but the decision requires the unanimous consent of all 27 member states, and Serbia’s progress has stalled due to concerns over its human rights record.
The Netherlands will continue to oppose the prospect of enlargement to Serbia, and diplomats from two other EU member states stated that the push to open a new cluster is unlikely to resume anytime soon.
Advancing the membership bid of a country that maintains close ties with Russia, one diplomat remarked, would send the wrong message at a time when Ukraine and Moldova have not yet opened all of their negotiating clusters.
The decision to treat enlargement as a “geopolitical tool” to keep Serbia on the European path works only “until it actually joins, and then it becomes a headache of geopolitical proportions,” said one diplomat who criticised the plan.
In an internal document circulated among ambassadors ahead of Wednesday’s meeting, which was seen by Politico, the Commission stated that “Serbia has recently implemented significant commitments” and highlighted that it had “rectified the regression that occurred” when controversial laws were passed in January.
Yet, just a few weeks earlier, in a confidential report on Serbia obtained by Politico, the Commission reported significant concerns regarding human rights, warning that “pressure on civil society organisations and journalists has intensified, including smearing campaigns against individuals and organisations advocating for the rule of law and the fight against corruption.”
The analysis at the time showed that “no progress had been made in a series of high-level corruption cases,” including the investigations into the collapse of the railway station canopy in Novi Sad, which killed 16 people and sparked nationwide protests.
Without a decision to open the cluster, the Commission will turn to alternative ways to reward Belgrade for its legislative changes, two officials said.
They note that a list of options is currently being compiled, but emphasise that it is unlikely to be presented before the elections expected in the coming months.
(Danas, 07.07.2026)
https://www.danas.rs/vesti/politika/diplomate-politiko-srbija-klaster-3/