The EU-facilitated verbal deal to implement the ‘normalisation’ of relations between Serbia and Kosovo, reached in Ohrid, North Macedonia in 2023, continues to hang in the balance as the Kosovo-Serbia dialogue remains nearly paralysed.
Kosovo’s Prime Minister Albin Kurti and Serbia’s President Aleksandar Vucic have been rarely seen together since a roadmap to implement a deal on normalisation of relations was reached in Ohrid, North Macedonia in March 2023, while the geopolitical circumstances have significantly shifted within just two years.
This annex outlined the implementation of the Basic Agreement for the normalisation of relations reached one month earlier in Brussels.
In February 2023, Kurti and Vucic agreed to improve normal relations based on good neighbourliness, including mutual recognition of each other’s relevant documents and national symbols such as passports, diplomas, vehicle license plates, and customs seals.
Kosovo committed to fulfilling previous agreements, including the creation of the Association of Serb-majority Municipalities, while Serbia agreed not to oppose Kosovo’s accession to any international organisations.
In return, the European Union promised to organise a donors’ conference within 150 days, which would work toward creating an investment and financial assistance package for both Kosovo and Serbia.
However, the dialogue process has been largely stalled.
According to Alon Ben-Meir, a retired professor of International Relations, Kosovo, Serbia, and the European Union are responsible for the failure of the dialogue.
In an interview with KALLXO.com, Ben-Meir blamed the European Union for exerting more pressure on Kosovo than on Serbia when it came to implementing the agreements. He also pointed out that the EU has failed to use its considerable influence effectively in this process.
“It has not created a clear incentive for concessions that could have encouraged greater progress. By insisting that only through mutual recognition will there be progress in the integration of Serbia and Kosovo into the EU, and considering Serbia’s categorical rejection of Kosovo’s independence, [the EU] has hindered progress in the dialogue between them,” he claimed.
Ben Meir emphasised that all three parties share the responsibility to some extent.
“Serbia has been unwilling to take any step that could be seen or interpreted as a move from Belgrade toward recognising Kosovo. As a result, it has obstructed or failed to implement any of the provisions of the Ohrid Agreement. Kosovo, on the other hand, has prioritised recognition and has not made any significant concessions without clear reciprocity,” he added.
Moreover, he noted that Prishtina has categorically refused to implement the Association of Municipalities with Serb Majority which Belgrade considers the most critical provision in the Agreement.
“The mediators’ mistake was agreeing to a verbal rather than a signed agreement, which would have formally granted the status of the Agreement and exerted greater political pressure on both sides to implement it,” he said.
Peter Sorensen, the EU mediator for the Kosovo-Serbia dialogue, during a visit to Kosovo on March 17, 2025. Photo: BIRN/Antigone Isufi
Ben-Meir believes that U.S. President Donald Trump would not abandon Kosovo but would likely apply more pressure on Kosovo than on Serbia in efforts to ease the Kosovo-Serbia disputes.
“Whoever forms the new government in Kosovo must be prepared to face a U.S. president who is unconventional and unpredictable. They must be ready for any possibilities that could arise,” he warned.
Kosovo Government spokesperson Përparim Kryeziu told KALLXO.com that Kosovo has shown a constructive approach in the normalisation of relations with Serbia.
“On the other hand, Serbia has continued with a destructive approach in this process, lacking the will and readiness to cooperate. Their actions have revealed Serbia’s true intentions,” he said.
Kryeziu further added that the arrival of Peter Sorensen, the new EU envoy for the Kosovo Serbia dialogue is likely to put the process back on its proper course.
“We expect this process to get back on track and focus on the path forward toward the normalisation of relations, with increased accountability towards the blocking party. We have an agreement, the Basic Agreement, and the Ohrid Implementation Annex. These should be fully implemented by ensuring equality between the parties within the process, and a fair and impartial approach from the mediator,” he said.
Since the Ohrid agreement, tensions between Kosovo and Serbia have worsened, particularly concerning the authority in the four northern, Serb-majority municipalities in Kosovo.
While there have been some signs of progress, they remain limited.
In December 2024, Kosovo’s Envoy for Dialogue Besnik Bislimi and Serbia’s Envoy Petar Petkovic agreed to implement the 2023 Declaration on Missing Persons.
However, a joint commission meeting scheduled for January 15, 2025, was ultimately canceled, due to Kosovo closing some Serbia-run social centres in northern municipalities.