The Balkan regatta

I’m not a handicapper, but it seem to me the race for EU membership in the Balkans is shifting. Serbia is often referred to as the “frontrunner,” but it no longer really is, if it ever was. Macedonia has been a laggard, but that too is no longer the case. Kosovo is having a hard time keeping up, but that is in part due to an unreceptive EU. Bosnia and Herzegovina still occupies last place.

Serbia was arguably never really in first place, but by now it has certainly yielded to Montenegro, which has opened 32 chapters of the acquis communautaire required to become an EU member (and closed 3 of the 32). Serbia has opened 16 and closed 2. But Montenegro also has an easier path to EU membership, as it lacks many of the industries that Serbia needs to make comply with EU regulations. Montenegro also has a far freer press, whereas Serbia’s is under the government’s informal but still tight control. Both countries lack the fully independent and professional judiciary that will be necessary before accession. That is the long pole in the tent throughout the Balkans.

The big difference between Montenegro and Serbia lies in foreign policy. Montenegro, already a NATO member, is fully aligned with the EU on Russia. Serbia is not: it hosts a Russian “humanitarian” base and has refused to go along with sanctions against Moscow for its annexation of Crimea. Belgrade has no intention of seeking NATO membership. Serbian President Vucic recently gave President Putin a hero’s welcome in Belgrade, complete with paid crowds bused in from the provinces.

Skopje’s resolution of its “name” dispute with Athens has thrown the door to NATO wide open. Accession for “the Republic of North Macedonia” will follow as soon as ratifications are received from the 29 other members. The name change will also re-initiate Macedonia’s stalled EU accession process. As with Serbia and Montenegro, the long pole in the tent will be an independent and professional judiciary, but North Macedonia will likely make quick progress on other chapters.

Kosovo carries several burdens that the others don’t, even though all its legislation has been required to be EU-compatible since independence. Its stalled dialogue with Serbia needs to get restarted. Only after a fully normalized relationship can it hope to open accession talks, because of opposition from the EU’s five non-recognizing members. In addition, the EU sets a particularly high bar for Kosovo. This was apparent in its postponement of a visa waiver program even after Pristina had fully met many more requirements than any other country in the Balkans. Judicial professionalism and independence will also be a serious challenge in a country where personal relations count for a lot and institutional consolidation is still limited.

Still, Bosnia brings up the rear. It has been saddled with a coordination mechanism that gives both its entities, the Federation and Republika Srpska, as well as the ten Federation cantons and the Brcko District veto power over negotiation and implementation of the acquis. This is unworkable. Only when the Sarajevo government gets full authority to negotiate and implement the acquis will Bosnia be able to make serious progress on EU accession. NATO membership for Bosnia is ruled out for now by the leadership of Republika Srpska, which shares Belgrade’s antipathy for the Alliance as well as its affection for Russia and Putin.

So here is my sense of the regatta: Montenegro>Macedonia>Serbia>Kosovo>Bosnia. Serbia has slipped a couple of places, Macedonia is gaining, Kosovo is lagging in part because the EU wants it that way, and Bosnia is bringing up the rear.

Of course there are serious questions about the condition NATO and the EU will be in when any of these countries accede. Brexit, President Trump, and ethnic nationalist populism are real drags on the liberal democratic evolution of the former Yugoslav states, where ethnic nationalist populism in the 1990s became homicidal and even genocidal. But let there be no doubt that the accession processes are still the best thing going for the Balkans: they give people and governments there purpose and hope.