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Foreign relations of Serbia
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Foreign relations of Serbia are formulated and executed by the Government of Serbia through its Ministry of Foreign Affairs. Serbia has established full diplomatic relations with most world nations – 189 UN member states and 2 non-member observer state, most recently with the Marshall Islands in 2024.
Serbia is a member of the United Nations, the International Criminal Court, the Council of Europe, the Organization for Security and Co-operation in Europe, the Central European Initiative, the Central European Free Trade Agreement, the International Monetary Fund, the World Bank Group, the European Bank for Reconstruction and Development, the World Customs Organization, the Interpol, the International Organization for Standardization, International Red Cross and Red Crescent Movement, the International Olympic Committee, and other international organizations.
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History
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Medieval Serbia
Medieval Serbia’s foreign policy evolved from defensive autonomy under the Vlastimirović dynasty to ambitious expansion under the Nemanjić dynasty kingdom, and finally to desperate survival under the Serbian Despotate. Serbia balanced relations with Byzantine Empire, Bulgaria, Kingdom of Hungary, Republic of Venice, and the Ottomans, using alliances, marriages, and Orthodoxy to assert influence.[1] While achieving a brief imperial peak under Stefan Dušan, Serbia’s fragmentation and the Ottoman rise led to its eventual subjugation. Its foreign policy was marked by pragmatism, adaptability, and a persistent drive to unite Serb lands, leaving a lasting cultural and political legacy in the Balkans.
Principality of Serbia
Serbia gained its autonomy from the Ottoman Empire in the Serbian Revolution (1804–1817), although Ottoman troops continued to garrison the capital, Belgrade, until 1867.
The Principality of Serbia’s foreign relations were defined by its quest for independence from the Ottoman Empire, reliance on Russian support, and cautious navigation of Austrian influence. Serbia cultivated alliances with Principality of Montenegro and Kingdom of Greece, while relations with Bulgaria turned competitive. The Ottoman Empire, Austria (later Austria-Hungary), and Russian Empire, shaped Serbia’s options, with the 1878 Congress of Berlin granting independence but limiting territorial gains. Serbia’s diplomacy balanced nationalist aspirations with pragmatic cooperation, laying the groundwork for its later role as a Balkans power.[2]
Serbia explored alliances with other Balkan states to counter Ottoman and Austrian influence, however, its small size and economic dependence limited its diplomatic leverage.
Kingdom of Serbia
In 1882, Serbia was proclaimed a kingdom under King Milan I of the House of Obrenović, later succeeded by the House of Karađorđević.
The Kingdom of Serbia’s foreign relations was driven by its quest for territorial expansion and South Slavic unification. Serbia aimed to unite South Slavic territories, particularly those with Serb populations, under the concept of "Greater Serbia" or South Slavic unity (Yugoslavism). This ambition often put it at odds with the Ottoman Empire and Austria, which controlled Serb-populated regions like Bosnia and Vojvodina.[3][4][5]
In the First Balkan War, Serbia, alongside Greece, Bulgaria, and Montenegro, defeated the Ottoman Empire, gaining Kosovo and parts of Macedonia. The Second Balkan War against Bulgaria secured further territorial gains but deepened regional rivalry with Bulgaria.
Austria-Hungary's annexation of Bosnia and Herzegovina in 1908 deeply alienated Serbia. A trade dispute with Austria-Hungary, which imposed a customs blockade to pressure Serbia economically, highlighted Serbia’s dependence on external markets. Serbia countered by diversifying trade with France and Britain, strengthening Western ties. Russia, a fellow Slavic and Orthodox Christian state, provided diplomatic and military support, viewing Serbia as a counterweight to Austria-Hungary in the Balkans. Russia’s support was crucial during the July Crisis of 1914, when Serbia faced Austria-Hungary’s ultimatum after the assassination of Archduke Franz Ferdinand.
Serbia’s foreign policy was tested by Austria-Hungary’s invasion following the Sarajevo assassination. Serbia’s resistance, supported by Russia and France, led to initial victories but eventual occupation by 1915. Serbia’s government-in-exile in Corfu maintained diplomatic efforts, culminating in the 1918 creation of the Kingdom of Yugoslavia (initially Kingdom of Serbs, Croats, and Slovenes), achieving Serbian main goal of South Slavic unification.[6]
Yugoslavia
Yugoslav Wars and international isolation
During the 1990s, Serbia was part of the Federal Republic of Yugoslavia, comprising Serbia and Montenegro, formed in 1992 after the breakup of the Socialist Federal Republic of Yugoslavia. The foreign policy, dominated by Serbia under President Slobodan Milošević, was heavily influenced by the Yugoslav Wars and international isolation.
Serbia provided support to Serb forces in Serb-populated areas across the former Yugoslavia, though it officially denied direct military involvement until the Kosovo War. This led to involvement in conflicts in Croatia (1991–1995), Bosnia and Herzegovina (1992–1995), and Kosovo (1998–1999). These actions strained relations with the international community and thus country faced severe international sanctions. This isolation was marked by ruptured diplomatic relations, and exclusion from international organizations (such as the UN, OSCE, and the Council of Europe) as well blocked access to international financial institutions (the IMF and World Bank), profoundly shaping Serbia’s foreign policy and global standing. The FR Yugoslavia was barred from the UN General Assembly in 1992, with its claim to be the sole successor to the Socialist Federal Republic of Yugoslavia rejected. Instead, the UN declared the SFR Yugoslavia dissolved.[7]
Relations with Western countries, particularly the United States and key European nations, deteriorated sharply, culminating in the closure of the United States embassy in Belgrade in 1999 before NATO’s bombing campaign. The 1999 NATO bombing campaign, led by the United States, marked a low point, with the U.S. embassy remaining closed until 2001, reflecting a near-total suspension of formal diplomatic ties. Relations with Western countries, particularly the United States and key European nations, deteriorated sharply resulting in severing or reducing diplomatic presence in Belgrade. Germany, a key supporter of Croatian and Bosnian independence, recalled its ambassador in 1992, maintaining only minimal consular functions throughout the 1990s. The United Kingdom and France followed suit, with embassies operating at reduced capacity or closing during the Kosovo War. The 1999 NATO bombing campaign, marked a low point: the United States closed its embassy in Belgrade, reflecting a near-total suspension of formal diplomatic ties.
Facing Western ostracism, country sought support from traditional allies like Russia and Greece. Russia provided diplomatic backing, vetoing harsher UN measures and maintaining an embassy in Belgrade, though its support was constrained by Russia’s own post-Soviet challenges. Greece, despite EU membership, maintained relatively warm relations due to cultural and Orthodox ties, serving as a diplomatic bridge to the West. China also opposed NATO’s actions, particularly after the 1999 bombing of its Belgrade embassy, but its support was largely rhetorical. The Non-Aligned Movement, once a cornerstone of the Socialist Yugoslavia foreign policy, offered little practical support, as many member states aligned with the key western countries or remained neutral to avoid entanglement in the Yugoslav conflicts.
Democratic transition
In the 2000s, Serbia’s foreign policy has shifted dramatically from isolation to reintegration, with a focus on restoring and expanding diplomatic ties with Western countries. The overthrow of Milošević in 2000 marked a turning point, shifting from isolation to reintegration to the international community. Country was re-admitted to the United Nations as a new member soon thereafter while rejoining also the UN, OSCE and the Council of Europe as well as secured IMF and World Bank mebership.[8] Relations with Western nations began to thaw. Key EU states, including Germany, France, and the United Kingdom, reestablished full diplomatic relations, with embassies resuming normal operations. Germany, in particular, emerged as a key partner, investing heavily in Serbia’s economy. The relations with the United States were also restored with full diplomatic relations. The European Union became Serbia’s primary diplomatic focus, with the Stabilization and Association Agreement in 2008 and candidacy status in 2012 marking key milestones.
Montenegro’s independence in 2006 resulted in restoring Serbia as an independent nation after 88 years, with country being the sole successor state of the State Union of Serbia and Montenegro.
Contemporary period
Serbia since early 2010s have been pursuing a multi-vector foreign policy, balancing relations with the European Union, the United States, Russia, and China.[9] Former President of Serbia Boris Tadić referred to relations with the European Union, United States, Russia, and China as the four pillars of Serbian foreign policy.[10] This approach aims to maintain strategic autonomy.
The European Union remains central to Serbia’s diplomacy and by far the largest trading partner. Its accession process has been slow, with 22 of 35 negotiation chapters opened by 2025 and only a few closed. Key obstacles include rule of law reforms and "normalizing" relations with Kosovo. Public support for EU membership in Serbia has dropped to around 40% by 2025 due to perceived double standards of the EU and its key member-states towards Serbia.[11] Serbia condemned Russia’s 2022 invasion of Ukraine while avoiding to align with EU sanctions against Russia, reflecting its neutral stance.
Country has maintained robust diplomatic ties with Western countries, but Serbia’s refusal to recognize Kosovo’s independence remains a major sticking point and its balancing act with non-Western powers (Russia and China, in particular) to some degree complicate relations with the United States and key European states.
Serbia relies primarily on Russia and China for diplomatic support on Kosovo issue. The 2016 strategic partnership agreement and country's focal role in the Belt and Road Initiative have deepened ties with China which has become second biggest trading partner as well as investor of numerous infrastructure projects in Serbia (like the high-speed railways, motorways, and the Belgrade Metro).
Serbia has worked to improve relations with those neighboring countries (Croatia, Bosnia and Herzegovina, and Albania) with which it has a long-standing historical tensions. However, relations with Croatia remain strained due to historical tensions, while Kosovo’s status fuels occasional flare-ups. Serbia supports the Open Balkan initiative, launched in 2019, to boost regional economic cooperation with Albania and North Macedonia.[12]
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Diplomatic relations
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List of countries which Serbia maintains diplomatic relations with:
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Multilateral relations
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European Union
Serbian foreign policy is focused on achieving the strategic goal of becoming a member state of the European Union (EU). Serbia officially applied for membership in the European Union in 2009, received a full candidate status in 2012 and started accession talks in 2014.[124][125][126] The European Commission considers accession possible by 2030. After initial popular support for country's entry, it has held unfavorable domestic approval with support weakening since 2014.[127] International support for their accession is similarly mixed with concerns over Serbia's claim over Kosovo, regional geopolitical tensions, foreign policy alignment with Russia, and domestic policies.[128][26]
NATO
Serbia proclaimed military neutrality in 2007.[129] The relationship between Serbia and the North Atlantic Treaty Organization (NATO) has been regulated in the context of an Individual Partnership Action Plan. Serbia is the only state in the Southeastern Europe that is not seeking NATO membership, having been the target of a 1999 NATO bombing, but also due to the ensuing secession of and territorial dispute with Kosovo, as well as a close relationship with Russia.[130][131]
Bilateral relations
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Africa
Americas
Asia
Europe
Oceania
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See also
References
Further reading
External links
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