The European Commission has reiterated that the 2023 Ohrid Agreement between Kosovo and Serbia is legally binding on both parties and that any formalities related to its approval or formalization must not stand in the way of implementation.
In its 2026 Kosovo Report, published today, the Commission said that Kosovo and Serbia had continued participating in the EU-facilitated dialogue, but their engagement had not translated into sufficient implementation of the commitments they had undertaken. Apart from progress on the issue of missing persons, neither side had made significant progress in implementing the Ohrid Agreement.
The report said that dialogue on the normalization of relations continued during the reporting period despite the considerable impact of domestic political developments. Meetings were held regularly at chief negotiator and technical levels, in both bilateral and trilateral formats.
However, implementation of outstanding commitments remained limited, while unilateral actions and statements that did not contribute to normalization had negatively affected the process.
The Commission called on both parties to implement all obligations arising from the Agreement on the Path to Normalization and its Implementation Annex, commonly known as the 2023 Ohrid Agreement, as well as previous dialogue agreements, without delay or preconditions.
These obligations include arrangements for self-management by the Serbian community in Kosovo. According to the report, Kosovo is expected to initiate the process leading to their establishment, while Serbia should simultaneously begin recognizing Kosovo’s documents, symbols and institutions.
“Neither party has made sufficient progress,” the report stated, emphasizing that the Ohrid Agreement is valid and legally binding on both sides. Any formalities concerning its adoption or formalization should not prevent its implementation.
EU raises concerns over actions by both parties
The European Commission said the security situation in northern Kosovo had remained calm but fragile during the reporting period, while actions and statements that undermined normalization had increased.
The report said Kosovo had repeatedly taken actions that were inconsistent with its dialogue commitments or had undermined the normalization process. These included police and administrative measures targeting Serbia-supported structures and services, arrests of Kosovo Serbs, and the rejection of withdrawals of resignation by Serb judges and prosecutors, which hindered their reintegration.
The EU expressed deep concern over these actions, particularly Kosovo’s repeated failure to coordinate with relevant stakeholders and the negative impact on local communities and their access to essential public and social services.
Serbia, meanwhile, had also repeatedly acted contrary to its obligations under the Ohrid Agreement, including by lobbying against Kosovo’s membership in international organizations, particularly the Council of Europe and Interpol.
The Commission said these actions, together with inflammatory statements by Serbian officials, continued to undermine normalization. It also noted that Serbia had taken no significant steps to ensure accountability for the September 24, 2023, armed attack against Kosovo Police in Banjska.
Reintegration of Serb judges and prosecutors remains blocked
One of the main areas of concern identified in the report is the reintegration of Serb judges, prosecutors and support staff into Kosovo’s institutions.
The Commission recalled that the withdrawal of Serbs from Kosovo’s institutions in November 2022 had violated Serbia’s obligations under the 2013 Brussels Agreement and reversed important achievements of the 2015 Justice Agreement.
On July 15, 2026, Kosovo Serb judges, prosecutors and support staff withdrew their resignations, which they had submitted approximately three and a half years earlier. The EU described the move as an important step toward their return to the justice system.
However, subsequent decisions by the Kosovo Prosecutorial Council, the Kosovo Judicial Council and the acting president to accept the withdrawn resignations prevented the process from moving forward.
According to the Commission, these decisions were contrary to the objectives and commitments of the 2015 Justice Agreement. The report said Kosovo had failed to enable the reintegration of Serb judicial personnel, while a separate recruitment competition for Serb prosecutors, which included a dedicated quota, had also been unsuccessful.
The Commission also found that there had been no further progress toward establishing the Association of Serb-Majority Municipalities, in line with the 2013 Brussels Agreement and the 2015 agreement on general principles.
Kosovo is expected to initiate the process of establishing the Association in accordance with its dialogue commitments, including the Ohrid Agreement. Both parties should engage constructively and without further delays.
The report added that the status of Serbia-supported structures and services in Kosovo should be addressed fully in accordance with dialogue agreements and Kosovo’s laws, rather than through uncoordinated measures. The EU called for structured consultations with representatives of the Serbian community to ensure their meaningful participation in the process.
EU maintains that Mitrovica bridge should open
Regarding the main bridge over the Ibar River in Mitrovica, the report said that works, including additional assessments and consultations, had been completed.
The EU maintained its position that the bridge should be opened.
The Commission said the technical conditions had been met but called for improved coordination and consultations between the relevant municipalities and central-level institutions to ensure the bridge serves all communities. The report also noted that the EU had taken into account KFOR’s change of position.
Energy and border management agreements remain incomplete
In the energy sector, implementation of the 2013 and 2015 agreements and the 2022 Energy Roadmap had continued.
However, Serbia’s electricity transmission system operator, EMS, had still not determined the net transmission capacities on the interconnection with Kosovo. This has prevented the allocation of cross-border capacities to market participants, affected security of supply and competition, and increased electricity import prices.
The Commission also noted that implementation of several technical agreements reached in 2011 and 2012 remained incomplete. These include agreements on cadastral records and the mutual recognition of university diplomas, which Serbia continues not to implement, according to the report.
Serbia has also yet to address the issue of relocated administrative customs structures operating within its territory under Kosovo’s name.
Regarding integrated border management, not all six permanent joint crossing points envisaged in the agreements have become operational. Only two have been built so far, at Merdare and Mutivodë.
Serbia has yet to construct the facilities required on its side of the border at Jarinje, Konçul and Depcë. It must also engage in the construction of a third crossing point on Kosovo’s side in the north, at Tabavije/Bërnjak.
The Commission called on Serbia to close illegal roads and bypass routes and resume joint meetings on integrated border management at all levels.
A positive development was the full operation of the goods scanner at Merdare during the summer of 2026, which facilitated the movement of Serbian goods and significantly reduced waiting times.
However, restrictions on Serbian goods at other crossing points remained in place. The report said Kosovo should ensure the free movement of goods through all designated crossing points.
Foreigners Law agreement and missing persons
The European Commission welcomed what it described as generally satisfactory implementation of the March 14, 2026, agreement on the implementation of Kosovo’s Law on Foreigners.
According to the report, the agreement created opportunities to register civil-status facts in Kosovo’s system using documents issued by Serbia.
Nevertheless, Kosovo was encouraged to find a long-term solution that would ensure an effective registration process and provide the necessary documentation to all people living, working or studying in Kosovo.
In telecommunications, no progress had been made in resolving outstanding issues. Both parties were urged to implement existing agreements, address cross-border frequency interference between Kosovo and Serbian mobile operators, and ensure quality postal services for all communities.
One of the positive developments highlighted by the Commission was the first meeting of the Joint Commission on Missing Persons, held in January 2026. The meeting aimed to advance implementation of the 2023 Political Declaration on Missing Persons.
A technical meeting on access to archives was also held in April. The Commission considered this progress in implementing the declaration but stressed that further cooperation was necessary and that both parties should avoid politicizing the humanitarian issue.
Limited progress in legal assistance and official visits
The report identified limited progress in mutual legal assistance following the Serbian government’s decision to take steps toward resuming cooperation after a prolonged interruption.
Serbian courts have resumed using mutual legal assistance channels, but only in a very limited number of cases.
Meanwhile, both parties continued to fall short of fully implementing agreements on official visits. Most announced visits were rejected by one side or the other.
The Commission nevertheless noted two positive developments: two visits by the patriarch of the Serbian Orthodox Church to Kosovo and a visit by Kosovo’s acting Minister of Culture and Tourism to the Preševo Valley, both of which took place without incidents.
Normalization remains a condition for EU integration
In its overall assessment, the European Commission concluded that Kosovo and Serbia had continued participating in the EU-facilitated dialogue, but their engagement had not resulted in sufficient implementation of their respective commitments.
Apart from the issue of missing persons, neither party had made significant progress in implementing the 2023 Ohrid Agreement. Although progress had been recorded on missing persons, mutual legal assistance and freedom of movement, implementation of several key agreements remained incomplete, while some previous achievements of the dialogue had been undermined.
The Commission urged both sides to demonstrate greater commitment to their obligations, refrain from unilateral actions and statements that damage normalization, and engage constructively in resolving outstanding issues.
It warned that normalization of relations and implementation of dialogue commitments remain essential conditions on the European path of both Kosovo and Serbia, adding that a lack of progress could result in both sides missing important opportunities in the EU integration process.
