Authorities delayed license plate rule in bid to ease tensions, as discussions on Kosovo-Serbia normalisation continued.

Kosovo govt announced new license plate rules. As tensions simmered over govt’s 31 Oct deadline for switch of all Serbia-registered vehicles to temporary Republic of Kosovo plates, U.S. Special Envoy Gabriel Escobar 19 Oct said that “Quint” countries (France, Germany, Italy, UK and U.S.) asked PM Kurti to extend deadline for implementation of license plate rule by ten months; EU 21 Oct joined call for postponement. Serb party in Kosovo 28 Oct warned that Serb minority would once again block roads if govt did not delay implementation of rule. Kurti same day announced phased deadlines: until 21 Nov, users of Serbia-registered cars will be given warning, after which they will receive fine; full implementation will be established 21 April 2023. EU 29 Oct said decision was “step in the right direction” but called for longer transition period to “maintain calm”.

Franco-German proposal for normalisation with Serbia sparked debates. Following Sept rumours of Franco-German draft proposal on normalising Serbia-Kosovo relations, Serb President Vučić 8 Oct confirmed its existence, claiming it proposed UN membership for Kosovo in exchange for Serbia receiving financial aid and fast-track to EU membership; FM Donika Gervalla 9 Oct also confirmed document’s existence, said it was “basis for discussion” rather than final proposal.

Kosovo French and German leaders urged compromise over normalisation with Serbia, tensions over license plate dispute persisted.

Diplomatic efforts to sustain Belgrade-Pristina dialogue continued. After govt reached agreement with Serbia late Aug allowing border crossings with existing ID cards, French President Macron and German Chancellor Scholz 4 Sept asked PM Albin Kurti and Serbian President Vučić to prepare for compromise in Serb-Kosovar normalisation. In positive development, Kosovar deputy PM and education minister 5 Sept visited southern Serbia, while Serbian PM Ana Brnabic 6 Sept visited northern Kosovo with message of “peace, stability and tolerance”.

Tensions over license plate dispute persisted. Amid govt’s 31 Oct deadline for switch of all Serbia-registered vehicles to temporary Republic of Kosovo plates, assailants 20 Sept set fire to Kosovo Serb police officer’s car for displaying Kosovo-issued license plates. Interior Minister Xhelal Sveçla same day blamed “illegal structures”, allegedly supported by Vučić, for attacks and accused Vučić of trying “to intimidate Serb citizens living in Kosovo”. NATO Mission in Kosovo 22 Sept announced arrival of reserve troops “as part of normal contingency planning” amid heightened concerns as deadline nears, added that “other reserves” could arrive if required.

Following sharp rise in tensions late July, govt reached agreement with Serbia allowing border crossings with existing ID cards, but failed to resolve license plate dispute. Uptick in tensions late July continued into Aug over govt plans to issue temporary IDs and license plates to Serbs entering country. Notably, PM Albin Kurti 10 Aug warned of “possibility of rising tensions and new conflicts”; NATO 17 Aug confirmed increase in troop numbers and reiterated readiness to “deploy them”; and Serbian President Vučić 21 Aug accused Pristina of seeking “final removal” of Serbs, warning that if NATO did not protect them, Serbia “will save our people from persecution and pogroms”; PM Kurti 26 Aug asked NATO for additional troops to “improve security”. However, following unsuccessful talks earlier in Aug, EU High Representative Josep Borrell 27 Aug announced Kosovo and Serbia had reached deal to resolve dispute over temporary IDs, agreeing that neither side will require additional documentation for crossing border. However, sides failed to resolve license plate dispute as govt planned to begin policy of making all Serbia-registered vehicles switch to temporary Republic of Kosovo plates at border from 1 Sept; EU Special Envoy Miroslav Lajcak 31 Aug said “we have two months to find a solution”, referring to 31 Oct deadline set by Pristina for switch to local license plates. Meanwhile, in accordance with June agreement struck with Serbia, govt 10 Aug transferred $40 million to cover Serb minority’s energy costs until Nov, when Serbs will take over payments.

Tensions rose late month amid govt plans to issue temporary IDs for Serbs entering country, with protesters in Serb-majority area setting up roadblocks and reportedly shooting at police. Following decision late June to issue Kosovo ID cards to citizens entering with Serb-issued documents, and to give drivers until 30 Sept to obtain Kosovo licence plates, authorities 25 July said all preparations were complete for new rule to begin by 1 Aug. However, decision fuelled frustration in northern Kosovo, prompting some to take to streets. Notably, protesters in majority Serb North Mitrovica town 31 July set roadblocks at two border crossing points with Serbia while police reported shots fired, harassment of passing Albanian civilians and attacks on cars. Govt condemned unrest while pledging to postpone implementation of new rule until 1 Sept. Serbian President Vučić same day said “Serbs will not suffer any more cruelty” but that Serbian govt “would try to preserve peace at all costs”; PM Kurti meanwhile defended reciprocity measures. NATO peacekeeping mission in Kosovo same day stated readiness “to intervene if stability is jeopardized in the north of Kosovo”. Earlier, European Parliament 6 July called for “comprehensive, legally binding normalisation agreement” between Serbia and Kosovo to further progress on EU accession; Serbian President Vučić same day said Serbia “won’t consider” mutual recognition of Kosovo and Serbia. EU Special Representative for Belgrade-Pristina dialogue Miroslav Lajčák 10 July announced that Serbian and Kosovar leaders had agreed to meet during month; similarly, Kosovar President Osmani 4 July said she believed “there will be a meeting” between leaders. Lajčák 20 July said Kosovo and Serbia needed to agree on meaning of normalisation and conceded that “it’s better to wait a little and make sure the meeting is successful”; he nonetheless stipulated that meeting should not be postponed again and that it should take place by Sept. Meanwhile, European Council 18 July reconfirmed “desire to intensify the EU-facilitated Dialogue” by extending Lajčák’s mandate until Aug 2024.

Authorities struck long-awaited energy deal with Serbia to support Serb municipalities, but restricted entry for Serbs entering country, sparking Belgrade’s condemnation. Following Nov 2021 announcement that Kosovo would cut energy supply to Serbian municipalities, Kosovo and Serbia 21 June signed agreement in EU-facilitated dialogue to implement previous energy deal signed in 2013; deal paves way for Belgrade-backed company to supply energy to Serbian municipalities, which have not paid for electricity since end of Kosovo-Serbia war in 1999. EU Special Representative Lajčák same day called deal “major step forward”. Govt 29 June announced that citizens with Serbian ID cards entering country would be given temporary Kosovo-issued documents; stipulated that cars with Serbian licence plates must re-register with Republic of Kosovo plates by 30 September. Belgrade accused Pristina of seeking to “expel Serbs” from territory and of launching “general attack on northern Kosovo”. During visit by German Chancellor Olaf Scholz to capital Pristina, PM Kurti 10 June announced plan to submit EU membership application by end of 2022; Scholz reiterated that Kosovo and Serbia could only become EU members if they found “political solution” to dispute over Kosovo’s independence “with a comprehensive, sustainable agreement that also contributes to regional stability”. European Council President Charles Michel 15 June visited Pristina, calling for “rapid progress in implementing past agreements” within EU-led Belgrade-Pristina dialogue, which “is essential for advancing on the EU path”. At EU Western Balkan’s summit, President Osmani 24 June claimed she had received “strongest [support] so far” from EU leaders on Kosovo’s EU perspective and visa liberalisation.

Germany urged govt and Serbia to resume dialogue as Pristina advanced membership bid for Council of Europe, prompting protest from Belgrade. German Chancellor Olaf Scholz 4 May held meetings in German capital Berlin with PM Kurti and Serbian President Vučić, urging both to resume dialogue for “regional stability”; EU Special Representative Miroslav Lajčák same day hosted trilateral talks with both leaders. Meanwhile, govt 12 May submitted membership bid to Council of Europe, Europe’s leading human rights body, with German and Montenegrian support. Vučić 6 May claimed bid “violates the Washington Agreement” — deal signed in Sept 2020 in presence of former U.S. President Trump in which Kosovo agreed to halt joining international organisations for one year — warning “our response will be stronger than they think” and will involve “diplomatic offensives” urging states to withdraw recognition of Kosovo’s independence; Serbian FM Nikola Selakovic 13 May claimed four countries had derecognised Kosovo, but FM Gervalla-Schwarz same day claimed that information is either “untrue or they have been working for a long time” on derecognition campaign. After temporary agreement for license plate dispute expired in April, EU-mediated talks between chief negotiators of Kosovo and Serbia 13 May ended without new agreement. Former president Hashim Thaçi and three others 12 May pleaded not guilty to war crime charges at Kosovo Specialist Chambers.

Amid war in Ukraine, regional tensions ran high as authorities warned of Russian and Serbian threats in Western Balkans, and blamed series of small-scale attacks on Belgrade. President Osmani 5 April accused Russia of having interest “in attacking Kosovo, Bosnia and Herzegovina”, while stating Serbia may feel “emboldened by what is happening in the continent of Europe right now”; Osmani also stated that NATO membership is “becoming indispensable, especially in light of events in Ukraine” and EU’s “active appeasement policy” toward Serbian President Vučić is “big mistake”. Following Serbian elections, PM Kurti 12 April claimed that removal of Albanian voters in Serbia’s south from election lists equated to “silent ethnic cleansing” and called polls “neither free nor democratic”. Interior minister 15 April announced four attacks, including one with use of rifles and grenades, on police officers in previous three days in Zubin Potok, Serb-majority municipality in north; PM Kurti same day alleged attacks were “coming from Serbia”, prompting EU and U.S. same day to caution against “speculation”. Temporary agreement with Serbia forged in Sept 2021 that resolved license plate dispute expired 21 April as EU-facilitated talks failed to produce new permanent deal, while reports indicated temporary measures would remain in place; EU Special Representative Miroslav Lajčák same day warned against actions that “jeopardise the security on the ground”. Meanwhile, at UN Security Council briefing on UN Mission in Kosovo, govt and Serbia exchanged barbs: FM Gervalla-Schwarz 22 April accused Serbian FM Selaković of trying to “manipulate facts” and said Vučić “propagated genocide as something heroic”; Serbian counterpart claimed Gervalla-Schwarz ignored past “crimes committed by the Kosovo Albanians”.

Govt sought to advance NATO membership bid in light of Russia’s invasion of Ukraine, while dispute over Serb participation in Serbia’s April polls continued. Amid war in Ukraine following Russia’s Feb invasion, President Osmani 17 March reportedly asked U.S. President Biden to “advance” NATO membership bid, underscoring “we are exposed to persistent efforts by Russia to undermine Kosovo and destabilise the entire Western Balkans”. Govt 2 March opened “security fund” for donations by citizens and diaspora to security forces. PM Kurti 23 March warned of “danger” from Serbia, arguing Serbia might “imitate Russia”. Govt 23 March approved all “sanctions imposed by the European Union on Russia and Belarus”. Polish authorities 9 March reportedly stopped two Kosovars heading to Ukraine to join resistance forces; Kosovo’s Head of Special Prosecution Blerim Isufaj same day told media “the law prohibits participation” in foreign conflicts. Meanwhile, govt during month reportedly rejected proposal to permit Organization for Security and Co-operation in Europe to organise polling stations for Serbian elections on its territory, reversing its policy; PM Kurti 21 March insisted on need for formal “agreement” on issue with Serbia. In response, Serbian President Vučić 22 March announced sanctions and France, Germany, Italy, UK and U.S. 23 March criticised govt, saying policy “is not in line with our values and principles and will undermine their European aspirations”. Judicial review body 24 March suspended presiding judge of Mitrovica court after she appeared at meeting with Vučić; Chairman of Serb opposition party Srpska List Goran Rakic next day called on Kosovo Serbs to boycott Kosovo institutions until judge is reappointed, as several hundreds of protesters reportedly rallied in northern Mitrovica city.

Country marked 14th anniversary of statehood and govt expressed willingness to resume dialogue with Serbia. Ahead of country’s National Day on 17 Feb, which marks 14th anniversary of statehood for Kosovo, U.S. President Biden 15 Feb congratulated country on its “independence”; at ceremony in parliament, PM Kurti 18 Feb declared “Europe is where we belong, while NATO is a condition for peace for all of us”, same day asked EU for “more funds” to continue reform process. Following meeting with EU High Representative Josep Borrell, Kurti 20 Feb affirmed willingness to dialogue with Serbia “if there is the same will from the Serbian side”. After Russia’s Foreign Minister Sergey Lavrov 18 Feb alleged mercenaries were recruited from Kosovo, Albania and Bosnia to fight in Ukraine in order to “destabilize Russia” (see Ukraine), authorities 21 Feb rejected “false” Russian allegations. Kosovo’s and Serbia’s negotiating teams 23 Feb engaged with dialogue facilitators in Belgian capital Brussels in attempt to resume dialogue; meeting ended without decisive progress.

Assembly banned international organisations from facilitating voting in Serbia’s referendum on Kosovo territory, prompting criticism from Serbia and Western countries. Assembly 15 Jan passed resolution to ban international organisations from facilitating voting on Kosovo territory in Serbia’s constitutional referendum that took place next day; referendum seen as effort to strengthen independence of judiciary and enhance rule of law institutions in Serbia. Ban prompted Kosovo authorities to confiscate ballots, prevent setting up of polling stations, and deny entry to Organization for Security and Co-operation in Europe (OSCE) planning to recover ballots. Director of Serbia’s Office for Kosovo and Metohija, Petar Petković, 15 Jan accused Kosovo of “open confrontation with the Serbian people”; France, Germany, Italy, UK, U.S. and EU 14 Jan expressed regret over decision to prevent OSCE from collecting ballots of eligible voters and urged Kosovo and Serbia to “engage constructively in the EU-facilitated Dialogue”. After govt late Dec expelled Russian official from UN Mission in Kosovo for alleged “harmful activity”, UN Sec-Gen Spokesperson Stephane Dujarric 1 Jan stated that designation of persona non grata “is not applicable to United Nations personnel”; Russian foreign ministry 4 Jan called expulsion “continuation of the provocative line for aggravation of interethnic relations”. Opposition Social Democratic Party 29 Jan called for protests over spiking energy prices; thousands reportedly gathered in capital Pristina, which led to scuffles with police. U.S. Special Envoy Gabriel Escobar and EU Special Representative Miroslav Lajcak 31 Jan visited PM Kurti in Pristina in effort to reinitiate dialogue with Serbia.