Publisher: Centar za evropske politike CEP

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Circular and return migration: What can Serbia learn from EU countries’ experiences?

Circular and return migration: What can Serbia learn from EU countries’ experiences?

Author(s): Ana Milinković,Jelena Žarković Rakić / Language(s): English

Keywords: Circular migration; Return migration; Serbia; EU countries; Best practices; Migration policy; Workforce mobility; Knowledge transfer; Economic development; Migration management;

In the last decades, Serbia has been facing serious demographical challenges. The low rates of natural increase in population combined with the negative net migrations caused depopulation at the state level. This trend is the strongest in rural areas and less developed regions. Circular migration (repeated legal migration of the same person between two or more countries), whose importance has been increasing both globally and in Serbia in the past decade, could lead the way out of this problem. Although today, it is much easier to emigrate from Serbia than it used to be in the past – primarily due to the termination of sanctions and the democratisation process, and later, visa liberalisation and bilateral agreements with some European Union (EU) countries on the facilitated movement of labour, Serbia hopes for further procedure simplification, especially in the context of EU integration. As an EU candidate, Serbia should be ready for all the upcoming changes.

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(Non)transparency as a mirror of (ir)responsibility: How do the government and state administration bodies report on their performance?

(Non)transparency as a mirror of (ir)responsibility: How do the government and state administration bodies report on their performance?

Author(s): Milica Škorić / Language(s): English

Keywords: Transparency; Accountability; Government reporting; State administration; Performance evaluation; Public sector; Responsibility; Governance;

Good governance implies governance that focuses on citizens, their well-being and satisfaction. One of the main attributes of good governance is transparency in the work of institutions and the decision-making process, in order to provide the public with timely information about activities and decisions that may have an impact on everyday life. With transparent insight into decisions of public interest, citizens in democratic societies have the opportunity not only to be informed but also to point out shortcomings and demand accountability, thus creating an unbreakable link between transparency and public accountability for the results achieved. Public reporting about work and performance is one of the ways to ensure government transparency in practice. In Serbia, the long-standing problem of non-transparent annual reporting on the work of the Government and the administration results in a lack of accountability towards citizens.

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Equalization of excise burden on strong alcoholic beverages a prerequisite for joining the EU

Equalization of excise burden on strong alcoholic beverages a prerequisite for joining the EU

Author(s): Јelena Rancic / Language(s): English

Keywords: Excise burden; Alcohol taxation; Strong alcoholic beverages; EU accession; Economic alignment; Regulatory compliance; Fiscal policy; Tax equalization;

Five years after the explanatory and bilateral screening, Negotiating Chapter 16, which refers to taxation, has not been open for negotiations. According to the 2016 and 2017 EC reports, the key problem standing in the way of opening the chapter is the unequal excise burden on domestic and imported coffee and strong alcoholic beverages. The amendments to the Excise Law, introduced in 2018, eliminated fiscal discrimination in terms of the excise tax that need to be paid on imported and domestic coffee products, but missed the opportunity to equalize the tax treatment of strong alcoholic beverages. The amendments to the law last year did not solve this problem either, and this year Chapter 16 will most likely remain closed for negotiations. Therefore, the basic recommendation of this policy brief concerns the Ministry of Finance, which should initiate amendments to the Law on excises in order to equalize the excise burden on different types of strong alcoholic beverages.

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Financing of the Environmental Protection at the Local Level: Relationship between Revenues and Expenditures

Financing of the Environmental Protection at the Local Level: Relationship between Revenues and Expenditures

Author(s): Stefan Šipka,Dejan Maksimović / Language(s): English

Keywords: Environmental protection; Local level financing; Revenues; Expenditures; Budget allocation; Sustainability; Public finance; Local governance; Environmental policy; Fiscal management;

Financial investments in the environmental protection are one of the biggest challenges for the Republic of Serbia in the European Union accession process. Official estimates from 20111 indicate that by 2030, the costs of application of the rules under Chapter 27 (Environmental Protection) will reach €10.6 Billion, mainly for protection against water pollution (€5.6 Billion), waste management (€2.8 Billion) and the industrial pollution (€1.3 Billion). Furthermore, according to more recent estimates, the required investments, considering only the capital investments, are around €10 Billion. Inclusion of the operational investments (infrastructure maintenance costs) will result in an even higher amount.

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Financing Environmental Protection at the Local Level: The Planning of the Budgetary Funds

Financing Environmental Protection at the Local Level: The Planning of the Budgetary Funds

Author(s): Dejan Maksimović,Stefan Šipka / Language(s): English

Keywords: Environmental protection; Local level financing; Budget planning; Fiscal management; Sustainability; Public finance; Budget allocation; Environmental policy; Local governance; Resource management;

Serbia is facing serious challenges in the field of environmental protection and harmonizing its standards with those of the European Union. To overcome these challenges, it is necessary to spend at least 10 billion euros. Currently, Serbia spends less than 0.5% of its GDP on environmental protection, which is below the average sum allocated in the EU and far less than the amount allocated by the countries of Central and Eastern Europe during their accession process. Before the share of share of GDP allocated for environmental protection increases, it is important to have a quality system of planning and utilization of funds designated for environmental protection. This is particularly important in case of local self-governments, where, on one side, there is a large scope of competences with regard to environmental protection, and, on the other side, insufficient capacities, as well as different practices.

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Serbia’s EU accession negotiations on Chapter 32: Three years of negotiations out of the public eye

Serbia’s EU accession negotiations on Chapter 32: Three years of negotiations out of the public eye

Author(s): Miloš Đinđić / Language(s): English

Keywords: Serbia; EU accession; Chapter 32; Negotiations; Public transparency; European Union; Policy reforms; EU integration; Public awareness; Governance;

Five years have passed since Serbia began its accession negotiations with the European Union. Since then, the country has opened 16 out of the 35 negotiation chapters of the EU acquis and has temporarily closed two. Chapter 32, on financial control in the public sector, was among the first chapters to be opened, in December 2015. While Serbia has been in the process of negotiating with the EU in this area for more than three years now, it is di cult to assess the country’s progress since there has been hardly any communication to the public on developments in this field. This lack of transparency about the state of play on Chapter 32 suggests that Serbia could be struggling to achieve sufficient and speedy progress. Moreover, the absence of information about the measures Serbia has taken in this negotiation undermines democratic principles of accountability and weakens the public’s support for, and confidence in, the EU accession process.

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EU Sentiments of Serbia’s Citizens: Unpacking the Motivations Behind the Ayes, the Nays, and the Undecided

EU Sentiments of Serbia’s Citizens: Unpacking the Motivations Behind the Ayes, the Nays, and the Undecided

Author(s): Dušan Pjevović,Strahinja Subotić / Language(s): English

Keywords: EU sentiments; Serbia; Public opinion; EU integration; Citizen motivations; EU accession; Political attitudes; Public perception; National identity; European Union;

Throughout the past decade, Serbia has made progress on its path towards the EU. Important milestones range from the obtainment of visa liberalisation in 2009 and candidate status three years later, to starting the accession negotiations in 2014 and opening the first negotiating chapters in 2015. What remains a predicament, however, is the fact that the aforementioned accomplishments were often not accompanied by increased public support for the EU accession process. In fact, public support has proven to be quite volatile and relatively independent from Serbia’s EU progression rate.

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The Senior Civil Service System in Serbia: 12 Years of Simulated Depoliticisation

The Senior Civil Service System in Serbia: 12 Years of Simulated Depoliticisation

Author(s): Vladimir Mihajlović / Language(s): English

Keywords: Senior civil service; Serbia; Depoliticisation; Public administration; Governance reform; Bureaucracy; Political influence; Merit-based appointments; Civil service system; Institutional reform;

Following the adoption of amendments to the Civil Service Law (CSL) in December 2018, the Serbian Government has put the goal of depoliticisation on its 2019 agenda of priorities. The country has wrestled with this issue since the early days of its democratic transition, which started in 2000. This effort is one of the key preconditions of Serbia’s admission to the European Union (EU). Also, the depoliticisation of the public administration is important for citizens, as the public interest is best served by professional, politically independent, and competent civil servants.

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Towards a Smart Retention Policy for the Sustainable EU Integration of Serbia

Towards a Smart Retention Policy for the Sustainable EU Integration of Serbia

Author(s): Milena Mihajlović,Katarina Kosmina,Dragana Bajić / Language(s): English

Keywords: Administrative capacities; Serbia; EU membership; Public administration; Staff retention; EU accession; IPA jobs; Employee turnover; Work conditions; Civil service;

Adequate administrative capacities are one of the crucial preconditions for a successful and sustainable membership of Serbia in the EU. However, experienced employees have been increasingly leaving their public administration jobs due to inadequate work conditions. Given that over 50% of surveyed employees working on EU/IPA jobs have an intention of leaving the administration within the following year, a quality staff retention policy is essential, especially taking into account the relevance of these employees and their contribution to the EU accession and integration processes.

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Serbia’s Pursuit of Interests in the EU: Ready to Grasp Growing Opportunities?

Serbia’s Pursuit of Interests in the EU: Ready to Grasp Growing Opportunities?

Author(s): Strahinja Subotić / Language(s): English

Keywords: Serbia; EU integration; National interests; EU opportunities; Foreign policy; Accession process; Regional cooperation; Economic development; Serbia-EU relations;

Serbia has been progressively increasing its engagement with the EU for more than a decade. This has enabled it to get itself well acquainted with the work of the EU institutions, the EU laws and the particularities of the EU association/accession process. The question is whether Serbia could use this to its advantage. Moreover, how the existing “capital” can be used in order to further develop the present network of contacts and reap benefits from being seen as a trustworthy partner. These questions become more pertinent knowing that the interaction between the EU and Serbia is expected to increase in the following phases of the EU accession process. However, the research on how Serbia is pursuing its interests in Brussels is rather scarce and at the same time there is very little policy debate on that issue. That is why this research aimed to explore Serbia’s current administrative, financial and lobbying capacities at the EU level in the context of Serbian EU accession negotiation process, in order to acquire a comprehensive understanding of how Serbia is standing in Brussels today.

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Getting results in Public Policy: Monitoring and Evaluation with Evidence Supplied by the Civil Society

Getting results in Public Policy: Monitoring and Evaluation with Evidence Supplied by the Civil Society

Author(s): Sena Marić / Language(s): English

Keywords: Public policy; Monitoring and evaluation; Civil society; Evidence-based policy; Accountability; Policy outcomes; Governance; Public sector performance; Citizen engagement; Transparency;

Evidence clearly demonstrates that implementation of public policies in Serbia leads to broken promises. Although the Government Work Programme sets goals and planned activities, these goals are often left unachieved in practice, while there is no mechanism to measure the activities’ results or impact. In contrast to Serbia, the decision makers in countries with a more developed political culture are under constant public scrutiny that demands effective policies, credible and reliable data and evidence-based policy making in general.

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Problems and obstacles in access to justice in enforcement procedure from the perspective of consumer protection - With models of continuous monitoring of enforcement process

Problems and obstacles in access to justice in enforcement procedure from the perspective of consumer protection - With models of continuous monitoring of enforcement process

Author(s): Dušan Protić / Language(s): English

Keywords: Access to justice; Enforcement procedure; Consumer protection; Legal obstacles; Continuous monitoring; Judicial efficiency; Procedural transparency; Serbia;

The purpose of this research is to improve the existing state of consumer protection in enforcement procedures and to provide possible models that provide a more active role for consumer organisations in this matter. Specifically, the identification of problems and obstacles faced by consumers and civil society organisations in the field of enforcement should be ensured, to work towards providing a higher level of protection for citizens’ rights and interest. Secondly, a documentary basis should be provided for the development of recommendations for improvements in this area. Finally, based on the findings of the research, it is necessary to develop options for establishing a mechanism that enables the involvement of consumer and other organisations in the monitoring citizens’ problems in enforcement proceedings and proposing measures to address these problems.

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EU’s Benchmarking within Chapters 23 and 24 in Accession Negotiations with Serbia: Effect and Challenges

EU’s Benchmarking within Chapters 23 and 24 in Accession Negotiations with Serbia: Effect and Challenges

Author(s): Sena Marić,Dragana Bajić / Language(s): English

Keywords: EU accession; Serbia; Chapters 23 and 24; Benchmarking; Rule of law; Judiciary reform; Fundamental rights; Justice and home affairs; EU negotiations; Challenges; Compliance;

It has been exactly one year and a half since the opening of Chapters 23 (Judiciary and Fundamental Rights) and 24 (Justice, Freedom and Security) in the framework of European Union (EU) - Serbia accession negotiations. These two chapters, which address the issues related to the rule of law, have been the spiritus movens of the EU’s strategy towards the Western Balkan (WB) candidate countries, a strategy which is still evolving. Ever since the “new approach to enlargement” was defined in 2012, the EU has been upgrading its tools and resources in order to incentivise rule of law related reforms in the candidate countries and evaluate the results in that respect.

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EU Agri-food Quality Schemes and Potential Benefits for the Registration of PGI’s and PDO’s for Serbian Agricultural Products and Foodstuffs in the Prospect of EU Negotiations

EU Agri-food Quality Schemes and Potential Benefits for the Registration of PGI’s and PDO’s for Serbian Agricultural Products and Foodstuffs in the Prospect of EU Negotiations

Author(s): Ksenija Simović / Language(s): English

Keywords: EU agri-food quality schemes; PGI (Protected Geographical Indication); PDO (Protected Designation of Origin); Serbian agricultural products; Foodstuffs registration; EU negotiations; Geographical indications; Market benefits;

The main objective of this policy paper is to examine different aspects of EU agri-food quality schemes, developed for products with specific characteristics resulting from a particular origin, special ingredients or farming and production methods. The purpose of this paper is to examine in depth different aspects of this European policy and identify potential benefits for Serbian agri-food producers in applying it. Special attention will therefore be dedicated to assessment of Serbian state of affairs in regards, as well as to the opportunities that are now more present, due to the advancement of Serbia’s negotiations with EU. Since many economic findings show, the registration of Protected Designation of Origin (PDO), Protected Geographical Indication (PGI) and Traditional Speciality Guaranteed (TSG) usually results in the higher ability of producers to compete in the market, the paper will attempt to explore the opportunities and problems that the registration of regional and traditional products may bring to the Serbia’s local agrifood production system.

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Civil Society and Government: Participatory Policy Formulation in Serbia

Civil Society and Government: Participatory Policy Formulation in Serbia

Author(s): Amanda Orza / Language(s): English

Keywords: Civil society; Government collaboration; Participatory policy formulation; Serbia; Public participation; Policy development; Governance;

Up to this point, the issue of a systemic approach to civil society participation in the process of policy making in Serbia has not been resolved. In its last Progress Report, the European Commission notes that "civil society is a crucial component of any democratic system and should be recognized and treated as such by the state institutions". Notably, the EU has leverage to emphasize civil society participation mainly in relation to the accession process. Beyond this sphere, the resources and expertise of the civil society should be recognized and taken advantage of by the government and other public institutions. This is supported by the increasing complexity of the course of reforms, the challenge of legislative harmonization, and the lack of human capacity in the public administration as part of the EU integration process. In this regard, substantial effort needs to be invested to assure an evidence basis from the beginning of the planning of a policy, which is the basis of a sound and comprehensive reform. Thus, it is necessary to raise awareness of the potential mutual benefits of establishing closer and continuous cooperative mechanisms of the governmental and civil sector throughout policy making. On the one side, these promise to result in a more transparent, responsive, and inclusive public administration, which would in return also be more ready to fulfill its obligations and responsibilities towards the EU and its citizens. Moreover, the current constellation is conducive to these types of reforms especially upon the constitution of an ambitious Ministry of Public Administration and Local Self-Government and Secretariat for Public Policies.

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From Peace to Preparedness: Conscription as a Once-Again Fashionable Idea in the EU and Serbia

From Peace to Preparedness: Conscription as a Once-Again Fashionable Idea in the EU and Serbia

Author(s): Marko Todorović / Language(s): English

Keywords: Conscription; EU defense policy; Serbia; Military service; National security; EU integration; Defense preparedness;

The Russian invasion of Ukraine has been a significant trigger for the resurgence of mandatory military service in Europe. As a result of the invasion, the EU has found itself in a position of heightened concern for its own security. Beyond considering how to best support Ukraine, the Union has also been preparing for the worst-case scenario of aggression progressing and extending beyond Ukraine to an EU member state. This overarching strategic thinking has led to a rise in military capacities among member states, sparking a new wave of militarisation in Europe. Consequently, the idea of conscription- mandatory military service for all eligible male citizens - is resurfacing, despite its abandonment in the early 2000s, based on the belief that future wars would not require extensive ground forces. Renewed proposals for conscription sprung up in several EU member states and, perhaps unexpectedly, in Serbia, an EU candidate country.

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Europe’s farmers taking to the streets: What will come of the recent disruptions?

Europe’s farmers taking to the streets: What will come of the recent disruptions?

Author(s): Paul O’Brien / Language(s): English

Keywords: 2024 European farmers protests; EU agricultural policy; Serbia and Western Balkans; Agricultural impact on EU accession; Farmer unrest in Europe; EU integration challenges;

Farmers have truly taken Europe by storm in the opening weeks of 2024, with protests erupting in most EU member states and causing ever-growing disruptions. German farmers blocked Vice Chancellor Robert Habeck from disembarking a ferry and blockaded roads and motorways throughout the country with their tractors. French farmers are targeting government buildings to express their anger in protests that are gaining in violence in some cases. Meanwhile, farmers in Poland are partaking in a lengthy general strike and the blockading of the border to neighbouring Ukraine. Even Brussels has seen its fair share of violent clashes between farmers and police officers, with officers being sprayed with liquid manure and tyres being lit on fire in some cases. With the important role agriculture plays in the accession process of new EU member states, these European developments, as well as any protests of this kind in the Western Balkans (WB), are hard to ignore. One is left to wonder whether the protests are justified and where the reasons for such extensive measures lie.

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Belgian Presidency of The Council of the EU: Presidency Returns to the Heart of Europe

Belgian Presidency of The Council of the EU: Presidency Returns to the Heart of Europe

Author(s): Đorđe Dimitrov,Strahinja Subotić / Language(s): English

Keywords: Belgium EU presidency 2024; European Union leadership; Belgium federal election; European Parliament election; EU challenges 2024; Belgium diplomatic strategies; EU economy and future;

On 1 January 2024, Belgium, one of the European Union’s founding members, will assume the presidency of the Council of the European Union. This will be Belgium’s 13th presidency overall and its second since the Lisbon Treaty. The country finds itself at a critical juncture in the twilight of the current European institutional cycle and ahead of the European Parliament (EP) election, highlighting the utmost urgency to finish some pertinent pending issues. Moreover, the Belgian federal election will take place along with the EP election, thus further burdening the Presidency. Under the guiding principles of “protect our people,” “strengthen our economy,” and “prepare for our shared future,” the Belgian presidency is poised to grapple with the multifaceted challenges confronting the EU. This insight seeks to unravel the strategies, policies, and diplomatic endeavours that Belgium will employ in leading Europe in the upcoming six months.

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In the Shadow of the Middle East: EU and Serbia’s Israeli-Palestinian Policies Compared

In the Shadow of the Middle East: EU and Serbia’s Israeli-Palestinian Policies Compared

Author(s): Marko Todorović / Language(s): English

Keywords: Israeli-Palestinian conflict 2023; EU foreign policy; EU member states dynamics; EU approach to conflict; EU internal contradictions; Middle East crisis; EU diplomacy on Israel-Palestine;

The Israeli-Palestinian conflict once again escalated on 7 October 2023, resulting in tens of thousands of casualties and a further exacerbation of the already delicate regional circumstances. Such an unexpected crisis underscores the persistent nature of this conflict, with each outbreak carrying implications felt far beyond the Middle East. This paper embarks on a nuanced exploration of the EU’s approach to the Israeli-Palestinian dispute, with a particular focus on the recent developments. Going beyond the official statements and commonplace narratives of EU foreign policy, it delves into the intricate internal dynamics of the EU and its member states, aiming to understand their various positions, motivations, and contradictions.

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Unpacking the 2023 Enlargement Package: A Wake-up Call for the Western Balkans

Unpacking the 2023 Enlargement Package: A Wake-up Call for the Western Balkans

Author(s): Marko Todorović,Strahinja Subotić / Language(s): English

Keywords: 2023 Enlargement Package; Western Balkans; EU accession; Serbia; EU enlargement; geopolitical challenges; reform process; EU integration;

In the wake of Russian aggression against Ukraine, the intricate game of geopolitical considerations has prompted the EU to recalibrate its approach to enlargement. This recalibration has not gone unnoticed in the Western Balkans and former Eastern Partnership countries, where anticipation hangs in the air. Expectations are large, yet the undeniable truth lingers: the EU must reform its institutional groundwork for enlargement to materialise. Against this backdrop, Charles Michel, the President of the European Council, has cast a hopeful gaze towards 2030 as a target date when the EU should complete its internal reforms to become enlargement-ready. Simultaneously, candidate and potential candidate countries are urged to amplify their reform efforts. Brussels remains resolute – any progression towards membership will be merit-based, with an unwavering commitment to the rule of law. As the anticipation builds, all eyes turn to the 2023 Enlargement Package so as to see what the Commission has to say about the progress of respective countries, while also accounting for the Commission’s new Growth Plan for the Western Balkans.

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