Tensions continued to spiral in Serb-majority northern municipalities as European Union (EU) and U.S. ratcheted up pressure on Pristina and Belgrade to defuse situation.

Situation deteriorated further in northern Kosovo. Following protests late May in four northern Serb-majority municipalities, which broke out after authorities seized municipal buildings and installed newly elected ethnic Albanian mayors, protests and violent clashes continued. Notably, Kosovo Serbs 13 June targeted police with stones following arrest of an individual accused of organising attack on NATO forces 29 May. Month also saw increase in explosions and other attacks, primarily targeting govt institutions: notably, two bombs 19 June exploded near police station in Zvečan town. Meanwhile, PM Kurti 14 June announced Serbian armed forces had detained three Kosovo police officers, fuelling tensions further, though Serbia 26 June released them. EU High Representative Josep Borrell 23 June expressed alarm at reports of extrajudicial arrests of Kosovo Serbs and subsequent “heavy rhetoric from Serbia”, warning escalation is “becoming dangerous”.

Month saw flurry of EU and U.S. diplomatic activity aimed at defusing tensions. International actors urged de-escalation between Kosovo and Serbia, with particular pressure exerted on Pristina to suspend police operations in north and have mayors temporarily perform duties “in premises out of the municipal buildings”. EU Special Representative Miroslav Lajčák and U.S. Special Envoy Gabriel Escobar 5 June also reiterated calls for fresh polls to elect new mayors in northern municipalities during talks with Kurti, who 12 June sent Borrell five-point plan to calm tensions. Borrell 14 June warned Kurti’s plan had failed to address “key elements that triggered the current crisis”, 22 June hosted series of crisis management meetings with Serb President Aleksandar Vučić and Kurti, without immediate breakthrough. EU 28 June warned Kosovo it is preparing number of punitive measures, which are “temporary and reversible” if sufficient steps are taken to de-escalate situation; Kurti 29 June announced willingness to “decrease Kosova Police presence” and “organise early elections”.

Protests following elections in Serb-majority northern municipalities turned violent, while tensions simmered with Belgrade over these municipalities’ political status.

Clashes broke out in north following April’s municipal elections. After tense municipal elections in April boycotted by most Kosovo Serbs, newly elected mayors in northern municipalities 26 May attempted to enter municipal buildings amid increased police presence. Small groups of Kosovo Serbs sought to block new mayors from buildings in three communes; in Zvecan town, police intervened, leading to clashes with protesters. Serbian President Vučić same day placed army on high alert and ordered “urgent movement [of troops] to Kosovo border”. U.S. Sec State Antony Blinken 26 May criticised police’s use of force, which “unnecessarily escalated tensions”, while European Union (EU) urged “everyone” to de-escalate. Unrest continued, however, and NATO-led force KFOR 29 May moved to disperse Serb protesters, leading to clashes that left dozens injured, including NATO troops; NATO next day announced deployment of additional forces. Tensions began to ease end May.

Frictions with Belgrade over political status of northern Serbs persisted. PM Kurti 2 May met with Vučić in Brussels as dialogue on agreement to normalise relations, mediated by EU High Representative Josep Borrell and EU Special Representative Miroslav Lajčák, continued. Sides discussed draft statute proposed by Kosovo Serbs to establish “Association/Community” of Serb municipalities in north, which would enable them to form self-governing association. Kurti said he could not accept draft, fearing arrangement would result either in northern municipalities’ secession or internal fracturing reminiscent of Bosnia and Herzegovina’s Republika Srpska; Borrell same day emphasised draft statute was “a starting point”.

Belgrade and Pristina established Monitoring Committee as normalisation efforts proceeded, local elections in north saw meagre turnout, and trial against former president kicked off in The Hague.

EU-mediated dialogue on normalising relations with Serbia advanced. Kosovo and Serbia 18 April created Joint Monitoring Committee to oversee “implementation” of March agreement on normalising relations and its Implementation Annex. Meanwhile, Council of Europe Ministers’ Committee 24 April forwarded Kosovo’s application for Council membership to Parliamentary Assembly, which Kosovo leaders hailed as “historic step”.

Kosovo Serbs boycotted municipal elections. Largest Kosovo Serb party Serbian List 21 April urged Serb community to boycott “undemocratic” elections, held 23 April in four Serb-dominated northern municipalities. Under 4% of eligible citizens voted, leading to victories for ruling Vetëvendosje party and opposition Democratic Party of Kosovo. VP of Serbian List, Milan Radoičić, same day warned that Serbs “would never allow” officials elected with such low turnout to govern in northern municipalities. EU 24 April said low turnout “shows that this process is not and cannot be considered business as usual”.

Trial against former President Hashim Thaçi and three others began. Kosovo Specialist Court in The Hague, which has jurisdiction over crimes committed in Kosovo 1998-2000, 3 April commenced trial of Thaçi and three other former Kosovo Liberation Army leaders for alleged crimes against humanity and war crimes; all have pleaded “not guilty”. Thousands 2 April protested in capital Pristina in support of Thaçi.

European Union (EU) announced Kosovo and Serbia had struck deal to normalise relations, but sides stopped short of signing final agreement.

Despite progress, Kosovo and Serbia failed to sign final deal on normalisation. After tacitly approving EU proposal on normalising relations late Feb, PM Kurti and Serb President Vučic 18 March reached verbal agreement on implementing annex, which provides further details on path to normalising relations and outlines plans for Joint Monitoring Committee. EU High Representative Josep Borrell also noted that Kosovo had agreed to begin negotiations to ensure “self-management for the Serbian communities in Kosovo”. Sides, however, failed to sign final deal; Borrell 18 March also admitted parties had not accepted “a more ambitious text” but that agreement nonetheless “will become an integral part of their respective EU paths”. U.S. 20 March hailed “historic” and “legally binding” agreement. Deal saw some opposition. Notably, leader of largest opposition party, Democratic Party of Kosovo, 20 March criticised Kurti for accepting agreement that maintains “frozen conflict with Serbia for years to come”, while Serb demonstrators 5, 17, 24 March protested deal in Serb capital Belgrade.

In other important developments. EU 10 March approved visa-free travel for Kosovar citizens. Serbian List – largest political party of Serbs in Kosovo – 21 March reconfirmed non-participation in local elections scheduled for April.

Kosovo and Serbia edged closer to deal on normalising relations following European Union (EU)-mediated talks in Brussels.

PM Kurti and Serb President Vučić tacitly approved EU proposal on normalising relations. Following meeting in Pristina with EU Special Representative Lajčak, PM Kurti 6 Feb accepted Franco-German proposal on normalising relations with Serbia as “good basis”. EU High Representative Josep Borrell 9 Feb confirmed inviting leaders to EU-mediated dialogue 27 Feb, 10 Feb said proposal is “the only way to solve the problems and normalise relations”. Vučić 17 Feb confirmed readiness for dialogue on condition that Kosovo Association of Serb Municipalities – which would enable Serb-majority municipalities in Kosovo to form self-governing association – is discussed. Borrell 27 Feb announced sides agreed that “no more discussions are needed on the European Union proposal” and expressed readiness to “proceed with implementation”. Talks will now focus on leaked annex, which spells out timeline for reaching final deal.

International actors showed support for normalisation process ahead of talks. Turkish President Erdoğan 3 Feb expressed “support” for dialogue. Organization for Security and Co-operation in Europe (OSCE) Quint ambassadors (France, Germany, Italy, UK and U.S.) 7 Feb reiterated importance of making “concrete progress” in EU-facilitated talks. European Council 9 Feb “underlined the urgent need for progress in the normalisation”. U.S. Sec State Antony Blinken 15 Feb said normalisation “will bring security and prosperity” to region.

Western envoys sought to advance Kosovo-Serbia normalisation, and tensions over license plates persisted.

Western envoys visited Kosovo and Serbia to push for normalisation. Delegation of representatives from European Union (EU), U.S., France, Germany and Italy 20 Jan met with PM Kurti in capital Pristina and Serb President Vučić in Serb capital Belgrade to discuss Franco-German proposal on normalising relations. Kurti same day said meeting was “good basis for further talks” while Vučić expressed willingness to work on implementing agreement. Vučić 23 Jan claimed that EU had warned of delays to Serbia’s European integration and economic isolation if Belgrade did not accept proposal and said Serbia must “take part in dialogue and continue its European road”. EU Special Envoy Lajčak 20 Jan reiterated that Kosovo’s “overdue implementation of the Association of Serb Municipalities” – which would enable Serb-majority municipalities in Kosovo to form self-governing association – is “crucial” for achieving normalisation; Kurti 27 Jan remained defiant over proposal. Meanwhile, European Parliament 12 Jan approved visa liberalisation for Kosovo.

Kosovo and Serbia exchanged blame for “violating” license plate deal. Interior Minister Xhelal Sveçla 18 Jan said authorities barred some vehicles with northern Mitrovica city license plates (KM abbreviation) from entering Kosovo, accusing Serbia of renewing these license plates in Dec 2022 and thus breaching 23 Nov EU-brokered deal; Belgrade same day said Kosovo’s actions constituted “flagrant violation” of agreement. EU 19 Jan urged both parties to respect agreement: “This means that Kosovo will refrain from any action against those owners that have KM license plates and effectively maintain the status quo until a more sustainable solution is reached in the dialogue. This also means that Serbia does not issue new KM license plates”.

Violent protests erupted in northern Kosovo following arrest of Serb police officer, but tensions eased late Dec and protesters removed barricades.

Arrest of Serb police officer sparked violent protests in northern Kosovo. Authorities 10 Dec arrested former Serb police officer Dejan Pantic for alleged attacks on municipal election commission offices in North Mitrovica town; Pantic had resigned in Nov along with some 600 Serb officers over license plate dispute before Pristina and Belgrade reached deal on 23 Nov. Pantic’s arrest prompted hundreds of Kosovo Serb protesters 10 Dec to erect roadblocks in northern Kosovo; security forces reported exchanges of fire with protesters and said one stun grenade targeted vehicle of European Union (EU) Mission in Kosovo. EU High Representative Josep Borrell 11 Dec said EU “will not tolerate attacks on EULEX Kosovo or the use of violent, criminal acts in the north” and urged protesters to remove barricades. Thousands 22 Dec demonstrated in Rudare locality, calling for withdrawal of Kosovo police units from Serb-majority north.

Tensions eased late Dec and protesters removed barricades. Serb President Vučić 16 Dec submitted request to NATO-led force KFOR to send up to 1,000 police and military forces to northern Kosovo to “defuse tensions and protect Serb population”; KFOR same day said they are “evaluating” demand but Kosovar President Osmani dismissed idea. Serbia 26 Dec placed security forces at border with Kosovo in “full state of combat readiness” while Kosovo 28 Dec closed Merdare border crossing with Serbia. Vučić 28 Dec announced barricades would be removed after authorities released Pantic and placed him under house arrest; protesters following day began removing barricades, while some border crossings reopened, reducing tensions.

Kosovo formally applied to join EU. Pristina 15 Dec formally submitted application for EU membership, although normalisation with Serbia remains crucial condition for Kosovo’s candidacy. EU ambassadors 20 Dec approved text on visa liberalisation for Kosovo, still to be ratified by European Parliament and EU Council.

Authorities reached deal with Belgrade over license plates, ending nearly two-year dispute that had fuelled worrying rise in tensions.

Pristina and Belgrade 23 Nov struck European Union (EU)-brokered deal to end license plate dispute amid growing concerns of possible violence. According to EU High Representative Josep Borrell, “Serbia will stop issuing licence plates with Kosovo cities’ denominations”, while Kosovo will cease demands to re-register vehicles with Serbian plates. Borrell added that priority is now Franco-German proposal “on the normalisation of their relations”, details of which were leaked by news agency Euractiv 9 Nov. Deal came as tensions peaked during first part of month. Interior Minister Xhelal Sveçla 3 Nov suspended northern Kosovo’s police chief for refusing to issue warnings of fines to drivers with Serbia-issued license plates, as per govt plan. In protest, hundreds of Serb lawmakers, judges and police officers 5 Nov resigned, while reportedly thousands next day rallied in northern Mitrovica city. EU mid-Nov deployed 130 police officers from Poland and Italy to take over patrols in northern Kosovo after resignation of some 600 police officers. NATO 7 Nov urged “both to refrain from unilateral action” while EU and U.S. 21 Nov urged Kosovo to “immediately suspend” next phase of license plate plan. Kurti same day agreed to “48-hour postponement” of fines before parties reached final deal two days later.

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.