EU Enlargement Is About Narratives, Not Simply Coverage

By Milica Uvalić, The Loop

The EU and the Western Balkan nations view enlargement in a different way. Milica Uvalić argues that regardless of renewed EU engagement since Russia’s full-scale invasion of Ukraine, misperceptions persist, hindering Western Balkan nations’ accession. Bridging these misunderstandings is essential to revitalising the method and aligning expectations for a shared European future

Misperceptions within the Western Balkans

Misperceptions about European enlargement within the Western Balkans (WB) stem primarily from the protracted tempo of EU integration. Following the wars of the Nineteen Nineties, the EU provided WB nations credible prospects for membership, formalised on the 2003 Thessaloniki Summit. Its supply generated widespread optimism amongst WB residents, with many anticipating accession inside a decade. Of the WB nations, nonetheless, solely Croatia joined the Union in 2013, leaving the remaining states mired in uncertainty. The ensuing disillusionment has fostered a way of injustice and betrayal, and has eroded belief amongst WB residents within the EU’s willingness to increase additional.

In Serbia, 35% of residents consider their nation won’t ever be part of the EU. Whereas political elites stay rhetorically dedicated to accession, the method has misplaced its transformative momentum, resulting in pervasive ‘reform fatigue’. Though a majority of WB residents (54%) nonetheless view EU membership positively, the distribution is uneven: optimism stays excessive in Albania and Kosovo (77% and 74%, respectively), however is markedly decrease in Serbia (34%).

The accession course of has misplaced its transformative momentum amongst political elites, resulting in pervasive ‘reform fatigue’

Many WB residents have a distorted picture of the EU. Restricted transparency in accession negotiations exacerbates this disconnect, as does ambiguous messaging from political leaders, and chronic campaigns of disinformation. Exterior actors like Russia and China, typically portrayed as viable various allies to the EU, exploit these info gaps. Biased media narratives and inadequate public understanding of EU establishments, insurance policies, and monetary help amplify such misperceptions.

Financial stagnation and misguided narratives

Financial stagnation, too, has fuelled scepticism. Whereas integration with the EU has pushed post-2000 restoration, the area has develop into susceptible to exterior shocks. Since 2009, GDP progress has been sluggish, and earnings convergence with the EU common stays elusive. Residents often misattribute financial issues to EU insurance policies quite than home structural weaknesses. This solely reinforces their damaging notion of the EU.

Compounding these challenges is the narrative of other partnerships. The EU stays the WBs’ dominant financial companion — in 2023, it accounted for 67% of the area’s commerce in items, 58% of international direct funding, and the lion’s share of monetary help. But, political discourse typically romanticises ties with ‘conventional allies’ like Russia and China as a viable various to EU membership.

Political discourse typically romanticises ties with ‘conventional allies’ like Russia and China as a viable various to EU membership

The EU’s perceived leniency in the direction of authoritarian tendencies within the area has strained belief even additional. In November 2024, a railway station cover in Serbia collapsed, killing 15 folks. Mass protests adopted, which morphed into nationwide demonstrations in opposition to corruption and governance failures. The EU was sluggish to reply — addressing the disaster solely in February 2025. This solely bolstered perceptions amongst peculiar residents that the EU prioritises stability over democratic rules. Serbian officers, in flip, exploited the unrest by accusing international actors of orchestrating the protests, thereby deepening societal polarisation.

Misperceptions within the EU

Misperceptions usually are not confined to WB nations; they persist inside the EU itself. Early misjudgements about Yugoslavia’s disintegration and find out how to cease the armed conflicts left a legacy of warning and scepticism. The 1999 Stabilisation and Affiliation Course of marked a strategic shift towards supporting WB integration. But continued political instability within the area, even after 2001, and sluggish compliance with accession standards, led to a extra prudent method. Subsequent crises — together with the 2008 monetary crash, the migration disaster, Brexit, and the Covid-19 pandemic — diverted the EU’s consideration from enlargement.

The ensuing ‘enlargement fatigue’ has been compounded by issues over governance deficits and unresolved bilateral disputes. The Western Balkans have solely a small demographic footprint; lower than 4% of the EU’s inhabitants. Regardless of this, some EU member states argue that admitting underdeveloped, war-torn nations would impose unsustainable prices. But, a current examine estimates that integrating the six WB states in 2030 would value roughly €15 billion — a manageable sum given the geopolitical and financial advantages.

Ambiguous messaging

The EU’s inconsistent messaging has additional confounded perceptions. As Veronica Anghel argues in her foundational weblog for this collection, EU enlargement took on geostrategic significance after Russia’s full-scale invasion of Ukraine. Excessive-level officers often describe the Western Balkans as a ‘geostrategic precedence’. On the identical time, they emphasise the stringent conditionality of accession. Reward for reform efforts typically contradicts the extra vital tone of the European Fee’s annual reviews, sowing confusion and frustration amongst WB policy-makers and residents alike.

The prioritisation of stability over democratic rules — or ‘stabilitocracy‘ — has additionally been met with scepticism. Whereas EU leaders approve of sure governments for the sake of sustaining regional stability, home populations view them as obstacles to real reform. This dissonance undermines the credibility of the enlargement course of, and perpetuates perceptions of EU hypocrisy.

Bridging the hole: a shared accountability

With enlargement again on the EU’s agenda, each side should seize the second to recalibrate their approaches.

Political elites within the Western Balkans should display renewed dedication to reform, specializing in the rule of regulation, democratic accountability, and institutional integrity. Public communication efforts ought to counter disinformation by offering clear, accessible, and dependable details about the advantages and obligations of EU integration.

The EU should ship constant, clear messages about the advantages of integration, and handle public issues in regards to the enlargement course of

The European Union should align its rhetoric with motion. This entails delivering constant, clear messages, and addressing public issues in regards to the enlargement course of. Institutional reforms to streamline accession procedures ought to go hand-in-hand with extra proactive help for civil society actors who champion democratic reforms.

In the end, the enlargement course of ought to be reframed as a mutual endeavour to rework shared challenges into shared obligations. By prioritising engagement, transparency, and consistency, the EU and the WB nations can bridge the hole in perceptions and advance their widespread European future.

No.9 in a Loop collection on EU enlargement dilemmas

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This text was initially revealed at The Loop and is republished right here beneath a Artistic Commons license.

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