Serbia’s Border Security: Enhancing Europe's Independence

During the Trump administration, a key shift in US foreign policy emphasized that Europe should take greater responsibility for its security, including border protection. This approach encouraged European nations to begin enhancing their border management capabilities, despite facing internal divisions over migration policy. Europe will have to respond by strengthening external border security, where Serbia should be regarded as one of the key allies.

Reviving Serbia's Historic Role

Serbia’s role in Europe border security in modern times is not exceptional, given its rich history in similar issues. From year 1553 to 1881, as a part of the Habsburg monarchy, Serbs in Military Krajina played a crucial role in defending Europe’s southern border from the Ottoman Empire and served as a frontal Christian bastion in various wars waged by the European countries and the Ottomans from the East. The threat of invasion was persistent throughout centuries, and the alignment of Serbian people to the West played an important role in preserving the territorial integrity of Western monarchies at that time.

Serbia's historical role has been revived in the previous decade. Cooperation with Western countries in border control has again proved the country's vital role in that issue, even though the times have changed. Despite the great migration crisis being solved for now, it should be noted that historically proven, it is not permanent, so Serbia’s role should not be undermined in the future. Solid cooperation with the EU and the West should remain well-maintained and further deepened.

Serbia - the Key to Secure Borders in the Balkans

The Balkans region was a crucial point of transit during the great migration crisis that started in 2015. Traditionally being located at the crossroads between Western Europe and Asia, it was a necessary obstacle to cross, migrating to the EU on foot. In 2015 alone, the Western Balkan route saw over 760,000 migrants and refugees, primarily from Syria, Afghanistan, and Iraq, passing through the region, with Serbia serving as a major corridor.

Migrants typically enter Serbia via its southern borders with North Macedonia and Bulgaria. From these entry points, the primary routes extend northward toward Hungary or westward through Bosnia and Herzegovina into Croatia. These pathways are part of the broader Western Balkan route, which has been a critical corridor for migrants from the Middle East. Highlighting Serbia’s importance in this matter is the fact that from 2015-2019, Serbia had registered over 1.5 million refugees and migrants, and their average stay in the country was 12 days.

In 2024, a significant decrease of 82% in migrant numbers was observed, with 19,000 individuals registered in reception and asylum centers, being the result of robust border security measures and regional cooperation to manage and control the movement of people effectively. A key factor was Serbia’s operational agreement with Frontex, enabling joint operations and increased security at non-EU borders. Additionally, Serbia collaborated with Hungary and Slovakia, proposing EU-funded migration hotspots outside EU territory to manage asylum seekers. The Migration Training Centre (MTC), supported by Sweden, was transformed into a digital Regional Migration Training Centre to enhance policy alignment with EU standards. Furthermore, Serbia signed a bilateral agreement with the UK, facilitating intelligence-sharing to combat human smuggling.

Serbia's Border Security: European Context

Currently, the United States is urging Europe to enhance its self-reliance in security, where border control has its place. In their response, the EU would have to integrate the Western Balkans into its security framework, given the significant migration flows through the region, and especially recognize Serbia’s pivotal role in addressing these challenges.

As a non-EU country but a key transit point in the Western Balkans, Serbia has effectively acted as a buffer zone, preventing uncontrolled migration flows from reaching EU member states like Hungary, Croatia, and Austria. Its cooperation with Frontex, regional initiatives with Hungary and Slovakia, and intelligence-sharing agreements with the United Kingdom have positioned Serbia as a critical partner in Europe's migration management efforts. By securing its borders and preventing illegal migration, Serbia contributes directly to EU border security, reducing pressure on frontline EU states.

Beyond its EU aspirations, Serbia’s partnerships with Hungary and Slovakia align with the Trump administration’s strategic shift toward reinforcing Eastern Europe’s resilience and autonomy. Trump's foreign policy emphasized greater self-reliance for European nations in security matters, pushing them to take a proactive role in managing regional challenges, rather than depending solely on the US or NATO. By working closely with Hungary and Slovakia, Serbia strengthens the regional security architecture, reducing reliance on Western European nations and making Eastern Europe more resilient to external threats.

This regional security alignment benefits both the EU and the US, as it stabilizes a crucial part of Europe at a low cost, while also ensuring that border control mechanisms are managed by local actors with direct stakes in the issue. Thus, Serbia’s border security contributions represent a strategic investment in regional resilience that aligns with both European interests and the US strategy of strengthening Eastern Europe’s self-sufficiency in security affairs.

America’s Role: Knowledge Exchange & Institutional Cooperation

Despite Serbia being geographically distant from the US, mutual border security cooperation is still solid, with three key agreements:

• Customs Mutual Assistance Agreement (CMAA): This legally binding agreement establishes a framework for the exchange of information between Serbia and the United States to combat customs offenses. By facilitating cooperation in preventing, detecting, and investigating crimes associated with cross-border goods movement, the CMAA plays a vital role in enhancing border security and combating illicit activities such as smuggling and trafficking.

• Export Control and Related Border Security (EXBS) Program: Managed by the US Department of State, the EXBS program provides technical assistance and training workshops to Serbian Customs and Border Police. This initiative aims to strengthen Serbia's capabilities in export control and border security, addressing vulnerabilities exposed during migration crises.

• State Partnership Program (SPP): While border security not being the primary focus, this program links the Serbian Armed Forces with the Ohio National Guard, and it has facilitated numerous joint exercises and training sessions that enhance operational readiness, indirectly supporting border security efforts.

While existing partnerships do not have illegal immigration as their priority, focusing instead on smuggling, trafficking, and export control, they indirectly contribute to migration management. However, given Serbia’s strategic importance in Europe’s border security, some blueprints for further cooperation could be considered. Notably, some of the proposed measures are already partially implemented through existing agreements, but they remain informal or fragmented and could benefit from a more structured framework. Proposed measures include:

1. US-led Western Balkans Border Security Initiative: Given that the Open Balkan initiative does not possess mechanisms for combating illegal immigration, the US could lead a Western Balkans Border Security Initiative, bringing together Serbia, North Macedonia, Montenegro, Bosnia and Herzegovina, Kosovo, and Albania to enhance migration control through joint operations, intelligence-sharing, and policy harmonization. By aligning with EU border security efforts while maintaining US strategic influence at a low cost, this initiative would not only create a coordinated response to illegal migration but also increase regional stability.

   
   

2. US Incentives for Serbia to Strengthen Cooperation with Eastern European States: The US could encourage Serbia to deepen its partnerships with Hungary, Slovakia, Poland, and the Czech Republic, fostering an Eastern European border security alliance that enhances intelligence-sharing and migration management. This initiative would complement existing EU efforts while reinforcing US security interests in the region, making Eastern Europe less dependent on Western European border policies.

   
   

3. Serbia as a Regional Security Hub for Border Control: Serbia’s strategic location and growing expertise in border security make it an ideal regional hub for coordinating migration management and counter-smuggling efforts in the Western Balkans. With US and EU support, Serbia could further lead regional initiatives, harmonize regional legal and policy frameworks, strengthen border security infrastructure, and enhance intelligence cooperation, reinforcing both its EU accession prospects and its security ties with the US.

   
   

4. Expertise Transfer: A bilateral border control agreement between the US and Serbia that could focus on technical expertise transfer rather than direct financial assistance, aligning with US strategic priorities. American Customs and Border Protection (CBP) and ICE experts could assist Serbia in biometric border screening, fraud detection, and counter-smuggling operations, enhancing Serbia’s border security capabilities without requiring US financial commitments, which aligns with the current administration’s strategy.

   
   

5. Exchange of Technology: The US could support Serbia by selling advanced border security technology, including biometric verification systems, AI-driven migration tracking, and drone surveillance, improving Serbia’s ability to monitor and secure its borders.

   
   

6. Intelligence-Sharing Agreement Between Serbian and US Counterterrorism Agencies: This would enhance real-time data exchange, allowing for improved identification and monitoring of foreign terrorist fighters and transnational extremist networks. This framework would strengthen Serbia’s ability to track threats at its borders and within its territory, aligning it with international counterterrorism standards.

   
   

7. Border Security Exchange Program: A Border Security Exchange Program would enable Serbian and US officers to participate in cross-training and fieldwork, enhancing practical knowledge of border operations, migration tracking, and security enforcement. This program would improve bilateral cooperation between Serbia’s Border Police, Customs, and US agencies like ICE and CBP, fostering stronger operational collaboration.

Date: March 19th 2025

Аuthors:
Vuk Velebit, Pupin Initiative
Petar Ivić, Pupin Initiative