Minority Protection for EU Accession (MPA)

Our Work

The protection of national minorities in Serbia is supported by an extensive legal framework, yet a comprehensive strategy has been lacking, with the Action Plan for the Realization of Rights of National Minorities serving as the primary guiding document. The Action Plan was developed as part of the EU accession process and linked to the broader Action Plan for Chapter 23 on EU Integration. Previous reporting on this Action Plan was often narrative, lacking meaningful data, benchmarks, and indicators, thus failing to drive effective policy action. Recognizing the Ministry of Human and Minority Rights and Social Dialogue's need for a robust and systematic reporting system, the ECMI took the lead in developing an improved methodology.

ECMI commissioned international experts (Aleksandr Aidarov, Kristijan Kaldur, and Massimo Moratti) and organized a series of targeted meetings aimed at identifying the shortcomings of the existing reporting system and exploring options for its enhancement. A Screening Meeting in July 2023 brought together consultants and civil servants, revealing practical challenges like poor data quality and coordination gaps. A Peer Review of the first draft toolkit in November 2023, involving an expert from the Chancellery of Schleswig-Holstein, emphasized strategic communication and questionnaire design. The Reporting Methodology Toolkit was then formally presented to the Ministry in December 2023, fostering crucial dialogue and feedback. Following a period of stalemate in drafting the Action Plan, the ECMI presented the Toolkit in April 2025 to the Working Group for the Preparation of the Action Plan, involving representatives from various institutions and national minorities themselves.

Impact & Achievements 

Our work has strengthened the framework for minority rights reporting in Serbia:

• Developed a comprehensive Reporting Methodology Toolkit now available in both English and Serbian.
• Initiated and strengthened dialogue on the importance of effective reporting and monitoring of minority rights.
• Raised awareness among core stakeholders about how robust reporting leads to effective minority policies.

Key Takeaways

• The Action Plan must include clearly defined actions, indicators, and responsible stakeholders to ensure effective implementation and monitoring.
• The goals and scope of activities should be realistic, with an emphasis on gradual, achievable improvements rather than overly ambitious targets.
• Stronger involvement of sectoral ministries is essential, as minority rights are a cross-cutting issue that should not be addressed solely by the Ministry for Human and Minority Rights and Social Dialogue.
• It is crucial to establish a regular follow-up dialogue mechanism—potentially through a dedicated Action Plan Working Group—to facilitate cross-sectoral coordination and operational-level monitoring.
• Extending the reporting cycle to six months or even one year could enhance the efficiency and effectiveness of the entire process.

Materials

• Reporting Methodology Toolkit 
   

• Metodologija izveštavanja: Priručnik

• Koraci ka efikasnom izveštavanju 

• Reporting methodology (video presentation by Massimo Moratti)

Our Work

Councils for Interethnic Relations (CIERs) were established by the 2002 Serbian Law on Local Self-Government to promote interethnic equality in ethnically diverse municipalities. However, despite multiple projects and legislative changes, CIERs have historically had limited effectiveness and influence.

The ECMI responded directly to recommendations from key stakeholders, including the Council of Europe, OSCE Mission to Serbia, and the Serbian Ombudsman, by organizing targeted capacity-building activities. We held eight regional training sessions across Serbia (October–November 2024) and a concluding conference in Belgrade (December 2024). These events involved approximately 100 participants, including local government officials, CIER members, and representatives from national minority councils. The consultations confirmed that, while CIERs hold great potential for enhancing interethnic relations at the local level, their effectiveness depends on increased institutional support and potentially significant reforms.

Impact & Achievements

• Reinitiated national-level discussion about the role and future of the CIERs
• Increased awareness among local government officials about the need to support and strengthen CIERs
• Raised awareness among national minority councils about their responsibility for better functioning of CIERs
• Developed and distributed a practical brochure outlining the current state of CIERs and proposing concrete steps for their improvement

Key takeaways

• To ensure the effective functioning of CIER, authorities should develop clear intercultural policies, amend relevant legal provisions, and establish a coherent conceptual and institutional framework with clear but flexible guidelines for municipalities.   
• Improving the functioning of CIERs requires stronger support and coordination between relevant ministries, greater involvement from the ministry of local self-governance, and consistent administrative backing at the municipal level.
• CIERs should adopt structured annual work plans with clear goals and hold regular meetings to ensure progress and accountability, thereby also strengthening their preventive role in interethnic relations.
• Since the active involvement of NMC members in CIERs enhances their effectiveness, CIERs should be further strengthened as a participatory channel for NMCs at the local level.  

• Full list of recommendations can be found in the brochure Councils for Interethnic Relations: Challenges and Pathways to Revitalization

Materials

• Brochure - Councils for Interethnic Relations: Challenges and Pathways to Revitalization 

• Brošura - Saveti za međunacionalne odnose: izazovi i mogućnosti za revitalizaciju

Our Work

Despite an extensive legal framework protecting national minority rights in Serbia, many civil servants—especially those in institutions where minority issues are only a small part of their portfolio—lack the awareness and practical knowledge needed to implement these rights effectively. To address these gaps, the ECMI implemented several capacity-building initiatives targeting officials at the local, provincial, and national levels.:

Awareness raising training: official use of minority languages and scripts

This session targeted civil servants from institutions operating in multiethnic areas—including police, property registries, health funds, and employment services—where minority languages are in official use. The training clarified the legislative framework and obligations regarding bilingual service provision and equipped participants with practical knowledge for implementation.

Roundtable/Workshop on registering ethnic affiliation of public administration employees

Recognizing the importance of ethnic data for ensuring minority representation in public institutions, we organized a roundtable with representatives from various ministries, international organizations, data protection specialists, the Statistical Office, and other key institutions to review existing practices and identify obstacles to effective ethnic data collection. The discussion also addressed data protection and the voluntary nature of ethnic self-identification, highlighting the need for improved record-keeping mechanisms and enhanced institutional coordination.

Awareness raising training: Socio-economic participation of national minorities

Responding to international recommendations and national priorities, the ECMI held a training for municipal representatives from five municipalities to address barriers to socio-economic inclusion. The session explored legal frameworks, best practices in Europe, and strategies to improve local-level access to health, education, housing, and employment for minority communities, with participants engaging in experience-sharing and problem-solving discussions.

Study Visit for civil servants from Serbia to Denmark - Germany border region

To promote peer-to-peer learning, the ECMI facilitated a study visit for Serbian civil servants to the Danish-German border region, showcasing effective models of minority protection and institutional cooperation. Participants included representatives from key Serbian ministries and the provincial administration. The visit provided a comparative perspective and inspired reflection on possible adaptations in the Serbian context.

Impact &  Achievements

• Improved understanding of Serbia’s national minority rights framework among officials, with around 80 civil servants gaining practical knowledge on minority language rights, ethnic data collection aligned with data protection, and integrating inclusion of minority perspectives in socio-economic programs including economic revitalization.  
• Promoted peer-to-peer exchange among Serbian civil servants and emphasized the importance of shared responsibility of sectoral actors for minority issues beyond the ministry for human and minority rights.
• Facilitated international peer learning with colleagues from Germany and Denmark, providing key stakeholders in Serbia with new perspectives, ideas, and applicable models of minority protection.

Key Takeaways

• Civil servants in Serbia generally hold a positive attitude toward minority protection and minority rights, although further training is needed to enhance their knowledge.
• Capacities for practical implementation vary, but overall, they remain modest.
• Minority issues are not considered a priority and are often grouped with a broad range of other responsibilities, leading to them often being sidelined.
• Greater effort is needed to ensure regular exchange and coordination among different stakeholders.
• Stronger involvement of sectoral actors and a sense of shared ownership are needed, extending beyond the sectors directly responsible for minority issues.

Materials 

Presentations:

• Praktični vodič za efikasnu primenu jezičkih prava (Katinka Beretka)

• Primena u praksi i inspekcija nad službenom Upotrebom jezika i pisama ( Adrian Borka)

• Prikupljanje podataka o nacionalnoj pripadnosti državnih službenika (Aleksandar Knežević)

• The Effective Participation of National Minorities in Social and Economic Life (Andreea Cârstocea)

• Učešće manjinskih zajednica u lokalnoj budžetskoj politici (Jelena Perković)

• Minority Reports of the Schleswig-Holstein State Government (Linda Pieper)

• Implementation Conferences in Germany (Linda Pieper)

Our Work

The National Minority Councils (NMCs) form the backbone of Serbia’s minority protection system, acting as key bodies of cultural self-governance. While 23 councils (plus the Federation of Jewish Communities) are officially recognized, their capacity to carry out legal responsibilities varies widely. These differences stem from factors such as community size, political influence, and access to human and financial resources.

To support NMCs in improving their day-to-day functioning and institutional effectiveness, ECMI delivered three targeted training sessions in April 2023 in Subotica, Novi Sad, and Kragujevac. In total, representatives from 22 out of 24 NMCs participated.  The training sessions were designed to address the most pressing challenges faced by NMCs in their daily work. Participants gained a solid understanding of the legal framework governing the councils and their institutional role within Serbia’s minority protection system. The sessions helped clarify the everyday responsibilities of council members and the practical steps required to implement their legal mandates.

Particular emphasis was placed on strengthening the role of NMCs in public decision-making processes and improving their engagement with local and national stakeholders. In addition, the training covered financial management topics in depth, offering guidance on public funding mechanisms, project-based fundraising, and best practices for transparent financial reporting.

 Impact & Achievements

• Strengthened participants’ understanding of the legal role and administrative responsibilities of National Minority Councils, including their position within the broader legislative framework.
• Equipped council representatives with practical skills in project writing and fundraising, improving their ability to secure external funding.
• Facilitated networking among 22 participating councils, encouraging exchange of experiences and fostering inter-council collaboration

Key Takeaways

• There is a need for strengthened and regular cooperation among NMCs, potentially through a more institutionalized framework, such as the formal status of the ‘Coordination of NMCs’.
• Regular training, along with sustained support from public authorities, is essential for effective capacity building.
• The professionalization of NMCs should be supported, including the possibility for each NMC to have a dedicated staff member responsible for administrative tasks.

Material

Presentations:

• Organizacijski menadžment nacionalnih saveta nacionalnih manjina (Katinka Beretka)
• Finansijski i projektni menadžement: Nacionalni saveti nacionalnih manjina (Aleksandra Vujić)
• Pravni okvir za delovanje nacionalnih saveta nacionalnih manjina (Ljubica Đorđević)

Our Work

Symbols and holidays are important expressions of (minority) identity, protected by fundamental rights and enshrined in Serbian law, which allows minorities to display their symbols publicly. While generally uncontested, occasional tensions arise, particularly regarding the usage of foreign flags as minority flags, and to a lesser extent, issues with certain Bosniak and Croat holidays.

The ECMI actively supported discussions on these sensitive topics. We provided indirect assistance in developing opinions on National Minority Councils' (NMCs) proposals, leveraging expertise from three Belgrade institutes. Critically, we produced a comparative study on European perspectives on national minority symbols and holidays. Presentations of this study served as crucial platforms for open debate, contributing to a more 'normalized' discussion around these issues in Serbia.

Impact &  Achievements

Our contributions have fostered a more constructive environment for discussing minority symbols and holidays:

• Produced a comprehensive study “National minority symbols and holidays: comparative European perspectives.”
• Facilitated the Council for National Minorities’ confirmation of 7 decisions of NMCs stipulating minority symbols and holidays. 
• Contributed to initiating discussions on minority symbols and holidays as a potentially sensitive topic in certain contexts.

Key Takeaways

• Addressing difficult issues requires genuine dialogue, openness to opposing perspectives, and a readiness to compromise, both on the part of state authorities and national minority representatives.
• The discussion needs to happen both at higher political levels and bottom-up within communities.
• Decreasing procedural formalism can help ease tensions in specific contexts.

Materials

• Study - National minority symbols and holidays: comparative european perspectives (Vello Pettai)