Kosovo Foreign and Security Challenges and Priorities

From 2021 to 2025, Kosovo’s foreign and security policy had a clear strategy but faced growing challenges. The country remained committed to its Euro-Atlantic path, supported the West on key issues, and continued working toward recognition, joining NATO and the EU, and taking a greater role in international security and diplomacy. However, this period showed how easily progress can stall when crises in the Kosovo-Serb majority north, ongoing tensions with Serbia, weak coordination with allies, and a changing global environment get in the way. In reality, Kosovo’s agenda was less about lacking goals than about the struggle to carry them out consistently and practically.

This report looks at Kosovo’s main foreign and security challenges and highlights some potential priorities for future policy. It uses a mix of document analysis, process tracing, and key-informant interviews. The document analysis covers government records, EU and NATO reports, statements, policy papers, and other relevant sources. Process tracing follows major events from 2021 to 2025, such as crises in the north, the progress of the EU-led normalization talks, shifts in relations with important allies, and Kosovo’s steps toward European and international integration. Interviews with senior officials, both current and former, provide insights into Kosovo’s weaknesses, missed chances, and strategic decisions.

The main argument of this report is that Kosovo’s biggest challenge in terms of foreign and security policy is not about choosing a direction. The country’s strategy and orientation are clear. The real issue is turning that strategy into beneficial results for Kosovo’s vital national interests, which may include stability and integration of the north of the country, real perspective for membership in the NATO and EU, full normalization of relations with Serbia, keeping strong ties with the United States, and making institutions more resilient against crime, cyber threats, disinformation, and outside pressure. Going forward, Kosovo’s foreign and security policy should focus less on slogans like foreign and security policy priorities and more on better planning internally, stronger coordination with allies, and becoming a reliable and predictable partner.

This report has four main sections. First, it looks at how Kosovo’s foreign and security policy has changed in recent years, especially as the regional and international environment shifts. Next, it reviews the main challenges Kosovo faces, such as developments in the north, the normalization process with Serbia, relations with key Western partners, and the increasing impact of hybrid threats, cyber insecurity, and foreign influence. The third section outlines Kosovo’s top priorities for the near future, focusing on building domestic resilience and strengthening ties with NATO, the EU, international organizations, and other partners. Finally, the report brings these points together and suggests that Kosovo’s main task now is to put its strategic plans into action in a more consistent and credible way.

Disclaimer: The views expressed in this paper are those of the author and do not necessarily reflect the views of Konrad-Adenauer-Stiftung. This publication of the Konrad-Adenauer-Stiftung is solely intended for information purposes. It may not be used by political parties or by election campaigners or supporters for the purpose of election advertising.