AI Enters Western Balkan Governments Before Rules Are Ready
By Suad Seferi ·
Artificial intelligence is already being used inside public institutions across the Western Balkans, even as most governments are still developing the legal and institutional frameworks needed to regulate its use. An investigation by Radio Free Europe/Radio Liberty (RFE/RL) found that public authorities in Bosnia and Herzegovina, Montenegro, Serbia and Kosovo have begun using generative AI tools, including ChatGPT, Microsoft Copilot and Google Gemini, for everyday administrative work ranging from drafting documents and translating texts to researching information and supporting internal processes. The findings suggest that AI adoption is moving faster than governance across much of the region. While public institutions are experimenting with new technologies to improve efficiency, clear policies defining how these systems should be used—and what information should never be shared with them—often remain absent. AI adoption is no longer theoretical For governments across the Western Balkans, artificial intelligence has already moved beyond pilot discussions and digital transformation strategies. According to RFE/RL's reporting, a growing number of public institutions acknowledge that employees are using AI-powered tools as part of their daily work. In many cases, these systems assist with administrative tasks, drafting official correspondence, proofreading documents, summarising lengthy reports and translating content. At the same time, the investigation found that many institutions do not maintain formal records of AI use, making it difficult to assess how widely these technologies have been adopted or whether consistent internal practices exist across government bodies. The lack of documentation also makes oversight more challenging as AI becomes increasingly integrated into routine public administration. Different countries, different levels of readiness The investigation highlights significant differences across the region. Serbia appears to be among the most advanced in applying AI within public administration. AI-powered virtual assistants are already available through several government services, including the eGovernment portal, the Serbian Business Registers Agency and the Tax Administration. Authorities are also preparing legislation intended to align the country's regulatory framework with the European Union's AI Act while building on Serbia's existing National AI Strategy. Montenegro is developing its Artificial Intelligence Development Strategy for the 2026–2030 period. The government is also working with the World Bank on a roadmap aimed at introducing AI more systematically into public administration as part of broader digital transformation reforms linked to the country's EU accession process. In Bosnia and Herzegovina, AI adoption is taking place without a dedicated legal framework governing the technology in public administration. The country's complex institutional structure presents additional challenges for creating a unified national approach to AI governance. Kosovo continues expanding digital public services, but dedicated legislation regulating the use of artificial intelligence by state institutions has yet to be introduced. While AI is recognised as part of broader digital transformation efforts, governance mechanisms remain at an early stage. Although North Macedonia was not part of the RFE/RL investigation, similar discussions are taking place across the country as public institutions, universities and policymakers increasingly examine how AI can be introduced responsibly while remaining aligned with emerging European standards. Governance remains the biggest challenge The investigation identifies a common concern shared across the region: governance has not kept pace with adoption. Experts interviewed by RFE/RL point to several unresolved issues, including the protection of personal data, the handling of confidential government information and the reliability of AI-generated content used in official work. Unlike traditional software, generative AI systems can produce inaccurate or fabricated information while presenting it with confidence. That makes human verification essential whenever AI contributes to official documents, legal analysis or public communication. Questions also remain over accountability. If AI-generated information influences a government decision or contains sensitive data, responsibility ultimately rests with the institution and the public official—not the AI system itself. Europe is moving faster on regulation The regional debate comes as the European Union begins implementing the AI Act, the world's first comprehensive legal framework for artificial intelligence. Although most Western Balkan countries are not yet subject to the regulation, EU candidate countries are expected to gradually align their legislation with European standards as part of the accession process. For governments across the region, that means AI policy is becoming more than a technology issue. It is increasingly linked to public administration reform, cybersecurity, transparency and public trust. The challenge is no longer whether artificial intelligence will be used inside government institutions. That transition has already begun. The next phase will depend on whether legislation, internal policies and public-sector training can develop quickly enough to ensure AI is deployed safely, responsibly and with clear accountability. Source: Radio Free Europe/Radio Liberty (RFE/RL) investigation