International Quarterly of Foreign Relations

International Quarterly of Foreign Relations

The Foreign Policy of the Islamic Republic of Iran in the Balkans and Eastern Europe: A Constructivist Analysis of Soft Power and Geopolitical Opportunities

Document Type : Original Article

Authors
Mohammad Samiei 1
Saeed Al-Agha Bani Hashemi 2
Mohammad Hadi Vaez Mahdavi 3
1 PhD Candidate of, British Studies, Department of European Studies, Faculty of World Studies, University of Tehran, Tehran, Iran
2 Assistant Professor, Faculty of International Relations, Ministry of Foreign Affairs, Tehran, Iran,
3 Master's student in Diplomacy and International Organizations, Faculty of International Relations, Ministry of Foreign Affairs, Tehran, Iran
10.22034/fr.2026.537332.1691
Abstract
The research examines the geopolitical position and strategic importance of the Eastern European and Balkan region within the framework of the foreign policy of the Islamic Republic of Iran. The central question of the article is why and how the Islamic Republic of Iran has prioritized this region in its foreign policy, particularly amid divergences from Western Europe and amid the geopolitical transformations of the new international order. This study, relying on a descriptive-analytical method and through the lens of constructivist theory and soft power, presents three main hypotheses: first, that this region, as a geopolitical corridor, provides a platform for diversifying Iran's external links and reducing the impact of Western sanctions; second, that the Islamic Republic seeks to activate its soft power components through historical and cultural commonalities, especially in countries with Muslim communities, creating a form of identity convergence with these societies; third, that the structural complexities of the region and the critical approach of some of its governments toward Western hegemony have created a favorable environment for advancing Iran's strategic goals. Analysis of case studies related to Iran's relations with Serbia and its interactions with Hungary supports the notion that the Islamic Republic's foreign policy in this region is a blend of geopolitical rationality, leveraging identity ties, and diplomatic opportunism. The research findings indicate that, despite achieving some positive results at the cultural and political levels, Iran's practical influence faces serious challenges due to structural limitations, geopolitical rivalries, and ongoing pressures from Western powers. Nevertheless, the Eastern European and Balkan region remains a key pillar of the Islamic Republic of Iran's multifaceted and resilient foreign policy strategy.

Extended Abstract
Introduction
The foreign policy of the Islamic Republic of Iran toward Eastern Europe and the Balkans has, in recent years, been regarded as a key strategy for diversifying international relations and mitigating the impact of Western sanctions. This research employs an analytical-descriptive approach within the constructivist framework to examine the geopolitical position and strategic significance of this region in Iran's foreign policy.
Research Question
Why and how has Iran prioritized the Balkans and Eastern Europe in its foreign policy, particularly amid divergence from Western Europe and the evolving international order?
Research Hypotheses
The present study is based on three main hypotheses. First, the Balkans and Eastern Europe serve as a geopolitical corridor that facilitates the diversification of Iran's foreign relations and mitigates the impact of Western sanctions. Due to its unique geographical location, this region is considered a bridge between Iran and Central Europe. Second, through historical and cultural commonalities—particularly in countries with Muslim populations such as Bosnia and Albania—Iran leverages its soft power components to foster identity convergence. Third, the region's structural complexities and the criticism of Western hegemony by certain governments, such as those of Serbia and Hungary, have created a favorable environment for advancing Iran's strategic objectives.
Research Methodology
This research uses a qualitative analysis of secondary data, including official documents, foreign policy statements, analytical reports from research centers, and academic articles. Employing thematic analysis and interpretive discourse analysis, official texts and statements by officials have been examined within the framework of constructivist concepts such as identity, meaning, and soft power. Case studies of Iran's relations with Serbia and Hungary have been selected as prominent examples: the former representing political-strategic cooperation, and the latter illustrating economic-technical interactions.
Result and Discussion
Upon reviewing the research background, it is worth noting that although sporadic studies have been conducted on Iran's foreign policy in the Balkans, most have been limited to case reports. Some of these studies have examined Iran's bilateral relations with Hungary and Serbia. In contrast, others have highlighted Iran's cultural diplomacy and soft power in the region. Nevertheless, there is a serious gap in the provision of a structural and systematic analysis of this region's position in Iran's grand strategy. The present study seeks to fill this research gap by combining structural and discursive analyses and using the theoretical framework of constructivism.
The research findings show that Iran has pursued three principal axes to advance its goals in the region. In the realm of cultural diplomacy and soft power, Iran has sought to present a positive image of itself as a supporter of Islamic-Iranian identity by emphasizing civilizational commonalities and by supporting Muslim communities, especially in Serbia and Bosnia. Programs such as the establishment of Persian language chairs in Hungarian universities, the holding of cultural weeks, and the awarding of scholarships are clear examples of this strategy. In the realm of official diplomacy, Iran's relations with Serbia on the sensitive issue of Kosovo, and its cooperation with Hungary in the economic and technological fields, indicate Tehran's efforts to establish strategic ties outside the West's framework. At the third level, Iran has created space for diplomatic maneuvering by exploiting gaps in the Euro-Atlantic order and focusing on countries such as Serbia and Hungary with more independent foreign policies.
The case studies of Serbia and Hungary show Iran's strategic differences in dealing with the countries of the region. In Serbia, which has a bitter experience of NATO interventions, Iran emphasizes political convergence and a discourse of common resistance to the West. Meanwhile, Hungary, despite being a member of the European Union, has focused more on non-sensitive economic and cultural cooperation. This flexibility reflects Iran's multifaceted strategy in the region. The analysis of Iran's strategies in the Balkans shows that Tehran's approach combines geopolitical rationality, exploitation of structural opportunities, and identity-based diplomacy. However, this strategy faces serious challenges. The structural dependence of the region's countries on the West and their desire to converge with the European Union and NATO have constrained Iran's room for maneuver. On the other hand, the active presence of rival powers such as Turkey, with its neo-Ottoman discourse, Russia, with its emphasis on Orthodox Slavic identity, and China, with its robust economic tools, has reduced the possibility of Iran's independent influence. Resource constraints and weaknesses in sustainable institutional building are other obstacles to Iran's foreign policy in the region.
The results of the research indicate that, although Iran's foreign policy in the Balkans has achieved symbolic and tactical gains in the short term, it has not led to lasting, profound outcomes due to structural limitations. All three hypotheses have been confirmed: the Balkans have served as a geopolitical corridor to reduce Iran's isolation, soft power tools have been effective in creating identity convergence, and structural gaps in the regional order have provided opportunities for Iran's activism. To sustain and strengthen this strategy, Iran should focus on several key axes. The development of scientific and technological diplomacy can be effective in attracting the region's young generation. Strengthening media narratives in local languages and building sustainable cultural networks is essential. Also, expanding economic cooperation in non-sensitive areas such as agriculture, health, and new technologies can reduce dependence on political developments. This research shows that Iran's foreign policy in the Balkans, rather than an alternative strategy, is a project of resistance and flexibility against the hegemonic order of the West, which requires continuous revision of tools and techniques.

Conclusion
According to this study's findings, the Balkan region and Eastern Europe hold a special place within Iran's grand strategy of foreign policy. This importance is not only due to the region's geopolitical position as a bridge of communication with Europe, but also to its cultural and historical capacities to foster convergence with the discourse of the Iranian Resistance. Recent developments in the international system, especially after the Ukraine war, have significantly increased Iran's importance in this region. The rifts within the European Union and the emergence of currents critical of Western liberalism in countries such as Hungary and Serbia have created new opportunities for Iran to expand its influence.
From a future perspective, the success of Iran's foreign policy in the region will depend on several key factors. First, the need to adapt cultural and religious approaches to the needs of the region's young generation, who have been educated mainly under the influence of Western values. Second, the importance of developing economic relations through joint investment projects that can create lasting ties beyond political ties. Third, there is a need to be competent in managing relations with rival powers in the region, such as Turkey and Russia, so that common ground can be used to create temporary alliances. Finally, this study suggests that Iran's foreign policy in the Balkans should change from reactive to active and consolidate its presence in the region by designing long-term plans and cultural-economic institutionalization.
Keywords
Iran's foreign policy
Eastern Europe
Balkans
soft power
geopolitics
Serbia
Hungary
Subjects
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