The conclusion of only a single chapter at today’s Intergovernmental Conference between Montenegro and the EU has fallen significantly short of expectations, leading to more concerns than optimism, according to Zvezdana Kovač, Director of Strategy and Communications at the Center for Civic Education (CCE). Meanwhile, the Government asserts that progress should be evaluated through tangible reforms.

Kovač expressed to Vijesti that merely closing one chapter is far less than the politically ambitious pace previously announced, which aimed to conclude all chapters by the end of next year.

“While more cautious messages were conveyed ahead of this Intergovernmental Conference regarding the number of chapters likely to be closed, it does not change the fact that, given the timelines discussed, this is quite an insignificant outcome,” Kovač stated.

During today’s Intergovernmental Conference, Chapter 5 (public procurement) was closed, bringing the total to seven completed chapters out of 33. The Government had previously hoped to finalize two additional chapters in June: Chapter 4 (free movement of capital) and Chapter 31 (foreign, security, and defence policy), both of which were blocked by Croatia late last year amid deteriorating relations between the two countries.

As explained by the Government, Chapter 4 has been finalized, but there has been a delay in synchronizing the legislative framework due to an opposition boycott of Parliament from late December last year until mid-March this year. The closure of Chapter 31 hinges on resolving bilateral issues with Croatia, including compensation for Croatian citizens detained in the former Morinje camp and changing the name of the swimming pool in Kotor. Last week, the Montenegrin Government decided to donate the Josip Marković Cultural Center in Tivat to Croatia, a demand from Zagreb.

Kovač remarked that closing all chapters by the end of 2026 is achievable but remains a highly ambitious goal requiring near-ideal conditions: political will, a broad political consensus, dedicated reform efforts across all institutions, constructive cooperation with civil society, and a firm focus on the rule of law.

“I fear it is more realistic that we will find ourselves again in a situation where deadlines are postponed and promises reformulated. Should this occur, even the current high level of public support could dwindle to disheartening levels, akin to that in Serbia, which I hope is not the political agenda of any segment of the ruling majority or anyone’s political aspiration,” she cautioned.

The Ministry of European Affairs asserts that the closure of any chapter in the negotiation process is a significant achievement, particularly Chapter 5 (public procurement), which is deemed the most challenging financial chapter and is classified within Cluster 1 – Rule of Law.

They stress that progressing through chapter closures is an intricate process, necessitating immense work and dedication from the administrative sector.

“Thus, progress should not be assessed solely by the number of chapters closed but should also focus on specific reforms and technical prerequisites needed for chapters to be ready for closure,” the Ministry told Vijesti.

The EU cannot accept those who honor war criminals and fail to acknowledge genocide.

Among the ruling and opposition parties surveyed by Vijesti regarding whether closing just one chapter constitutes success or concern given the Government’s ambitious agenda, only the Democratic Party of Socialists (DPS) and the Social Democrats (SD) replied.

The DPS asserted that closing only one chapter raises justified concerns, especially considering the overly optimistic claims consistently made by key state figures, including the Prime Minister, the Minister of European Affairs, and ruling majority MPs.

“While they are now attempting to convince the Montenegrin public that closing a chapter is a significant success, they conceal the fact that the primary reason for Montenegro’s hurdles on the EU path stems from elements within the parliamentary majority whose policies have proven regressive,” the DPS stated.

The DPS warned that due to these backward elements in the state apparatus, which they claim serve the interests of another state, a malignant political influence is spreading, placing Montenegro at odds with its neighbors, who are obstructive and justifiably act as brakes on our EU trajectory.

“It’s not only the DPS voicing these concerns; European parliamentarians have echoed them convincingly in their resolution on Montenegro, which took noted those key factors representing serious impediments to European integration. The opposition is not the one undermining state interests; rather, they are fighting vigorously for Montenegro’s European path from their position,” the DPS added.

They caution that if the situation in Montenegro remains unchanged and if the ruling majority continues under Andrija Mandić, who openly stated that the goals are the same but the means differ, “whose policies have chiefly contributed to the decline in neighborly relations”, the foreseeable outcome is further deterioration in relations with neighboring countries, not the closure of all chapters.

“We cannot enter the EU alongside those who celebrate war criminals, fail to recognize genocide, glorify the perpetrators of violence in Ukraine, and undermine the sovereignty of Montenegro and its neighbors,” stressed the DPS.

The SD assessed that the closure of only one chapter reflects the actual circumstances on the ground and indicates that the Government is utilizing the European integration process “for propaganda aims, primarily to gain short-term political advantages.”

“Thus, it is now evident that the closure dynamics have deviated from those promised. We will have to see whether the frustration this year exceeds last year, when the Government missed its own target by nearly 80%, further complicating Chapter 31,” stated the SD to Vijesti.

They emphasized that two parallel processes are unfolding in Montenegro, each with distinct dynamics.

The first process pertains to the closing of chapters, and if current trends continue, “not only will all negotiation chapters not be closed by 2026, but this goal will likely remain out of reach.”

“The second process involves the deterioration of the European integration process, spearheaded by individuals and groups around Andrija Mandić. Their actions—such as the Resolution on Jasenovac, denying the genocide in Srebrenica, firing a Constitutional Court judge, and constitutional violations—are already obstructing chapter negotiations,” the SD noted.

Internal reforms are progressing slowly

Zvezdana Kovač indicated concern over the sluggish and inconsistent pace of internal reforms in key areas, which often seem influenced by particular interests rather than adhering to European standards.

She emphasized that the progress made in chapters concerning the judiciary, the fight against corruption and organized crime, media freedom, and institutional functionality is anything but sustainable.

“The optimism expressed by both Podgorica and Brussels, which is very diplomatically worded and calculated, lacks a foundation in tangible results due to the prevailing issues of political stability and consensus regarding the European path—key conditions for countries aspiring to membership,” Kovač remarked.

She pointed to significant political hurdles that are further stalling the negotiation process.

“This government has demonstrated a unique talent for unnecessarily complicating matters and imposing burdens on itself that hinder progress,” Kovač noted, recalling the passage of the Resolution on Jasenovac in the Montenegrin Parliament.

Kovač added that this illustrates the government’s immaturity and a lack of wisdom, knowledge, and capacity, suggesting that resolving all disputes with Croatia will come at a significantly greater cost.

“I believe that achieving this will require retracting that resolution,” she posited.

The working groups from the Ministries of Foreign Affairs of Montenegro and Croatia are already advanced in negotiations over compensation for several hundred Croatian citizens detained in the former Morinje camp, with unofficial reports indicating compensation discussions ranging between 14 and 17 million euros.

Kovač cautioned against the ongoing deep polarization in Montenegro, questionable judicial independence, continual institutional blockages, and a populist approach to European integration, often reduced to gaining immediate political points instead of sustained, systemic efforts.

“For instance, the Speaker of Parliament and the Pro-Provučić parties within the ruling majority, to whom Prime Minister (Sweetie) Spajic belongs, pairing ‘doing well with PES’ alongside European integration is a contradiction I do not believe anyone seriously sees differently,” Kovač highlighted.

She noted that this “success” should not be entirely dismissed, as the closure of Chapter 5 (public procurement) demonstrates that the technical side of administration has managed to fulfill its role.

“However, it will be intriguing to observe the implementation, especially considering the agreement with the United Arab Emirates (UAE), transparency issues, and potential breaches of public procurement regulations that could lead to discrimination against Montenegrin and European enterprises, which European officials have consistently warned about,” she reminded.

The European Commission emphasized in its consolidated stance on Chapter 5 that it will be essential for Montenegro to ensure that the implementation of the Cooperation Agreement in Tourism and Real Estate Development, established on March 28, 2025, between Montenegro and the United Arab Emirates, “does not conflict with the EU’s acquis in public procurement.”

The pace is ambitious, but diligence and a serious approach yield results.

The Ministry of European Affairs stated that they are currently dedicating substantial effort towards numerous chapters that are slated for closure in the latter half of the year, asserting that their commitment and pace of work will deliver visible outcomes.

They reiterated confidence that the Government will finalize all negotiation chapters by the end of 2026.

“There is clear political will, administrative commitment, and support from EU partners and member states, which are crucial elements for achieving this objective. While we recognize that the pace is ambitious, we also acknowledge that dedication and a serious approach yield results. Therefore, we remain focused, not wasting time, and work concurrently on multiple fronts to greet 2027 as a candidate country that has accomplished the closure of all negotiation chapters,” the MEPs asserted.

Making substantial progress in Chapters 23 and 24 is paramount

Zvezdana Kovač reminded that the closure of each chapter signifies that the candidate country has met specific benchmarks in a given area, convincingly demonstrating to the European Commission and member states that reforms in that realm have been satisfactorily implemented.

“So far, we have achieved this for only one chapter in over six months, noting that much of this work was accomplished prior to this Government’s tenure. Based on simple mathematics, closing the remaining 26 chapters within a year and a half presents only theoretical chances of success,” she stated.

To accomplish this goal by the end of next year, Kovač emphasized that all stakeholders must begin working diligently and consistently, underpinned by unquestionable political will and inclusivity towards numerous societal actors, which is currently lacking.

“It is crucial that substantial progress is made in the most challenging and politically sensitive areas, particularly in Chapters 23 (judiciary and fundamental rights) and 24 (justice, freedom, and security). These chapters are fundamental, and progress is assessed against these domains—not just based on the passage of laws, but their consistent and impartial implementation,” Kovač concluded.

She also reminded that the broader context should be considered, including the evolving global geopolitical landscape, reforms within the EU itself, and the heightened focus on Ukraine, Moldova, and Georgia.

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