Mission (Im)possible: Reflecting on 13 Years of Montenegro’s EU Negotiation Journey

Montenegro’s negotiations with the European Union (EU) can only progress with new political elites. The current authorities, despite formal progress, are merely simulating integration without real reforms, thus missing a rare opportunity for membership and deepening the stalemate in the process.

This was assessed by the interlocutors of “Vijesti”, on the occasion of 13 years since the start of negotiations with the EU.

Assistant professor at the University of Donja Gorica, Nikoleta Đukanović, states that negotiations can only gain new momentum with different political elites. Those who were in power until 2020 and those currently simulating the integration process show only a will for functions and privileges, lacking the obligations and reforms that are indispensable for integration.

She pointed out that illustrative evidence for this thesis is the fact that the implementation of obligations from the Montenegro EU Accession Program for 2024 is only 57 percent, which is less than during the mandates of the governments that functioned prior to the 2020 changes.

“Not taking advantage of the rare opportunity for EU enlargement that the Government is slowly gambling on, along with such a small number of closed chapters in two years despite the removal of all aggravating circumstances by 2020, requires accountability for these modest results. Of course, no one in our country feels or takes responsibility, raising the question of when we will receive a new potential deadline for Montenegro’s EU membership, with the existing one for 2028 becoming increasingly unrealistic,” Đukanović told “Vijesti”.

At the intergovernmental conference with the EU held two days ago, Montenegro closed another negotiating chapter (5 – public procurement). This brings the total number of closed chapters to seven out of 33.

The Government announced its ambition to close all negotiation chapters by the end of 2026, aiming for Montenegro to become an EU member in 2028.

“Summarizing our progress: after 13 years of negotiations, we’ve only closed 7 chapters so far, with 26 still remaining to be closed by the end of 2026. Thus, Montenegro has only one year and six months left to close these chapters. Even for the chapters we’ve closed, the situation isn’t ideal, such as for chapters 7 (Law and Intellectual Property), 10 (Information Society and Media), and 20 (Entrepreneurship and Industrial Policy),” she emphasized.

She warned that Montenegro is in serious trouble: “Our accession negotiations have been slowed down, as we face many problems that are more typical of potential candidates, not candidates promising to complete the negotiation process within the next year and a half.”

Political analyst and journalist Aleksandar Srbinovski noted that, formally, Montenegro is the most advanced candidate country in the region, but “realistically speaking, the process has been stalled for a long time.”

“After all negotiation chapters were opened, the dynamics significantly slowed. Although there is institutional support and political rhetoric backing EU integration, reforms in key areas, especially the rule of law and the fight against corruption, remain partial. Progress is evident but often more on paper than in practice, particularly amid political instability and frequent government changes that introduce uncertainty,” explained Srbinovski.

Spajić: It’s Going According to Plan

Prime Minister Milojko Spajić announced post-intergovernmental conference that by closing Chapter 5, Montenegro has received confirmation from the European Commission (EC) and EU member states that it is on track to close all chapters next year.

“We’re closing the first chapter of the Fundamental Rights Cluster in the history of EU enlargement according to the new methodology. We’re monitoring the dynamics based on the EC’s expert assessment, and by year-end, we will have many more reasons to celebrate,” said Spajić.

Closing Chapter 5, he asserted, is a significant step towards the ultimate goal – completing the accession negotiations.

The Director of the European Commission’s Directorate for Enlargement and Eastern Neighborhood, Hert Jan Kopman, stated at the intergovernmental conference that Montenegro is fulfilling its obligations in accordance with the set plan.

“From our perspective, the next few months are crucial for completing significant reforms, allowing us to enter the coming year with positive momentum and good prospects for achieving the ambition to finalize negotiations,” said Kopman.

Poland’s Permanent Representative to the EU, Agnieszka Bartol, who chairs the conference, added that accepting new members is a geostrategic imperative and necessity for the EU.

“Your future lies with us, as soon as possible. You can count on Poland’s support and assistance on that path,” Bartol remarked.

Deputy Prime Minister of Montenegro and Minister of Foreign Affairs Ervin Ibrahimović remarked that through concrete results, Montenegro continues to demonstrate that the enlargement process is alive and making decisive progress towards its goal.

Five, Three, Then Just One Chapter

Nikoleta Đukanović recalled that in mid-April, government representatives involved in the negotiation process stated that Montenegro would close “at least six chapters” as announced by the Minister of European Affairs Maida Gorčević, or even as many as nine, as promised by the chief negotiator Predrag Zenović.

She explained that the chapters referenced pertain to the free movement of capital, public procurement, agriculture, fisheries, the right to establish a company, the provision of services, and commercial law.

“It is worth noting that in the original 2024 plan, Montenegro was supposed to close five chapters in the first half of 2025. This number then dropped to three, then to two, and now we are witnessing Montenegro closing only one chapter, alongside the recently published critical non-paper by the European Union listing major setbacks and missed opportunities,” said Đukanović.

She assessed that the numerous opportunities and chances that Montenegro missed amid the EU’s open political will for enlargement is concerning.

“From the Russian aggression in Ukraine to Donald Trump’s election, the EU was almost unanimous in wanting to enhance its membership, but the situation has changed significantly on this issue recently.”

Srbinovski: Key to Chapters 23 and 24

Aleksandar Srbinovski emphasized that after the closure of Chapter 5, further momentum will depend on the concrete steps authorities take over the summer and autumn.

“The EU is showing readiness, but the ball is definitely in Montenegro’s court,” said Srbinovski.

In response to questions regarding the most crucial open chapters and what specifically hinders their closure, Srbinovski stated that the key chapters are 23 and 24, which relate to the judiciary, fundamental rights, and security.

“Without visible progress in these areas, no other chapter can be permanently closed. The main issues are the insufficient independence of the judiciary, limited results in combating high-level corruption and organized crime, and the politicization of institutions. Additionally, certain policies, including the recent liberalization of the visa regime for third countries, conflict with European standards, further slowing progress,” Srbinovski said.

The government announced on February 19 that it is currently in its economic interest to maintain a visa-free regime for most of the 11 countries, citing tourism influx and investment as reasons.

Montenegro closed three chapters in December last year: 7 – Intellectual Property Law, 10 – Information Society and Media, and 20 – Entrepreneurship and Industrial Policy.

The closure of Chapter 31 (foreign, security, and defense policy) was then blocked by Croatia after relations between the two countries soured. Previously, Zagreb submitted demands regarding issues it considers open through a non-paper, which it claims damage mutual relations. The relationship has deteriorated over several issues, such as the ownership of the ship “Jadran”, a memorial plaque at the Morinje camp, and especially after the Montenegrin Parliament adopted a Resolution on genocide in Jasenovac and at the Dachau and Mauthausen camps at the end of June 2024.

In January, working groups from the foreign ministries of Montenegro and Croatia began discussions on the border at Prevlaka, ownership of the training ship “Jadran”, compensation for camp inmates, military property succession, and other matters.

On June 21, the governments of Montenegro and Croatia signed an agreement ceding the “Josip Marković” Cultural Center in Donja Lastva in the municipality of Tivat to Croatia, and negotiations are underway for the multi-million-dollar compensation Montenegro is to pay to the prisoners from Morinje.

Electoral and Judicial Reform…

Nikoleta Đukanović emphasized that priority reforms should include comprehensive electoral reform, judicial reform, establishing an efficient model for evaluating judges’ and prosecutors’ work, adopting an asset confiscation law for criminally acquired assets, and effectively implementing financial investigations. Additionally, rationalizing public administration employment numbers and creating a model to prevent party-based employment and the further degradation of society is essential.

For negotiations to gain new momentum, Srbinovski stressed that political stability and functional institutions are paramount. He indicated that without clear and sustainable political will, technical negotiations become meaningless.

“Secondly, reforms under Chapters 23 and 24 must transition from the planning stage to concrete implementation. This means appointments to judicial bodies without political influence, a more effective fight against systemic corruption, and strengthening institutions’ capacities,” he assessed.

Finally, Srbinovski noted that Montenegro must align its controversial visa policy and demonstrate its ability to implement reforms without external pressure.

Chronology of Negotiations

• June 29, 2012 – Official start of the negotiation process between Montenegro and the EU.
• December 18, 2012 – Chapter 25 – Science and Research opened and temporarily closed.
• April 15, 2013 – Chapter 26 – Education and Culture opened and temporarily closed.
• December 18, 2013 – Chapters 5 – Public Procurement, 6 – Commercial Law, 20 – Entrepreneurship and Industrial Policy, 23 – Judiciary and Fundamental Rights, 24 – Justice, Freedom and Security opened.
• March 31, 2014 – Chapters 7 – Intellectual Property Law, 10 – Information Society and Media opened.
• June 24, 2014 – Chapters 4 – Free movement of capital, 31 – Foreign, security and defence policy, 32 – Financial supervision opened.
• December 16, 2014 – Chapters 18 – Statistics, 28 – Consumer and Health Protection, 29 – Customs Union, 33 – Financial and Budgetary Provisions opened.
• March 30, 2015 – Chapters 16 – Taxation and 30 – External Relations opened.
• June 22, 2015 – Chapters 9 – Financial Services, 21 – Trans-European Networks opened.
• December 21, 2015 – Chapters 14 – Transport Policy and 15 – Energy opened.
• June 30, 2016 – Chapters 12 – Food Safety, Veterinary and Phytosanitary Policy and 13 – Fisheries opened.
• December 13, 2016 – Chapters 11 – Agriculture and Rural Development and 19 – Social Policy and Employment opened.
• June 20, 2017 – Chapters 1 – Free movement of goods and 22 – Regional policy and coordination of structural instruments opened; Chapter 30 provisionally closed.
• December 11, 2017 – Chapters 2 – Freedom of movement for workers and 3 – Right of establishment and freedom to provide services opened.
• June 25, 2018 – Chapter 17 – Economic and Monetary Union opened.
• December 10, 2018 – Chapter 27 – Environment and Climate Change opened.
• June 30, 2020 – Negotiation Chapter 8 – Competition opened.
• December 16, 2024 – Chapters 7 – Intellectual Property Law, 10 – Information Society and Media, and 20 – Entrepreneurship and Industrial Policy closed.
• June 27, 2025 – Negotiation Chapter 5 – Public Procurement closed.

Pro-European Rhetoric, Opposite Moves

Nikoleta Đukanović assessed that, apart from specific criticisms made by the EU in certain areas, the fundamental issue is that Montenegro has not made progress in strengthening the rule of law. The country faces severe challenges such as legal violations, lack of transparency, discrimination, and partitocracy, alongside increasingly frequent anti-European and nationalist attitudes from authorities that undermine civil society’s foundations.

“Moreover, nepotism, party employment, harassment and smear campaigns against the civil sector and critics, and the marginalization of NGOs show a complete absence of political will to democratize and Europeanize society,” she stated.

Simultaneously, she pointed out, deteriorating relations with neighbors, non-alignment with European visa policy, and ignoring key recommendations from EU institutions further confirm that the current government is essentially sabotaging European integration, “all while constantly deceiving citizens into believing that its top priority is Montenegro’s EU accession.”