Montenegro represents a driving force for European integration in the region, which is crucial for establishing economic, political and security stability—a key principle of the EU for political stability, security and economic development across the Balkans
Even in times of crisis and internal consolidation, the EU has shown that enlargement remains its priority and a powerful foreign policy tool, as well as its soft power in the global order, says Predrag Zenović of the Montenegrin Ministry of European Affairs, who serves as Montenegro’s Chief Negotiator with the EU. He explains that it is precisely thanks to Montenegro’s commitment to the priority of integration, as well as the fact that the EU is a community of principles, values and standards, that a more demanding path to membership and a new approach to negotiations have been established.
“However, since the last EU enlargement in 2013, enough time has passed to allow us to analyse the reality of the EU and the direction of membership candidate countries. It has become clear that the EU’s caution regarding the process stems both from a series of global crises and challenges, as well as from its own self-reflection, particularly on the political and legal foundations of the Union’s functioning. As a result, the EU has had to change its mechanisms and strengthen the way it deals with these challenges, which is why enlargement has been less of a focus,” explains Zenović.
“Thus, the reality of the EU is very complex, but this has also prompted European leaders to seriously reconsider the enlargement process and the need to accelerate the accessions of Western Balkan countries. It is clear that a message of realistic enlargement prospects must come from Brussels, but candidate countries must also do their part. The geopolitical context has brought enlargement policy back into focus, but the accession process has essentially always been, and must remain, merit-based. Montenegro’s administration has demonstrated its readiness, determination and courage in confronting the challenges, particularly by making progress in areas covered by chapters 23 and 24, which, according to the most recent IBAR report, cleared the way for Montenegro’s further advancement on this path.”
How is Montenegro working to accelerate the integration process under the current circumstances, and what are realistic expectations from this process?
— The goal is not EU membership in itself, but rather achieving a European quality of life, which means that it is more important to bring Montenegro closer to European standards and raise the quality of life for Montenegrin citizens. The change in the accession process, specifically the focus on the rule of law and the better preparation of potential member states prior to joining the EU, certainly alters the timelines for enlargement, but also the goals of candidate countries. We are undoubtedly dealing with the most complex accession process in history.
In this context, it is clear that Montenegro needs to focus on the overall transformation of society, and particularly on the sustainability of its EU membership. We have shown that we are capable of responding to the EU’s complex demands and are ready for the final phase of integration. As the process advances, there will certainly be a need for new specific knowledge and professional profiles, because closing chapters and completing the negotiation process does not mean the job is done. It is important to emphasise that establishing an efficient, responsible and transparent public administration is a process built throughout the entire accession journey. Administrative capacity is one of the basic conditions for EU accession.
There is a lot of work ahead of us, but Montenegro has been in this process for a long time, so we have had time to map out our weaknesses and we now have the will to address them strategically
However, we also have an internal need to build strong institutions and a professional workforce capable of dealing with the demands and challenges of the accession process, as well as post-accession obligations. Alongside regular and highly dynamic activities from the European agenda, we are working on reflecting and planning the strengthening of administrative capacities in all areas, which is currently the biggest challenge we face. There is a lot of work ahead of us, but Montenegro has been in this process for a long time, so we have had time to map out our weaknesses and we now have the will to address them strategically. We have already shown determination in this, and we have received a positive response from the European Commission, which justifies our belief that we are ready to become the next member state in 2028.
In its activities to date, Montenegro has demonstrated that it has strong institutions and many skilled and professional individuals, both in the public administration and other sectors, including the parliament, judiciary and civil society.
How supportive of European integration are Montenegrin citizens today, and what factors have the greatest influence over public opinion and expectations?
— The majority of citizens associate the EU with a “better life”. This is a key source of support for European integration among Montenegrins, on the one hand, while on the other is the perhaps more important factor that Montenegro naturally feels like an integral part of Europe. Montenegrin citizens believe that the path their country should follow is firmly rooted in European values.
Joining the EU will not resolve all of Montenegro’s problems, but the accession process itself will positively influence the establishment of a stable economic climate, increased FDI inflows and, consequently, more jobs and higher living standards. Montenegrin citizens have clearly demonstrated throughout this process that they want to be EU citizens and see the EU as their closest natural environment. Without this social consensus, we wouldn’t even be discussing the European agenda today.
In which areas do you think Montenegro is best prepared for EU membership?
— In terms of sectoral policies, we can certainly highlight chapters 25 (Science and Research) and 26 (Education and Culture), which have been provisionally closed, as well as Chapter 7 (Intellectual Property Law), Chapter 10 (Information Society and Media), Chapter 20 (Entrepreneurship and Industrial Policy) and Chapter 31 (Foreign, Security and Defence Policy). These are the chapters we have proposed to the European Commission for provisional closure. In order to achieve the goal of becoming the 28th member state by 2028, we face a period of intense work that must make up for lost time and address the upcoming challenges of the accession process.
What open issues remain on the path to EU integration, and how do you think they can be resolved?
— The priorities of the Montenegrin Government are framed by the rule of law, economic and political stability – as prerequisites for the overall development of society and the state. In this regard, the Government is strongly committed to achieving readiness to close all negotiation chapters by the end of its mandate. A realistic challenge on the path to the EU is strengthening the country’s capacity to implement the EU acquis and preparing its administration to function within the EU. We have already started working on this, primarily through strategic consideration of the need to strengthen administrative capacities across the EU acquis chapters and planning and implementing training for our civil servants to work in European institutions. This work is very complex and requires both time and financial support, but we are determined to give it our utmost attention, alongside the regular obligations arising from the process.
The green and digital transitions will require both resources and time. Sectoral policies will have complex demands and adjustments won’t always be popular. That’s why the European integration process must involve all stakeholders in society if it is to be successful.
| CONSISTENCY Montenegro is the only country that has opened all negotiation chapters and has aligned its policies with the EU’s Common Foreign and Security Policy from the very beginning | CHALLENGE A realistic challenge on the path to the EU is strengthening the country’s capacity to implement the EU acquis and preparing its administration to function within the EU | MERIT The geopolitical context has brought enlargement policy back into focus, but the accession process has essentially been, and must remain, merit-based, and Montenegro has much reason to be proud |
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