Montenegro has made significant progress in the normative framework and the negotiation process on its path to the EU, but key challenges remain in the areas of institutional capacities, implementation of reforms, and strengthening citizens’ trust, it was concluded at the panel titled The Current Process and Obligations of Montenegro on the Road to the EU, held today in Ulcinj as part of the first module of the School of Political Studies, under the title „The EU in Practice – What Awaits Us in Reality?”
The panel participants were Damjan Ćulafić, Minister of Ecology, Sustainable Development and Northern Region Development; Biljana Papović, State Secretary at the Ministry of European Affairs; Jelena Grdinić, Director General of the Directorate for Criminal and Civil Legislation at the Ministry of Justice; and Dejan Milovac, Director of the MANS Research Center.
Minister of Ecology, Sustainable Development and Northern Region Development, Damjan Ćulafić, stated that Montenegro will manage to fulfill the normative part of its obligations within Chapter 27 through the adoption of laws, strategies, and by-laws, but that infrastructure projects represent a much greater challenge. “In that regard, transitional periods will be necessary, and its duration will depend on our negotiation skills,” the minister emphasized.
He particularly referred to the example of Botun, emphasizing that it demonstrates the importance of raising public awareness and making decisions based on facts. “There has been a lot of confusion and alarm raised among the public in Zeta, and that now represents a major challenge. Botun has shown that raising awareness about the importance of environmental protection is a slow process, and this is the area where we must focus our greatest efforts,” Ćulafić stated.
Speaking about priorities, the minister highlighted that wastewater management and primary waste selection are among the most demanding issues, both from infrastructural and financial perspectives. “The state has not done enough in the field of primary waste selection so far, as it requires large investments. This must become a focus of budget planning in the coming period,” Ćulafić stated, adding that communication with citizens and more intensive dialogue at the local level are key to success.
Biljana Papović, State Secretary at the Ministry of European Affairs, said that the upcoming Montenegro Progress Report is expected to confirm the results achieved so far, while also clearly pointing out the remaining challenges. “The assessments we receive from Brussels are now aligned with our own ambitions. The report will acknowledge what has been accomplished, but it will also underline what still lies ahead,” she emphasized.
She noted that the state administration at all levels responds to “domestic tasks” regardless of which political party is in charge of a ministry, and that there are no obstacles in terms of political will.
According to her, there is a plan with Brussels on how to complete the negotiations by 2026, noting 2027 as an election year, and that we cannot expect the same level of commitment to finalizing the EU path from decision-makers in that period.
She also pointed out that there are currently political challenges in this process. “We are seeing a new wave of appointments that need to take place, from the Constitutional Court to the situation with the Central Bank, which is complex. How Parliament will act on this and what challenges there will be, we cannot say,” Papović stated.
Jelena Grdinić, Director General of the Directorate for Criminal and Civil Legislation at the Ministry of Justice, reminded that Chapters 23 and 24 each have three final benchmarks, with numerous indicators that must be met. “Normative activity is now less in focus. Concrete results are expected, and these depend on a large number of institutions – the prosecution, the judiciary, and ministries,” she said.
Grdinić explained that an analysis is currently underway of everything that has not yet been implemented, what requires continuity, and which institutions need to be further activated, while ensuring the necessary resources and funding. She emphasized that the biggest challenges currently lie in administrative capacities and institutional gaps, which slow down the implementation of activities despite the existence of political will.
Regarding high-level corruption cases, Grdinić highlighted the complexity of these proceedings. “A single indictment can involve a large number of defendants, and we do not have courtrooms capable of handling such cases. Additionally, the Criminal Procedure Code was drafted before cases of this nature emerged,” she warned.
Dejan Milovac, Director of the MANS Research Center, stated that part of society sees Montenegro’s EU accession as an opportunity to finally establish a stable system, but that political parties often fail to demonstrate responsibility. “Whenever Montenegro takes one or two steps toward the EU, political structures try to neutralize that progress or roll it back. The biggest problem is that politicians primarily see power as a means to build their party base,” he emphasized.
Milovac assessed that, due to geopolitical circumstances and EU interests, Montenegro will likely become a member of the Union, but that this will not automatically solve internal problems. “Nothing decisive will change in 2028 – our challenges will remain, including environmental issues. It is unlikely that by 2026 we will have brought the legislative framework to a level that finally serves the citizens,” Milovac warned.
Speaking about judicial reforms, he particularly emphasized the need for vetting in the judiciary. He referred to the case of former Supreme Court President Vesna Medenica, noting that it provides a strong argument for initiating a vetting process. “We have a reason to suspect that every judge was within her network. She was in the judiciary for a long time and held positions where she could influence those who were susceptible to pressure,” Milovac stated, adding that the first step toward vetting is the formation of a special court and the engagement of an expert team for complex cases.
