On the 2023 and 2024 Commission reports on Montenegro

MOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

on the 2023 and 2024 Commission reports on Montenegro

(2025/2020(INI))

The European Parliament,

– having regard to the Stabilisation and Association Agreement between the European Communities and their Member States, of the one part, and the Republic of Montenegro, of the other part, which entered into force on 1 May 2010,

– having regard to Montenegro’s application for membership of the European Union of 15 December 2008,

– having regard to the Commission opinion of 9 November 2010 on Montenegro’s application for membership of the European Union (COM(2010)0670), the European Council’s decision of 16-17 December 2010 to grant Montenegro candidate status and the European Council’s decision of 29 June 2012 to open EU accession negotiations with Montenegro,

– having regard to Regulation (EU) 2021/1529 of the European Parliament and of the Council of 15 September 2021 establishing the Instrument for Pre-Accession assistance (IPA III),

– having regard to Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May 2024 on establishing the Reform and Growth Facility for the Western Balkans,

– having regard to the Presidency conclusions of the Thessaloniki European Council meeting of 19-20 June 2003,

– having regard to the declarations of the EU-Western Balkans Summits of 13 December 2023 in Brussels, and of 18 December 2024 in Brussels,

– having regard to the Berlin Process launched on 28 August 2014,

– having regard to the Commission communication of 6 October 2020 entitled ‘An Economic and Investment Plan for the Western Balkans’ (COM(2020)0641),

– having regard to the Commission communication of 8 November 2023 entitled ‘2023 Communication on EU Enlargement Policy’ (COM(2023)0690), accompanied by the Commission staff working document entitled ‘Montenegro 2023 Report’ (SWD(2023)0694),

– having regard to the Commission communication of 8 November 2023 entitled ‘New growth plan for the Western Balkans’ (COM(2023)0691),

– having regard to the Commission communication of 20 March 2024 on pre-enlargement reforms and policy reviews (COM(2024)0146),

– having regard to the Commission communication of 24 July 2024 entitled ‘2024 Rule of Law Report’ (COM(2024)0800), accompanied by the Commission staff working document entitled ‘2024 Rule of Law Report – The rule of law situation in the European Union. Country Chapter on the rule of law situation in Montenegro’ (SWD(2024)0829),

– having regard to the Commission communication of 30 October 2024 entitled ‘2024 Communication on EU enlargement policy’ (COM(2024)0690), accompanied by the Commission staff working document entitled ‘Montenegro 2024 Report’ (SWD(2024)0694),

– having regard to the Commission’s overview and country assessments of 31 May 2023 and of 13 June 2024 of the economic reform programme of Montenegro, and to the joint conclusions of the Economic and Financial Dialogue between the EU and the Western Balkans and Türkiye adopted by the Council on 16 May 2023 and to the joint conclusions of the Economic and Financial Dialogue between the EU and the Western Balkans Partners, Türkiye, Georgia, Republic of Moldova and Ukraine adopted by the Council on 14 May 2024,

– having regard to the EU-Montenegro Intergovernmental Accession Conferences of 22 June 2021, 13 December 2021, 29 January 2024, 26 June 2024, and 16 December 2024,

– having regard to the 11th EU-Montenegro Stabilisation and Association Council on 14 July 2022,

– having regard to the declaration and recommendations adopted at the 22nd meeting of the EU-Montenegro Stabilisation and Association Parliamentary Committee, held on 31 October and 1 November 2024,

– having regard to Montenegro’s accession to NATO on 5 June 2017,

– having regard to Special Report 01/2022 of the European Court of Auditors of 10 January 2022, entitled ‘EU support for the Rule of Law in the Western Balkans: despite efforts, fundamental problems persist’,

– having regard to its recommendation of 23 November 2022 to the Council, the Commission and the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy concerning the new EU strategy for enlargement,

– having regard to its previous resolutions on Montenegro,

– having regard to Rule 55 of its Rules of Procedure,

– having regard to the report of the Committee on Foreign Affairs (A10-0000/2025),

A. whereas enlargement is a key EU foreign policy tool and a strategic geopolitical investment in peace, stability, security and prosperity;

B. whereas each country is judged on its own merits;

C. whereas Montenegro has gone furthest in the accession process and has significant public support therefor;

Commitment to EU accession

1. Recognises Montenegro’s firm commitment to EU accession and confirms its full support for the country’s future EU membership;

2. Welcomes Montenegro’s positive progress in enacting EU-related reforms and measures, underpinned by an ambitious timeline and collective efforts of political actors, civil society and citizens; commends Montenegro for meeting the interim benchmarks for Chapters 23 and 24 and receiving a positive Interim Benchmark Assessment Report; welcomes the closure of three more negotiating chapters, bringing the total to six;

3. Encourages all political actors to stay focused on EU integration and the required reforms; stresses the need for political stability, commitment and constructive engagement across party lines to move towards closing additional chapters; stresses that adopted reforms must be effectively implemented to ensure genuine progress;

4. Welcomes Montenegro’s sustained full alignment with the EU’s common foreign and security policy, including EU restrictive measures, inter alia those related to Russia’s war of aggression against Ukraine; encourages Montenegro to strengthen the enforcement of restrictive measures and avoid their circumvention;

5. Commends Montenegro for its humanitarian and material support to Ukraine; recalls that Montenegro hosts a large number of Ukrainian refugees;

6. Remains seriously concerned by malign foreign interference, destabilisation efforts, hybrid threats and disinformation campaigns by third country actors and urges Montenegro to adopt countermeasures in cooperation with the EU and NATO; urges the EU and the Montenegrin authorities to boost strategic communication to Montenegrin citizens on the benefits of the enlargement process and EU membership;

7. Welcomes the Montenegrin Parliament’s renewed engagement in the Stabilisation and Association Parliamentary Committee;

Democracy and the rule of law

8. Recognises the Montenegrin Parliament’s key role in the accession process; notes with concern political boycotts and blockades, as well as re-emerging tensions and ethnic polarisation; calls for constructive dialogue and consensus building across the political spectrum, prioritising legislative quality; strongly encourages inclusive and transparent public consultations and regular engagement with civil society in decision-making;

9. Calls on Montenegro to fully align its electoral legal framework with EU standards, and implement the recommendations of the Organization for Security and Co-operation in Europe's Office for Democratic Institutions and Human Rights; urges Montenegro to increase transparency and oversight of political party spending and prevent the abuse of state resources in line with EU standards;

10. Calls on the Montenegrin authorities to establish a single nationwide municipal election day to enhance governance efficiency, reduce political tensions and strengthen the stability and effectiveness of municipal and state institutions;

11. Underlines the importance of a professional, merit-based and transparent civil service; calls on Montenegro to amend and implement the relevant legislation;

12. Welcomes Montenegro’s inclusion in the Commission’s 2024 Rule of Law Report;

13. Welcomes the progress made in implementing key judicial reforms, adopting a new strategic framework and completing long-outstanding judicial appointments;

14. Urges Montenegro to further align its legal framework, including the constitution, with EU laws and standards on the independence, accountability, impartiality, integrity and professionalism of the judiciary, implement outstanding international recommendations, and determine criteria for the retirement of judges and prosecutors in line with European standards;

15. Notes the steps taken in the fight against corruption, including new laws and provisions on the protection of whistle-blowers; encourages Montenegro to further align with the EU acquis and EU standards and address recommendations by the Commission, the Venice Commission and GRECO;

16. Notes the work of the Agency for the Prevention of Corruption and calls for it to be provided with sufficient funding; calls for a stronger corruption prevention framework;

17. Urges Montenegro to align its weapons legislation with EU law and international standards; is appalled by the tragic mass shooting in Cetinje and express its condolences to the victims’ families;

18. Calls on Montenegro to fully align its visa policy with that of the EU, especially as regards countries posing security risks;

Fundamental freedoms and human rights

19. Regrets that the most vulnerable groups in society still face discrimination; calls on Montenegro to adopt a new anti-discrimination law to improve vulnerable groups’ access to rights; underlines that respect for the rights of national minorities is an integral part of the EU acquis;

20. Condemns all hate speech and hate crimes; welcomes the criminalisation of racism and hate speech;

21. Calls on the Montenegrin authorities to address the gender pay gap, improve women’s participation in decision-making and combat gender stereotypes; is deeply concerned by the high rates of gender-based violence;

22. Welcomes Montenegro’s new media laws and its strategy for media policy; insists on a zero-tolerance policy with regard to pressure on or harassment of journalists, including by public figures; underlines the need for effective follow-up of past cases;

23. Regrets the prevailing high level of polarisation in the media and its vulnerability to political and foreign influence; calls on the Montenegrin authorities to ensure the editorial, institutional and financial independence of the public service broadcaster; calls on all media entities to comply with legal requirements on public funding transparency;

24. Welcomes the publication of the 2023 population census results; encourages stakeholders to use them in a non-discriminatory manner;

25. Calls for the Council for Cooperation between the Government and NGOs to resume work;

Reconciliation and good neighbourly relations

26. Recalls that good neighbourly relations and regional cooperation are essential elements of the enlargement process; commends Montenegro’s active involvement in regional cooperation initiatives;

27. Regrets that Chapter 31 could not be closed in December 2024; calls on all engaged parties to find solutions to outstanding bilateral issues and prioritise the future interests of citizens in the Western Balkans; recalls that using unresolved bilateral and regional disputes to block candidate countries’ accession processes should be avoided;

28. Encourages Montenegro to apply a proactive approach to handling war crimes cases and ensure access to justice and reparations for victims;

Socioeconomic reforms

29. Welcomes Montenegro’s inclusion in SEPA payment schemes, lowering costs for citizens and businesses;

30. Welcomes the Growth Plan for the Western Balkans and the Reform and Growth Facility for the Western Balkans; welcomes Montenegro’s adoption of a reform agenda and encourages its full implementation; stresses the importance of inclusive stakeholder consultations in the design, implementation, monitoring and evaluation phases;

31. Encourages Montenegro to make best use of all EU funding and further align its legislation with the EU on fraud prevention; recalls the conditionality of EU funding;

32. Positively notes Montenegro’s economic growth; calls for more steps to reduce the budget deficit and public debt, and to further remove indirect tax exemptions that do not align with the EU acquis;

33. Encourages the Montenegrin authorities to boost the digital transformation and pursue evidence-based labour market policies;

34. Calls for more transparency in public procurement, notably for procedures via intergovernmental agreements, and for full compliance with EU rules and principles;

Energy, environment and connectivity

35. Urges Montenegro to advance the green transition, improve its institutional and regulatory framework and enhance energy resilience by adopting and implementing the National Energy and Climate Plan, adopting energy efficiency laws and integrating further with EU energy markets;

36. Encourages the adoption of sectoral strategies for waste management, air and water quality, nature protection and climate change, ensuring strategic planning for investments;

°

° °

37. Instructs its President to forward this resolution to the Council, the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy, the governments and parliaments of the Member States, and to the President, Government and Parliament of Montenegro.

EXPLANATORY STATEMENT

Montenegro is a nation with a rich, albeit sometimes turbulent, history. While it is neither my role nor our collective duty to dwell on the past, the country’s present political and social reality remains deeply shaped by it. Though there is no need to revisit past events, we must continually keep them in mind. Through my meetings with a diverse range of political figures – from civil society representatives and mayors to the President of the Republic – I have gained valuable insights that have both broadened my understanding and reinforced some of my earlier observations.

Montenegro finds itself in a familiar political scenario: a single party governed for three decades, playing a pivotal role in securing the nation’s independence and its accession to NATO. However, this long-standing governance also left behind numerous unresolved challenges, many of which it either failed to address or, in some instances, actively contributed to creating. The current ruling coalition is highly diverse, necessitating significant coordination and, consequently, the acceptance of various compromises. Thus, it would be inaccurate to claim that Montenegro lacks a functioning democracy. Moreover, the country’s media landscape displays a level of plurality that far exceeds what is observed elsewhere in the region.

In 2024, the ruling coalition, working constructively with the parliamentary opposition, made considerable progress by passing legislation essential for closing key negotiation chapters. Montenegro has successfully concluded three out of the four anticipated chapters—an achievement that should not be underestimated. The remaining chapter is temporarily stalled due to objections from Croatia, yet it remains firmly on the table.

Earlier, I referred to the importance of history, which is particularly relevant to this unresolved chapter, as it is deeply rooted in the historical context of both neighbouring countries. While I consider this temporary impasse an unfortunate obstacle, I am confident that it will ultimately be resolved in accordance with European values—the very foundation of the European Union and its raison d’être.

The ruling coalition has reaffirmed its commitment to enacting the necessary legislative changes to advance Montenegro’s alignment with the European Union, thereby facilitating the completion of the negotiation process. Public opinion surveys consistently indicate strong support for EU accession among Montenegrin citizens. This widespread approval serves as an additional impetus for the authorities to persist in implementing the reforms and legislative measures required for this process.

For the state to function effectively, local governance must operate efficiently. However, the current electoral legislation, which allows municipal elections to be held on different dates rather than on a single nationwide election day, hinders this efficiency. This inconsistency generates political tensions that, given the country’s size and population, have broader ramifications at the national level. Additionally, it undermines the operational effectiveness of both municipal and state governance. Amendments to the electoral legislation should be introduced to rectify these inconsistencies and address other outstanding issues related to the electoral process.

It is crucial to address the judiciary, which must be firmly established as an independent branch of power, particularly given that one of Montenegro’s major challenges is combating crime and corruption. However, it would be unfair to claim that this issue is unique to Montenegro, as no country is immune to such challenges. There are, however, differences in how countries approach and address these issues. In discussions with the authorities, I observed a high level of awareness regarding these challenges, which is a positive and encouraging sign.

My overall assessment is that there is no shortage of political will to continue on the European path. However, it is imperative to ensure that the daily fluctuations of political life—stemming, in my view, from the large number of political parties, each seeking to secure its own position—do not obstruct the enactment of essential legislation required to complete the negotiation process. The legislation must be both as effective as possible and must not succumb to the temptation of being merely “cosmetic.”

Above all, Montenegro should draw strength from its rich and proud history, recognising the considerable progress it has made. As an independent and sovereign state, it should move forward without any unnecessary complex of smallness. It has every opportunity to join the EU within the current mandate of the European institutions.

ANNEX: ENTITIES OR PERSONS FROM WHOM THE RAPPORTEUR HAS RECEIVED INPUT

ENTITIES OR PERSONS FROM WHOM THE RAPPORTEUR HAS RECEIVED INPUT

The rapporteur declares under his exclusive responsibility that he did not receive input from any entity or person to be mentioned in this Annex pursuant to Article 8 of Annex I to the Rules of Procedure.