On December 16th, Montenegro provisionally closed three negotiation chapters at the Intergovernmental Conference, the first time in over seven years. Furthermore, in its conclusions, the European Union member states called for the initiation of accession negotiations with Montenegro, a phase of the process that no other country in the region has yet reached.
The current Government of Montenegro has placed European integration high on its list of priorities, with the goal of completing all necessary reforms by 2026, enabling the country to join the European Union by 2028. We discussed Montenegro’s path to the European Union, the key reforms that need to be implemented, and the challenges along the way with Montenegro’s Prime Minister, Milojko Spajić.
European Western Balkans: After seven and a half years, Montenegro has started closing negotiation chapters. What would you highlight as the most important reforms that have unblocked Montenegro’s path to the EU?
Milojko Spajić: The entire past year was marked by reforms related to the European integration of the country. As a government, we consistently gave our maximum effort to bring Montenegro closer to the European Union.
I would highlight some of these reforms. In December 2023, we avoided being placed on MONEYVAL’s grey list. Through implemented reforms, within just a month, we managed to fully convince the Council of Europe and its bodies that Montenegro is on the right track and that we are doing everything in our power to address this issue. At that time, we introduced a very rigorous law on anti-money laundering. Today, we can say that it is very difficult to launder money in Montenegro thanks to the reforms we implemented.
Another very important achievement was the adoption of laws necessary for obtaining IBAR. This gave us significant momentum as it became clear that closing chapters was a realistic process. This was a major breakthrough because we brought the rule of law, as stated by the European Union, to the minimal acceptable level required to become an EU member. Of course, this is not enough. Chapters 23 and 24 will always remain a priority, and as a government, we will not relax. On the contrary, we will intensify our efforts in this area in the coming period. Our seriousness is confirmed by the fact that even after obtaining IBAR, we continued to implement reforms in the judiciary and the security sector. We will do everything in our power to bring these areas, especially the fight against corruption and organized crime, to the same level as in EU member states.
Of course, during the previous period, we worked on the chapters we have already closed as well as those we aim to close by 2025. I would also mention the Growth Plan and our ambitious reform agenda. Within just two or three years, Montenegro will be reformed and ready to join the EU’s Single Market.
As a first step, we joined SEPA. We expect that by April, the European Central Bank will be ready to accept Montenegro into SEPA, and our banks will soon be operational to implement the necessary SEPA reforms. I would also mention various EU investments through which we are implementing major infrastructure projects. All of these developments are happening in parallel and are moving in the same direction – toward Brussels.
EWB: In the end, three, not four, negotiation chapters were closed, as recommended by the European Commission. How do you interpret the message sent by Zagreb to Podgorica? What are the key issues that Zagreb insists on?
MS: First, all 27 member states agreed to hold an Intergovernmental Conference with Montenegro. All 27 member states approved each of the three chapters that we closed.
We do not perceive Zagreb’s message as a blockade at all, even though the word “blockade” has been frequently mentioned in the media these days.
I believe it is very important for Montenegro to continue its work. I would like to remind you that the government has adopted a document – “Barometer 26,” which entails fostering good relations with all EU member states. I expect that any bilateral issues we may have with any member state will be resolved in a European spirit.
EWB: As the Prime Minister of Montenegro, what do you see as the greatest challenges on the country’s path to the European Union?
MS: The fundamental challenges are of a technical nature. We are a small country, and Montenegro’s administrative capacities are quite limited. While it is true that a small market is easier to reform, on the other hand, a small market also means fewer administrative capacities to implement those reforms.
We are genuinely struggling with a lack of personnel and qualified workforce. Together with the European Commission, we have identified this as the key shortcoming in our EU application. We have their support and are working around the clock to overcome these difficulties.
EWB: Many in Montenegro criticize you for appointing politically affiliated individuals to positions that should be reserved for experts. They claim this is far from the meritocracy you promised citizens during the elections. In recent days, you have faced particular criticism regarding appointments in the security sector.
MS: I would not agree with that statement. First, the selection processes we conduct do not involve political appointments. In the past, these processes were often manipulated. Now, for the first time in Montenegro, this is no longer the case. I would like to remind you that we have appointed professionals as executive directors in all state-owned companies. Half of the boards of directors consist of professionals, while the other half are politically appointed, which is entirely in line with European practice.
As a country, we have committed to the Reform Agenda for the Growth Plan, which obliges us to fully professionalize all boards in state-owned companies. We believe this is a highly significant reform we have implemented. The same applies to the directors of state agencies. Wherever there is a public competition, we always find outstanding professionals. For example, consider the Director of the Tax Administration or the Executive Director of the former IRF. In many institutions, we have truly representative individuals—the best that Montenegro has to offer.
It is important to understand that there are certain positions, as in any other country, where appointments are made. The government has the right to appoint individuals it deems most capable of fulfilling those roles in the best possible way.
We recently had cases involving the appointment of acting directors of the Police and the National Security Agency (ANB). I believe these were two excellent appointments, and in both cases, the candidates underwent comprehensive security checks before their appointments. Let me remind you that this was not the case with directors, especially of the ANB, in the past. Legally, they are not required to undergo such checks since they are appointees, but we conducted these security checks in line with the highest NATO standards. I believe this has raised the bar for security screenings and for determining who we truly appoint to such positions. Contrary to what the opposition claims, we have not taken a step backward; quite the opposite.
EWB: Nonetheless, President Milatović has stated that he will request some form of NATO inspection regarding the appointments in the ANB.
MS: Mr. Milatović first needs to understand that Montenegro is not an object but a subject within NATO and a respected member of the Alliance. I would like to remind you that NATO Secretary General Mark Rutte stated that Montenegro is a key NATO country in the Balkans. From that statement, I believe we can grasp the level of trust in Montenegro and the closeness of our relations.
No one in Brussels understands what kind of inspection Mr. Milatović is referring to, as such an inspection does not exist. The only inspections are those conducted as part of regular oversight, which applies to all NATO member states, but these inspections have nothing to do with appointments.
EWB: This leads to the next question concerning the political atmosphere in Montenegro. We can say there is a rather strong cohabitation, which is not uncommon in the European political landscape. Is this the right political atmosphere for the moment the country is in—this final phase of the European integration process? Can we expect closer relations between the Government and the President?
MS: I would say that the President is currently positioning himself as the leader of the opposition. I do not wish to delve into that aspect, but I want to emphasize that he has an open invitation to work with us on the European integration process. That is our position.
The Government formally leads the European integration process, and Parliament is the body that adopts laws, but we want the President to also be part of the success story we are creating.
EWB: Do you expect Parliament’s support in the future when it comes to laws related to the European integration process?
MS: As I have already mentioned, all the parties that make up the ruling majority have supported the “Barometer 26.” It encompasses three key principles.
The first is that debates on polarizing issues should not take place in parliamentary plenary sessions where laws are being adopted. Such issues undoubtedly exist, and we want to have a dialogue about them, but that dialogue should occur in parliamentary committees, with academics, and in other appropriate forums.
The second principle we agreed upon as a majority is that no one should hold European reforms hostage to their own agendas. European reforms should be voted on jointly, while other issues should be addressed through political agreements. European reforms must be protected from that kind of that often occurs in this region.
The third principle we agreed on is that all parties will work to improve relations with EU member states and refrain from doing anything that could contribute to the deterioration of those relations.
EWB: One of the priorities for Montenegro’s EU membership is visible results in the fight against corruption and organized crime. The European Commission has reiterated this in its report on Montenegro. Has the government done enough to provide all the necessary conditions for the work of the Special Police Department (SPO) and the Special State Prosecutor’s Office (SDT)?
MS: We have done a lot in this area. We completed the organizational restructuring of the SPO and raised its operational and functional independence to a much higher level. This is very important to reduce external influences and pressures on them, and we have also prepared record budgets for the SPO and SDT.
As for the facilities, we have resolved the issue that was slowing down the relocation process of the SDT and SPO to their new building, which we will equip with the highest global standards, with the help of our American partners.
As a government, we have provided all the legislative and institutional support to ensure that there is no political interference in the work of these bodies. I do not want to focus on arrests or individual cases—this is a negative practice from the past. We want to organize the separation of powers according to the European model, where the judiciary is completely independent from the executive. As the executive, we can do a lot to help them be more efficient, and that is what we are doing. I expect and hope that all those who have done wrong in the past and violated the laws of Montenegro will be prosecuted.