Accession of Montenegro to the European Union

Accession of Montenegro to the European Union
Status	Candidate negotiating (screening complete)
Earliest possible entry	2028
Application European perspective December 2002 Potential candidate December 2002 Membership application 15 December 2008 Candidate status 17 December 2010 Screening 29 June 2012 Screened & negotiations commence 27 June 2013
Negotiations Clusters open 6 Chapters open 15 Clusters closed 0 Chapters closed 18 54.5% complete
Memberships & Treaties Association Agreement 1 May 2010 Economic and monetary policy EU Free Trade Agreement Part of the SAA World Trade Organization (WTO) Member since 29 April 2012 Euro & the Eurozone Euro has de facto been used since 1 January 2002 Main article: Montenegro and the euro Travel Schengen visa liberalisation 19 December 2009 Energy Energy Community 15 December 2006 Euratom There are no nuclear power plants or research reactors in Montenegro ENTSO-E Crnogorski Elektroprenosni Sistem is a member Foreign and military policy North Atlantic Treaty Organization (NATO) 5 June 2017 Organization for Security and Co-operation in Europe (OSCE) 10 September 2000 (as the Federal Republic of Yugoslavia) Human rights and international courts Council of Europe (CoE) Member since 11 May 2007 International Criminal Court (ICC) Member since 3 June 2006 International Court of Justice (ICJ) Entitled to appear since 28 June 2006; there are no cases
Impact (27+1) Population 446,828,803 447,461,961 0.14% Area 4,233,262 km2 1,634,472 mi2 4,247,074 km2 1,639,805 mi2 0.3% HDI 0.896 0.893 0.1% GDP (PPP) $25.399 trillion $25.416 trillion 0.07% GDP per capita (PPP) $56,928 $56,605 0.5% GDP $17.818 trillion $17.825 trillion 0.03% GDP per capita $39,940 $39,699 0.6% Gini 30.0 30.1 0.1% Official Languages 24 25 Montenegrin +1

Accession of Montenegro to the European Union (EU) is on the agenda for future enlargement of the EU.

After voting for independence from Serbia and Montenegro in 2006, Montenegro began the process of accession to the European Union by agreeing to a Stabilisation and Association Agreement with the EU, which officially came into force on 1 May 2010. Montenegro officially applied to join the EU on 15 December 2008. Membership negotiations began on 29 June 2012.

It is one of nine current EU candidate countries, together with Albania, Bosnia and Herzegovina, Georgia, Moldova, North Macedonia, Serbia, Turkey, and Ukraine. Among the 6 candidates with open negotiations (Montenegro, Serbia, Albania, North Macedonia, Moldova and Ukraine), the most advanced stage of the negotiations—defined as meeting the interim benchmarks for negotiation chapter 23 and 24 which allow the closing process of all negotiation chapters to start—has so far been reached by Montenegro and Albania. As of early October 2026, 15 out of 33 chapters remain to be closed.

As of 2026, Montenegro's goal is to achieve membership of the EU by 2028, and the European Commissioner for Enlargement Marta Kos stated that Montenegro could complete the negotiation process by that date, placing it at the forefront of the enlargement process.

History

Since Montenegro's potential candidate status was granted

Former President of the European Commission Jean-Claude Juncker with former Montenegrin President Milo Đukanović in Brussels, Belgium on 5 June 2018

Montenegro's path toward European Union membership stretches back to December 2002, when it was still part of the State Union of Serbia and Montenegro. As a potential candidate, Montenegro was drawn into the broader framework of the EU's Stabilisation and Association Process (SAP), which was designed to guide the Western Balkans countries through political and economic reforms in preparation for eventual membership. The country's European integration track accelerated sharply following its independence in 2006, after which the EU moved quickly to establish a formal bilateral relationship, opening the door to a Stabilisation and Association Agreement, membership application, candidate status, and the launch of accession negotiations in 2012.

Identification

Montenegro was granted potential candidate status in December 2002, when it was still in a union with Serbia. The EU recognised the new and independent country's European Perspective on 21 June 2003 at the Thessaloniki Summit. The adoption of the Thessaloniki Declaration of 2003 was a promise by the EU that the former Yugoslav republics along with Albania have "unequivocal support for future integration and full membership of these states in the Union."

Following the 2006 Montenegrin independence referendum on 21 May 2006, in which 55.5% of voters supported independence, Montenegro declared independence from the State Union of Serbia and Montenegro on 3 June 2006. The EU moved swiftly to recognise the new state and establish bilateral relations. A mandate for direct negotiations on a Stabilisation and Association Agreement (SAA) was established in July 2006, and separate negotiations with an independent Montenegro began in September 2006. The Agreement was initialled in Podgorica on 15 March 2007 and formally signed in Luxembourg on 15 October 2007. On 13 November 2007, the Parliament of Montenegro ratified the SAA along with an interim agreement and agreements on visa liberalisation and readmission. On 1 January 2008, the Interim Agreement on trade and related issues, the Visa Liberalisation Agreement, and the Readmission Agreement all entered into force. The SAA itself entered into full force on 1 May 2010, after ratification by all 27 EU member states.

The SAA established a broad framework for political dialogue, economic cooperation, and the gradual harmonisation of Montenegrin law with the EU acquis. It committed Montenegro to democratic principles, the rule of law, respect for human rights, and cooperation with the International Criminal Tribunal for the former Yugoslavia. It also provided for the progressive establishment of a bilateral free trade area over a maximum period of five years, and made Montenegro eligible for EU financial assistance conditional on continued progress toward the Copenhagen criteria.

Membership application

Montenegro officially applied to join the EU on 15 December 2008. The application was submitted by Prime Minister Milo Đukanović to French President Nicolas Sarkozy, who at the time held the rotating presidency of the Council of the European Union. The submission was presented during a ceremony in Brussels and built upon the foundation of the SAA, emphasising Montenegro's commitment to aligning with EU standards in areas such as the rule of law, economic reforms, and regional cooperation.

Questionnaire

On 23 April 2009, the Council invited the European Commission to submit its opinion on the application. The Commission presented Montenegro with a questionnaire to assess its application on 22 July 2009. On 9 December 2009, Montenegro delivered its answers to the EC questionnaire. In 2010, the Commission issued a favourable opinion on Montenegro's application, identifying seven key priorities that would need to be addressed for negotiations to begin.

Recommendation

The European Commission issued a favourable opinion on Montenegro's membership application on 9 November 2010, recommending it as a candidate country. The Commission's opinion identified seven key priority areas that Montenegro would need to address before accession negotiations could begin, including the rule of law, the fight against corruption and organised crime, and the freedom of the press. Montenegro officially was granted candidate status by the European Council on 17 December 2010.

Candidacy

Following the granting of candidate status, the Council agreed in December 2011 to launch the accession process, with a view to opening formal negotiations by June 2012. The accession negotiations with Montenegro were formally opened on 29 June 2012 at the first ministerial-level meeting of the Intergovernmental Accession Conference in Brussels. Montenegro was the first Western Balkans country to begin negotiations under the EU's "new approach," which required that Chapters 23 (Judiciary and Fundamental Rights) and 24 (Justice, Freedom and Security) be opened first and remain open throughout the negotiation process, given their centrality to democratic reform.

Negotiations proceeded gradually over the following years. The screening of all 33 negotiating chapters was completed by June 2013, and the Council regularly opened chapters in subsequent years through a series of Intergovernmental Conferences. However, progress toward the provisional closure of chapters remained slow through much of the 2010s. By 2018, the accession process had effectively stalled due to a lack of substantial progress in the rule-of-law area and insufficient political will for reform.

Momentum resumed following Russia's full-scale invasion of Ukraine in February 2022, which prompted the EU to reinvigorate its enlargement policy as a strategic priority. In May 2021 the Council had already agreed to apply a revised enlargement methodology to the accession negotiations with Montenegro and Serbia, placing stronger emphasis on fundamental reforms and providing greater political impetus. Following the election of Prime Minister Milojko Spajić in October 2023, Montenegro's government regained momentum, reaching agreement on long-delayed judicial appointments and accelerating its reform agenda. In June 2024, Podgorica received a positive Interim Benchmark Assessment Report (IBAR), confirming that it had met the interim benchmarks in Chapters 23 and 24 — a prerequisite for provisional closure of other negotiating chapters. All 33 negotiating chapters have since been opened, and as of early October 2026, eighteen have been provisionally closed.

Ad Hoc Working Party

On May 1, 2026, the EU approved an Ad Hoc Working Party made up of representatives from various EU countries to work out the legal fine print on Montenegro's accession. According to one diplomat the document will be around 80 percent to 85 percent identical to Croatia's accession treaty. At the time Montenegro had closed out 14 of the 33 chapters needed for accession, and had set out a timetable to join the EU by 2028. The EU has rapidly accelerated their accession process and intends for Montenegro to act as an experiment in "two-tier" accession to join the EU but without veto powers. On May 27 Montenegro's Prime Minister Milojko Spajić led a delegation which met with French President Emmanuel Macron at the Élysée Palace where Macron, one of the leading proponents of the "two-tier" system, stated “Montenegro can count on French support in the final stage of the EU accession process.”

One of the major final hurdles is the issue of the Montenegrin language which, if Montenegro would join the EU, would become one of the bloc's official languages. EU diplomats have raised issue with the prospect of employing a group of Montenegrin interpreters since the language is so similar to Croatian.

Treaties

Stabilisation and Association Agreement

The State Union of Serbia and Montenegro started the process of Accession to the European Union in November 2005, when negotiations over a Stabilisation and Association Agreement began. The EU concluded such agreements with states that wish to become members. In exchange for commitments to political, economic, trade, or human rights reform in the country, tariff-free access to some or all EU markets (industrial goods, agricultural products, etc.), and financial or technical assistance may be offered by the EU.

In May 2006, Montenegro voted for independence in a referendum, and the State Union of Serbia and Montenegro was dissolved. Serbia continued with the existing SAA negotiations, and separate negotiations were launched with Montenegro in September 2006.

The Agreement was initiated on 15 March 2007 and signed on 15 October 2007. After all the 27 member-states of EU had ratified the SAA, it came into force on 1 May 2010.

Status of SAA ratification

Event North Macedonia Croatia Albania Montenegro Bosnia and Herzegovina Serbia Kosovo SAA negotiations start 2000-04-05 2000-11-24 2003-01-31 2005-10-10 2005-11-25 2005-10-10 2013-10-28 SAA initialled 2000-11-24 2001-05-14 2006-02-28 2007-03-15 2007-12-04 2007-11-07 2014-07-25 SAA/IA signature 2001-04-09 2001-10-29 2006-06-12 2007-10-15 2008-06-16 2008-04-29 2015-10-27 Interim Agreement: EC ratification 2001-04-27 2002-01-30 2006-06-12 2007-10-15 2008-06-16 2009-12-08 N/A SAP state ratification 2001-04-27 2002-01-30 2006-10-09 2007-11-14 2008-06-20 2008-09-22 N/A entry into force 2001-06-01 2002-03-01 2006-12-01 2008-01-01 2008-07-01 2010-02-01 N/A Deposit of the instrument of ratification: SAP state 2001-04-27 2002-01-30 2006-11-09 2007-11-13 2009-02-26 2008-09-22 2016-02-26 Austria 2002-09-06 2002-03-15 2008-05-21 2008-07-04 2009-09-04 2011-01-13 N/A Belgium 2003-12-29 2003-12-17 2008-10-22 2010-03-29 2010-03-29 2012-03-20 N/A Bulgaria joined the EU later 2008-05-30 2009-03-13 2010-08-12 N/A Croatia joined the EU later N/A Cyprus joined the EU later 2008-05-30 2008-11-20 2009-07-02 2010-11-26 N/A Czech Republic joined the EU later 2008-05-07 2009-02-19 2009-07-23 2011-01-28 N/A Denmark 2002-04-10 2002-05-08 2008-04-24 2008-06-25 2009-05-26 2011-03-04 N/A Estonia joined the EU later 2007-10-17 2007-11-22 2008-09-11 2010-08-19 N/A Finland 2004-01-06 2004-01-06 2007-11-29 2009-03-18 2009-04-07 2011-10-21 N/A France 2003-06-04 2003-06-04 2009-02-12 2009-07-30 2011-02-10 2012-01-16 N/A Germany 2002-06-20 2002-10-18 2009-02-19 2009-11-16 2009-08-14 2012-02-24 N/A Greece 2003-08-27 2003-08-27 2009-02-26 2010-03-04 2010-09-20 2011-03-10 N/A Hungary joined the EU later 2007-04-23 2008-05-14 2008-10-22 2010-11-16 N/A Ireland 2002-05-06 2002-05-06 2007-06-11 2009-06-04 2009-06-04 2011-09-29 N/A Italy 2003-10-30 2004-10-06 2008-01-07 2009-10-13 2010-09-08 2011-01-06 N/A Latvia joined the EU later 2006-12-19 2008-10-17 2009-11-12 2011-05-30 N/A Lithuania joined the EU later 2007-05-17 2009-03-04 2009-05-04 2013-06-26 N/A Luxembourg 2003-07-28 2003-08-01 2007-07-04 2009-06-11 2010-12-22 2011-01-21 N/A Malta joined the EU later 2008-04-21 2008-12-11 2010-01-07 2010-07-06 N/A Netherlands 2002-09-09 2004-04-30 2007-12-10 2009-01-29 2009-09-30 2012-02-27 N/A Poland joined the EU later 2007-04-14 2009-02-06 2010-04-07 2012-01-13 N/A Portugal 2003-07-14 2003-07-14 2008-07-11 2008-09-23 2009-06-29 2011-03-04 N/A Romania joined the EU later 2009-01-15 2010-01-08 2012-05-22 N/A Slovakia joined the EU later 2007-07-20 2008-07-29 2009-03-17 2010-11-11 N/A Slovenia joined the EU later 2007-01-18 2008-02-07 2009-03-10 2010-12-07 N/A Spain 2002-10-04 2002-10-04 2007-05-03 2009-03-12 2010-06-15 2010-06-21 N/A Sweden 2002-06-25 2003-03-27 2007-03-21 2009-03-11 2009-09-14 2011-04-15 N/A United Kingdom 2002-12-17 2004-09-03 2007-10-16 2010-01-12 2010-04-20 2011-08-11 N/A European Communities or European Union and Euratom 2004-02-25 2004-12-21 2009-02-26 2010-03-29 2015-04-30 2013-07-22 2016-02-24 SAA entry into force 2004-04-01 2005-02-01 2009-04-01 2010-05-01 2015-06-01 2013-09-01 2016-04-01 EU membership (SAA lapsed) (TBD) 2013-07-01 (TBD) (TBD) (TBD) (TBD) (TBD) N/A: Not applicable.

EU programs and organisations

• Eastern Partnership: 22 January 2007
• Energy Community: joined 15 December 2006
• European Network of Transmission System Operators for Electricity:
• Southeast Europe Transport Community: since establishment in 2017

Public opinion

Montenegro's population is overwhelmingly pro-EU, with 76.2% being in favour according to polling and only 9.8% against, in October 2009.

As of May 2023, the support of the citizens of Montenegro for the country's membership in the European Union reached a record high of 79.3%, according to a survey commissioned by the EU Delegation to Montenegro. The survey reported 75.9% of citizens believe that Montenegro will become a member of the EU. Over 90% of citizens would vote in the referendum, and 81.1% of those voting would support Montenegro's membership in the EU.

According to a survey carried out in March and April 2025 by Eurobarometer, 83% of citizens of Montenegro tend to trust the EU, while 17% tend not to trust it. When it comes to EU membership, the situation is similar: more than 80% of citizens of Montenegro believe it would be a good thing.

According to the 2025 annual survey of opinion in Montenegro, 60% of citizens have a positive attitude towards the EU (16% very positive, 44% fairly positive), while trust in the EU is 69%. It is also revealed that 64% of citizens would vote in favour of Montenegro's membership of the EU if a referendum was held, while 75% of citizens believe that EU membership would bring more advantages than disadvantages.

Negotiations and conditions

Ursula von der Leyen and Jakov Milatović in 2024

Montenegro signed an agreement with the Bulgarian government in December 2007 in which Bulgaria would assist Montenegro with its Euro-Atlantic and EU integration for the following three years. Reports at that time indicated Montenegro had ecological, judicial, and crime-related problems that may hinder its accession bid.

The Ministry of Foreign Affairs and European Integration of Montenegro has a special agency dedicated to accession to the EU, the Office for Assistance to the Chief Negotiator. The office's goal is to support the task of the Chief Negotiator for Montenegro's Accession to the EU, Zorka Kordić. On 27 July 2010, the Parliament passed a non-discrimination law that includes sexual orientation and gender identity as prohibited grounds of discrimination. This was one of the requirements the country had to meet for EU membership.

In December 2011, the Council agreed to launch the accession process, with negotiations beginning on 29 June 2012.

The 2015 European Commission Progress Report on Montenegro noted that the country had made good progress toward meeting the benchmarks to join the EU, but the nation needed to address institutional frameworks, including competition policy, fighting against corruption and organized crime, and work in the areas of the environment and climate change.

A 2015 study of the readiness to join the EU by using data from the World Bank Enterprise Survey collected from enterprise owners and management indicated that Montenegro passed three out of six business dimensions: basic infrastructure, goods delivery, and secure legal secure environment, but was lower than four other candidate nations in resources, technology support, and regulations.

In its 2016 assessment of the accession progress, the European Parliament identified Montenegro as having the highest level of preparation for membership among the negotiating candidate nations.

From 2014 through 2020, Montenegro received €279.1 million of developmental aid (not including the allocation for Cross-border Cooperation) from the Instrument for Pre-Accession Assistance, a funding mechanism for EU candidate countries. The priority areas for these funds include: democracy and governance, rule of law and fundamental rights, environment and climate action, transport, competitiveness and innovation, education, employment and social policies, agriculture and rural development, regional and territorial cooperation.

With all the negotiating chapters opened as of 2021, Montenegro had widespread support among EU members' officials with possible accession to the EU considered by 2025.

On 22 April 2026 EU ambassadors approved the creation of an ad hoc working group for the drafting of Montenegro's accession treaty.

As of early October 2026, fifteen chapters are open, eighteen have been provisionally closed, and in two which there is nothing to adopt.

The Parliament of Montenegro voted on amendments to the Constitution of Montenegro on 6 July 2026. These amendments were needed to fulfill benchmarks for the closing of Chapter 23 (Judiciary & Fundamental Rights) and Chapter 24 (Justice, Freedom & Security).

On 17 August 2026, the Constitutional Committee of the Parliament of Montenegro approved a proposal for constitutional amendments concerning the Judicial and Prosecutorial Councils and the Central Bank of Montenegro (CBCG) and a constitutional law regulating their implementation. Chair of the Constitutional Committee Jelena Božović said the amendments proposed by the government had been coordinated with the European Commission and were linked to the country’s obligations under closing negotiating Chapters 17 and 23. The Parliament of Montenegro adopted constitutional amendments on 24 August 2026 that change the composition and appointment procedures of the Judicial and Prosecutorial Councils, reduce the direct influence of the executive branch over the judiciary, and provide additional guarantees for the independence of the Central Bank of Montenegro.

On 27 August 2026, the announced closure of the new negotiating chapters with the EU will be accompanied by coordinated hybrid actions involving officials from at least two countries in the region, announced by prime minister Milojko Spajić.

On 31 August 2026, the European Commission stated that any interference in Montenegro’s EU accession process would be unacceptable. Responding to questions from Vijesti about prime minister Spajić’s statement that the closing of negotiating chapters would be accompanied by hybrid activities, involving at least two countries from the region, the Commission stated that the EU was already supporting the Montenegrin authorities in addressing growing hybrid threats, including those aimed at disrupting the country’s European path. They added that it remained in close contact with the Montenegrin authorities and continued to closely monitor developments in order to support Montenegro’s stability and its path towards EU membership.

Local media in Montenegro learned that the EU was preparing a new, accelerated plan to complete accession negotiations with Montenegro, which envisages closing all remaining chapters by the end of 2026 and preparing the first draft of the Accession Treaty.

The government adopted the country's updated negotiating position on Chapter 15, which has been agreed with the European Commission and confirms that Montenegro has fulfilled all final benchmarks in aligning its energy sector with the EU aquis. This creates the conditions for the provisional closure of chapter 15 on 19 November 2026.

According to the Montenegrin Minister of European Affairs Maida Gorčević, Chapter 18 (Statistics) will be provisionally closed during the next General Affairs Council meeting, which was expected to be held on 22 September 2026 but got cancelled.

On 18 September 2026, Montenegro’s public broadcaster RTCG reported that the intergovernmental conference that was expected to take place on 22 September 2026 would not be held.

Podgorica-based daily Dan reported on 19 September 2026, citing an unnamed source in Brussels, that the Netherlands had requested a pause in Montenegro’s further EU integration in order to allow for an additional assessment of the country’s compliance with EU standards.

On 20 September 2026, Montenegro’s Ministry of European Affairs called on the media to carefully verify information concerning the country’s EU accession negotiations, after reports emerged that five EU member states had sought to halt Montenegro’s accession process. Claims are also denied by the EU delegation in Podgorica. The Ministry said that, as the negotiations approach their final stage, there has been an increase of disinformation and content displaying characteristics of both domestic and foreign information manipulation, particularly regarding the positions of EU member states, the pace of negotiations and the closure of negotiating chapters. According to Dan, Croatia, Estonia, Lithuania and Latvia joined the Dutch request, making it uncertain when Montenegro could close additional negotiating chapters and hold its next intergovernmental conference. The EU delegation in Podgorica dismissed the claims as unfounded, noting that the scheduling of intergovernmental conferences and the closure of negotiating chapters require the completion of the relevant procedures, compliance with EU standards and the consent of all member states. At the same time, the Delegation said Montenegro had made significant progress in its accession negotiations but needed to continue implementing the remaining reforms, particularly in the area of the rule of law.

Minister of European Affairs Maida Gorčević told the RTCG on 20 September 2026 that there was neither a political nor a technical blockade of Montenegro’s EU path and that the member states had not slowed down the negotiation procedures. She said that Chapter 18, covering statistics, and Chapter 19, covering social policy and employment, were ready to be closed, but that the completion of the procedure in the Dutch parliament was still required.

According to Marta Kos, Montenegro is in the final phase of negotiations with the EU and at the next intergovernmental conference in mid-October 2026 is expected to close several more negotiating chapters.

Ursula von der Leyen stressed that Montenegro has made progress in reforms “and that is why it had closed so many chapters”, adding that “EU membership is within reach, which will send a strong message to the Western Balkans”, it was reported by Vijesti. She underlined that “the work is now advancing to prepare Montenegro’s Accession Treaty”.

The 29th meeting of the Accession Conference with Montenegro will be held in Luxembourg, the closure of (Chapter 18 Statistics) and (19 Social policy and employment), on 12 October 2026.

Current chapter status tables

Clusters of negotiating chapters

Clusters	Acquis Chapter	Status
Overview	Overview	18 out of 33	6 out of 6	0 out of 6
Fundamentals	23. Judiciary & Fundamental Rights	Opened	Opened	–
	24. Justice, Freedom & Security	Opened
	Economic criteria	–
	Functioning of democratic institutions	–
	Public administration reform	–
	5. Public Procurement	Closed
	18. Statistics	Opened
	32. Financial Control	Closed
Internal Market	1. Free Movement of Goods	Opened	Opened	–
	2. Freedom of Movement For Workers	Closed
	3. Right of Establishment & Freedom To Provide Services	Closed
	4. Free Movement of Capital	Closed
	6. Company Law	Closed
	7. Intellectual Property Law	Closed
	8. Competition Policy	Closed
	9. Financial Services	Opened
	28. Consumer & Health Protection	Closed
Competitiveness and inclusive growth	10. Information Society & Media	Closed	Opened	–
	16. Taxation	Opened
	17. Economic & Monetary Policy	Opened
	19. Social Policy & Employment	Opened
	20. Enterprise & Industrial Policy	Closed
	25. Science & Research	Closed
	26. Education & Culture	Closed
	29. Customs Union	Closed
Green agenda and sustainable connectivity	14. Transport Policy	Opened	Opened	–
	15. Energy	Opened
	21. Trans-European Networks	Closed
	27. Environment	Opened
Resources, agriculture and cohesion	11. Agriculture & Rural Development	Closed	Opened	–
	12. Food Safety, Veterinary & Phytosanitary Policy	Opened
	13. Fisheries	Closed
	22. Regional Policy & Coordination of Structural Instruments	Opened
	33. Financial & Budgetary Provisions	Opened
External relations	30. External Relations	Closed	Opened	–
	31. Foreign, Security & Defence Policy	Opened
	34. Institutions	–	–	–
	35. Other Issues	–	–	–

Screening and Chapter Dates

Progression	33 / 33 100% complete	33 / 33 100% complete	33 / 33 100% complete	18 / 33 54.5% complete
Acquis chapter	Screening Started	Screening Completed	Chapters Opened	Chapters Closed
1. Free Movement of Goods	2013-01-14	2013-03-06	2017-06-20	–
2. Freedom of Movement For Workers	2013-05-13	2013-06-07	2017-12-11	2026-06-15
3. Right of Establishment & Freedom To Provide Services	2012-10-23	2012-11-30	2017-12-11	2025-12-16
4. Free Movement of Capital	2013-01-18	2013-02-21	2014-06-24	2025-12-16
5. Public Procurement	2012-09-27	2012-11-19	2013-12-18	2025-06-27
6. Company Law	2012-10-02	2012-11-22	2013-12-18	2025-12-16
7. Intellectual Property Law	2012-10-11	2012-11-21	2014-03-31	2024-12-16
8. Competition Policy	2012-10-03	2012-12-04	2020-06-30	2026-07-14
9. Financial Services	2013-04-17	2013-06-11	2015-06-22	–
10. Information Society & Media	2012-12-06	2013-01-22	2014-03-31	2024-12-16
11. Agriculture & Rural Development	2012-11-06	2012-12-13	2016-12-13	2025-12-16
12. Food Safety, Veterinary & Phytosanitary Policy	2012-10-15	2013-02-01	2016-06-30	–
13. Fisheries	2013-03-14	2013-06-06	2016-06-30	2025-12-16
14. Transport Policy	2013-04-22	2013-05-30	2015-12-21	–
15. Energy	2013-02-27	2013-04-11	2015-12-21	–
16. Taxation	2013-04-08	2013-04-30	2015-03-30	–
17. Economic & Monetary Policy	2013-01-10	2013-02-26	2018-06-25	–
18. Statistics	2013-06-03	2013-06-25	2014-12-16	–
19. Social Policy & Employment	2013-01-23	2013-03-13	2016-12-13	–
20. Enterprise & Industrial Policy	2012-10-25	2012-11-28	2013-12-18	2024-12-16
21. Trans-European Networks	2013-04-22	2013-05-30	2015-06-22	2026-03-17
22. Regional Policy & Coordination of Structural Instruments	2012-11-14	2012-12-18	2017-06-20	–
23. Judiciary & Fundamental Rights	2012-03-26	2012-05-31	2013-12-18	–
24. Justice, Freedom & Security	2012-03-28	2012-05-25	2013-12-18	–
25. Science & Research	2012-09-24	2012-09-25	2012-12-18	2012-12-18
26. Education & Culture	2012-09-26	2012-11-16	2013-04-15	2013-04-15
27. Environment & Climate Change	2013-02-04	2013-03-22	2018-12-10	–
28. Consumer & Health Protection	2013-02-19	2013-04-16	2014-12-16	2026-06-15
29. Customs Union	2013-05-23	2013-06-21	2014-12-16	2026-07-14
30. External Relations	2013-05-14	2013-06-12	2015-03-30	2017-06-20
31. Foreign, Security & Defence Policy	2013-05-17	2013-06-27	2014-06-24	–
32. Financial Control	2013-05-16	2013-06-19	2014-06-24	2026-01-26
33. Financial & Budgetary Provisions	2013-05-15	2013-06-26	2014-12-16	–
34. Institutions	N/A	N/A	N/A	N/A
35. Other Issues	N/A	N/A	N/A	N/A

November 2025 European Commission Report

Acquis chapter	Status as of Nov 2025	Chapter Status as of early October 2026
Overview	3 chapters with some level of preparation, 11 chapters with moderate preparation, 16 chapters with good level of preparation, 3 chapter with advanced level of preparation, 2 chapters with nothing to adopt.	18 chapters closed, 15 chapters open.
1. Free Movement of Goods	Moderately prepared	Chapter open
2. Freedom of Movement For Workers	Some level of preparation	Chapter closed
3. Right of Establishment & Freedom To Provide Services	Good level of preparation	Chapter closed
4. Free Movement of Capital	Good level of preparation	Chapter closed
5. Public Procurement	Good level of preparation	Chapter closed
6. Company Law	Good / Well advanced	Chapter closed
7. Intellectual Property Law	Well advanced	Chapter closed
8. Competition Policy	Moderately prepared	Chapter closed
9. Financial Services	Moderate / Good	Chapter open
10. Information Society & Media	Good level of preparation	Chapter closed
11. Agriculture & Rural Development	Moderately prepared	Chapter closed
12. Food Safety, Veterinary & Phytosanitary Policy	Moderately prepared	Chapter open
13. Fisheries	Moderately prepared	Chapter closed
14. Transport Policy	Moderate / Good	Chapter open
15. Energy	Good level of preparation	Chapter open
16. Taxation	Moderate / Good	Chapter open
17. Economic & Monetary Policy	Moderately prepared	Chapter open
18. Statistics	Moderately prepared	Chapter open
19. Social Policy & Employment	Some / Moderate	Chapter open
20. Enterprise & Industrial Policy	Good level of preparation	Chapter closed
21. Trans-European Networks	Moderate / Good	Chapter closed
22. Regional Policy & Coordination of Structural Instruments	Moderately prepared	Chapter open
23. Judiciary & Fundamental Rights	Moderate / Good	Chapter open
24. Justice, Freedom & Security	Moderate / Good	Chapter open
25. Science & Research	Good level of preparation	Chapter closed
26. Education & Culture	Good level of preparation	Chapter closed
27. Environment & Climate Change	Some level of preparation	Chapter open
28. Consumer & Health Protection	Moderately prepared	Chapter closed
29. Customs Union	Moderately prepared	Chapter closed
30. External Relations	Good level of preparation	Chapter closed
31. Foreign, Security & Defence Policy	Well advanced	Chapter open
32. Financial Control	Good level of preparation	Chapter closed
33. Financial & Budgetary Provisions	Some level of preparation	Chapter open
34. Institutions	Nothing to adopt	Nothing to adopt
35. Other Issues	Nothing to adopt	Nothing to adopt
Legend:   Well advanced   Good / Well advanced   Good level of preparation   Moderate / Good   Moderately prepared   Some / Moderate   Some level of preparation   Early stage / Some   Early stage

Report history

Clusters	Acquis Chapter	October 2011	October 2012	October 2013	October 2014	November 2015	November 2016	April 2018	May 2019	October 2020	October 2021	October 2022	November 2023	October 2024	November 2025
1. Fundamentals	Public administration reform	-	-	-	-	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	23. Judiciary & Fundamental Rights	Further efforts needed	Moderately prepared	Further efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good
	24. Justice, Freedom & Security	Further efforts needed	Moderately prepared	Further efforts needed	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good	Moderate / Good
	Economic criteria	-	-	-	-	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good
	5. Public Procurement	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good	Moderate / Good	Moderate / Good	Good level of preparation
	18. Statistics	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Some level of preparation	Some level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	32. Financial Control	Some level of preparation	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation
2. Internal Market	1. Free Movement of Goods	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	2. Freedom of Movement For Workers	Early stage	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
	3. Right of Establishment & Freedom To Provide Services	Further efforts needed	Moderately prepared	Considerable efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation
	4. Free Movement of Capital	Some level of preparation	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation
	6. Company Law	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good / Well advanced
	7. Intellectual Property Law	Further efforts needed	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good / Well advanced	Well advanced
	8. Competition Policy	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	9. Financial Services	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good
	28. Consumer & Health Protection	Further efforts needed	Moderately prepared	Moderately prepared	No major difficulties expected	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
3. Competitiveness and inclusive growth	10. Information Society & Media	Moderately prepared	Moderately prepared	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation
	16. Taxation	Further efforts needed	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good
	17. Economic & Monetary Policy	Considerable efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	19. Social Policy & Employment	Early stage	Considerable efforts needed	Further efforts needed	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some / Moderate
	20. Enterprise & Industrial Policy	Considerable efforts needed	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good	Good level of preparation	Good level of preparation
	25. Science & Research	Moderately prepared	Further efforts needed	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
	26. Education & Culture	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
	29. Customs Union	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
4. Green agenda and sustainable connectivity	14. Transport Policy	Further efforts needed	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good
	15. Energy	Moderately prepared	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
	21. Trans-European Networks	Further efforts needed	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good	Moderate / Good
	27. Environment & Climate Change	Considerable efforts needed	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
5. Resources, agriculture and cohesion	11. Agriculture & Rural Development	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	12. Food Safety, Veterinary & Phytosanitary Policy	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	13. Fisheries	Further efforts needed	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Moderately prepared
	22. Regional Policy & Coordination of Structural Instruments	Early stage	Considerable efforts needed	Early stage	Early stage	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared	Moderately prepared
	33. Financial & Budgetary Provisions	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Early stage	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation	Some level of preparation
6. External relations	30. External Relations	Further efforts needed	Moderately prepared	Moderately prepared	No major difficulties expected	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation
	31. Foreign, Security & Defence Policy	Further efforts needed	Moderately prepared	Moderately prepared	No major difficulties expected	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Good level of preparation	Well advanced
	34. Institutions	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A
	35. Other Issues	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A	N/A
Legend:   Well advanced   Good / Well advanced   Good level of preparation   Moderate / Good   Moderately prepared   Some / Moderate   Some level of preparation   Early stage / Some   Early stage Legacy evaluations:   No major difficulties expected   Further efforts needed   Considerable efforts needed

Economy

Developmental Aid

Instrument for Pre-Accession Assistance

IPA I
€236 M
(2007-2013)

IPA II
€271 M
(2014-2020)

IPA III
c. €300 M
(2021-2027)

Unilateral euro adoption

Main article: Montenegro and the euro

Montenegro has no currency of its own. As a constituent republic of the Socialist Federal Republic of Yugoslavia following World War II, and later of the Federal Republic of Yugoslavia, Montenegro used the Yugoslav dinar as its official currency. In November 1999, the government of Montenegro unilaterally designated the Deutsche Mark as its co-official currency with the dinar, and on 1 January 2001 the dinar officially ceased to be a legal tender in Montenegro. When the euro was introduced and the Deutsche Mark yielded in 2002, Montenegro followed suit and began using the euro as well, with no objection from the European Central Bank (ECB).

The European Commission and the ECB have since voiced their discontent over Montenegro's unilateral use of the euro on several occasions. A statement attached to their Stabilisation and Association Agreement with the EU read: "unilateral introduction of the euro was not compatible with the Treaty." The EU insists on the strict adherence to convergence criteria (such as spending at least 2 years in the ERM II system) which are not negotiable before euro adoption, but have not intervened to stop the unilateral adoption of the euro by Montenegro in 2002. The issue is expected to be resolved through the negotiations process. The ECB has stated that the implications of unilateral euro adoption "would be spelled out at the latest in the event of possible negotiations on EU accession."

Diplomats have suggested that it is unlikely Montenegro will be forced to withdraw the euro from circulation in their country. Radoje Žugić, Montenegro's Minister of Finance, has stated that "it would be extremely economically irrational to return to our currency and then later to again go back to the euro." Instead, he hopes that Montenegro will be permitted to keep the euro and has promised "the government of Montenegro, will adopt some certain elements, which should fulfill the conditions for further use of the euro; such as adopting fiscal rules."

Travel

Schengen Visa liberalisation process

On 1 January 2008, the visa facilitation and readmission agreements between Montenegro and the EU entered into force. Montenegro was added to the list of visa exempt nationals on 19 December 2009, allowing their citizens to enter the Schengen Area and Cyprus without a visa when traveling with biometric passports. The visa liberalisation process does not include travels to Ireland which, with the United Kingdom which left the EU during Montenegro's accession process, operate the Common Travel Area for visas outside of the Schengen Area.

In 2027 citizens of Montenegro will be required to register on the EU's ETIAS before entering the Schengen area.

The government of Montenegro adopted information on 24 September 2026 on the need to terminate the agreements regulating the visa-free regime with Russia, Belarus, and Turkey, starting from 1 November 2026. As explained, Montenegro, in the process of joining the European Union, is required to fully align its visa policy with that of the EU, RTCG reports. On 23 July 2026, the government adopted amendments to the Regulation on the Visa Regime stipulating that, as of 1 November 2026, citizens of Russia, Belarus, and Turkey will need a visa to enter, transit through, and stay in Montenegro.

Montenegro's foreign relations with EU member states

Austria Belgium Bulgaria Croatia Cyprus Czech Republic Denmark Estonia Finland

France Germany Greece Hungary Ireland Italy Latvia Lithuania Luxembourg

Malta Netherlands Poland Portugal Romania Slovakia Slovenia Spain Sweden

See also

• Accession of Albania to the European Union
• Accession of Bosnia and Herzegovina to the European Union
• Accession of Kosovo to the European Union
• Accession of North Macedonia to the European Union
• Accession of Serbia to the European Union
• Montenegro–NATO relations
• Yugoslavia–European Communities relations