Phoenix 24
Europe’s leading accession candidate wants to join by 2028, but disputes over membership rights and regional relations remain unresolved.
BRUSSELS, BELGIUM — November 4, 2026. Montenegro has reaffirmed its ambition to become the European Union’s 28th member by 2028 while rejecting proposals that could subject new members to prolonged restrictions on their institutional rights. Speaking at the Euronews Enlargement Summit on November 3, European Affairs Minister Maida Gorčević insisted that her country expects full membership rather than a differentiated status within the bloc. Her position highlights an emerging disagreement over how the EU should expand while safeguarding democratic standards, particularly as Montenegro approaches the final stages of accession negotiations.
Gorčević expressed confidence that Montenegro could complete negotiations on all remaining accession chapters before the end of 2026. The objective forms part of the government’s 28 by 28 strategy, which seeks to make Montenegro the Union’s 28th member in 2028. The minister acknowledged that the timetable is ambitious but maintained that negotiations have advanced sufficiently to make it achievable. Her remarks came as European institutions were considering additional safeguards intended to prevent democratic backsliding among future member states.
At the center of the disagreement is a European Commission proposal establishing stronger oversight of countries after accession. Draft provisions discussed by EU representatives contemplate a transitional period lasting up to 15 years, during which specific safeguards could be activated if a new member seriously violated fundamental European principles. Potential measures include restrictions on voting rights in particularly serious circumstances. Supporters argue that such mechanisms would protect the Union’s institutional integrity, while critics question whether prolonged restrictions could create an unequal category of membership.
Montenegro’s government has drawn a distinction between accepting stronger safeguards and accepting permanent or disproportionate limits on its rights. Gorčević indicated that Podgorica supports mechanisms designed to protect the rule of law, provided they do not undermine the principle of equal membership. Her position reflects a broader debate about whether new entrants should face additional obligations that existing members do not experience in the same way. The proposed arrangements remain under negotiation, and their final legal form has not been approved.
Montenegro’s progress toward accession provides important context. Negotiations began in June 2012, following the country’s application for membership in 2008 and recognition as an official candidate in 2010. According to the Council of the European Union, Montenegro has opened all 33 negotiating chapters and provisionally closed 21, including three completed on October 12 concerning economic and monetary policy, statistics, and social policy and employment. These milestones make it one of the most advanced candidates in the current enlargement process, although provisional closure does not constitute final approval of membership.
The European Commission’s enlargement assessment, published on November 4, reinforces Montenegro’s prospects. Brussels indicated that the remaining chapters could be provisionally closed by the end of 2026, subject to agreement among member states. European Enlargement Commissioner Marta Kos also identified June 2027 as the earliest possible date for signing an accession treaty. Nevertheless, joining the EU requires agreement on the treaty and ratification by all 27 existing member states, meaning that the government’s 2028 target remains a political objective rather than a guaranteed accession date.
An additional challenge concerns Montenegro’s bilateral relationship with Croatia. Zagreb has presented eight demands addressing unresolved historical and political disputes, including issues connected to the Balkan wars, missing persons, property claims and maritime boundaries. Croatian authorities maintain that these matters should be resolved before Montenegro completes its accession. Their position carries considerable influence because existing EU members participate directly in decisions concerning enlargement. Several negotiating chapters have already encountered difficulties because of Croatia’s objections.
Gorčević expressed confidence that the two governments could reach mutually acceptable solutions, emphasizing Montenegro’s willingness to continue diplomatic engagement. She also suggested that some bilateral disagreements might be addressed after accession, noting that unresolved disputes have previously existed between countries already belonging to the Union. Croatia, however, has emphasized the importance of reconciliation and resolving historical grievances before accepting a new member. The competing positions demonstrate how bilateral disagreements can influence a process primarily designed to assess compliance with European legal and institutional standards.
The stakes extend beyond Montenegro’s population of approximately 630,000. For Brussels, successful accession would demonstrate that enlargement remains achievable after years of limited progress in the Western Balkans. For Montenegro, membership could strengthen participation in European institutions, improve access to economic opportunities and consolidate its international position. Yet those potential benefits depend on continued reforms involving judicial independence, public administration, anti-corruption measures and economic governance. Maintaining public confidence will also require demonstrating that institutional reforms produce tangible benefits rather than merely satisfying procedural requirements.
Montenegro’s determination to reject second-tier membership therefore raises a fundamental question about the future design of European integration. The EU must reconcile its commitment to equal treatment with concerns that reforms achieved before accession may deteriorate afterward. Candidate countries, meanwhile, seek assurance that fulfilling demanding membership conditions will lead to meaningful and equal participation. A credible enlargement framework must address both concerns through transparent, proportionate and legally defensible arrangements.
As negotiations enter their final stages, Montenegro’s prospects will depend on sustained domestic reforms, agreement over new membership safeguards and progress in resolving disputes with Croatia. The Commission’s latest assessment suggests that accession in 2028 remains within reach, but substantial political and legal steps are still required. Montenegro’s case may ultimately establish an important precedent for future enlargement: whether the European Union can strengthen its institutional safeguards while preserving the principle that membership carries equal rights and responsibilities.
Phoenix24: Beyond enlargement, the future of European integration. / Más allá de la ampliación, el futuro de la integración europea.