Following Montenegro’s receipt of the Report on the Fulfillment of Interim Benchmarks (IBAR) in June 2024—a major milestone in the EU negotiation process—three final benchmarks were established in each of the crucial negotiation chapters 23 and 24. These chapters address the areas of judiciary, security, the fight against organized crime, and fundamental rights, and meeting the final benchmarks is a key indicator of Montenegro’s readiness to implement European standards in these core sectors.
Intensive Work on Developing Action Plans
Over recent months, Montenegro has undertaken an intensive and comprehensive process to draft action plans for meeting the final benchmarks. For each benchmark, the negotiation working groups for chapters 23 and 24 have defined specific goals and actions necessary for fulfillment. This process included public consultations and coordination with the European Commission.
The draft action plans were reviewed by the Rule of Law Council, which issued a generally positive opinion. This step was essential, as the implementation of the activities set out in these plans will directly contribute to meeting the obligations defined in the EU’s Common Position for these negotiation chapters.
Ambitious Goal – Completion by End of 2026
The deadline for implementing the activities defined in the action plans is the third quarter of 2026, in line with the Government of Montenegro’s plan to fulfill all EU-related obligations by the end of that year. This timeline reflects Montenegro’s seriousness and commitment to completing the negotiation process and achieving high standards of the rule of law.
Importance of the Action Plans
The action plans for chapters 23 and 24 are not just bureaucratic documents—they are key instruments for legal reform, the fight against corruption, and the protection of citizens’ fundamental rights. These chapters were among the first to be opened in Montenegro’s negotiations with the EU and will only be closed once lasting and sustainable reforms are demonstrated.
Through these reforms, Montenegro will not only meet EU requirements but will also improve the quality of life for its citizens. Building an effective and independent judiciary, tackling organized crime, and protecting fundamental human rights are all essential pillars for strengthening the rule of law in the country.
Key Areas and Goals of the Action Plans
Chapter 23 – Judiciary and Fundamental Rights
- Judiciary: The action plans aim to enhance the independence, accountability, and professionalism of the judiciary, including the Judicial and Prosecutorial Councils. Reducing the backlog of cases and ensuring more effective training for judges and prosecutors are also priorities, along with greater implementation of alternative dispute resolution mechanisms.
- Anti-Corruption: The plans include increasing the number of investigations and convictions in corruption-related cases and improving the legal framework for financing political parties.
- Fundamental Rights: The focus is on implementing recommendations from the European Committee for the Prevention of Torture, protecting journalists and freedom of expression, and enhancing the rights of vulnerable groups.
Chapter 24 – Justice, Freedom and Security
- Migration, Asylum, and Visa Policy: Plans call for alignment with EU standards, better migration management, and strengthened border control.
- Organized Crime: There is a focus on the effective confiscation of assets gained through criminal activity and the implementation of financial investigations.
- Counter-Terrorism: The plans include the development of a strategic framework for prevention and a stronger institutional response.
Conclusion
The adoption of the action plans for chapters 23 and 24 marks a critical milestone in Montenegro’s EU accession journey. These documents lay the foundation for deep, lasting reforms that will improve the country’s judiciary, strengthen the fight against corruption, uphold human rights, and ensure greater public safety.
By implementing the planned activities, Montenegro is taking a major step toward European standards and creating a path for sustainable progress.
Looking Ahead
The deadline of end-2026 allows sufficient time to achieve these objectives while also enabling systematic monitoring and timely responses to challenges. Through these reforms, Montenegro will not only meet its EU obligations but also establish a stable and resilient legal framework that benefits all its citizens.
[April 25, 2025] Action Plan for Meeting Final Benchmarks in Chapter 23
[April 25, 2025] Action Plan for Meeting Final Benchmarks in Chapter 24
Ministry of European Affairs