hat is being negotiated?

Negotiating Chapter 12 covers all measures and standards that a candidate country must implement in order to ensure safe and high-quality food products on its market, safeguard the health of humans, animals, and plants, and enable unhindered access to the EU single market.

With the aim of fully protecting consumer health and interests, the European Union applies an integrated “farm to fork” approach, which describes how the EU addresses food safety policies—throughout the entire chain, from primary production on farms, through processing, distribution, and storage, to the final consumer. The objective of this approach is to ensure quality and safety control at every stage, thereby preventing risks to human health and the environment.

In negotiating this chapter, a candidate country must align its legislation with the EU acquis and strengthen its administrative capacities to ensure effective implementation. In addition, it is necessary to build and upgrade the required infrastructure, all in accordance with EU standards.

Sub-areas

The EU acquis in this chapter consists of three components (sub-areas):

Food safety includes rules on food hygiene and marketing, controls of products and animal by-products, food labelling and advertising, additives, contaminants, and feed.

Veterinary policy includes market and import controls, animal identification and registration, disease control measures, trade in animals, control of prohibited substances, and animal health and welfare.

Phytosanitary policy covers plant health rules, control measures, protected zones, plant passports, marketing of plant protection products, and the quality of seeds and planting material.

This chapter also covers legislation relating to genetically modified organisms (GMOs).

When was the chapter opened?

Negotiating Chapter 12 – Food Safety, Veterinary and Phytosanitary Policy was opened at the Intergovernmental Conference in Brussels held on 30 June 2016.

Opening benchmarks

Within Chapter 12, Montenegro had three opening benchmarks:

1. Montenegro was required to adopt a new legislative framework aligned with the EU acquis and clearly define, by law, the competences of the relevant authorities, particularly control bodies.

2. Montenegro was required to present a comprehensive national strategy, including an action plan, which would serve as a basis for the transposition and implementation of the EU acquis in the area of food safety, veterinary and phytosanitary policy, including plans for the development of relevant administrative capacities and an assessment of the necessary financial resources. Particular attention was to be paid to the preparation of a detailed action plan for the control and eradication of classical swine fever in domestic and wild pigs once vaccination was discontinued.

3. Montenegro was required to submit to the Commission a classification of all food establishments and establishments handling animal by-products, based on the EU acquis, which would serve as the foundation for the future National Programme for the Upgrading of Food Establishments and Animal By-Product Establishments.

By aligning its legal framework in this chapter with the EU acquis, adopting the Strategy of Montenegro for the Transposition and Implementation of the EU Acquis for Chapter 12 – Food Safety, Veterinary and Phytosanitary Policy, together with the General Action Plan and the Special Action Plan for the Control and Eradication of Classical Swine Fever on 10 September 2015, and adopting the Decision on the Implementation of the Procedure for Assessment of Compliance with EU Requirements (categorisation) of approved food business establishments and establishments handling animal by-products on 3 September 2014, Montenegro fulfilled the opening benchmarks.

Closing benchmarks

Within Chapter 12, Montenegro is required to meet the following closing benchmarks:

• Montenegro must submit to the European Commission an approved national programme for the upgrading of establishments for products of animal origin, including establishments for animal by-products. As regards the milk sector, the national programme must also include a strategy for handling non-compliant raw milk.

• Montenegro must provide the Commission with guarantees for the establishment of a system compatible with the EU system for official controls of live animals and products of animal origin, including its financing.

• Montenegro must continue to establish and develop, in line with the EU acquis, relevant administrative structures, particularly with regard to food safety controls, and continue strengthening its administrative capacities and infrastructure. Montenegro must demonstrate that it will have the necessary administrative capacity to properly implement and enforce the entire acquis covered by this chapter upon accession.

Montenegro has made significant progress in the previous period within Chapter 12 both through the fulfilment of obligations arising from the closing benchmarks and through the comprehensive improvement of the legislative and institutional framework.

A particularly significant achievement was the key legislative breakthrough made in 2026, through the establishment of a modern legal framework aligned with European Union rules. The new Law on Official Controls, Law on Food Safety, Law on the Management of Animal By-products, Law on Animal Health, Law on Plant Health Protection and Law on Plant Protection Products were adopted, thereby establishing the legal basis for the full implementation of European standards in the areas of food safety, veterinary and phytosanitary policy. At the same time, the secondary legislation in all areas covered by this chapter was significantly improved, while continuous alignment with the EU acquis has been pursued.

Furthermore, with a view to fulfilling the first closing benchmark, on 26 February 2026 Montenegro adopted the revised National Programme for the Improvement of Establishments for Products of Animal Origin and Establishments for Animal By-products. In addition, on 23 July 2026, the Government adopted three regulations providing for flexibility measures for small producers and establishments with a small volume of production. In the area of milk quality, on 23 July 2026 the revised National Programme for the Improvement of Raw Milk Quality with the Plan for Handling Non-compliant Raw Milk was adopted, while the Revised Plan for the Management of Animal By-products Not Intended for Human Consumption was adopted on 2 April 2026. This completed the framework for the further improvement of establishments, raw milk quality and the animal by-products management system.

With a view to fulfilling the second closing benchmark, which concerns the establishment of a system of official controls aligned with European Union standards, in addition to the adoption of the overarching Law on Official Controls, on 23 July 2026 the Government adopted the Roadmap for National Reference Laboratories. The legislative and operational framework in the areas of animal health and welfare and the implementation of official controls was further strengthened, including through the Law on Animal Health, as well as the related official control plans and programmes in this area.

With a view to fulfilling the third closing benchmark, Montenegro continued to strengthen the administrative, technical and infrastructural capacities necessary for the effective implementation of the EU acquis in this area. In this context, the Action Plan for Strengthening the Administrative Capacities of the Administration for Food Safety, Veterinary and Phytosanitary Affairs was adopted, and its implementation commenced in 2026. The Roadmap for the Construction and Upgrade of Border Control Posts was also adopted, providing for the construction of six border control posts in accordance with EU standards and their full readiness by the date of accession. An important element of strengthening technical capacities is also the Roadmap for National Reference Laboratories, which establishes the framework for the further development of the laboratory system and for ensuring the capacities required for the implementation of official controls.

What are the benefits of this chapter for Montenegro?

Negotiations under this chapter bring significant benefits to the candidate country. By aligning with European standards, the country improves the quality and safety of food, which directly impacts public health and increases consumer confidence. Modernisation of veterinary and phytosanitary systems enables more effective control of animal diseases and protection of plant health, thereby reducing the risks of infections and pests.

This also opens access to the European market for domestic products and improves the competitiveness of the agricultural sector. Full EU membership further guarantees the continuity of these standards, enabling more stable economic development, access to incentives through common policies, and greater integration into European supply chains.

As a result of the alignment process with EU standards, Montenegro will, inter alia, have upgraded facilities for meat production and processing, improved animal husbandry on farms, higher animal welfare standards, and controlled use of pesticides in line with EU standards. Food produced in Montenegro will have free access to European consumers, while domestic consumers will be guaranteed the same high food safety standards currently enjoyed by consumers in the EU.