Chapter 27: Montenegro is behind on key EU commitments

Montenegro must significantly intensify work on meeting the final benchmarks for the closure of Chapter 27 - Environmental protection and climate change, especially in the areas of air quality, water, nature protection, waste management and climate change.

The state should also, according to the draft report of the European Commission (EC), adopt waste management plans at the local level, but also complete the harmonization and begin the implementation of the monitoring, reporting, verification and accreditation (MRVA) system, for the purpose of full compliance with the EU ETS (EU emissions trading system).

The EC also notes that Montenegro has not yet adopted the Air Quality Management Strategy for the period from 2021 to 2029 and the accompanying action plan has still not been adopted.

"The Law on Nature Protection and the National Biodiversity Strategy with an Action Plan have not yet been adopted. Activities on the establishment of the Natura 2000 network have continued. Montenegro still needs to resolve the recommendation of the Bern Convention regarding Lake Skadar, as well as find an appropriate solution for the military training ground on Sinjajevina. The development of a management plan for the Ulcinj Salt Pan is underway, but the formation of a company for the sustainable management of that area has not yet been completed. More active involvement of state and local institutions is needed in order to successfully complete this process," the draft document states.

In relation to industrial pollution, the EC reminds that the ecological reconstruction of the Pljevlja thermal power plant is underway.

"...But without addressing the underlying problems. Montenegro must step up efforts towards permanent closure of plants to meet EU emissions standards. A strategic approach to a just transition is needed, which would provide economic alternatives to the communities that will be most affected by the gradual elimination of coal use," it was emphasized.

In the section related to waste management, it was noted that during the reporting period, in order to enable proper implementation of the law, the Government adopted 21 bylaws, and additional regulations are being worked on.

"In October 2025, the National Waste Management Plan for the period from 2025 to 2029 was adopted, which represents an important step towards the transition to a circular economy, reducing the amount of waste ending up in landfills and increasing the recycling rate, while simultaneously protecting the health of citizens and preserving the environment. Since October 2024, Montenegro has begun implementing a ban on the placing on the market of plastic bags with a thickness of 15 to 50 microns and the use of single-use plastic products. This ban has yielded positive results - some retail chains have recorded a reduction in the use of plastic bags by around 50 percent in the period from October 2024 to January 2025. It is necessary to further implement awareness-raising campaigns and ensure consistent implementation of regulations aimed at citizens and local governments, with the aim of improving prevention, waste separation and recycling," the document emphasizes.

It was also specified that Montenegro must significantly strengthen its administrative capacity in the climate change sector, as existing shortcomings are slowing down progress. "Decisive steps are needed to improve existing or establish new carbon pricing mechanisms, in order to enable joining the EU ETS system upon accession," the document stressed.

It is also recalled that in June this year, the Government adopted a national climate change adaptation plan until 2035, along with an action plan until 2027.

"In the coming period, the focus should be on the implementation of this plan. Montenegro must complete and adopt strategic documents in the field of climate change, in particular the long-term low-carbon development strategy in line with the goal of climate neutrality by 2050, as well as the National Energy and Climate Plan (NECP). Also, further alignment with the EU legal framework on emissions from the land use, land use change and forestry (LULUCF) sector and vehicle emissions is needed, as well as a broader increase in compliance with EU climate legislation," the Draft Report states.