Zagreb has formally warned fellow EU governments that Montenegro's ambition to join the bloc by 2028 could be derailed unless a series of long-standing bilateral disputes are resolved. In a document circulated to member states on Monday, Croatia outlined eight demands, ranging from wartime abuses to contested borders, that it says must be addressed before Podgorica can complete its accession.
Montenegro is widely seen as the frontrunner among EU candidate countries, having opened all negotiation chapters and closed 21 of 33. But Croatia, as an existing member, holds significant leverage: every accession step requires unanimous approval, and Zagreb is currently blocking progress in four policy areas—transport, foreign relations, fundamental rights, and home affairs.
The document, seen by Euronews, expands on grievances first raised by Croatia's Foreign Ministry in July. Many stem from the violent breakup of Yugoslavia in the early 1990s, when Croatian civilians and prisoners of war were detained at the Morinj camp in Montenegro. Zagreb is demanding compensation for around 300 detainees who were held there between October 1991 and August 1992, and it wants a permanent memorial plaque at the site. A large metal frame was installed around the plaque after protests by Montenegrin nationalist groups.
Humanitarian and legal demands
Another key issue is the fate of 14 people still missing from Croatia's war of independence. Zagreb describes this as a “major humanitarian issue that has yet to be resolved” and is pressing Montenegro to help locate their remains. Croatia also wants command responsibility for crimes committed at Morinj to be considered in the cases of already convicted war criminals.
Property disputes dating back to the early 1990s are also on the table. Croatian families were unlawfully deprived of their property without adequate compensation, and Zagreb is calling for restitution. The document notes that a 2021 Montenegrin law enabled land restitution in a region predominantly inhabited by the Albanian minority, “raising concerns about unequal treatment in comparable cases.”
Beyond wartime issues, Croatia is demanding the return of the Jadran, a sail training ship that has been under Montenegrin control since the dissolution of Yugoslavia. It also wants the land and maritime border between the two countries settled in line with the rulings of the Arbitration Commission of the Conference on Yugoslavia.
“Croatia sincerely wishes to turn the page on this painful chapter of shared history and build a forward-looking relationship with Montenegro. Yet mutual trust and genuine, lasting reconciliation cannot be built without resolving these issues,” the document states.
Despite the friction, Croatia insists it remains supportive of Montenegro's EU path. “Croatia has consistently encouraged Montenegro to resolve outstanding bilateral issues while actively supporting its EU accession,” the paper continues. “Despite Croatia’s sustained efforts and constructive approach, none of the outstanding issues has yet been resolved.”
The impasse is a reminder that EU enlargement is not just a technical process but also a political one, where bilateral grievances can become decisive. Croatia itself joined the EU in 2013 despite an unresolved border dispute with Slovenia, but that precedent may not ease Montenegro's path. As Brussels pushes to revive enlargement, the translation bottleneck in Montenegro's accession talks is already a challenge; now Zagreb's demands add another layer of complexity.
For Montenegro, the stakes are high. The government in Podgorica has set 2028 as its target for membership, and it has made steady progress in aligning with EU rules. But with Croatia holding a veto, the coming months will test whether the two neighbours can find a way to reconcile their painful past—or whether the ghosts of the 1990s will continue to haunt the region's European future.
