Montenegro’s Path to Sustainable Climate Governance: Progress, Challenges, and Cooperation
von Sofia Shabafrouz, GIZ
Last but not least in our series of articles on the six countries of the Western Balkans, we focus on Montenegro – a small but determined country on its way to aligning its climate governance with international standards and EU expectations. As the country navigates the complexities of climate change, its commitment to sustainability faces both significant progress and significant hurdles.
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As an EU candidate country, Montenegro has committed to international climate efforts by ratifying the Paris Agreement and aligning with the Energy Community Treaty and EU targets on renewable energy, energy efficiency, and greenhouse gas (GHG) emission reductions. The country has set ambitious goals: to reduce GHG emissions by 55% by 2030, to achieve a 50% share of renewable energy in gross final consumption, and to improve energy efficiency. Montenegro’s National Climate Change Strategy until 2030 serves as a key policy instrument, outlining the country’s vision for low-carbon sustainable development. This strategy in line with the EU Green Agenda for the Western Balkans, which aims to achieve for climate neutrality by 2050.
“The country is committed to EU integration and international climate obligations,“ says Diana Milev Čavor, Climate and Energy Programme Coordinator at Eco-team. She continues: „But it also faces challenges due to its historical reliance on coal for energy production, which causes high levels of air pollution affecting the Montenegrin population and complicating the transition to renewable energy. A major restructuring of its energy sector and economy is needed, with the integration of environmental concerns into broader development and energy policies and the definition of a clear exit strategy from coal.” Eco-Team is an NGO that promotes environmental protection, sustainable use of natural resources, just transition and youth empowerment through various educational programmes and initiatives, such as past and current EUKI projects in which it has been involved.
Climate expert Čavor gave us an overview of the current climate governance structure and the latest legislative developments and hurdles:
Montenegro’s Climate Governance Structure
Montenegro’s climate governance is overseen by the Ministry of Ecology, Sustainable Development, and Northern Development, with the Directorate for Climate Change and Nature Protection playing a central role in policy adoption, implementation, and monitoring. The Directorate is also the focal point for the United Nations Framework Convention on Climate Change (UNFCCC) and the Green Climate Fund. The Environmental Protection Agency (EPA), under the same ministry, plays a key role in establishing the greenhouse gas (GHG) emissions inventory. The Institute for Hydrometeorology and Seismology (ZHMS) manages meteorological and hydrological systems and is the contact institution for the Intergovernmental Panel on Climate Change (IPCC). The Environmental Protection Fund (Eco-fund), established in 2020, finances projects related to conservation, sustainable development, and renewable energy. The National Council for Sustainable Development (NSOR), founded in 2022, develops and monitors climate change policies, and aligns them with the European Union’s sustainable development framework. The Council’s working groups focus on areas such as policy implementation, climate change mitigation, just transition, and sustainable development at both local and national levels.
Policy and Legislative Developments
To align with EU climate change legislation, Montenegro is preparing its National Energy and Climate Plan (NECP) to be adopted by the end of 2024. The NECP has been delayed due to political instability. Once adopted, it will set targets for energy security, market, efficiency, decarbonisation, and innovation up to 2030. It will replace the current National Climate Change Strategy. The Law on Protection against the Negative Impacts of Climate Change, adopted in 2019, includes key elements of the EU’s Clean Energy for All Europeans package, covering GHG inventory systems, carbon capture, and ozone protection. The law, subject to further amendments to ensure compliance with EU and Paris Agreement standards, will also establish a Low-Carbon Development Strategy and a National Adaptation Plan by 2024.
Montenegro is also developing its National Adaptation Plan (NAP) to address key climate risks and build resilience, focusing on sectors such as agriculture, water, health, and tourism, with attention to gender equality and inclusion. Assessments have been carried out to guide prioritization of adaptation measures, with the aim of creating a comprehensive vision for climate resilience in the country.
International Cooperation
Montenegro cooperates with international organisations and neighbouring countries through various partnerships focused on addressing climate change. These include bilateral agreements with countries such as Albania for cross-border environmental projects, participation in regional initiatives such as the Adriatic-Ionian Initiative and the Green Agenda of the Western Balkans, and collaboration with organisations such as UNDP, World Bank, and IMF to develop and implement climate change policies and strategies. “These partnerships are helping Montenegro to improve climate resilience, increase energy efficiency, and promote sustainable development”, says Čavor. The recently established Climate Bridges Network, the result of an EUKI project, aims to promote transnational climate policy in the region.