Montenegro moves closer to the EU: provisional closure of the Chapter on the Free Movement of Workers

On 15 June 2026, the European Union and Montenegro reached another important step in the country’s EU accession process with the provisional closure of Chapter 2 – Freedom of Movement for Workers and Chapter 28 – Consumer and Health Protection. 

This development is particularly relevant for businesses and professionals involved in international workforce mobility, as Chapter 2 covers one of the fundamental pillars of the European Single Market: the free movement of workers. 

Free movement of workers: a cornerstone of the European Union 

The free movement of workers is one of the four fundamental freedoms of the European Union. It allows EU citizens to work in another Member State without requiring a work permit and without being subject to discrimination based on nationality. 

However, free movement goes far beyond access to employment. It is supported by a comprehensive legal framework that includes: 

• coordination of social security systems across Member States; 

• equal treatment in employment and working conditions; 

• protection of the rights of mobile workers and their family members; 

• cooperation between national employment and social security authorities; 

• operational tools such as the A1 certificate and the rules established under Regulation (EC) No. 883/2004. 

For multinational employers, these mechanisms provide the legal foundation for managing international assignments, business travel, postings, and cross-border workforce arrangements throughout Europe. 

This step brings us closer to those mechanisms being available in Montenegro, enabling simpler administrative requirements when moving employees from an EU country to Montenegro. 

The provisional closure of Chapter 2 is part of Montenegro’s EU accession process. It means that the EU considers Montenegro largely aligned with EU rules on the free movement of workers. However, the closure is not final, and Montenegro will only benefit from full EU membership rights once all accession negotiations have been completed and an accession treaty enters into force. 

What does the provisional closure of Chapter 2 actually mean? 

The provisional closure of Chapter 2 does not mean that Montenegro has joined the European Union, nor does it immediately grant Montenegrin citizens the right to benefit from EU free movement rules. 

Rather, it signifies that the EU considers Montenegro sufficiently aligned with the European legal framework governing the free movement of workers. 

This assessment reflects both legislative alignment and the country’s ability to apply and enforce the relevant rules in practice. 

Importantly, the closure remains “provisional.” Under the EU accession framework, any chapter may be reopened if further reforms are required before accession negotiations are fully concluded and an Accession Treaty is signed. 

Why is Chapter 2 so important? 

For employers managing an international workforce, the significance of Chapter 2 extends well beyond labour mobility. 

The free movement of workers is closely linked to several critical compliance areas, including: 

• social security coordination; 

• international assignments and secondments; 

• cross-border employment arrangements; 

• labour law compliance; 

• payroll and reporting obligations; 

• management of multi-jurisdictional workforce risks. 

A functioning free movement framework reduces barriers to labour mobility while ensuring that workers maintain social security protection and that employers can manage international operations within a clear and harmonised legal environment. 

The coordination mechanisms established under EU law help avoid situations of double social security contributions, coverage gaps, and conflicting obligations across different jurisdictions. 

Looking ahead 

With sixteen negotiating chapters now provisionally closed, Montenegro remains the frontrunner among EU candidate countries and continues to make tangible progress towards membership. 

For companies operating internationally, developments such as the provisional closure of Chapter 2 are an important reminder of the ongoing expansion of the European regulatory framework governing labour mobility, employment law, social security coordination, and cross-border workforce management. 

As the enlargement process continues, businesses should closely monitor regulatory developments and prepare for the gradual integration of candidate countries into the EU’s legal and economic framework. 

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