Russian authorities are blocking Montenegro's membership in the international agreement on export control of arms and dual-use goods – known as the Wassenaar Arrangement.

"Russia has been sabotaging the process of accepting new members for some time," even though all conditions for membership have been met, says the document of the Government of Montenegro on the implementation of recommendations from the European Commission report.

The Wassenaar Arrangement has 42 member countries, including Russia, and all decisions are made by consensus.

Members, among other things, exchange data on conventional armaments and sensitive technologies with the aim of strengthening international peace and security.

The Russian Embassy has not responded to Radio Free Europe's (RFE/RL) question about whether Moscow is preventing Montenegro's accession and why.
Relations between Podgorica and Moscow have been strained for more than a decade, largely due to Montenegro's entry into NATO and the Russian invasion of Ukraine.

What is the Wassenaar Arrangement?
The Wassenaar Arrangement was created after the Cold War, due to the need for countries to cooperate in reducing the risk of proliferation of conventional weapons and dual-use goods and technologies.

The agreement establishes two control lists on which both the European Union and Montenegro rely in their legislation – one dealing with arms exports and the other with dual-use goods and technology.

The former includes, for example, tanks, fighter jets, helicopters, etc.

The second includes computers, telecommunications, sensors, lasers, propulsion systems... that is, goods and technologies that are used for civilian purposes, but can also be used for the development, production or strengthening of military capabilities.

"The agreement is not directed against any state or group of states and does not impede the right of states to provide legitimate means of self-defense," said a diplomatic source familiar with the situation.

However, he adds, the purpose of the Agreement is for exports to contribute to international peace and security and to prevent weapons from falling into the hands of terrorists.

The Montenegro problem
Montenegro – a NATO member and EU candidate – submitted the initiative to join the Agreement 10 years ago.

The government emphasizes that it has met all formal conditions for membership.

In addition to adapting legislation, the Ministry of Foreign Affairs - competent for the issue of membership - has emphasized to REL that the process also has a broad political dimension, as accession requires the consensus of 42 member states.

"However, the final decision, based on consensus, on admission will depend on the geopolitical circumstances and the climate within the Wassenaar Arrangement, in particular the position of the Russian Federation," the Government document states.

The European Commission, in this month's report on Montenegro, found that there has been no progress on the issue of membership.

"For Montenegro, this is a task within the framework of the EU integration process, but the EU must show understanding for the fact that there is a third party here. In this case, the Russian Federation makes the decision, not the EU institutions," military analyst Aleksandar Radić told REL.

Radiq added that such behavior by third countries is not correct, but that they have the right to do so as members.

However, he emphasizes that Montenegro is already operating according to the rules of the Wassenaar Arrangement, highlighting the high quality of Montenegrin export reports compared to those of other countries.

Russia's Action in the Agreement – ​​a Problem for the US and the EU
Russia's behavior within the Wassenaar Arrangement has also been noted by Brussels and Washington.

A European Parliament document from November 2023 states that the Agreement is facing challenges "due to Russia's membership and the changing geopolitical situation."

"The consensus-based membership structure has raised concerns about its effectiveness. The United States has expressed reservations about Russia's compliance with the pact, citing its participation in cyberattacks and efforts to secure sensitive technologies," the document says.

Serbia and Albania "on hold"?
Montenegro is not the only one awaiting membership.

Military analyst Aleksandar Rodić told REL that Serbia is also on the list of countries awaiting membership.
The European Commission, in its report on Albania, has emphasized that "the completion of the accession process has been blocked by one of the participating states."

The report does not specify which country it is referring to.

The Albanian Embassy has not responded to REL's question about whether Russia is involved.

Croatia, a member of the EU and NATO, this year marks the 20th anniversary of its membership in the Wassenaar Arrangement.

The Ministry of Foreign and European Affairs of Croatia told REL that membership in this Agreement shows that the country has a developed and reliable export control system.

"This is particularly important in today's geopolitical context, in which advanced technologies - such as artificial intelligence, advanced semiconductors and quantum technologies - can be used for repression or military purposes," the Ministry said.

Most EU and NATO member states are part of this Agreement.