Russia prevents Montenegro from joining international agreement on arms export control

Russian authorities are preventing Montenegro from joining the Wassenaar Arrangement, an international agreement on arms export control.

“Russia has been obstructing the process of accepting new members for some time,” even though all the conditions for membership have been met, according to a Montenegrin government document on the implementation of the recommendations from the European Commission’s report.

The Wassenaar Arrangement has 42 members, including Russia, and all decisions are taken by consensus. Among other things, members exchange information on conventional weapons and sensitive technologies with the aim of strengthening international peace and security.

The Russian Embassy did not respond to Radio Free Europe’s (RFE) request for comment on whether and why Moscow is preventing Montenegro from joining.

Relations between Podgorica and Moscow have been tense for more than a decade, mainly due to Montenegro’s accession to NATO and Russia’s invasion of Ukraine.

What is the Wassenaar Arrangement?

The Wassenaar Arrangement was established after the Cold War due to the need for countries to cooperate in order to reduce the risk of proliferation of conventional weapons and dual-use goods and technologies.

The Arrangement establishes two control lists, which are referred to in the legislation of both the European Union and Montenegro: one relating to arms exports and the other to dual-use goods and technologies.

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

The second includes computers, telecommunications, sensors, lasers, propulsion systems, etc., i.e., 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 country or group of countries and does not interfere with the right of countries to acquire legitimate means of self-defense,” a diplomatic source familiar with the situation told RFE/RL.

However, it adds that the aim of the agreement is to ensure that exports contribute to international peace and security and to prevent weapons from falling into the hands of terrorists.

Montenegro’s problem

The initiative to join was launched ten years ago by Montenegro, a NATO member and candidate for EU membership.

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

In addition to harmonising legislation, the Ministry of Foreign Affairs, which is responsible for membership issues, emphasised to RFE/RL that the accession process also has a broader political dimension, as the consent of all 42 members of the agreement is required for acceptance.

“However, the final, unanimous decision on accession will depend on the geopolitical circumstances and climate within the Wassenaar Arrangement, particularly the position of the Russian Federation,” the government document states.

In its latest report on Montenegro, the European Commission noted that no progress had been made on the issue of membership in the agreement.

“This is one of Montenegro’s tasks in the context of accession to the European Union, but the EU must show tolerance for the fact that there is a third party involved. In this case, the decision is made by the Russian Federation, not the EU institutions,” military analyst Aleksandar Radić told RFE/RL.

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

However, he emphasizes that Montenegro is already operating in accordance with the Wassenaar Arrangement, particularly highlighting the quality of Montenegro’s export reports compared to those of other countries.

Russia’s actions in the agreement are a problem for the US and the EU

The problem of Russia’s actions within the Wassenaar Arrangement has been noticed by both Brussels and Washington.

A European Parliament document from November 2023 states that the effectiveness of the Wassenaar Arrangement faces challenges “given 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 involvement in cyber attacks and attempts to acquire sensitive technologies,” the document states.

Serbia and Albania ‘on hold’?

Montenegro is not the only country waiting for membership.

Military analyst Aleksandar Rodić told RFE/RL that Serbia is also on the waiting list for membership.

In its report on Albania, the European Commission stated that “the conclusion of the accession process has been blocked by one of the participating countries.”

The Commission’s report does not specify which country this is.

The Albanian Embassy did not respond to RFE/RL’s inquiry as to whether this refers to Russia.

Croatia, a member of the EU and NATO, is celebrating 20 years of membership in the Wassenaar Arrangement this year.

The Croatian Ministry of Foreign and European Affairs told RFE/RL that membership in the agreement shows that the country has a developed and reliable export control system.

“This is particularly important in today’s geopolitical context, where advanced technologies—such as artificial intelligence, advanced semiconductors, and quantum technologies—can be used for repression or military purposes,” the ministry said.

The agreement includes most EU and NATO countries./Rferl/