This present article is part of a series of articles published as part of the “Europe - What if?” Campaign by JEF Europe, within the project CompletEU framework. Its aim is to acknowledge that Europe is not limited to the European Union. Therefore, we invite our readers to examine the complex relationship the EU has with non-EU countries in Europe and how this relationship could develop in the future.

In an age when nationalism and identity politics are tightening their grip across Europe, a small Balkan nation offers a surprising lesson in coexistence. Montenegro, nestled between rugged mountains and the Adriatic Sea, may not often make headlines, but it quietly presents a living case study of multiculturalism that works.

Despite its modest size and population of just over 600,000, Montenegro is home to a diverse kaleidoscope of ethnic groups, including Montenegrins, Serbs, Bosniaks, Albanians, Croats, and Roma. What sets it apart isn’t just this diversity, but the way it’s woven into the fabric of public life. Here, ethnic coexistence isn’t merely tolerated – it’s normalized, institutionalized, and, crucially, lived.

Historical Foundations of Multicultural Resilience

Montenegro’s resilience in the face of ethnic division is not accidental. It is historical. For centuries, its coastal and inland regions served as a crossroads of faiths and peoples – Orthodox Christians, Catholics, and Muslims have lived side by side since the Middle Ages.

When the Congress of Berlin recognized Montenegro’s independence in 1878, it came with a clear message: protect minority rights. This early endorsement of diversity laid the groundwork for what would become a legal and cultural tradition of inclusion.

Unlike some of its Balkan neighbors, Montenegro managed to avoid large-scale ethnic violence during the 1990s Yugoslav wars. Tensions existed – especially between those identifying as Montenegrin versus Serb, but the country emerged with its multiethnic character intact. Political scientist Florian Bieber credits this to a strategy of integration rather than exclusion: “Montenegrin elites have opted for multiethnic governance, not despite its complexity, but because of it.”

A Legal Framework Rooted in Inclusivity

Montenegro’s 2007 Constitution enshrines multiculturalism as a core value. Article 79 guarantees minorities the rights to express, preserve, and develop their ethnic, religious, linguistic, and cultural identities. The Law on Minority Rights and Freedoms operationalizes these guarantees, offering minorities the right to education in their mother tongue, access to media, and affirmative representation.

Electoral mechanisms actively facilitate minority political participation. For instance, the Croatian minority is entitled to a parliamentary seat with a mere 0.35% of the national vote – a level of guaranteed representation that is uncommon in most EU countries. In municipalities like Ulcinj and Rožaje, minorities often hold local power, affirming that inclusivity is not merely symbolic but functionally integrated into governance structures.

Despite all this, challenges persist. The Roma community remains marginalized, facing socio-economic disparities and limited political representation. As highlighted in the 2022 report by Montenegro’s Ombudsperson, Roma and Egyptian communities continue to experience high levels of discrimination across key aspects of life, including social and economic status, education, and political participation. A 2018 UNDP survey indicates that 93% of Roma youth in Montenegro (ages 18–24) are not in employment, education, or training, underscoring systemic barriers to inclusion.

The EU’s Multicultural Dilemma

While Montenegro demonstrates the potential of embedded multiculturalism, the EU faces a crisis of identity. The rise of ethnocentric nationalism and anti-immigrant sentiment erodes the Union’s credibility as a normative power. Reports by the European Council on Foreign Relations warn that the EU is increasingly adopting a more ethnic, closed-minded, and xenophobic definition of “Europeanness,” risking the undermining of its core values of universalism, equality, and secularism.

Mainstream EU politicians often capitulate to exclusionary narratives, yet Europe is aging, and its welfare states depend on an expanding workforce. Without immigration, particularly from outside the EU, the demographic challenges will intensify. Ironically, the very people framed as threats are indispensable to Europe’s economic survival.

Substance Over Symbolism

What makes Montenegro’s approach notable is that it treats multiculturalism not merely as an ideal but as a political necessity. Inclusion is built into institutions. Minority languages are spoken in local parliaments. Ethnic parties participate in government coalitions. These are not just gestures, they are modes of civic affirmation.

Yes, Montenegro has its challenges. The Roma community remains marginalized. Socioeconomic disparities persist. Symbolic recognition must be followed by substantive policy implementation. Montenegro should also aim to foster civic-oriented political parties that transcend ethnic and national lines. Encouraging the development of such parties would promote a more inclusive political discourse, focusing on shared values and common goals, rather than ethnic divisions. These shortcomings still provide valuable lessons. Acknowledging gaps, rather than denying them, is the first step toward reform. If the EU genuinely seeks unity in diversity, it must transcend the illusion that it already embodies that ideal. “Constitutionalizing” minority rights, as Montenegro has done, would be a start. Lowering electoral thresholds for minority parties would enhance democratic inclusion. Most importantly, reframing multiculturalism not as a problem to be solved but as a strength to be embraced is key to the EU’s normative survival.

That said, there’s still work to be done. Symbolic recognition must be followed by concrete policies, particularly for the Roma population. A country’s success isn’t measured by its ideals, but by how it treats its most vulnerable. Even its imperfections make Montenegro valuable to the EU because they highlight something crucial: multiculturalism is a process, not a destination.