Montenegro’s Reform Gap: Why Milojko Spajić Must Tell the Story of Change

When Milojko Spajić and the Europe Now movement swept to power in Montenegro’s 2023 elections, it was on a platform of technocratic renewal and a decisive break from the corruption, dysfunction and polarisation that had defined the previous three decades. Spajić promised a government focused on practical outcomes rather than ideological battles. He pledged to end the dominance of patronage networks, steer Montenegro toward EU alignment and implement a bold economic reform package to raise living standards and modernise the state.

Now more than two years into his term as prime minister, many of those reforms are underway. Montenegro has received EU backing, launched a series of structural changes and positioned itself as a frontrunner in the Western Balkans for future accession. Yet Spajić’s government is facing a growing perception crisis, public confidence is fragile and discontent is rising among young people and even within his own base. The problem is no longer about action or ambition but communication. For all its technical merit, the government’s reform programme lacks a compelling story and without it, many Montenegrins feel that nothing is changing at all.

A Reform Programme in Motion

Spajić’s economic reform blueprint, Europe Now 2.0, builds on his earlier work as finance minister. The initiative aims to reduce payroll taxes, increase average wages, unify VAT rates in the hospitality sector and streamline regulatory processes. It is intended to boost competitiveness, attract foreign investment and realign Montenegro’s economy with EU standards.

Crucially, Europe Now 2.0 is also designed to dovetail with the EU’s €6 billion Growth Plan for the Western Balkans, which supports projects in energy, digital infrastructure, transport and public administration. Montenegro has already received pre-financing to begin implementation and Brussels continues to signal strong support for Spajić’s pro-European orientation.

Yet for all its scope, the programme has not generated a corresponding wave of public enthusiasm. While the government continues to press forward with reforms, most Montenegrins are unaware of what is being done or unconvinced that it will help them.

A Stagnant Sense of Progress

The disconnect between policy and perception is clear in the polling. Just 11% of Montenegrins describe the current state of the economy as “very good”, while a combined 55% say it is either “fairly bad” or “very bad”. This pessimism is particularly strong among younger voters aged 18 to 34, even though they are supposed to be the primary beneficiaries of new labour and tax policies.

Wider optimism is scarce. Only 29% of voters believe their household financial situation will improve in the next year, while 28% expect it to worsen. Among 45 to 54-year-olds, that figure rises to 35%. These numbers suggest that while reforms are advancing institutionally, they are failing to reach the individual level in a meaningful way.

Confidence Wavering, Even Among the Faithful

Confidence in Spajić’s economic leadership is modest at best. Just 20% of Montenegrins say they are “very confident” in his ability to manage the economy and another 17% are “somewhat confident”. But 46% are either “not very” or “not at all” confident. Even among Europe Now supporters, 12% express doubts.

When asked whether Spajić is delivering on his campaign promises, only 13% of the public say they “strongly agree” and 25% “somewhat agree”. In contrast, 44% believe he has either failed to follow through or has broken promises. While not catastrophic, these figures point to a dangerous erosion of trust that could compound if left unaddressed.

Reforms for Whom?

Perhaps the most troubling aspect of the polling is how few Montenegrins believe they are the intended beneficiaries of reform. Just 6% of voters say Spajić’s policies are helping ordinary people. A far greater share of 39% say they benefit “the wealthy and well-connected”. Even among Europe Now’s own voters, 38% share this view, while only 12% believe that ordinary citizens are gaining from the reforms.

This perception undercuts the entire technocratic project. Even well-designed policies can appear hollow if people cannot connect them to tangible improvements in daily life. For voters dealing with inflation, housing insecurity and weak social protections, reforms like VAT harmonisation or tax incentives for businesses feel remote, if not outright irrelevant.

The Narrative Vacuum

Spajić’s political strength lies in his competence and his orientation toward the future. But he has so far failed to translate that into a compelling narrative that resonates with the public. He has not effectively addressed people’s economic anxieties, nor has he communicated how and when reforms will improve everyday life.

In the absence of such a story, opposition forces are stepping in to fill the gap. Critics portray the Europe Now government as elitist, disconnected or overly dependent on external actors like Brussels. These narratives are gaining traction, particularly among younger Montenegrins and swing voters who feel excluded from the country’s economic transformation.

The result is a slow bleed of political capital. Approval ratings are holding steady for now but confidence is slipping. Without a shift in communication strategy, that erosion could become irreversible by the next election cycle.

A Reform Agenda in Need of a Voice

Montenegro today stands at a crossroads. It has a government with a detailed reform programme, the support of Western partners and an opportunity to reset its trajectory after years of stagnation. But the missing ingredient is public belief.

Spajić must do more than implement reform. He must explain it. That means speaking directly to voters about what changes are being made, why they matter and when their impact will be felt. It means aligning reforms with the priorities and concerns of everyday citizens, not just the expectations of international institutions.

Rebuilding trust requires visibility and empathy. The government must be willing to engage with the frustrations of ordinary Montenegrins and show that the path forward includes them. Without this, even the most impressive policy agenda risks failing to deliver where it counts most, in the minds and lives of the people.

Download the data tables for this poll.