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Montenegro has established itself as a regional leader in innovation by becoming the first non-EU-Member State to adopt a Smart Specialisation Strategy (S3) in 2019. This strategic commitment has played a pivotal role in shaping the innovation ecosystem, fostering collaboration among research institutions, businesses, and policymakers. As the first cycle of S3 (2019–2024) nears its conclusion, Montenegro is actively working on the next phase, aiming to build on its successes and align even more closely with EU innovation frameworks.
In this exclusive interview for Western Balkans Info Hub, the Minister of Education, Science, and Innovation of Montenegro, Anđela Jakšić Stojanović, shares insights into how S3 has transformed Montenegro’s approach to innovation, the key projects and initiatives that have emerged from its priority areas, and the lessons guiding the development of the next strategy. She also discusses Montenegro’s ambitions for its innovation ecosystem and the opportunities that lie ahead, particularly as the country advances on its path toward EU integration.
POLICY ANSWERS: Montenegro was the first non-EU-Member State to adopt an S3 strategy in 2019. How has this pioneering role influenced Montenegro’s innovation landscape?
Montenegro’s pioneering adoption of the Smart Specialisation Strategy (S3) in 2019 has fundamentally transformed its innovation landscape. By formally integrating S3 into its strategic framework, Montenegro has not only identified key developmental directions but also established a robust, EU-aligned innovation ecosystem. This framework supports both the scientific-innovation community and the business sector through targeted state support and a comprehensive legal infrastructure.
During the first strategic cycle, particular emphasis was placed on the establishment of the Montenegro Innovation Fund, founded in September 2021, which serves as the key implementing body for programs and projects in the field of innovation and smart specialization. Moreover, it is imperative to highlight the recent opening of the new, modern building of the Montenegro Science and Technology Park, established with the aim of providing support and reinforcing Montenegro’s potential for economic growth and development through the creation and expansion of companies and teams in high-tech sectors. Together with the Innovation and Entrepreneurship Center Tehnopolis, it forms a robust innovation infrastructure and offers strong support for the innovation framework and S3.
The first S3 period (2019–2024) defined four vertical priority areas—sustainable agriculture and food value chain, sustainable and health tourism, energy and sustainable environment—and one horizontal area, ICT. These priorities have enabled Montenegro to focus resources and expertise on sectors with significant growth potential, positioning the country as an emerging regional leader in innovation-driven development.
Central to this transformation has been the establishment of a clear institutional framework. The Council for Innovation and Smart Specialisation, together with specialized innovation working groups and the Inter-institutional Group, ensures continuous stakeholder engagement, coordinated policy development, and effective communication between the government, research institutions and industry. This model, which has been recognized by the Joint Research Centre of the European Commission in its publication “Smart Specialization in the Western Balkans and Turkey – Lessons Learned,” demonstrates best practices in management and consultation processes.
In summary, Montenegro’s early and innovative adoption of S3 has catalysed a more dynamic and structured approach to innovation, aligning the country with EU standards and fostering a sustainable environment for growth and technological advancement.
POLICY ANSWERS: Could you highlight some specific projects or initiatives that have emerged from the priority areas identified in the current S3?
Within the first strategic cycle of Montenegro’s Smart Specialisation Strategy, over EUR 120 million were allocated. The final report for the concluding year is currently being prepared, which will detail the total expenditures. Concurrently, an ex-post evaluation of the strategy is underway, designed to provide a comprehensive assessment of our achievements and yield critical insights and recommendations for the next strategic cycle.
Several initiatives have emerged as notable achievements of the first strategy. In the ICT sector, substantial support has been directed toward cluster organizations, culminating in the formation of the ICT Cortex cluster. Additionally, flagship initiatives—executed in collaboration with relevant ministries and the Innovation Fund of Montenegro—have advanced projects in the areas of energy and sustainable environment, as well as sustainable and health tourism. Notably, the energy program has successfully completed its second consecutive year, while the sustainable and health tourism program was already ready for implementation last year; however, due to a change in priorities by one of the partners, its execution has now been postponed until further notice.
Further significant accomplishments include robust support for centers of excellence, the Research Grant Program aimed at stimulating academic and innovation excellence, a program focused on enhancing energy efficiency in hotels and catering facilities within rural households, and dedicated support for early-stage startups and collaborative innovation grants—all managed by the Innovation Fund of Montenegro.
Moreover, despite smart specialization not being a prerequisite for accessing EU funds, Montenegro has secured nearly EUR 900,000 in pre-accession IPA funds for projects supporting this strategy. Considering that smart specialization is a requirement for accessing the EU Structural Funds—and given the substantial financial framework of EUR 1,824.3 billion for the 2021–2027 period—Montenegro is strategically positioned to capitalize on extensive opportunities within the EU context.
POLICY ANSWERS: The current S3 strategy is set to conclude in 2024. What is the current state of play on the update of the S3?
In February 2024, Montenegro initiated preparations for its new Smart Specialisation Strategy by submitting a letter of intent to Stephen Quest, Director-General of the Joint Research Centre of the European Commission. Following Prime Minister Spajić’s discussion with European Commissioner Olivér Várhelyi—highlighting the successful implementation of the current strategy, a prerequisite for accessing EU Structural Funds—the Commissioner reaffirmed Montenegro’s strong political commitment to science and innovation.
On 25 April 2024, the Government adopted a comprehensive Roadmap outlining the phases of the new strategy. To date, Montenegro has successfully completed the Institutional Capacity Building phase—the first of five—and is nearing the conclusion of the second phase, which involves both quantitative and qualitative mapping of the country’s economic, innovation, and scientific potential. The quantitative analysis report, developed with expert support from the Joint Research Centre, was finalized in December 2024. Work on the qualitative analysis commenced in early January 2025 and is currently in its final stages, after which extensive community consultations will be conducted through the Entrepreneurial Discovery Process (EDP).
National adoption of the new strategy is anticipated in the fourth quarter of 2025. With the support of international experts, dedicated local teams, and the Directorate for Smart Specialisation—and by building on lessons learned from the first strategy—Montenegro is poised to surpass previous achievements, a promising development as the country moves closer to potential EU membership in 2028.
POLICY ANSWERS: As you work on the new S3 strategy, what lessons from the current strategy are you applying to the development process?
Lessons learned from the current strategy are proving invaluable in shaping the new strategic cycle. The first strategy, implemented during the coronavirus pandemic, revealed several areas for improvement, particularly regarding the established performance indicators. In the new cycle, we are committed to developing indicators that are both realistic and feasible to monitor.
Montenegro is once again assuming a pioneering role in smart specialization, as the new strategy is being developed in accordance with the updated JRC methodology—a framework that was not fully mature during the finalization of the first strategy. This updated approach will enable us to better capture the complexities of our innovation ecosystem.
Inter-sectoral cooperation remains a critical focus. While we have already established effective mechanisms for inter-institutional collaboration, the policy development process will further emphasize a bottom-up approach. This ensures that all stakeholders—including the business sector, academia, NGOs, and government entities—are actively engaged, fostering the necessary synergy to drive successful outcomes.
Additionally, the reclassification of the Smart Specialisation Strategy as an overarching national strategic document, as determined by the Government of Montenegro in April 2024, will enhance its alignment with other national policies. This integration is expected to further strengthen cooperation among state institutions, which play a crucial role in supporting S3 initiatives.
POLICY ANSWERS: Looking ahead, what are your aspirations for Montenegro’s innovation ecosystem?
Montenegro is on the verge of a significant transformation in its innovation ecosystem, driven by a robust legislative and strategic framework. Our aspirations revolve around strengthening a supportive legal environment that fosters scientific research and technological development. With the adoption of the new Law on Scientific Research Activity and the Law on Incentive Measures for Research and Innovation, we aim to create a transparent system that recognizes and monitors research actors, promoting accountability and continuous improvement in our scientific endeavors.
We are committed to enhancing the framework conditions for research, ensuring that our environment is conducive to innovative thinking and collaboration. Strengthening human resources and institutional capacities is also a priority, as we seek to nurture talent and cultivate a skilled workforce ready to tackle contemporary challenges in science and technology. Moreover, we recognise the importance of international cooperation, which will facilitate knowledge exchange and help integrate Montenegro into global research and innovation networks, positioning us as a competitive player in the European and global field.
Our strategic focus includes key research and S3 priorities such as Sustainable Agriculture, Energy, Health, and Information Technologies. These areas not only reflect our commitment to addressing local needs but also align with global challenges, enhancing the relevance of Montenegrin research and innovation ecosystem. To support this, we are investing in our research infrastructure through the Roadmap for Research Infrastructure (2024–2028), which aims to bolster national capabilities and ensure access to advanced technologies.
We are particularly enthusiastic about our initiatives to support startups and small to medium enterprises through the Innovation Fund of Montenegro and through the national innovation infrastructure – Science and Technology Park of Montenegro and Entrepreneurship and Innovation Centre Tehnopolis. Programs and initiatives offered by the innovation ecosystem actors support innovation development from the pre-incubation up to commercialization stage, and are designed to stimulate entrepreneurial activity and support innovative projects, fostering a vibrant startup culture.
Education plays a crucial role in our vision, and we are introducing scholarship programs for doctoral research and grants for innovative projects to attract and retain talent. These initiatives are essential for building a strong foundation of researchers and innovators who can contribute to our country’s growth. Additionally, engaging the public through events like the “Days of Science and Innovation” festival is vital for raising awareness of scientific advancements and fostering a culture of innovation within our communities.
As we integrate into European research and innovation frameworks through programs like Horizon Europe and the establishment of the European Digital Innovation Hub, we are enhancing our access to funding and collaborative opportunities. Our focus will remain on continuous improvement and adaptation, ensuring that our policies and programs meet the evolving needs of the scientific community and society at large.
In summary, Montenegro’s aspirations for its innovation ecosystem are centered on cultivating a vibrant, collaborative environment that drives economic growth and addresses global challenges through science, innovation and technology.
POLICY ANSWERS: What advice would you give to other non-EU-Member States considering adopting a Smart Specialisation Strategy?
I would strongly advise non-EU member states considering the adoption of a Smart Specialisation Strategy to initiate the strategy development process without delay. The benefits are substantial, as demonstrated by Montenegro’s experience. Our scientific and innovation communities, along with the broader economy, have significantly evolved, thanks in large part to the bottom-up approach that tailors measures to the specific needs of the economy.
Furthermore, in the context of accession negotiations, smart specialization is a mandatory requirement for accessing EU Structural Funds. Initiating the process early not only facilitates smoother integration into EU frameworks but also allows countries to accumulate valuable experience ahead of potential membership. Ultimately, the principles of smart specialization offer universal advantages and are a strategic imperative for any country seeking to enhance its innovation ecosystem.
POLICY ANSWERS: Thank you for this interview!