Montenegro
Montenegro performs in the mid-range across all Global State of Democracy (GSoD) categories of democracy. Between 2018-2023, the country saw a significant increase in Credible Elections, Effective Parliament, Elected Government, Free Political Parties, as well as Social Group Equality. It scores in the top 25 per cent of countries in Electoral Participation, Political Equality, Basic Welfare and Personal Integrity and Security. Montenegro is an upper-middle-income country, with an open and service-oriented economy. It is highly dependent on tourism.
The first Montenegrin dynasty was formed in the 11th century after fighting against the Byzantine Empire. Parts of the territory remained divided between Ottoman and Venetian control between the 15th to 20th centuries. Montenegro was annexed by Serbia in 1918 and subsequently became part of the Kingdom of Yugoslavia. After World War II Montenegro joined communist Yugoslavia. Following its breakup in the 1990s, Montenegro formed a union with Serbia which lasted until 2006 when Montenegro declared its independence. Montenegro was relatively untouched by fighting in the ethnic conflicts which precipitated Yugoslavia’s collapse and is today a diverse country. It is home to Montenegrins (41%), Serbs (33%), Bosniaks (9%), Albanians (5%), and other smaller groups. While inter-ethnic and inter-religious relations are generally peaceful, concerns remain among minorities surrounding discrimination and the possibility of inter-ethnic violence. In contemporary Montenegro, the most visible religious conflict exists between the Montenegrin and Serbian Orthodox churches, which refuse to recognize each other’s legitimacy, and both claim ownership of many of the same religious sites.
The Democratic Party of Socialists (the successors of the Yugoslav communists) has dominated the political scene since 1992, losing power for the first time in 2020. In general, political competition in Montenegro has mainly unfolded between a Euro-Atlantic, Montenegrin nationalist, center-left block, and a center-right grouping that has traditionally favoured close relations with Serbia and Russia and a strong role for the Serbian Orthodox Church. This has resulted in an alleged coup attempt linked to members of the Russian-aligned opposition, and major protests concerning the state’s treatment of the Serbian Orthodox Church assets and proposed revisions to the law on citizenship.
In parallel to recent political instability, Montenegro also faces challenges with the rule of law, judicial independence, corruption and organized crime. This issue is exemplified by ongoing problems related to illicit business arrangements involving top officials. In 2021, the Pandora Papers investigation revealed that high-level politicians had established offshore trusts in the British Virgin Islands. However, in recent years the country has drafted more comprehensive anti-corruption legislation and frameworks to combat this issue and to progressively harmonize with EU standards. Despite this, corruption and instability had lingering effects on the economy, also triggering brain drain. Cost of living, unemployment and corruption remain the top concerns for citizens in 2024.
GSoD Indices data show that Montenegro performs in the mid-range in Gender Equality. Despite gradual progress, patriarchal values and customary norms persist, violence against women remains widespread and the authorities’ response is often questionable. Women hold only 27 per cent of the parliamentary seats and violence against women in politics is widespread. LGBTQIA+ community faces discrimination in the workplace and exposure to hate speech and crimes. Same-sex unions are legal as of 2021.
Looking ahead, it will be important to watch Rule of Law, particularly Judicial Independence and Absence of Corruption as the country begins the implementation of the Strategy for the Fight against Corruption (2024-2028). Given the ongoing brain drain and the challenges with unemployment and economy, close attention should also be paid to Economic Equality.
Last updated: November 2024
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January 2025
Mass shooting sparks security concerns and questions about gun control
A mass shooting on 1 January in Cetinje, which resulted in the deaths of 12 people, including children, has raised concerns about security and violence in Montenegro. The country is reported to have the sixth highest number of illegal weapons per capita in the world. The police response during the incident has faced criticism, though Prime Minister Milojko Spajić defended the police, citing shortages in law enforcement personnel due to retirements. Civil society organizations pointed out that despite Cetinje being home to over a hundred members of organized crime groups and the site of a similar mass shooting in 2022, the town has minimal police presence. In response to the tragedy, Prime Minister Spajić announced a two-month amnesty for individuals who surrender illegal weapons, along with tougher prison sentences for those caught with illegal firearms after the amnesty period. He also proposed additional gun control measures and a new Law on Weapons.
Sources: Balkan Insight (1), Balkan Insight (2), Radio Free Europe/Radio Liberty, Vijesti
Parliament's termination of Constitutional Court judge sparks crisis
The Parliament Constitutional Committee’s December 2024 decision to end Constitutional Court Judge Dragana Đuranović’s tenure upon retirement, deviating from the procedures established in the Constitution and the Law on the Constitutional Court, exposed weaknesses in the separation of powers. The opposition blocked Parliament’s work and demanded the annulment of the decision. For a judge’s termination to be formally recognized, the Court must adopt a decision by majority vote (at least four affirmative votes) and notify Parliament, which is then responsible for announcing the vacancy. However, the Court voted against notifying Parliament in June 2024. Four judges opposed the notification (citing the Labour Law) and two supported it (based on the Pensions and Disability Insurance Law). Experts argue that the differing interpretations of the legislation regarding retirement are driven by the self-interest of some of the judges. They also argue that the vote is questionable because two judges whose terms should have ended, along with Đuranović, participated in the vote. The latter thus violated the rule that no one can judge their own case. Had Đuranović recused herself, it is likely that no decision would have been reached, allowing Parliament to step in, as it did in the past. The European Commission raised concerns, urged legal reforms, and proposed a Venice Commission review.
Sources: Balkan Insight, Akcija za Ljudska Prava (1), Akcija za Ljudska Prava (2), Antena M, Vijesti (1), Vijesti (2), Vijesti (3)
November 2024
High Court sentences former Supreme Court President for abuse of office
The High Court in Podgorica sentenced the former President of the Supreme Court, Vesna Medenica, to six months in prison for abuse of office. The High Court ruled that Medenica had permitted a Basic Court judge, Milosav Zekić, to remain in office and avoid temporary suspension, despite Zekić’s criminal proceedings for allegations of causing physical injuries. Medenica, Supreme Court President since 2007, resigned in December 2020 after criticism by the European Commission and civil society over her third term, despite a two-term limit. Medenica was also accused of abuse of power and arrested in 2022 after transcripts revealed her son's involvement in drug and cigarette smuggling, with claims she was complicit. She was released after six-and-a-half months in custody to defend herself. In November, the Judicial Council elected Valentina Pavlicic as the new President, filling the post which had been vacant since 2020.
Sources: Cafe del Montenegro, Balkan Insight (1), Balkan Insight (2), Balkan Insight (3), Vijesti, European Western Balkans
January 2024
Parliament appoints Supreme State Prosecutor
The parliament appointed legal expert Milorad Markovic as the new Supreme State Prosecutor, filling a position that had been temporarily handled by three interim prosecutors since June 2021. Markovic was elected with the votes of both ruling and opposition parties. The appointment of the State Prosecutor was among the conditions outlined to accelerate reforms for EU membership, and was highlighted in the 2023 EU progress report.
Sources: Balkan Insight, European Western Balkans (1), European Western Balkans (2), Parliament of Montenegro, European Commission
June 2023
Europe Now Movement wins snap parliamentary elections
The centrist Europe Now Movement has come first in the snap parliamentary elections, winning 25.5 per cent of the vote. These are the first elections in 30 years in which Milo Đukanović, the longest-ruling leader in contemporary Europe has not participated (following his loss in presidential elections in April). Đukanović held key positions for over 31 years, including as a president and prime minister. The coalition led by his party, the Democratic Party of Socialists, received 23.2 per cent of the vote, while the pro-Serbian electoral alliance “For the Future of Montenegro” garnered 14.7 per cent. Outgoing Prime Minister Dritan Abazović’s green-conservative coalition of United Reform Action and Democratic Montenegro won 12.5 per cent of the vote. The party has promised reforms on EU membership and the economy, including increases in average wages. International observers deemed the elections well-run, but emphasized the need for electoral reforms due to gaps and inconsistencies on the election law, which has not been updated since 2014. Voter turnout was the lowest since 1990, dropping to 56.3 per cent, a notable decrease from 76.7 per cent in 2020.
Sources: Vijesti, Državna izborna komisija (State Election Commission), Balkan Insight (1), Balkan Insight (2), Euronews, OSCE ODIHR, International IDEA
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