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Freedom House Author. In , Montenegro experienced highly unstable political developments that undermined the legitimacy of key institutions governing the country, leading to two governments being voted out of power in February and August. These political tensions were worsened by clashes between opposing protesters on Statehood Day and assaults on police during an antigovernment protest in December. In this fragile environment, the constitution was severely undermined by political moves from all sides. They also established a new municipality, Zeta, redrawing constituencies just months before the local elections. Both actions were decried as forms of electoral engineering during an election year. Local elections in October in 14 municipalities showcased decreasing support for the formerly ruling Democratic Party of Socialists DPS , which lost power at the national level in for the first time in three decades. The local elections marked the emergence of a new political player, Europe Now! After the no-confidence vote against the 43rd government in August, the president declined to exercise his constitutional power to nominate a prime minister designate, creating an unprecedented situation unforeseen or regulated by any legal act. The parties that won the parliamentary elections tried again to reunite to form a 44th government. They attempted to circumvent the constitution by rewriting the competences of the president, obliging him to retroactively appoint a prime minister designate and to appoint ambassadors nominated by the government. These political moves occurred in the context of a barely functioning Constitutional Court, which lost its quorum for decision-making after the retirement of a judge in mid-September, leaving only 3 out of 7 judges on the bench. Despite efforts to enact new legislation, there were no major developments in the media sphere in Existing provisions to improve transparency in public media funding and prohibitions on hate speech in online comments were scarcely implemented. On August 12, Montenegro experienced a mass shooting in Cetinje, resulting in the deaths of 11 people. The police chief delayed issuing a statement the following day, allowing for the spread of disinformation about the event. This sparked a debate about police mobility and equipment in this type of situation, as well as gun control since the attacker possessed a weapon permit despite reported psychological issues. In late August, the government experienced a cyberattack, the origin unknown but potentially linked to Russia. For months, the government was unable to recover data and restore emails of public sector employees, which negatively affected service provision, transparency, and overall communication with the public. During the year, the government failed to provide financial support guaranteed by law to civil society organizations. Despite the full alignment of Montenegro with EU sanctions against Russia following its invasion of Ukraine in February, EU officials have criticized the political situation in the country, urging for stability in order to meet membership benchmarks. National governance in Montenegro was disrupted in by two votes of no confidence in rapid succession, attempts to violate the constitution in the name of advancing political interests, a barely functioning Constitutional Court, and the further breakdown of checks and balances in the country. The establishment of a new municipality prior to local elections was illustrative of lacking commitment to local administration reform. Civil society remained vibrant, though recently adopted media regulations faced implementation flaws. The outbreak of several high-profile criminal cases in , on the one hand, highlighted the large-scale infiltration of organized crime in the public sector. On the other hand, the cases sparked initial optimism towards a new chief special prosecutor and its potential in curbing rampant corruption and organized crime in the country. Countries Show all countries Select a country. Document Freedom House Author. The ratings are based on a scale of 1 to 7, with 7 representing the highest level of democratic progress and 1 the lowest. The Democracy Score is an average of ratings for the categories tracked in a given year. The Democracy Percentage, introduced in , is a translation of the Democracy Score to the scale, where 0 equals least democratic and equals most democratic. See the methodology. National Democratic Governance rating declined from 3. National Democratic Governance 1. More than two months later, the 43rd government was formed by gathering small parties from different sides of the political spectrum. The new government also significantly increased in size compared to its predecessor, enlarging from 12 to 18 ministries and adding 2 ministers without portfolio. These political machinations created an unprecedented legal situation. The frequent reorganization of ministries has added to the already high turnover of senior staff in public administration, severely hampering its capacities and operation. The political crisis also caused a blockade of plenary legislative work, with MPs fighting over the convening of Parliament and lodging constitutional appeals against the process. Electoral Process 1. The parliamentary committee for comprehensive electoral reform ended its mandate in July, holding only two sessions in and reaching no concrete conclusions or agreements between parties on specific reforms. In January , it opened its sessions to the public and abolished attendance fees. Election day was orderly, for the most part, but there were complaints of alleged undue pressure on voters. In preparation for the October local elections, Parliament passed a law changing the territorial organization of Montenegro, creating a new municipality, Zeta. This move was criticized as interfering in local election campaigns since it implied the abolishment of a toll for passengers, prompting the private company to sue the state for lost anticipated profits. The appeals concerned minor alleged irregularities but were rejected by the SEC. After the changes were adopted by MPs, the president deemed them unconstitutional and returned the bill to Parliament for ongoing debate in Spikes in party spending noticed in previous elections were again observed in the run-up to the October 23 elections in 14 municipalities. The participation of women in politics in Montenegro remained low in , with 9 of the 14 municipal electoral lists failing to ensure the legally binding quota of 30 percent women candidates. Civil Society 1. Civil society and nongovernmental organizations CSOs and NGOs in Montenegro were not effectively included in policymaking by government ministries in , a trend that continued from the previous year. Political instability also caused delays in public competitions for funding NGO projects from the state budget, affecting the civic sector. The position of religious organizations in the country—namely, the Serbian Orthodox Church SOC —continued to cause friction among political parties and the public. The agreement covered issues of legal subjectivity and continuity of the SOC, as well as the mutual rights and duties of State and Church. While protests throughout the year were largely tolerated, police were accused by activists of mismanaging the demonstrations by using teargas against protesters. However, an internal investigation did not determine any culpability by officers. There were several mass gatherings and road blockades, and 13 people were suspected of assaulting officers at one protest. The demonstration was supported and attended by officials from DPS and its partners, although they denied any connection to the incidents. The police identified the perpetrators of the center attack, who included two minors. For the first time, the new agreement did not diminish employee rights. Independent Media 1. Local Democratic Governance 1. The same scenario was averted in Kotor, where after months of political crisis and parliamentary blockade, three local MPs from DPS switched sides and provided the quorum to hold a session. Three ministries found the study to be incomplete and misleading since it left out key data in order to convey a positive perspective. These changes improved the financial status of municipalities by devolving a higher percentage of centrally collected taxes to the local level, increasing local revenues. The president vetoed the bill 60 due to concerns over the independence and professionalism of civil servants in Montenegro, views shared by the civic sector 61 and the European Commission. The number of employees at the local level seemed to be on an upsurge during the year, according to the ministries of finance and public administration. However, no optimization measures were undertaken in , and the Revenue and Customs Administration repeatedly rejected requests to disclose the data. Judicial Framework and Independence 1. Parliament had already failed to appoint the other vacancies, which require majority support, despite there being numerous candidates. Similarly, only one of the four non-lay members of the Judicial Council was appointed after MPs failed to reach consensus despite a highly competitive procedure with 35 applicants. He disputed the decision before the Administrative Court, claiming that he was not consulted in the process. Several high-profile corruption and organized crime cases were initiated during the year, most notably against former longtime Supreme Court president Vesna Medenica. The indictment alleges that, in the period —21, Medenica abused her position to influence decisions taken by several courts in favor of three companies, with the help of her son and 10 other suspects, for which all were paid bribes. However, an OSCE survey conducted in September showed that over 40 percent of respondents had noticed positive changes in the work of the State Prosecution Service during the last 12 months, while Nonetheless, watchdog CSOs have warned that sustainable results in the field will only come by completing criminal proceedings with justified outcomes. He resigned in October amid an investigation into missing seized tobacco. The Special Prosecution alleged that 90 percent of seized and supposedly destroyed tobacco was actually later smuggled, and arrested several police and customs officers in the case. He further exposed the lack of interconnectivity in state databases, along with insufficient cooperation among state authorities, especially the NSA. Additional checks and conditions were introduced, particularly for applicants from Russia and Belarus. The top three countries of origin for new investor citizenship in this period were Russia , China 67 , and the USA Footnotes 1 The overview of the interparty dynamics and the relationship between parliamentary majority and the opposition, and the parties in those positions, is presented in the publication of Institute Alternative p. Also, newly appointed inspector was not granted access to confidential data despite being appointed. At the day of dismissal, the acting director of the NSA, Savo Kentera, brought a decision which rejected an access to data, but it was appealed. In the meantime, the private company that was the original operator of the road has sued the state for not honoring the agreement and paying the sum. The attack was widely condemned, but it has not been resolved yet. The Prime Minister promised that a public enterprise would take over the steel mill, raising criticism about how this takeover would be orchestrated. Considers the democratic character of the governmental system; and the independence, effectiveness, and accountability of the legislative and executive branches. Examines national executive and legislative elections, the electoral framework, the functioning of multiparty systems, and popular participation in the political process. Assesses the organizational capacity and financial sustainability of the civic sector; the legal and political environment in which it operates; the functioning of trade unions; interest group participation in the policy process; and the threat posed by antidemocratic extremist groups. Examines the current state of press freedom, including libel laws, harassment of journalists, and editorial independence; the operation of a financially viable and independent private press; and the functioning of the public media. Considers the decentralization of power; the responsibilities, election, and capacity of local governmental bodies; and the transparency and accountability of local authorities. Assesses constitutional and human rights protections, judicial independence, the status of ethnic minority rights, guarantees of equality before the law, treatment of suspects and prisoners, and compliance with judicial decisions. Looks at public perceptions of corruption, the business interests of top policymakers, laws on financial disclosure and conflict of interest, and the efficacy of anticorruption initiatives.

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