The most vulnerable groups in society, including Roma and Egyptians, people with disabilities and LGBTIQ people, continue to be exposed to discrimination, hate speech and hate crimes, the European Commission's Draft Progress Report highlights.
The document, which was seen by "Vijesti", states that the legal and institutional framework in the field of prohibition of discrimination, hate crimes and hate speech has been largely established, but is still not fully aligned with the acquis communautaire of the European Union (EU). It is specified that Montenegro has begun the process of adopting a new Law on Prohibition of Discrimination, with the aim of harmonizing it with EU standards and European norms.
"Montenegro must consistently implement strategic measures in the field of combating racism, protecting the rights of LGBTIQ persons and the rights of persons with disabilities," the document states.
It was specified that after amendments to the Criminal Code in December 2023 and appropriate institutional measures, including police activities, an increase in the number of processed cases of racism and hate speech was recorded - from 16 cases against 19 people in 2023 to 24 cases against 38 people in 2024.
"In addition, in May 2024, the Supreme State Prosecutor's Office adopted mandatory guidelines and appointed a coordinator for their implementation, in order to ensure consistent and efficient handling of cases of hate speech and hate crimes, in accordance with international standards...".
Women discriminated against and victims of violence
"Women in Montenegro continue to face multiple and interconnected forms of discrimination, while stigmatization is widespread in society, including against women belonging to minority communities," the report highlights.
It is stated that reports by the UN Human Rights Committee and the Council of Europe Group of Experts on Action against Violence against Women and Domestic Violence (GREVIO) have also pointed to harmful gender norms that affect the position of women in society.
"Also, the recommendations of the UN Committee on the Elimination of Discrimination against Women (CEDAW) have still not been fully implemented."
It was emphasized that the implementation of gender equality policy is limited by a lack of human and financial resources, which results in weak influence and authority of the competent institutions within the Government.
"There remains a low level of awareness and institutional commitment to gender equality, including its horizontal approach (gender mainstreaming). There are also disparities in the implementation of laws and bylaws, as well as insufficient coordination with other national strategies," the document states.
It is recalled that in December 2024, the Ministry of Human and Minority Rights (MHMR), in cooperation with the OSCE Mission to Montenegro, conducted an ex-post evaluation of the Gender Equality Strategy 2021-2025, and that it was concluded that budgetary funds are limited and often insufficient, institutional coordination is weak, and there is a lack of specialized staff.
"...Additional efforts are needed to collect sex-disaggregated data in all areas, especially in relation to domestic and gender-based violence, income and earnings, health and social protection." Gender-based violence, the document emphasizes, remains widespread and affects women in different spheres of life.
"Social attitudes remain concerning - a third of citizens believe that women fabricate claims of psychological violence to attract attention. Also, the low level of accountability of perpetrators remains a problem - only 10 percent of convictions for violence result in a prison sentence. Civil society organizations dealing with women's rights play a key role in providing support to victims of gender-based violence," it said, emphasizing that "the legal framework should be further aligned with the Istanbul Convention and the EU Directive on Combating Violence against Women and Domestic Violence."
It is also stated that the amendments to the Criminal Code from December 2023 brought a more precise definition of misdemeanor and criminal offenses related to domestic or family violence.
"For the first time, psychological violence has been included alongside physical violence, and a broader definition of family has been introduced, encompassing current and former extramarital partners and same-sex partners.
The operational team consists of representatives of state institutions, the prosecution, the judiciary and the civil sector. The Council of Europe assisted in the assessment of the implementation of the Protocol on Prevention and Protection against Gender-Based and Domestic Violence, and the evaluation was completed in June 2025. In October 2024, the Supreme State Prosecutor's Office adopted standard operating procedures for dealing with cases of sexual and gender-based violence, in accordance with the amended Criminal Code, the relevant provisions of the Istanbul Convention and the EU Victims' Rights Directive. These guidelines are already yielding positive results, prosecutors now act directly in all cases of violence, which allows for more proactive case management," the document states, but also warns that "sentences in most cases of gender-based violence remain lenient and are often imposed close to the legal minimum." It is specified that during 2025, 862 cases were initiated.
"In 2024, the Ministry of Labor, Social Protection, Family Care and Demography allocated 300.000 euros for accommodation services for children, adults and elderly victims of violence, neglect and gender-based violence. In 2025, this budget was increased to 500.000 euros. Social Work Centers allocated 151.200 euros to assist victims of these forms of violence. However, it is necessary to ensure adequate and sustainable financing of specialized services for women victims of violence. It is necessary to establish systematic data collection and analysis among different institutions, with coordinated implementation of policies in this area. It is urgently necessary to take prevention measures and train professionals working with victims of violence, as well as develop psychosocial treatment programs for perpetrators of violence. The country also lacks crisis centers and clear procedures for dealing with cases of sexual violence, which leaves victims without adequate support and protection," the Draft Report assessed.
Insufficient control of regulations against peer violence
The National Strategy for the Realization of the Rights of the Child expired in 2023, a new one has not yet been adopted, and Montenegro has not yet submitted its fourth periodic report to the United Nations Committee, which was due in November 2023, the document states.
"...Montenegro has not yet amended the Family Law to raise the minimum age for marriage to 18, despite recommendations from UN monitoring bodies and Resolution 1468 of the Parliamentary Assembly of the Council of Europe from 2005. Violence against and among children remains a serious problem. Although Montenegro has a well-developed legal framework for combating peer violence, with clearly defined procedures and rules, implementation and monitoring remain insufficient. In December 2024, the Government adopted the Strategy for the Prevention and Protection of Children from Violence for the period 2025-2029, with an Action Plan, and established a register of perpetrators of sexual offences," the EC document states.
It was emphasized that it is necessary to improve access to justice for children, especially those in vulnerable situations.
"Child-friendly procedures are only occasionally applied in criminal cases involving children in conflict with the law, as well as child victims and witnesses of criminal offences. Children are often insufficiently taken into account in civil, family and misdemeanour proceedings. The Law on the Treatment of Minors in Criminal Proceedings has not yet been amended."
PWDs still cannot fully exercise their rights
The legal and institutional framework for the rights of persons with disabilities (PWDs), the EC says, is not complete and must be further aligned with the EU acquis, including the European Accessibility Act.
"Persons with disabilities still cannot fully exercise their rights and face multiple forms of discrimination. Additionally, some laws still use outdated and pejorative terms when defining disability. Montenegro must ensure the implementation of the provisions of the United Nations Convention on the Rights of Persons with Disabilities, especially in the part relating to guardianship reform and decision-making on behalf of persons with disabilities," the document states.
It is recalled that in July 2025, the Government adopted the Draft Law on a Unified Disability Assessment System, while its adoption in the Parliament is still pending. "This is a significant reform that aims to create a fairer and more equal system, with easier access to rights and a transition from a medical to a human rights-based model. In December 2024, the Government provided premises for the future Institute for Disability Assessment, and the adaptation and equipment process is underway. In the same month, the Government adopted the first National Strategy for Deinstitutionalization, with an accompanying two-year action plan. Its rapid implementation is crucial for progress towards providing community-based services for people with disabilities," the document, which "Vijesti" has access to, states.
LGBTIQ targeted by hate speech
The legal protection of LGBTIQ rights must be further improved and aligned with the EU acquis, the draft report states. "LGBTIQ people continue to face discrimination. So far, seven laws have been aligned with the 2020 Same-Sex Life Partnership Act, while work on aligning six more laws is ongoing, but the process needs to be accelerated, as it is significantly delayed. The draft Law on Legal Recognition of Gender Based on Self-Determination has passed all necessary stages of the legislative procedure and has been the subject of consultations with the European Commission, but has not yet been adopted by the Government," it states.
It was emphasized that hate speech against LGBTIQ people remains widespread, including hate speech on the internet.
"Cases of hate speech are often processed under the Law on Public Order and Peace, instead of the Law on the Prohibition of Discrimination, which is why it is necessary to improve judicial practice and ensure consistent punishment of perpetrators."
Level of discrimination against Roma high in all areas
The level of discrimination against Roma remains high in all areas of life - in education, employment, housing and access to services, and the threshold for political representation of this population has not yet been lowered, the EC Draft Report stated.
They state that, according to the results of the 2023 census, the total number of Roma in the country is 5.629, or 0,9 percent of the total population, while there are 1.655 Egyptians (0,27 percent). In total, there are 7.284 Roma and Egyptians, which makes up 1,17% of the population. The Romani language, it was specified, is spoken by 4.658 people, or 0,75 percent of the population.
"It is necessary to establish an official, structured job catalogue for Roma mediators in the fields of health, employment and social protection. The Ministry of Human and Minority Rights currently finances the salaries of 21 mediators per year, which is not sustainable. Roma mediators are particularly needed in pre-school education, in order to prevent segregation and ensure better results in the education of Roma children in later stages of education."
"..The National Contact Point for Roma has limited capacities, and there is still a lack of political will and weak coordination between institutions in implementing policies towards the RE population."
It is recalled that, in the report of the Committee of Experts of the European Charter for Regional or Minority Languages, published on June 20, 2025, certain steps taken by the Montenegrin authorities were welcomed, but regret was expressed that the recommendations from the sixth evaluation report from 2023 were not implemented.
"These recommendations include introducing the Romani language into formal education, addressing the shortage of qualified teachers, and introducing the Romani language as an official language in at least one local government. The Committee recommended that Montenegro step up efforts to promote the Romani language, in cooperation with its speakers."
Abolish economic citizenship
The EC emphasizes that, in order to align with European Union law, Montenegro should abolish the legal basis that allows for the (re)introduction of the investment citizenship scheme.
"Such schemes are incompatible with EU law and pose a risk to security, as well as to the prevention of money laundering, tax evasion, terrorist financing, corruption and the infiltration of organised crime."
It is recalled that in 2024, the Ministry of Internal Affairs made 1.282 decisions on the granting of Montenegrin citizenship in accordance with the provisions of the economic citizenship scheme, of which 385 for applicants and 899 for their family members.
"The applications were submitted before the scheme expired on December 31, 2022, while 21 cases are still pending."
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