Corruption is a choice, not a fate, and no country is immune to it, said the Head of the European Union (EU) Delegation to Montenegro, Johan Sattler, warning that Montenegro will not be able to close Chapters 23 and 24 without clear, measurable results in corruption cases.
Satler presented these messages today at the 18th National Anti-Corruption Conference, organized in Podgorica by the Network for the Affirmation of the Non-Governmental Sector (MANS).
Sattler said that every country has its own myths, and that the myth that corruption is a "custom" or something natural and inevitable is often repeated in the region.
He stated that there is a saying that goes with this – "money always finds a way".
He pointed out that this myth is wrong and that corruption is not genetics, fate, or something written in DNA, but exclusively a choice.
"No country, including those in the European Union (EU), is exempt from the fight against corruption, but the key difference lies in the political will and institutions that exist to fight it. Corruption is not an abstract concept but an everyday reality with direct consequences - it undermines democracy, disrupts the market and undermines the trust of citizens. Experience from around the world shows that even the richest countries can become poorly governed or fail if corruption governs institutions," said Satler.
He said that in the past, the Montenegrin judiciary, like that in regional countries, "went after small fish," but that now cases involving medium and high levels are being seen, which is also important for EU partners.
He assessed that the latest report by the European Commission was good and that progress was particularly visible in chapters 23 and 24.
"The EU's expectation is that Montenegro continues to build results and move beyond investigations - towards indictments and final judgments. Without such an outcome, Chapters 23 and 24 cannot be closed and the accession process cannot be completed. Good progress has been made in the last two years and Montenegro has the strong support of numerous European institutions and states," said Satler.
He also recalled the tradition of fighting for justice and equality in Montenegro, citing examples from the past and emphasizing the importance of continuing that tradition.
Milovac: Investigations in sensitive cases take years or depend on who is currently in power
MANS Deputy Executive Director Dejan Milovac recalled that in recent reports, the EC noted the slower implementation of key strategies and recommendations, but also emphasized the need for reforms to be actually implemented on paper.
"Translated into the language of citizens, this means the following: we still do not have enough final judgments in high-level corruption cases; we still do not have convincing checks on the origin of the assets of the most powerful people in the country; we still do not have a system that would make a public official think twice about what he is risking before abusing his position. We have changed people in positions, but we have not dismantled the system that produces corruption. Political parties, almost without exception, are still driven primarily by party interests, not public interests. Institutions are still divided along party lines. Key positions are still perceived as loot, not as responsibility," Milovac said.
He emphasized that the judiciary has been the focus of reforms for years, but it still essentially depends on political agreements behind closed doors.
"We have seen blockages of elections in the judiciary, we have seen accelerated 'agreed solutions'. What we see much less of are stable, independent institutions that have the strength to initiate cases against those who sit at the top of political and economic power - regardless of which party they belong to today," Milovac said.
According to him, in the area of combating high-level corruption, "reality is harsh."
"The number of cases that end in final judgments is still modest. Investigations in sensitive cases take years or depend on who is currently in power. Citizens rightly feel that justice is selective – strict towards the weak, flexible towards the powerful. That is why the topic of 'hidden assets' is so important. The unexplained assets of public officials are not a detail in the asset register, but a red flag for corrupt behavior. If we do not know who the real owner is, if we cannot track the flow of money and if there is no serious cooperation between tax, prosecutorial, police and international authorities – we are not talking about the fight against corruption, but about its simulation," said Milovac.
He recalled that for years MANS had pointed to the unexplained assets of those who later appeared in the Sky correspondences and who are now indicted by the prosecution.
According to him, this shows that the hidden assets of public officials are a signal that institutions should not have turned a blind eye to.
He also said that today, corruption is rarely seen as an open envelope.
"It is hidden in a network of companies, offshore companies and 'friends' who formally run businesses, but in fact work for the political elite. We have officials who have modest assets on paper, but live a life that cannot be explained by reported income - cars in the name of companies, apartments in the name of relatives, houses in the name of partners, accounts abroad, ownership broken down into multiple levels in order to hide who the real beneficiary is," said Milovac.
He also reminded us that we often talk about "the EU's doors", "the final stage of negotiations", "membership within reach".
"But we must be honest. At the gates of the European Union, we are not waiting for a vacation and a medal, but the beginning of a huge task to make Montenegro a society in which the rule of law is the rule, not the exception. That is why we must be realistic. Our problems will not disappear by joining the EU. Corruption, institutional weaknesses and the capture of the public sector by party interests will be with us even after formal membership," said Milovac.
Božović: We don't have time to write laws that are incomplete
Minister of Justice Bojan Božović stated that Montenegro is "one step away from joining the European Union", assessing that this step is the most important and most difficult.
He said that this is a "historic opportunity" and that every public official must be aware of the gravity of the moment.
"The Ministry of Justice has submitted the Law on the Prevention of Corruption to the European Commission and the key challenges are reducing the level of corruption and faster, better and more thorough communication with international partners. We do not have time to write laws that are incomplete," said Božović, stating that a new law on the protection of whistleblowers is being prepared, a separate law that, as he believes, will be of great importance.
He also announced a law on the confiscation of property acquired through criminal activity, with the position that confiscation should be based on a final judgment.
"The current law does not clearly define the illicit enrichment of public officials," said Božović, and announced that draft laws on the Special State Prosecutor's Office and the Special Court would be prepared by the end of the year.
He added that resolving the issue of the director of the Agency for the Prevention of Corruption (ASK) is one of the obligations pointed out by Brussels, and invited all interested parties to apply for the next competition.
Felten: Transparency is key in the fight against corruption
Peter Felten, German Ambassador to Montenegro, pointed out that Montenegro is making significant progress in the EU accession process and has set an ambitious reform plan, which creates pressure, but also motivation for work.
He stressed that transparency is fundamental in the fight against corruption, as it reduces opportunities for abuse and allows the legislative process to be clear and reliable.
Felten warned that the speed of adopting measures must not compromise consultations with civil society.
"It is better to take the time and clearly communicate all measures than to come up with half-baked solutions that would not hold up in court," Felten said.
He added that the fight against corruption does not end with EU accession and that similar challenges are present in Germany, where a decline was recorded in the Transparency International index last year.
He praised the engagement of the Montenegrin civil society, which, he said, encourages the state to act and contributes to visible results in the fight against corruption.
McCann: Unknown wealth of public officials is a signal of corruption
Dawn McCann, the British Ambassador to Montenegro, pointed out that corruption threatens democracy, economic development and citizen trust.
She particularly emphasized the conference's focus on the property of public officials and the mechanisms for its verification.
"Unknown wealth is the first visible sign of individual corruption and deeper systemic problems. Citizens have the right to expect honest officials and robust institutions, but everything must be done the right way – with integrity checks and reliable verification processes," McCann emphasized.
She added that transparency and accountability form the foundation of a resilient system of government and recalled that the United Kingdom, through the Global Anti-Corruption Program, supports investigations, asset recovery and civilian oversight of parliament.
"Montenegro has made significant progress, but real change requires time and consistent political will. Strong laws, institutions and a culture of integrity are needed," the ambassador concluded.
Masks: French support through expertise and cooperation with civil society
Anne-Marie Maske, the French Ambassador to Montenegro, praised Montenegro for its progress, but emphasized that the fight against corruption is not just a formal fulfillment of EU criteria, but a choice of citizens and the foundation of democratic governance.
Maske stressed the importance of a comprehensive approach including the civil sector, prevention of conflicts of interest, protection of whistleblowers and strengthening institutional capacities.
France is currently supporting a regional corruption prevention project with a focus on Montenegro, which includes resources, strengthening human resources, combating money laundering, and establishing registers of politically exposed persons.
"French institutions contribute to the development of secondary legislation and their efficient implementation. The fight against corruption is not only a requirement for the EU, but also a way for the citizens of Montenegro to live in a society based on the rule of law," said Maske.
Marcella: The Italian model and international cooperation
Andreina Marsela, Italian Ambassador to Montenegro, highlighted Italy's long history in the fight against corruption in the public and private sectors and administration.
She particularly praised institutions such as the "Guardia di Finanza", which represent an international example of the effective fight against corruption.
Italy presented the Falcone and Borsellino Program, a multidimensional initiative that provides technical assistance in justice and security, including strengthening institutions, training of judges and prosecutors, coordinated investigative practices, and international cooperation.
"Corruption is a cancer of society and the state. The involvement of judicial authorities, academia and the civil sector strengthens legality, capacities and cross-border cooperation. In this way, we help Montenegro achieve its goals in the rule of law and EU integration," said Marcela.
Poaire: AGRASC manages billions and supports international cooperation
Aurelie Poaire, representative of the French Agency for the Management and Recovery of Seized and Confiscated Assets (AGRASC), presented the work of the agency.
According to her, the agency covers all procedures "from the beginning of seizure and confiscation to the sale of that property."
She explained that the agency has 76 employees, including judges – she herself was an investigative judge specializing in organized and financial crime – prosecutors and many other experts.
Poaire pointed out that the agency also assists other authorities and provides support to the courts.
"We have three billion euros under management," Poaire said, adding that they have court orders and are selling real estate and assets that will quickly go bankrupt if not sold.
She cited examples of Rolex watches and Porsche cars that were seized through money laundering, as well as luxury furniture.
Poaire also emphasized the social dimension:
"We use the confiscation of buildings for social purposes. We also have various funds, for example to combat prostitution," she said.
She added that one of its tasks is international cooperation and that the agency assists courts in issuing certificates for the seizure of property, both in the EU and in countries outside the EU.
Poaire also explained that the agency organizes public auctions for the sale of property.
Drakić: Substantive, not formal, asset verification
Acting Director of the Agency for the Prevention of Corruption (ASK), Dušan Drakić, said that the agency's focus is on resolving suspicions about the assets of public officials substantively, not formally.
"Our focus is on substantive property verification, not formality," said Drakić.
He added that there are two key challenges: the retroactivity of laws concerning this area and limited access to bank accounts of public officials.
Drakić reminded that reports on income and assets must be submitted regularly, and that public officials cannot make decisions on their own.
"When it is determined that an official has assets that he cannot prove or if he pays large amounts for a campaign that is non-transparent, what can be done, that is a question for the entire society," he said.
Sekulović: New law and the criminal offense of illicit enrichment
State Secretary at the Ministry of Justice Sergej Sekulović emphasized that without the criminal offense of illicit enrichment, institutions cannot do much.
"The draft is ready. I don't dare to make predictions, we are waiting for the opinion of the European Commission," said Sekulović.
He explained that permanent confiscation of assets would require a final judgment and cited two models, one of which is particularly dear to MANS Deputy Executive Director Dejan Milovac, because it is similar to the Italian anti-mafia law.
The new law defines the terms "persons particularly dangerous to society," and requests for property confiscation would be submitted to the Supreme Court.
"It is not necessary that there is a criminal proceeding taking place in parallel, everything is focused on property," said Sekulović.
Kos: Legal obstacles in practice
Drago Kos, Chair of the OECD's Istanbul Action Plan against Corruption, said that "in some countries, like my system, confiscation does not work well, but if you have assets for which you cannot prove the origin, then you pay 90 percent of the tax on that asset."
Elgersma: For Montenegro to close chapters 23 and 24, it will take time to achieve measurable results
The Ambassador of the Netherlands to Serbia and Montenegro, Martijn Elgersma, said that the Western Balkan countries are needed as part of the EU, and Montenegro is on that path.
"And that's something we're happy about. Montenegro has set itself a very ambitious timetable and that's good, because it forces you to work. The assessment is that Montenegro is moderately prepared when it comes to the anti-corruption legislative framework, which means that there is still a lot of work to be done in a relatively short period," said Elgersma.
According to him, for Montenegro to close Chapters 23 and 24, it will take time to achieve measurable results.
He said that openness (transparency) is "the biggest enemy of corruption."
"It is very important that now, when the government is under pressure from the agenda, it maintains its commitment to transparent processes. The pressure to react and organize faster will be enormous, and transparency is key," he said.
Elgersma emphasized that the Government must fight corruption, but it cannot do it alone.
"This is a question for the entire society. However, it is in the hands of the authorities to rally the entire society around this goal," he concluded and suggested to the authorities not to renounce openness and cooperation with the entire society.
He also said that joining the EU is not the end, but that work must continue after that when it comes to the fight against corruption.
"My country has also regressed on the corruption index, which has caused controversy and is why our government has adopted a new anti-corruption plan...", Elgersma added.
Murphy: Vetting is a key part of our process
Helen Murphy, Head of Operations at the Anti-Corruption Unit North, at the National Crime Agency in the UK, presented how the agency manages integrity and prevents corruption within the British justice system.
According to her, the National Crime Agency (NCAA) is an organization with national jurisdiction that deals with organized crime, including human trafficking, drugs, weapons, cybercrime and economic abuse.
"We also work internationally, with officers deployed in more than 51 countries," Murphy said.
The unit he works in, the "Integrated Protected Security Command", is focused on anti-corruption activities within the agency, but also on supporting colleagues, both nationally and internationally, in corruption investigations.
Murphy leads the operational anti-corruption team for the north of Great Britain and emphasizes that checking integrity and professional standards is a key part of the fight against corruption.
"Veteranship is a key part of our process. We screen all employees before they start work and on an ongoing basis, including their supervisors and references," explained Murphy, adding that the process includes security checks, interviews, and monitoring of changes in personal circumstances.
Murphy also highlighted the importance of a preventive approach: in 2023, more than 300.000 employees and volunteers in the British police force were checked through the integrity system.
"Investigations, disciplinary actions and audit reviews have been conducted of those involved in the irregularities. The goal is to continuously identify vulnerabilities and ensure the integrity of the system," Murphy said.
She added that preventive measures, professional standards and constant supervision are the basis for strengthening citizens' trust in institutions and reducing the risk of corruption within law enforcement.
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