The Ministry of Internal Affairs (MUP) issued 40.567 temporary residence and work permits to foreigners in 2025, which is 12.878 permits, or 44 percent more than the quota previously set by the Government.
This was shown by a pre-study study by the State Audit Institution (SAI) for the purposes of the performance audit "Efficiency of implementation of activities in the field of integrated migration management, in the period from 2021 to 2025", which is in its final phase.
Senator and head of the SAI Collegium for that audit Branislav Radulović He told "Vijesti" that the Government's decision for 2025 set a total quota of 28.988 temporary residence and work permits for foreigners, while the Ministry of Internal Affairs issued an additional 12.878 permits. "Therefore, the total number of residence and work permits issued to foreigners in 2025 was 40.567," Radulović said.
According to him, one of the main reasons for launching the audit is Frontex's assessment that the Western Balkans will remain a key transit corridor for illegal migration towards Western Europe.
"There were 51.678 employed foreigners in Montenegro in 2025. The largest number were citizens of Turkey, 24 percent, followed by Serbia, 21 percent, and Russia, 20 percent," he said. Growth was also recorded in the number of companies owned by foreign citizens, so, according to data from the Tax Administration, the number of business entities owned by foreigners increased from 8.514 in 2016 to 34.581 in 2025.
"One of the main identified risks that was the reason for the decision to carry out this audit is the fact that, according to the FRONTEX Annual Risk Analysis 2025/2026, the Western Balkans will remain a key transit corridor for illegal migration towards Western Europe, despite the decrease in the number of illegal border crossings. The analysis also states that this route will continue to be exploited by highly organized and increasingly violent criminal groups, which requires increased cross-border cooperation and efforts in intelligence sharing," Radulović emphasized.
More than 100.000 foreigners during 2025.
According to data collected during the preparation of the audit, a total of 107.506 foreign citizens resided in Montenegro in 2025, while the country, according to the 2023 census, had a population of 623.633. "Last year, there were 29.714 foreigners with approved permanent residence in Montenegro and 67.807 with temporary residence," Radulović said.
Temporary protection, Radulović specifies, was granted to 2.216 foreign citizens, while protection was extended for another 5.569 people. According to DRI data, 1.479 residents of other countries were granted Montenegrin citizenship, five people had asylum status, the same number had subsidiary protection, while 711 people were registered as having illegally crossed the state border and stayed outside border crossings. The number of temporary residence permits, he states, increased from 29.784 in 2016 to 72.473 in 2025. Radulović also pointed to a strong growth in the number of foreigners employed in Montenegro.
“The number of employed foreigners increased from 14.330 in 2016 to 51.678 in 2025. The highest number was from Turkey, 24 percent, followed by Serbia, 21 percent, and Russia, 20 percent,” he said. A large increase was also recorded in the number of companies owned by foreign citizens. “According to data from the Tax Administration, the number of businesses owned by foreigners increased from 8.514 in 2016 to 34.581 in 2025,” said Radulović. Of the companies founded by foreign citizens last year, 36 percent were owned by Turkish citizens, 21 percent by Russian citizens, and 11 percent by Serbian citizens.
Analysis of migration policies and the work of institutions
Radulović said that the goal of the audit is to determine whether the competent institutions have provided an efficient migration management system in line with changes in migration trends.
"The main audit question is whether the Ministry of Internal Affairs, in cooperation with the competent institutions, through the implementation of the strategic document and other measures, has ensured an efficient migration management system," said Radulović. According to him, the main subject of the audit is the Ministry of Internal Affairs, which was responsible for the implementation of the Strategy on Migration and Reintegration of Returnees for the period from 2021 to 2025.
However, documentation was also requested from 14 other institutions and organizations responsible for the implementation of activities under the Strategy.
"We requested documentation from the ministries of education, justice, defense, labor, foreign affairs, diaspora, and health, as well as from the Police Administration, Tax Administration, Customs Administration, Administrative Court, and Employment Agency," said Radulović.
He states that the SAI also cooperated with the United Nations International Organization for Migration, UNHCR, and the Civic Alliance in the audit process, while Eurostat data was used for comparative analyses.
Radulović said that the focus of the audit was on the method of planning the Strategy, the selection of strategic and operational goals, and the implementation of planned activities.
"We have specifically analyzed the harmonization of national regulations with the acquis communautaire, the increase in state accommodation capacities for foreigners seeking international protection, the development of information systems and the implementation of electronic connectivity and Eurodac projects," he stated.
The subject of the review was also inspection supervision in the field of work of foreigners, issuance of residence and work permits, record keeping and the method of determining annual quotas.
Initiatives for amendments to the Law on Business Companies, the Law on Real Estate Tax and the Law on Real Estate Transfer Tax were also analyzed, as well as possible measures to stabilize the real estate market.
Radulović explained that the audit is being conducted within the framework of the SAI's medium-term plan for the period from 2025 to 2029, which checks Montenegro's activities related to the achievement of the sustainable development goals of the UN 2030 Agenda.
"In this specific case, the goal is to facilitate orderly, safe, regular and responsible migration and mobility of people, through the implementation of planned and well-managed migration policies," Radulović points out.
Joint report with the Serbian SAI by the end of September
Radulović also emphasizes that the Serbian State Audit Office proposed that the two institutions conduct a parallel audit, and a cooperation agreement was signed on March 3.
"It is planned that each national audit institution will prepare a separate report, while during the procedure they will exchange experiences and applied methodologies," said Radulović.
A joint report on the results of the two audits should be published no later than September 30th.
"When it comes to the national report of the State Audit Office of Montenegro, it is expected that the competent collegium will adopt it by the end of July," said Radulović.
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