This was announced at the roundtable "Chapter 23: Implementation of Final Benchmark 2 – Fight against Corruption", organized by the Center for Monitoring and Research (CeMI).
Head of the Public Policy Research Department at CeMI, Nemanja Stankov, assessed that certain technical progress has been achieved in the previous period, but that the question of its actual application and effects remains open.
He recalled that the negotiation process with the European Union is essentially based on progress in chapters 23 and 24, stating that without measurable results in these areas, full membership cannot be achieved.
Speaking about the first task of final benchmark 2, which relates to strengthening the operational capacities of anti-corruption institutions, Stankov pointed out the problem of the Agency for the Prevention of Corruption functioning without a full-time director for more than a year and a half.
"Three public competitions did not result in the selection of a director, and a fourth one has been announced. The European Commission has clearly stated that the Council must urgently appoint a director, but the reactions have remained formal," Stankov said.
Stankov pointed out that the second key task is to assess the results of the fight against corruption, especially the work of the Special State Prosecutor's Office and the courts. He assessed that there are some developments in the number of investigations, but that indictments are not following this trend.
"It is particularly problematic that progress is measured quantitatively, without insight into the quality of cases. The number of investigations and indictments says nothing about the seriousness of the crimes or the real impact on the system," Stankov said.
Speaking about court proceedings, Stankov said that there has been a noticeable slight reduction in their duration, but there is still a large discrepancy between the temporary and permanent confiscation of assets acquired through crime.
"While millions of euros and large assets are temporarily seized, permanent seizure is limited to individual cases, such as a single vehicle," Stankov said.
In the area of corruption prevention, Stankov pointed to significant delays in the adoption of key laws, including the Law on the Prevention of Corruption and the Law on the Protection of Whistleblowers.
"Although the changes began in 2024, the public still does not have clear information about when these regulations will be in the parliamentary procedure. Without a complete normative framework, all preparations at the institutional level remain limited," said Stankov.
Only 50 percent of planned activities have been achieved in the fight against corruption
According to him, although a new strategic framework for the fight against corruption has been established, its implementation is partial.
"According to available data, only 50.6 percent of planned activities were implemented, while for 12.7 percent there was no information available. This is a devastating figure and shows that the process often boils down to formal fulfillment of obligations," Stankov assessed.
He referred to the Law on Financing of Political Entities and Election Campaigns, which was adopted, but still does not meet the recommendations of international institutions. Key problems have not been resolved, which is especially important in the run-up to the election year.
Director General of the Directorate for Civil and Criminal Legislation at the Ministry of Justice and Head of the Negotiating Working Group for Chapter 23, Jelena Grdinić, said that Montenegro plans to close Chapters 23 and 24 by the end of the year, but that this will not be possible without concrete reforms in the area of combating corruption.
"These are the chapters that are the first to open and the last to close. We will certainly not close them without reforms that concern both prevention and the effective fight against corruption. We update activities on a weekly basis to show whether there is progress in the implementation of obligations," said Grdinić, adding that such an approach contributes to accelerating the dynamics of work.
Speaking about amendments to the Law on the Prevention of Corruption, Grdinić recalled that work on this regulation began in 2024, after which the text was sent to the European Commission for an opinion.
"During 2025, comments were awaited, and the final evaluation arrived at the beginning of 2026. After additional consultations with European Commission experts, the text of the law was improved. We received a comment that it is a significantly improved text and that there are no more objections, but we are waiting for the final confirmation of the European Commission," said Grdinić.
She recalled that the deadline for adopting this law is the end of the second quarter, or June 30, in order to, as she explained, leave room for monitoring the initial results of its implementation before closing the chapter.
Grdinić: A law on whistleblower protection is being prepared
In addition, as Grdinić noted, a new law on whistleblower protection is being prepared, which should improve the position of persons who report irregularities. The goal is to provide a stronger and more stable legal framework, including judicial protection.
She said that the Draft Law has already been submitted to the European Commission, and additional consultations are currently pending.
Grdinić highlighted several important innovations brought about by amendments to the Law on the Prevention of Corruption.
"The Agency for the Prevention of Corruption will be given access to the bank accounts of public officials, with clearly defined data protection mechanisms; an obligation to compare reported and actual income is introduced, especially when the difference exceeds 50,000 euros; sanctions are tightened, including a ban on holding public office for persons found to have violated the law; public officials who violate the law will not be entitled to compensation after they cease to hold office," Grdinić stated.
She also indicated that the obligations to declare assets have been expanded, including bank accounts and digital assets, as well as the circle of persons obliged to submit reports, including members of the public procurement, privatization and concessions commissions.
Referring to the Law on Financing Political Entities and Election Campaigns, Grdinić stated that it is necessary to further analyze compliance with international recommendations.
She emphasized that all priority laws, after receiving a positive opinion from the European Commission, will be adopted under the urgent procedure and immediately sent to the Parliament.
Drakić: A large number of laws have already been amended or are in the final stages of being amended
Acting Director of the Agency for the Prevention of Corruption, Dušan Drakić, said that fulfilling obligations under Chapter 23 is based on three key dimensions: normative, institutional and operational.
In normative terms, Drakić stated that significant progress has been achieved in the previous period through amendments to numerous laws, including the Law on the Prevention of Corruption, the Law on Financing Political Entities and Election Campaigns, as well as regulations relating to civil servants, the Government and free access to information.
"A large number of laws have already been amended or are in the final stages of amendment, with the support and comments of the European Commission and public debates," said Drakić.
At the institutional level, Drakić emphasized that it is crucial that institutions have the capacity to implement laws in practice, but also to build public trust.
"The fight against corruption must demonstrate consistency, non-selectivity and the willingness of institutions to respond effectively to all cases," Drakić emphasized.
He added that it is necessary for institutions to provide a quick and efficient response to all suspicions of corruption, regardless of the outcome of the proceedings.
He placed special emphasis on the need for stronger operational cooperation between preventive and repressive authorities, including the Special State Prosecutor's Office, the Police Directorate and other institutions.
According to him, certain cooperation mechanisms have already been established and should be sustainable, regardless of changes in the leadership of the institutions.
Speaking about the work of the Agency, Drakić pointed out that the preconditions have been created for improving the control of asset records of public officials.
He announced that amendments to the Law on the Prevention of Corruption will enable the expansion of control to related parties, in cases where there is suspicion of irregularities.
He also emphasized the importance of regional cooperation, which will enable the verification of the assets of officials outside the borders of Montenegro.
"It is an important tool for preventing the hiding of assets through transfer to other persons or abroad," said Drakić.
He warned that Montenegro faces a demanding election cycle, with the possibility of holding elections in all municipalities and at the state level at the same time.
"It will be a big challenge, especially in terms of controlling campaign financing, the influence of third parties and possible abuses," said Drakić.
He pointed out that the fight against corruption in this segment is the responsibility of all institutions, not just the Agency for the Prevention of Corruption.
Drakić announced that the Agency had previously resolved a large number of backlogged cases, including cases involving former and current public officials and political parties.
He added that the goal is to close old cases and shift the focus to current cases, with greater transparency and availability of information to the public and the media.
The roundtable was organized within the project "Raise Your Voice: for a Corruption-Free Montenegro", which CeMI implements with financial support from the Bureau of International Drug Trafficking and Law Enforcement (INL) of the US Embassy in Montenegro.
