Part 7 of 17
Administrative Division and Local Government in Montenegro
Unitary state with 25 local self-government units — constitutional foundations and the subsidiarity principle
Constitutional Foundations of Local Self-Government
Local self-government in Montenegro has a firm constitutional foundation. The 2007 Constitution of Montenegro defines local self-government as one of the foundations of the constitutional order and guarantees citizens the right to it. Article 22 of the Constitution guarantees the right to local self-government, while Article 113 establishes that in local self-government decisions are made directly and through freely elected representatives, which is consistent with European democratic standards and the European Charter of Local Self-Government, which Montenegro has ratified.
The constitutional regulation provides for the principle of subsidiarity: matters that can be effectively resolved at the local level should fall within the competence of local self-government bodies rather than central authorities. This promotes the decentralisation of power and brings the decision-making process closer to citizens.
Administrative and Territorial Division
Montenegro is a unitary state. The territory of the country is divided into municipal units (opštine), each of which enjoys a certain degree of autonomy in resolving matters of local significance. As of August 2026, Montenegro has 25 local self-government units: the Capital City of Podgorica, which has special status, the Old Royal Capital of Cetinje and 23 municipalities.
Urban municipalities are no longer part of Podgorica: Tuzi has been an independent municipality since 2018, and Zeta (formerly the urban municipality of Golubovci) was separated from Podgorica in 2022, becoming the country's 25th local self-government unit. The historical centre of the country — the city of Cetinje — has the special status of the old royal capital. The discrepancy in the number of municipalities in older sources (from 21 to 25) is explained by these reforms: Petnjica was created in 2013 and Gusinje in 2014.
Municipalities vary significantly in size: Podgorica is the largest by population, Nikšić is the largest by area (approx. 2,065 km²), while Šavnik has the smallest population.
Structure of Local Self-Government Bodies
The representative body whose members are elected by citizens in direct elections for a term of 4 years. The number of deputies depends on the population of the municipality. Adopts the municipality's statute, budget, development programmes and local normative acts. Elects and dismisses the assembly speaker and his deputy, forms committees and commissions. The assembly is led by a speaker who convenes and presides over sessions.
The chief executive of the municipality. Direct election by citizens applied roughly from 2003 to 2010–2011; since the local self-government reform, the head is elected by the municipal assembly by a majority of the total number of deputies. Represents the municipality, directs municipal administration, ensures implementation of assembly decisions, and manages municipal property. Appoints deputy municipal heads.
Organised in the form of secretariats, directorates and other administrative bodies that carry out administrative functions, implement laws, and prepare draft decisions for the assembly and municipal head. Structure is determined by the municipal head's decision. Administrative bodies are led by heads appointed by the municipal head through open competition.
Powers of Municipalities
Municipal powers are divided into original (own) and delegated. Original powers relate to matters that municipalities resolve independently in the interests of the local population:
- •Local development and planning: preparation and adoption of development programmes, spatial and urban planning documents
- •Communal services: water supply, sewerage, wastewater treatment, waste collection and disposal, street lighting, local roads
- •Social protection and childcare: pre-school education, support for vulnerable groups, persons with special needs
- •Culture and sport: creation and support of cultural and sports institutions, organisation of local events
- •Primary education and primary healthcare
- •Local economic development and tourism
- •Environmental protection at the local level
Information current as of August 2026. This material is for general information purposes.