Part 6 of 14
Administrative Division and Local Government in Montenegro
Unitary state with 24 municipalities — 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 establishes that this right is exercised 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 2023, Montenegro has 24 municipalities and the capital city of Podgorica, which has special status.
Podgorica, in addition to its capital city status, includes the municipal units of Tuzi and Golubovci, which hold the status of urban municipalities. 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 various sources (from 21 to 25) is explained by recent administrative reforms: Petnjica was created in 2013–2014, and Tuzi received the status of an independent municipality in 2018.
Municipalities vary significantly in size: Podgorica is the largest by area and population, 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. Until 2016, was directly elected by citizens; after the local self-government reform, is elected by the municipal assembly. 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