sd-head-cg

Strategic Document – Montenegro – 2024

NATIONAL SECURITY STRATEGY: 2017
NATIONAL DEFENCE STRATEGY: 2002

NO CHANGES IN 2023

icon01

National interests and goals (as defined in the Strategies):
Protection of sovereignty, territorial integrity and independence of Montenegro // Internal stability, protection of life and property of citizens and economic goods // Protection of democracy and rule of law, and guarantee and protection of human rights and freedoms

icon02

Main threats:
Armed aggression // Terrorism and violent extremism // Proliferation of conventional arms and weapons of mass destruction // Cyber and hybrid threats // Organised crime

icon03

Main principles of national security policy:
Development of military capacities and capabilities necessary for the execution of dedicated missions and tasks in the country and within the collective security system // Further development of military capabilities in line with the NATO defence planning process

icon04

Regional cooperation:
The region generates a common vision of the future despite certain difficulties. Montenegro strives – through regional development cooperation and by enhancing transparency, dialogue and good neighbourly relations – to contribute to avoiding misunderstandings and improving security opportunities and stability in the region. Montenegro is committed to developing good neighbourly relations and strengthening regional co-operation, in terms of security as well as in other areas of common interest.

icon05

Regional threats:
The region is still burdened by past events and unresolved issues that could cause destabilisation in certain areas. Geostrategic shifts have made the Western Balkans once again a zone of strong interest of certain international actors whose primary goal is to prevent the further European and Euro-Atlantic path of some countries in the region. This imposes concrete actions on the region, especially those of a hybrid nature, which poses a serious security challenge and can have significant consequences for regional stability and slow down the integration processes.

icon06

Relations with NATO:
Montenegro has recognised that the best guarantee of long-term and sustainable security, sovereignty and territorial integrity of the state is access to the collective and cooperative security and defence system brought about by NATO membership. Therefore, active participation in the collective security system, NATO activities, missions and operations is a key prerequisite for protecting Montenegro from armed threats and other identified threats to national security.

icon07

Relations with the EU:
NATO membership has significantly strengthened Montenegro’s international position and facilitated the achievement of another key foreign policy goal – accession to the European Union. EU membership will further improve the security climate in the region and strengthen Montenegro’s capacity to respond to current challenges, risks, and threats.

icon08

International military cooperation:
Montenegro contributes to international stability through active participation in EU missions and UN peacekeeping missions and operations. Montenegro is developing its capacity to participate in NATO missions, operations and other activities in line with its membership obligations.

2024 – Balkan Defence Monitor
Strategic Documents – Montenegro

DOWNLOAD PDF
w-head-cg

Women in Defence System – Montenegro – 2024

women-icon01
National Action Plan 1325:

In late 2023, the Government of Montenegro adopted the Strategy for the Implementation of the United Nations Security Council Resolution 1325 – Women, Peace and Security and accompanying resolutions for the period 2024-2027, with the Action Plan for 2024-2025.1 This is the third strategic document that includes the goals of the UNSC Resolution 1325 in Montenegro. The Ministry of Defence has created a special section on women in the defence on its official website, which ensures greater transparency and facilitates access to information on gender equality in the 1defence sector.2

women-icon02
Participation of women in the MoDs and the Armed Forces:

More than two thirds of the employees in the Ministry of Defence and Armed Forces are women (66%), which is the highest percentage in the region. Still, the representation of women among professional military personnel has not significantly changed (11.55%). Among the professional military personnel, there are the most women in officer ranks, that is 17%. On the other hand, the representation of women is the lowest among non-commissioned officers (NCOs) and amounts to 6%. The highest rank held by women in the Army of Montenegro is still the rank of major, and in the coming period some women should be promoted to the ranks of lieutenant colonel/frigate captain and colonel/captain of battleships. Finally, 16% of women serve in the army as enlisted personnel.

women-icon03
Representation of women in command and leadership positions:

Due to frequent changes of government, the first Minister of Defence of Montenegro, Prof. Dr. Olivera Injac remained in office for less than a year and a half (December 4, 2020 to April 28, 2022). Nonetheless, the percentage of women in managerial positions in the Ministry of Defence is quite high and amounts to 51%, while percentage of women in command positions in Montenegro’s Armed Forces is 8%.3 Until 2022, Major Sanja Pejović worked as a gender advisor in the NATO command structure SHAPE, that is, the country’s first position in the NATO command structure.4

women-icon04
Participation of women in peacekeeping operations:

According to the Strategy, Montenegro significantly increased participation of women in international missions and operations. So far, 28 women members of the MoD and AF have participated in missions in Afghanistan, Somalia (ATALANTA), Western Sahara (MINURSO) and in Kosovo (KFOR). In 2022 alone, six women were engaged, which is 11% of the total number of military personnel, while in 2023, 7% of women were engaged in multinational missions and operations.

      1.  Vlada Crne Gore, Strategija implementacije R SBUN 1325 – Žene, mir i bezbjednost i njoj pratećih rezolucija za period 2024-2027, sa AP za 2024-2025. godinu, [Strategy for the implementation of UNSCR 1325 – Women, peace and security and accompanying resolutions for the period 2024-2027, with AP for 2024-2025], 15 December 2023, https://www.gov.me/dokumenta/a8a5a5ef-a812-4097-a34c-3175d58eb871
      2. Vlada Crne Gore, Strategija implementacije Rezolucije Savjeta bezbjednosti Ujedinjenih nacija 1325, [Strategy for the implementation of United Nations Security Council Resolution 1325], 15 December 2023, https://www.gov.me/mod/saradnja-sa-nvo
      3. The Strategy for the Implementation of UNSCR 1325 – WPS and accompanying resolutions for the period 2024-2027, page 15.
      4. Ibid.

2024 – Balkan Defence Monitor
Women In Defence System – Montenegro

DOWNLOAD PDF
imc-head-cg

International Military Cooperation – Montenegro – 2024

MILITARY EXERCISES

Based on the response from the MoD and from open-source research, it is estimated that Montenegro participated in 25 military exercises in 2023, and 23 of these exercises were multilateral. When it comes to multilateral exercises, 17 were NATO exercises, one was a multilateral US-led exercise, and one was a Greece-led exercise. Within the NATO exercise, the one that sticks out was “Common Challenge 23”, hosted by Montenegro, which focused on elite mountain warfare. Four exercises were under the auspices of regional initiatives, one with the Adriatic Charter (A-5), two with the Adriatic-Ionian Initiative (ADRION) and the regional special forces exercise “Strong Balkan 23 (B-9)”;

DONATIONS

There is limited information on international military donations to Montenegro in 2023. Turkey appears to be the greatest military donor in 2023, having donated three logistic vehicles worth USD 1.2 million. Slovenia donated seven mountain guns and 112 salvos for the Honorary Guard, but there is no estimate of the monetary value of this donation.

TOP FOREIGN DONORS 2023

Turkey
USD 1.2 million

2024 – Balkan Defence Monitor
International Military Cooperation – Montenegro

DOWNLOAD PDF
de-head-cg

Defence expenditure – Montenegro – 2024

Defence budget of Montenegro has undergone fluctuations in the past years, both in terms of absolute increase and budget structure.

This is partly a consequence of the country joining NATO and modernizing the Army to meet the NATO standards, but also due to political crisis and changes of governments. Data for 2023 suggests a stabilization of defence expenditure compared to initial budget.

2023

Share of GDP 1,08%
Share of total government
expenditure 2,63%

Budgets for the upcoming year are usually adopted by the Parliament in November or December, albeit the 2021 Budget was adopted with a six-month delay. Balance sheets submitted by the Government have never been adopted by the Parliament, with the 2021 Balance sheet failing to pass the competent parliamentary Board and 2022 Balance sheet still being in procedure.

With the exception of 2018 and 2019, more than half of defence expenditure goes on personnel. Larger percentage of spending on arms and equipment in those two years is due to procurement of Bell helicopters and Oshkosh JLTV armoured vehicles. Except for 2023, expenditure structure greatly differs from initial budget structure – in 2022, 7.6 percent was planned for arms and equipment, but the balance sheet shows almost 24 percent of budget being spent. This gap was even larger in 2021. Upcoming procurements include 120mm vehicle-mounted mortar system from Israel worth 20 million USD. Montenegrin budget is among the most transparent in the region and has improved in 2023 by including NATO, EU and UN missions as specific budget activities. Transparency and disaggregation could be further improved, including by referring to specific procurements.

2024 – Balkan Defence Monitor 
Defence Expenditures – Montenegro

DOWNLOAD PDF
2023-IMC-Montenegro

International Military Cooperation – Montenegro – 2023

MILITARY EXERCISES

As extrapolated from open-source research, it is estimated that Montenegro participated in 17 military exercises in 2022. Most were organised under the auspices of NATO, with one bilateral naval exercise with Slovenia. The military medical team from Montenegro participated in the exercise that was organised by the Balkan Medical Task Force (BMTF).

DONATIONS

Norway donated USD 65,000 in medical equipment to Montenegro’s Military Medical Centre, including for combating the Coronavirus pandemic. Multilaterally, the Organisation for Security and Co-operation (OSCE) donated EUR 34,698 (USD 34,815) worth of equipment for classrooms intended for training members of the Armed Forces. In 2022, the US Department of State has announced a donation to 17 of its European allies, of which USD 23 million is intended for Montenegro. It remains unclear whether said donation was implemented in 2022, but if it was, it would mean that the US is still the largest military donor to the country.¹ While data on the exact amount was not specified, part of the US aid to Montenegro emphasised cyber-security.

TOP FOREIGN DONORS 2022

United States of America
EUR 23.000,000
Norway
EUR 65,000
OSCE
EUR 34,698

  1.    Radio Slobodna Evropa, Vojna pomoć iz SAD za države Zapadnog Balkana, osim Srbije [Radio Free Europe – U.S. military assistance to Western Balkan countries, with the exception of Serbia], 19 Sept 2022, https://www.slobodnaevropa. org/a/state-department-vojna-pomoc-zapadni-balkan/32040703.html

2023 – Balkan Defence Monitor
International Military Cooperation – Montenegro

DOWNLOAD PDF
2023-Woman-MOntenegro

Women in Defence System – Montenegro – 2023

women-icon01
National Action Plan 1325:

Montenegro’s second Action Plan 1325 on women, peace and security expired in 2022. However, there is no information whether the Government of this country has taken any steps to develop the third one. Nonetheless, the Government of Montenegro regularly publishes reports on the implementation of NAP 1325, making it the most transparent in the region.¹

women-icon02
Participation of women in the MoDs and the Armed Forces:

Montenegro is the country with the highest share of women among the civil servants and employees in the MoD. More than two thirds of the civil servants employed in the MoD are women (66.25%). Representation of women among professional military personnel has increased slightly, from 10.35% in 2022 to 10.77%. When it comes to the share of women among officers, non-commissioned officers (NCOs) and soldiers, their number in the ranks of officers and professional soldiers is relatively high – 16.86% of the officers and 14.29% of the soldiers. The representation of women among non-commissioned officers (NCOs) is 5.21%.

women-icon03
Representation of women in command and leadership positions:

In 2020, Montenegro appointed a woman to the position of defence minister for the first time. Ms. Olivera Injac served as Minister of Defence of Montenegro from 4 December 2020 until 28 April 2022, in the Government of Zdravko Krivokapić. According to the Ministry of Defence, the share of women in leadership and command positions is 6.96%.

women-icon04
Participation of women in peacekeeping operations:

According to the Ministry of Defence, the share of women in the total number of members participating in peacekeeping operations outside of Montenegro is 10%.

      1.    Government of Montenegro, Report on the implementation of activities from the Programme of Implementation of the Action Plan for the Implementation of United Nations Security Council Resolution 1325 – Women, Peace and Security (2019-2022) for 2021, 31 March 2022, https://www.gov.me/dokumenta/86e5343d-1dd9-4581-ab77-a4bf- 751ce3c5

2023 – Balkan Defence Monitor
Women In Defence System – Montenegro

DOWNLOAD PDF
2023-DE-Montenegro

Defence expenditure – Montenegro – 2023

Montenegrin defence expenditure experienced a big increase right after the country joined NATO, in 2018 and 2019, caused by the attempt to meet the commitments made to the Alliance. However, it went backx to its earlier level in 2020. Besides the pandemic, the change of government after the 2020 elections and the subsequent
political crisis have certainly also influenced the overall budget and defence planning for the forthcoming period.

2022

Share of GDP 1.64%
Share of total government
expenditure 5.02%

The Parliament adopted the 2021 budget after a delay of more than six months. Earlier, the Government would usually provide a budget proposal to the Parliament one month before the start of the next budget year. The Parliament has never adopted any balance sheet submitted by the government even, though it is legally required to do so.

 

Montenegro spends the greatest share of its defence budget on personnel. This trend was shortly interrupted by the increase in arms and equipment expenditure in 2018 and 2019, when Montenegro started the procedure to procure Bell helicopters and Oshkosh armored vehicles. Nevertheless, big leaps in defence spending during the year, allocated to arms and equipment, suggest a general lack of long-term defense planning in Montenegro.

Even though the Montenegrin budget demonstrates a slightly higher level of transparency than those of most countries in the region (i.e. it shows individual projects or procurement), it still lacks sufficient transparency and disaggregation.

* Data for 2021 and 2022 are based on the last changes in the 2021 budgets and the initial budget laws for 2022.

2023 – Balkan Defence Monitor
Defence Expenditures – Montenegro

DOWNLOAD PDF
2023-SD-Montenegro

Strategic Document – Montenegro – 2023

NATIONAL SECURITY STRATEGY: 2018
NATIONAL DEFENCE STRATEGY: 2019

NO CHANGES IN 2022

icon01

National interests and goals (as defined in the Strategies):
Protection of sovereignty, territorial integrity and independence of Montenegro // Internal stability, protection of life and property of citizens and economic goods // Protection of democracy and rule of law, and guarantee and protection of human rights and freedoms

icon02

Main threats:
Armed aggression // Terrorism and violent extremism // Proliferation of conventional arms and weapons of mass destruction // Cyber and hybrid threats // Organised crime

icon03

Main principles of national security policy:
Development of military capacities and capabilities necessary for the execution of dedicated missions and tasks in the country and within the collective security system // Further development of military capabilities in line with the NATO defence planning process

icon04

Regional cooperation:
The region generates a common vision of the future despite certain difficulties. Montenegro strives – through regional development cooperation and by enhancing transparency, dialogue and good neighbourly relations – to contribute to avoiding misunderstandings and improving security opportunities and stability in the region. Montenegro is committed to developing good neighbourly relations and strengthening regional co-operation, in terms of security as well as in other areas of common interest.

icon05

Regional threats:
The region is still burdened by past events and unresolved issues that could cause destabilisation in certain areas. Geostrategic shifts have made the Western Balkans once again a zone of strong interest of certain international actors whose primary goal is to prevent the further European and Euro-Atlantic path of some countries in the region. This imposes concrete actions on the region, especially those of a hybrid nature, which poses a serious security challenge and can have significant consequences for regional stability and slow down the integration processes.

icon06

Relations with NATO:
Montenegro has recognised that the best guarantee of long-term and sustainable security, sovereignty and territorial integrity of the state is access to the collective and cooperative security and defence system brought about by NATO membership. Therefore, active participation in the collective security system, NATO activities, missions and operations is a key prerequisite for protecting Montenegro from armed threats and other identified threats to national security.

icon07

Relations with the EU:
NATO membership has significantly strengthened Montenegro’s international position and facilitated the achievement of another key foreign policy goal – accession to the European Union. EU membership will further improve the security climate in the region and strengthen Montenegro’s capacity to respond to current challenges, risks, and threats.

icon08

International military cooperation:
Montenegro contributes to international stability through active participation in EU missions and UN peacekeeping missions and operations. Montenegro is developing its capacity to participate in NATO missions, operations and other activities in line with its membership obligations.

2023 – Balkan Defence Monitor
Strategic Documents – Montenegro

DOWNLOAD PDF
Montenegro-WDS-Baner

Women in Defence System – Montenegro – 2022

women-icon01
National Action Plan 1325:

Montenegro is currently in the phase of implementing the second action plan 1325 on women, peace and security for the period 2019-2022.1 According to the plan, there are three strategic goals for the implementation of Resolution 1325: increasing women’s participation in decision-making and peace processes; protection of women and girls in conflict zones, and integrating the gender perspective and gender education into peacekeeping
operations. In 2017, NATO membership prompted Montenegro to adopt its first plan, which remained in effect until 2018.2 As a NATO member state, Montenegro has adjusted its normative framework in line with NATO policies and guidelines on women, peace and security, such as the NATO Directive 40-1 on integrating UNSC Resolution 1325.3 The Government of Montenegro is the most transparent in the region, and has so far published three reports on the implementation of NAP 1325.

women-icon02
Participation of women in the MoDs and the Armed Forces:

Montenegro is the country with the highest share of women among the civil servants and employees in the MoD. Two thirds of the civil servants employed in the MoD are women (65.33%). Representation of women among professional military personnel has increased by 60%, from 6.2% in 20194 to 10.35% in 2022. When it comes to the share of women among officers, non-commissioned officers (NCOs), and soldiers, their number in the ranks of officers and professional soldiers is relatively high – 16.49% of the officers and 13.78% of the soldiers.
The representation of women among non- commissioned officers (NCOs) is 5.1%. In the past three years, a share of women has been recorded in all the categories.

women-icon03
Representation of women in command and leadership positions:

Montenegro can serve as an example of good practice, as one of the three countries in the region that have appointed women to the position of defence minister. According to the available data from 2022, the share of women in leadership positions in the MoD, including military personnel, is 46.78%. There are 26 women in command positions in the Armed Forced of Montenegro.

women-icon04
Participation of women in peacekeeping operations:

Currently, 11.76% of women are engaged in peacekeeping operations outside of Montenegro. This constitutes a significat increase, as three years ago only two percent of women were engaged in NATO operations.5 However, it
should be borne in mind that the presented share of women in military missions is based only on a one-year situation overview, and that annual fluctuations can be significant. In 2020, the share of women in the position of defence advisor in the Permanent Mission of Montenegro to NATO was 67%.6

      1. Government of Montenegro, Report on the implementation of activities from the Programme of Implementation of the
        Action Plan for the Implementation of United Nations Security Council Resolution 1325 – Women, Peace and Security
        (2019-2022) for the second period, https://www.gov.me/dokumenta/7f4ecc0a-e96e-49fe-8090-7b44d45ecdd5
      2. Government of Montenegro, Report on the implementation of the Action Plan for the implementation of United Nations Security Council Resolution 1325 – Women, Peace and Security in Montenegro (2017-2018), https://www.gov.me/dokumenta/e73cb264-31d3-488a-849a-d3d00766c664
      3. United Nations in Serbia, The Position of Women in the Armed Forces in the Western Balkans, UNDP SEESAC, 23
        December 2021, p. 19, https://serbia.un.org/en/166414-position-women-armed-forces-western-balkans
      4. UNDP SEESAC, 2021, p. 24
      5. 2019 NATO Summary of the National Reports, p. 397, https://www.nato.int/nato_static_fl2014/assets/pdf/2021/9/
        pdf/NCGP_Full_Report_2019.pdf
      6. Government of Montenegro, Report on the implementation of activities from the Programme of Implementation of the
        Action Plan for the Implementation of United Nations Security Council Resolution 1325 – Women, Peace and Security
        (2019-2022) for the second period

2022 – Balkan Defence Monitor
Women In Defence System – Montenegro

DOWNLOAD PDF
Montenegro-SD-Baner

Strategic Document – Montenegro – 2022

NATIONAL SECURITY STRATEGY: 2018
NATIONAL DEFENCE STRATEGY: 2019

icon01

National interests and goals (as defined in the Strategies):
Protection of sovereignty, territorial integrity and independence of Montenegro // Internal stability, protection of life and property of citizens and economic goods // Protection of democracy and rule of law, and guarantee and protection of human rights and freedoms

icon02

Main threats:
Armed aggression // Terrorism and violent extremism // Proliferation of conventional arms and weapons of mass destruction // Cyber and hybrid threats // Organised crime

icon03

Main principles of national security policy:
Development of military capacities and capabilities necessary for the execution of dedicated missions and tasks in the country and within the collective security system // Further development of military capabilities in line with the NATO defence planning process

icon04

Regional cooperation:
The region generates a common vision of the future despite certain difficulties. Montenegro strives – through regional development cooperation and by enhancing transparency, dialogue and good neighbourly relations – to contribute to avoiding misunderstandings and improving security opportunities and stability in the region. Montenegro is committed to developing good neighbourly relations and strengthening regional co-operation, in terms of security as well as in other areas of common interest.

icon05

Regional threats:
The region is still burdened by past events and unresolved issues that could cause destabilisation in certain areas. Geostrategic shifts have made the Western Balkans once again a zone of strong interest of certain international actors whose primary goal is to prevent the further European and Euro-Atlantic path of some countries in the region. This imposes concrete actions on the region, especially those of a hybrid nature, which poses a serious security challenge and can have significant consequences for regional stability and slow down the integration processes.

icon06

Relations with NATO:
Montenegro has recognised that the best guarantee of long-term and sustainable security, sovereignty and territorial integrity of the state is access to the collective and cooperative security and defence system brought about by NATO membership. Therefore, active participation in the collective security system, NATO activities, missions and operations is a key prerequisite for protecting Montenegro from armed threats and other identified threats to national security.

icon07

Relations with the EU:
NATO membership has significantly strengthened Montenegro’s international position and facilitated the achievement of another key foreign policy goal – accession to the European Union. EU membership will further improve the security climate in the region and strengthen Montenegro’s capacity to respond to current challenges, risks, and threats.

icon08

International military cooperation:
Montenegro contributes to international stability through active participation in EU missions and UN peacekeeping missions and operations. Montenegro is developing its capacity to participate in NATO missions, operations and other activities in line with its membership obligations.

2022 – Balkan Defence Monitor
Strategic Documents – Montenegro

DOWNLOAD PDF