LocationsDeeper reforms, stronger institutional accountability, and change in attitudes needed for a society of zero tolerance for violence against women
December 5, 2025
Podgorica, 5 December 2025 – Despite legislative progress, gender-based violence remains widespread, highlighting the depth of gender stereotypes and systemic barriers to accessing justice.
Since 2017, 22 women in Montenegro have been killed by partners or family members, even though most had reported violence. Three out of four women who experience sexual violence never seek help, while over 60% fear reporting violence due to stigma and retaliation. At the same time, one in three citizens believes that women sometimes fabricate claims of psychological abuse, while only 4% recognize coercion into sexual relations as a form of abuse.
These findings were presented at today’s event, organized by the United Nations Development Programme (UNDP) in Montenegro in collaboration with the Government of Montenegro, the Council of Europe, the Supreme State Prosecutor’s Office, and the Women’s Leadership Network, to strengthen cross-sectoral dialogue, partnerships for promoting gender equality, and judicial sector reform.
UNDP Resident Representative in Montenegro, Ekaterina Paniklova, stressed that gender-based violence persists because it is supported by harmful stereotypes, normalized behavior patterns, and institutional weaknesses.
"Reform processes cannot be viewed separately from changes in organizational culture – within institutions meant to protect citizens, there must be zero tolerance for violence, discrimination, and abuse of power. UNDP strongly supports these changes by strengthening the integrity, accountability, and capacity of the justice system, as well as by improving our own standards, policies, and practices," Paniklova said.
UNDP Resident Representative in Montenegro, Ekaterina Paniklova
Moderated by UNDP Gender Equality Team Leader Kaća Đuričković, the dialogue emphasized that Montenegro can achieve a society of zero tolerance for gender-based violence only through changing deeply rooted attitudes, stronger institutional accountability, and consistent implementation of the Istanbul Convention.
"One woman’s murder is a defeat of the state, another murder is state negligence," said President of the Supreme Court of Montenegro Valentina Pavličić, adding that courts must be the line where violence ends – decisively, swiftly, and without exception. "This is our obligation to justice and to every life we can protect," Pavličić emphasized.
President of the Supreme Court of Montenegro, Valentina Pavličić
Supreme State Prosecutor Milorad Marković noted that a new model for prosecutors’ procedures has been introduced in state prosecution offices, contributing to better evidence collection, improved victim protection, and faster decision-making.
"All system institutions must work on improving their operations, and for the State Prosecutor’s Office, the priority in the coming year will be further enhancement of established standards and creating better conditions for victim support and protection, while continuing to raise awareness of gender equality within the institution," Marković stressed.
Supreme State Prosecutor, Milorad Marković
Minister of Justice Bojan Božović reminded that Montenegro is working intensively to align its legislation with modern European standards:
"We have introduced stricter sanctions and defined new criminal offenses, which will soon become an integral part of Montenegro’s criminal justice system. Our obligation is for the legal framework to respond to society’s real challenges, including those most directly affecting the safety of women and girls," Božović said, emphasizing that these reforms are particularly important as Montenegro faces a rise in gender-based violence, including femicide cases.
Minister of Justice, Bojan Božović
Data from a UNDP study on the gender dimension in the judiciary, supported by the Council of Europe, indicate that although women constitute the majority in the judiciary, they still face obstacles in career advancement and leadership. At the same time, institutional gender equality mechanisms remain weak, requiring a shift from declarative to genuinely systemically supported measures.
Minister of Human and Minority Rights Fatmir Gjeka stated that gender-based violence is a test of trust in the state, and the system does not function well if women do not trust institutions and do not report violence. "Our goal is for gender equality not to be just a legal principle but a reality. No woman should remain invisible or unprotected. The most vulnerable women are not placed last but at the center of our policies and measures," Gjeka said.
Minister of Human and Minority Rights, Fatmir Gjeka
"Every woman in society and at the workplace must feel dignified, respected, and above all, safe," said Minister of Labor, Employment, and Social Dialogue Naida Nišić. Nišić highlighted that by improving labor legislation, the Ministry creates a safe and dignified work environment, contributes to balancing private and professional life, and empowers women for equal participation in the labor market.
Minister of Labor, Employment, and Social Dialogue, Naida Nišić
Minister of Social Welfare, Family Care, and Demography Damir Gutić emphasized that intensive work is underway on a new Protocol for Responding to Cases of Violence Against Women, whose consistent implementation will be mandatory for all relevant institutions, to prevent victims from being “shuttled” between agencies and ensure a rapid and reliable system response.
"The new Law on Social and Child Protection will clearly recognize victims of gender-based violence, provide them with economic support, and identify new services. This process must be a priority for institutions to ensure full implementation without delay," Gutić said, adding that particular focus will be on strengthening cross-sectoral cooperation.
Minister of Social Welfare, Family Care, and Demography, Damir Gutić
Although institutional responses to violence are still not strong enough, over 65% of public administration employees consider gender-based violence to be very or somewhat present in Montenegro, while more than 97% of prosecutors hold this view, according to the latest UNDP research on public administration employees’ perceptions of gender-based violence.
Employees’ testimonies indicate that various forms of violence are also present in public institutions – psychological (30%), political (28%), and sexual harassment (5%), further highlighting the need for more effective institutional protection mechanisms.
Speakers at the event also included the Italian Ambassador Andreina Marsela, State Secretary of the Ministry of Interior Dragana Kažanegra Stanišić, President of the Capital City Assembly Jelena Borovinić Bojović, as well as civil society representatives, activists, and experts: Aida Petrović, Branka Žigante-Mašić, Duška Pejović, Sabina Muratović, and Marija Pešić.
Participants emphasized that progress in combating violence can only be achieved through joint action – by the judiciary, police, social services, civil society, media, international partners, and local institutions. Building a society where every woman lives safely and with dignity is a shared responsibility for all.
