Section 1. Respect for the Integrity of the Person, Including Freedom from:
There were no reports that the government or its agents committed arbitrary or unlawful killings.
Oversight over police is provided by the parliament, a civil control council, and an internal control unit within the Ministry of Internal Affairs. Parliamentary oversight in the area of security and defense is conducted through the Committee for Defense and Security, which conducts hearings and audits the activities and budget of entities responsible for security and defense, including police, as well as deliberating draft laws and amendments touching on the security sector. The Council for Civilian Control of Police Operations assesses the use of police powers regarding the protection of human rights and freedoms and provides reviews and recommendations to the minister of interior for action. A Ministry of Interior unit conducts assessments of the legality of police work, particularly in terms of respecting and protecting human rights when executing police tasks and exercising police powers. The Office of the Protector of Human Rights and Freedoms (Ombudsman’s Office) also has oversight authority over police. It can investigate claims submitted either by the public or on its own initiative for suspected violations of human rights or other illegalities in the actions of police.
There were no reports of disappearances by or on behalf of government authorities.
c. Torture and Other Cruel, Inhuman, or Degrading Treatment or Punishment
While the constitution and law prohibit such practices, there were reports alleging that police tortured suspects and that beatings occurred in prisons and detention centers across the country. The government prosecuted some police officers and prison guards accused of overstepping their authority, but there were delays in the court proceedings. Nongovernmental organizations (NGOs) noted that several police officers found to be responsible for violating the rules of their service, including cases of excessive use of force, remained on duty.
On July 14, the NGO Human Rights Action (HRA) issued a public call for authorities to investigate “urgently, thoroughly, and impartially” allegations that police tortured three individuals suspected of being connected with the 2015 bomb attacks on the Grand Cafe and the house of former National Security Agency officer and current police officer Dusko Golubovic in late May and early June. All three individuals submitted separate reports to the Basic State Prosecution Office in Podgorica containing identical allegations of police torture by application of electroshock devices to their genitals and thighs, brutal beatings using boxing gloves and baseball bats, and other cruel methods, such as threatening to kill them and playing loud music to drown out their screams during the interrogation to extract their confessions.
The three individuals were Jovan Grujicic, the main suspect in the bombings; Benjamin Mugosa, who was initially accused of participation in the attacks, although the charges were subsequently dropped when it was revealed that he was in prison at the time of the bombings; and MB, an alleged witness who was said to have testified that Mugosa and Grujicic executed the attacks before the charges were dropped against Mugosa. The HRA claimed that the accusations of torture were not based solely on the descriptions provided by the three individuals but also on photographs of MB’s injuries, which were published by the media outlets Vijesti and Dan.
The European Commission and several foreign governments quickly issued statements urging the authorities to carry out, without delay, a comprehensive, transparent, and effective investigation into the torture allegations in accordance with international and European standards. Media outlets and NGOs also cited the findings from a 2017 visit by the Council of Europe’s Committee for the Prevention of Torture (CPT), which noted allegations of police mistreatment, including “punches, slaps, kicks, baton blows, and strikes with nonstandard objects, and the infliction of electrical shocks from hand-held electrical discharge devices.” Most abuses were alleged to have occurred either at the time of apprehension or during the preinvestigation phase of detention for the purpose of extracting confessions.
While the Basic State Prosecutor’s Office stated that police acted in accordance with the law, an investigation is ongoing. The HRA questioned why prosecutors ordered forensic medical examination of bodily injuries immediately upon a receipt of the reports of the two persons claiming torture but did not order a similar timely investigation upon receipt of the report from Grujicic. The HRA released a public letter to Supreme State Prosecutor Ivica Stankovic, asking him to check whether and when a forensic medical examination of Grujicic was ordered and to request that Grujicic be allowed to continue receiving psychiatric treatment and medicine that had been suspended as a result of his arrest.
The HRA did not receive any response to its requests to prosecutors for updates on the case on behalf of Grujicic’s family. In August the HRA submitted a request for the UN special rapporteur on torture, Nils Melzer, to investigate the allegations of torture and had not received a response by year’s end. The Ombudsman’s Office’s investigation into the allegations was ongoing at year’s end. In early November the Basic Court in Podgorica issued a verdict acquitting Grujicic of the charges of bombing the Grand Cafe and Golubovic’s house.
Impunity remained a problem in the security forces, particularly among the police and prison officers. Domestic NGOs cited corruption; lack of transparency; a lack of capacity by oversight bodies to conduct investigations into allegations of excessive force and misuse of authority in an objective and timely manner; and the ruling political parties’ influence over prosecutors and officials within the Police Administration and the Ministry of Interior as factors contributing to impunity. Despite the existence of multiple, independent oversight bodies over police within the Ministry of Interior, parliament, and civil society, NGOs and the Council for Civilian Control of Police Operations noted a pervasive unwillingness of police officers to admit violations of human rights or misuse of authority committed by themselves or their colleagues. To increase respect for human rights by the security forces, authorities offered numerous training sessions on this subject, often in conjunction with international partners, as well as working group meetings dedicated to the promotion and protection of human rights in the country.
According to domestic NGOs, authorities made little progress in addressing the problem of police mistreatment and other shortcomings in the Internal Control Department of the Ministry of the Interior. They cited a lack of strict competitive recruitment criteria and training for police officers; the absence of effective oversight by the Internal Control Department; and the need for prosecutors to conduct more thorough and expeditious investigations into cases of alleged mistreatment by police officers as areas where there were continuing problems. The NGOs also noted there was an ongoing need for prosecutors to carry out timely investigations.
In September the HRA condemned the decision of the High Court in Podgorica to grant suspended sentences to 10 prison officers convicted of torturing and inflicting grievous bodily harm on 11 prison inmates in 2015. The court justified the suspended sentences on the grounds of the lack of prior convictions of the offenders, family circumstances, socioeconomic status (e.g., lack of property ownership), and the fact that the victims did not join the criminal prosecution. The HRA expressed frustration that none of the guards lost their jobs with the Ministry of Justice’s Bureau for the Enforcement of Criminal Sanctions, contrary to the Labor Law and international standards, and noted that the responsibility of the officers’ supervisors, whose presence in the prison at the time of the incident was captured in video, was never seriously investigated. According to the HRA, the suspended sentences promoted impunity for human rights offenses and encouraged the continued use of torture in prisons and by police. The decision also was at odds with international standards established by the UN Committee against Torture and the CPT.
Prison and Detention Center Conditions
There were some reports regarding prison and detention center conditions that raised human rights concerns.
Physical Conditions: There were some poor conditions in prisons and pretrial detention facilities due to overcrowding and access to medical care. In the report issued following its 2017 visit to Montenegro, the CPT noted problematic levels of prison overcrowding, i.e., less than three square meters (32.3 square feet) of space per inmate in multiple-occupancy cells in certain sections and remand prisoners confined to their cells for 23 hours a day without being offered activities for months or even years on end. The CPT noted that material condition in police stations it visited were not suitable for detaining persons for up to 72 hours due to structural deficiencies such as poor access to natural light, inadequate ventilation, poor conditions of hygiene, and irregular provision of food.
NGOs reported that detainees who were addicted to drugs, had mental disabilities, or had other disabilities continued to face difficulties in obtaining adequate treatment while detained. The CPT also noted the level of serious interprisoner violence was a long-standing and persistent problem at the remand prison and the Institute for Sentenced Prisoners. In May there were reports that one prisoner was stabbed by another prisoner. Also during the year, there were reports of cases of violence in the country’s primary prison attributed to the long-standing “war” between the country’s two main organized criminal groups, which prison authorities managed by taking preventive measures, such as providing separate accommodations and preventing mutual contact of persons who are members of opposing criminal groups as well as other operational and tactical measures and actions, such as providing close personal supervision of persons and conducting random periodic searches of their persons and accommodations. There were widespread reports that prison employees cooperated with members of the organized criminal groups, including one in prison. Some such employees were prosecuted by the authorities. During the year the Directorate for the Execution of Criminal Sanctions, in cooperation with security sector agencies, conducted two investigations of two directorate officials suspected of cooperating with members of organized criminal groups. In one proceeding, the directorate official was exonerated, while in another procedure an indictment was filed against the directorate official due to a well founded suspicion that he committed the crime.
During a May 13 inspection of the security center in Niksic following the detention of Bishop Joanikije of the Serbian Orthodox Church of Montenegro and eight priests (see section 1.d.), the Council for Civilian Control of Police Operations noted poor conditions in the pretrial detention rooms. In addition to lacking water and being equipped with damaged and dirty mattresses, overcrowding was a problem, as there were only seven beds for the nine detainees. In other inspections of the security centers in Podgorica and Niksic, the council noted similar problems with overcrowding and a lack of capacity to provide basic services to detainees.
Podgorica Prison was not fully accessible to persons with disabilities.
Administration: Authorities conducted proper investigations of credible allegations of mistreatment, but they usually did so only in reaction to media campaigns or upon the ombudsman’s recommendation. Results of investigations were generally made available to the public.
Independent Monitoring: The government permitted visits to prisons by independent nongovernmental observers, including human rights groups and media, and international bodies such as the CPT. Even when monitors visited on short notice, prison authorities allowed them to speak with the prisoners without the presence of a guard. The Ministry of Justice’s Directorate for the Execution of Criminal Sanctions noted positive working relationships with NGOs, including those who were critical of the organization.
Improvements: Improvements in the physical facilities, staffing levels, and training for guards continued throughout the year. Overcrowding in Podgorica’s temporary detention prison continued to diminish and was expected to improve further upon completion of new facilities. The government also announced that the new prison facility would be constructed in Mojkovac and would be suitable for 250 prisoners. The Bureau for the Execution of Criminal Sanctions provided health services to inmates to mitigate the spread of COVID-19. As of August, media outlets reported five cases of COVID-19 among prisoners in the facility at Spuz. It also touted new programs designed to focus on rehabilitation and providing inmates with skills to increase employment prospects upon release, including apprenticeship programs to cultivate farming skills.
In June parliament passed an amnesty law aimed at relieving the problem of overcrowding in the prison system and ensuring the safety of prisoners threatened by the COVID-19 pandemic. The law provides for a 15 percent reduction in prison sentences and a 10 percent reduction of sentences for those who have not yet begun serving their sentences. The amnesty does not apply to the most serious crimes, including war crimes against civilians, terrorism, human trafficking, rape, money laundering, criminal association, the creation of a criminal organization, abuse of a minor, and domestic violence. The NGO Civic Alliance described the amnesty law as positive and legally sound but noted that the law’s objectives could have been achieved through other mechanisms, such as house arrest, deferred prosecutions, or better application of alternative sanctions.
The constitution and law prohibit arbitrary arrest and detention and provide for the right of any person to challenge the lawfulness of his or her arrest or detention in court. The government usually observed these requirements. Detainees have a right to be compensated in cases of unfounded detention and the government generally follows these requirements.
Arrests require a judicial ruling or a “reasonable suspicion by the police that the suspect committed an offense.” Police generally made arrests using warrants issued by judges and based on sufficient evidence. Police and prosecutors may detain suspects for up to 72 hours before bringing them before a judge and charging them. Although the law prohibits excessive delay in filing formal charges against suspects and in conducting investigations, delays sometimes occurred. At arraignment, judges make an initial determination about the legality of the detention, and arraignment usually occurred within the prescribed period.
Courts increasingly used bail. Judges can also release defendants without bail and limit their movements, impose reporting requirements on them, or retain their passports or other documents to prevent flight. The law permits a detainee to have an attorney present during police questioning and court proceedings, and detainees generally had prompt access to a lawyer. Although legal assistance is required to be available for persons in need, financial constraints sometimes limited the quality and availability of assistance. Authorities must immediately inform the detainee’s family, common-law partner, or responsible social institution of an arrest, and they usually did so.
During June protests, police sometimes used excessive force when detaining protesters. The opposition condemned “police brutality” and asserted the country was moving from “an autocracy to a violent dictatorship.” The Council for Civilian Control of Police Operations requested police leaders to identify and sanction officers shown in social media videos kicking individuals in custody and lying on the ground, adding that “legitimate police interventions must not be compromised by the disproportionate use of force.” The NGO MANS declared that events in Budva and other cities represented flagrant, brutal violence of police against the country’s citizens. It described videos of police officers kicking and beating persons who were restrained and helpless as appalling evidence of the government’s brutal political abuse of captive institutions. Representatives of several foreign governments and the EU called on all sides to avoid escalation and further acts of violence, engage in constructive dialogue, and investigate allegations of disproportionate use of force.
Arbitrary Arrest: Police continued to summon witnesses and suspects to police stations for “informational talks” and often used this practice to curb hooliganism during soccer matches or to reduce participation in opposition political rallies. This practice generally did not involve holding suspects longer than the six hours allowed by law, nor did it typically result in charges.
NGOs and the Ombudsman’s Office noted that authorities engaged in a broad pattern of selective arrests in enforcing the Ministry of Health’s measures to prevent the spread of COVID-19. On May 12, Archbishop Joanikije and eight other Serbian Orthodox Church priests were detained for their role in organizing a procession with several thousand worshipers in Niksic in commemoration of a religious feast day, despite the government’s ban on public gatherings. Tensions rose after the clergymen were taken to the Niksic police station to give statements, as several hundred protesters gathered in front of the station and insulted police late into the night, finally dispersing after police threated to use tear gas.
The National Coordination Body for Communicable Diseases (NCB) demanded that the Supreme State Prosecutor take immediate and decisive action against the organizers of the procession in Niksic, warning that the illegal gathering could jeopardize all the previous achievements of the fight against COVID-19. In his public address, Acting Supreme State Prosecutor Ivica Stankovic stressed that all those responsible would be held to account, adding that violations of the infectious disease-related regulations could reach as high as 12 years in prison. Despite these statements, no demonstration-related arrests lasted more than two weeks.
The Episcopal Council of the Serbian Orthodox Church requested that authorities release the detained priests, accusing the authorities and police of “politically and ideologically persecuting the Church.” The Episcopal Council also warned and called on all political leaders to restrain from any party or political abuses of the Church. At the same time, pro-Serbian opposition parties joined the Serbian Orthodox Church in separate press releases to condemn the arrests and to urge the authorities to release the detained clergymen immediately. Several civil society political analysts also questioned authorities’ decision to detain the clergymen, noting that detentions should be the last measure taken.
At approximately midnight on May 15, upon the expiration of the maximum 72-hour detention period permitted under the law, the Basic Prosecutor’s Office in Niksic released Archbishop Joanikije and the eight other priests. The head of the Basic Prosecutor’s Office, Stevo Sekaric, stated in a press conference that an indictment proposal had been filed against the priests for violating the government’s COVID-19 preventative measures, for which a fine or up to one-year imprisonment were reportedly prescribed.
The following week, police took no action to detain or arrest anyone participating in large, public Independence Day celebrations on May 21, despite an abundance of video and photographic evidence that people were not respecting the NCB’s ban on public gatherings. Political parties formerly in the opposition accused police and prosecutors of engaging in selective justice and of being extensions of the former ruling Democratic Party of Socialists (DPS). The Council for Civilian Control of Police Operations asked the director of the Police Administration, Veselin Veljovic, to provide it with detailed information about arrests and prosecutions for violations of the ban on public gatherings.
According to the Serbian Orthodox Church, more than 100 other clergymen across the country were called in for questioning, arrested, or fined for violating the COVID-19 preventative health measures. Among these clergymen was Metropolitan Amfilohije of Montenegro and the Littoral, who was called in for questioning on multiple occasions between April and June. During the June questioning, the 82-year-old metropolitan was held in custody for six hours even though the prosecutor had authorized his release after two hours.
The HRA and the NGO Institute Alternativa highlighted the disparity of responses and called on the government to either harmonize its actions and treat participants of different public assemblies equally or end the ban on public assemblies outright. NGOs highlighted, as examples of selective application of the law, the differing reaction of police to motorcade demonstrations by citizens driving from Tivat to Budva on May 13 in support of the Serbian Orthodox Church and to motorists participating in Independence Day celebrations organized by the government on May 21. In both cases, groups of citizens drove around, honking their horns and randomly flashing their lights to draw attention to their vehicles. According to the NGOs, police called in 25 persons who participated in the May 13 motorcade for interviews and fined 14 for violating traffic safety laws, while police did not question or fine any of the participants in the May 21 motorcades.
Pretrial Detention: Courts frequently ordered the detention of criminal defendants pending trial. The law sets the initial length of pretrial detention at 30 days but permits prosecutors to increase it by five months. When combined with extensions granted by trial judges, authorities could potentially detain a defendant legally for up to three years from arrest through completion of the trial or sentencing. The average detention lasted between 90 and 120 days. The length of pretrial detention was usually shorter than the maximum sentence for the alleged crime. Authorities stated that pretrial detainees on average accounted for 30 percent of the prison population. Police often relied on prolonged pretrial detention as an aid to investigate crimes. The backlog of criminal cases in the courts also contributed to prolonged detention. The courts continued to reduce this backlog gradually.
The constitution and law provide for an independent judiciary. While the government expressed support for judicial independence and impartiality, some NGOs, international organizations, and legal experts asserted that political pressure, corruption, and nepotism influenced prosecutors and judges. The process of appointing judges and prosecutors remained somewhat politicized, although the constitution and law provide for a prosecutorial council to select prosecutors and a judicial council to select judges.
In February the Council of Europe’s Group of States against Corruption (GRECO) described as “alarming” the lack of progress on the composition and independence of the Judicial Council, the body charged with upholding the independence and autonomy of courts. GRECO was particularly concerned by the ex officio participation of the minister of justice on the Judicial Council and the council’s decision to reappoint five court presidents for at least a third term, which was not in line with its previous recommendations. While some progress was made in providing the public with information concerning disciplinary proceedings against prosecutors, the anticorruption monitoring body criticized the lack of similar progress in reviewing the disciplinary framework for judges.
Inadequate funding and a lack of organization continued to hamper the effectiveness of the courts. The law provides for plea bargaining, which is available for all crimes except war crimes and those related to terrorism.
The constitution and law provide for the right to a fair and public trial and the judiciary generally enforced that right, although many trials were delayed due to the COVID-19 pandemic. By law, defendants are presumed innocent. Authorities are required to inform detainees of the grounds for their detention. Defendants have the right to a fair and public trial without undue delay and to be present at their trial. Courts may close certain sessions during the testimony of government-protected or other sensitive witnesses. Authorities also close juvenile trials. Defendants have the right to consult an attorney in a timely manner in pretrial and trial proceedings. The law requires authorities to provide an attorney at public expense when a defendant is a person with disabilities or is already in detention, destitute, facing a charge carrying a possible sentence of more than 10 years, being tried in absentia, engaged in a plea-bargaining process, or being questioned solely by police or Customs Authority officials during the preliminary investigative phase, upon the approval of a prosecutor. Defendants have the right to adequate time and facilities to prepare a defense; to free interpretation from the moment charged through all appeals; and to confront prosecution witnesses, present their own witnesses and evidence, and remain silent. Both the defense and the prosecution have the right of appeal.
While the judiciary was unable to hold all criminal trials publicly due to a shortage of proper facilities. The shortage also affected the timeliness of trials. Systemic weaknesses, such as political influence and prolonged procedures, inconsistent court practices, and relatively lenient sentencing policy, diminished public confidence in the efficiency and impartiality of the judiciary. Lenient sentencing policies also discouraged the use of plea agreements, as they left little maneuvering room for prosecutors to negotiate better terms, thereby contributing to inefficiency in the administration of justice.
Courts may try defendants in absentia but by law must repeat the trial if the convicted individuals are later apprehended.
There were no reports of political prisoners or detainees.
There were credible allegations that the country attempted to misuse international law enforcement tools for politically motivated purposes as reprisal against specific individuals located outside the country.
In August, Interpol’s Commission for Control of International Arrest Warrants adopted the appeal filed by fugitive businessman Dusko Knezevic and revoked the arrest warrant issued for him in January 2019. The country’s special prosecutor indicted Knezevic for several crimes, including organizing a criminal group, money laundering, and tax evasion. Knezevic, who fled to London, accused President Milo Djukanovic of corruption, claiming the arrest warrant was issued upon pressure from a cadre close to the president and his family who were trying to take over Knezevic’s business and properties. Knezevic had claimed that Interpol’s arrest warrants against him were not in line with the organization’s legal regulations. His legal representative, Zdravko Djukic, told media that revoking the arrest warrant against Knezevic proved that the indictments against him were politically motivated.
Toby Cadman, a London-based lawyer specializing in criminal law, human rights law, and extradition, told local A1 Television that Interpol also revoked its international red notice against British-Israeli political consultant Aron Shaviv, whom he represented. Prosecutors accused Shaviv of assisting an alleged 2016 coup attempt in the country. After hearing arguments from both the defense and the prosecution, Interpol concluded, per Cadman, that the Montenegro-initiated red notice for Shaviv constituted “abuse of process” and was “politically motivated.”
The constitution and law provide for an independent judiciary in civil matters, and citizens had access to courts to bring lawsuits seeking damages for violations of constitutionally recognized human rights. Although parties brought suits alleging human rights violations and at times prevailed, perceptions that the system was subject to nepotism, corruption, and political influence led to widespread public distrust. According to NGOs, courts in most cases either rejected civil cases involving claims of human rights violations or proceeded on them slowly. When domestic courts issued decisions pertaining to human rights, the government generally complied with them.
Upon exhausting all other available effective legal remedies, citizens may appeal alleged violations of human rights to the Constitutional Court. Many cases filed with the court involved such complaints. The Constitutional Court has the authority to review all alleged constitutional and human rights violations. If it finds a violation, it vacates the lower court’s decision and refers the case to an appropriate court or other authority to rectify the deficiency.
There were also administrative remedies for violations of constitutionally protected human rights. In cases of police abuse, citizens can address complaints to the Council for Civilian Control of Police Operations, which may then make recommendations for action to the chief of police or the interior minister. The Ombudsman’s Office noted that even before operational delays caused by the COVID-19 pandemic, the long duration of trials, especially those that were deemed a high priority, eroded citizens’ trust in the court system. This was particularly pronounced in disputes dealing with the establishment or termination of employment or the right to earnings and other wages. The office was also empowered to act in certain individual cases.
Once national remedies are exhausted, individuals, regardless of citizenship, may appeal cases alleging government violations of the European Convention on Human Rights to the European Court of Human Rights. The government has traditionally complied with all decisions of the European Court of Human Rights.
The government has laws and mechanisms in place, but NGOs and advocacy groups reported that the government did not make significant progress on resolution of Holocaust-era claims, including for foreign citizens. The pre-World War II Jewish population was estimated to have been only about 30 individuals with no identified synagogue or communal property. There was one possible case of a claim for restitution regarding Holocaust-era properties. A family that has the longest-running property restitution case in the country reported its Jewish heritage in 2019, thus potentially bringing the case under the purview of the Terezin Declaration. Neither the local Jewish community nor the government has thus far confirmed the information, nor has the government taken any further action on the family’s restitution claim.
The country’s restitution law was most recently amended in 2007, and the country has not passed any laws dealing with restitution following the endorsement of the Terezin Declaration in 2009, nor did it make any special provisions for heirless property from the Holocaust era. The passage of a law on the restitution of religious or communal properties would have minimal impact on the Jewish community, given its small size and the absence of identified prewar Jewish communal property. Any such legislation would mainly apply to properties confiscated from the Serbian Orthodox and Roman Catholic Churches during the communist era. For additional information regarding Holocaust-era property restitution and related issues, please see the Department of State’s Justice for Uncompensated Survivors Today (JUST) Act report to Congress, released publicly on July 29, 2020, at .
A large number of restitution claims for private and religious properties confiscated during the communist era remained unresolved. Private individuals, NGOs, and the Serbian Orthodox Church criticized the government for delays in addressing this problem. These unresolved claims and concerns that the situation could happen again were some of the justifications used by the Serbian Orthodox Church and some political parties formerly in the opposition for protesting the passage of the Law on Freedom of Religion or Beliefs and Legal Status of Religious Communities by the government in December 2019. That law stipulates that religious property lacking clear ownership and that falls under the pre-1918 “cultural heritage” of the state may become state property, though the government repeatedly asserted that the purpose of the property provisions was not to confiscate property held by the Serbian Orthodox Church.
The constitution and law prohibit such actions without court approval or legal necessity and prohibit police from searching a residence or conducting undercover or monitoring operations without a warrant. The law requires the National Security Agency and police to obtain court authorization for wiretaps. Similarly, a 2018 Constitutional Court decision proclaimed that some provisions in the Criminal Procedure Code regarding secret surveillance measures were unconstitutional. Prosecutors can no longer independently decide on application of those measures; instead, all requests must now be approved by a court. That decision was the result of a case in which a state prosecutor, with prior information from and the consent of one of the participants, ordered the recording of a telephone conversation without first obtaining judicial authorization.
There were no official reports the government failed to respect these requirements for conducting physical and property searches. Human rights activists, such as the NGOs MANS and Institute Alternativa, continued to claim, however, that authorities engaged in illegal wiretapping and surveillance.
External judicial and parliamentary oversight bodies, including the opposition-controlled inspector general, did not report any violations of the law. However, in early February the IN4S news portal published a leaked recording of an alleged telephone call between assistant director of police Administration and the chief of sector for the fight against organized crime and corruption, Zoran Lazovic, and senior police officer Dusko Golubovic in which one of the speakers said Serbian Orthodox Church believers rallying over Christmas would “get their asses kicked if they make trouble during the church gathering.” According to local media, the Basic State Prosecutor’s Office in Podgorica opened an investigation into the case the Electronic Communications and Postal Services Agency was collecting information about the leaked recording. In addition, in an effort to discourage those under mandatory self-isolation from leaving their homes, the National Coordination Body for Communicable Diseases (NCB) on March 21 published the names and address of individuals who were required by authorities to stay home since March 18. Shortly afterward, the NGO Civic Alliance filed a complaint with the Constitutional Court. Civic Alliance claimed that the government’s decision to publicize the names, surnames, and addresses of the persons put in isolation was illegal and infringed upon citizens’ right to privacy. The government said it had received the consent of the Agency for Data Protection to publish the list, as COVID-19 endangered the survival and the functioning of the state. A number of prominent legal professionals supported the government’s position, including law professor and former judge of the European Court of Human Rights Nebojsa Vucinic who countered that the right to privacy may be restricted when required by the general public interest. On April 3, a list with the names and identification numbers of persons who had tested positive for COVID-19 was published after being leaked by an official at the Podgorica Health Center. On April 8, the Prosecutor’s Office announced it had arrested the person responsible for the unauthorized collection and use of personal information, an offense punishable by up to three years in prison. According to the Prosecutor’s Office, the suspect sent the list of names to colleagues who were not authorized to have access via Viber.
NGOs focusing on women’s and lesbian, gay, bisexual, transgender, and intersex (LGBTI) issues were particularly concerned with the government’s publication of this medical information due to fears that it would identify members of vulnerable populations and expose them to potential discrimination or other adverse treatment. According to the NGO SOS Hotline Niksic, the NCB measures could result in the publication of the names and addresses of women and children residing in safe houses and shelter, violating the anonymity they needed to protect them from reprisals or other harmful actions from abusers. Similarly, the NGO LGBT Forum Progress reported the NCB required they provide the names and addresses of LGBTI persons who received food assistance in order to self-quarantine due to COVID-19 concerns to the Municipality of Podgorica and the Red Cross before the NCB would consent to continue providing food services. While the NCB stated the purpose of this requirement was to collect additional contact tracing data, the NGO expressed concerns about privacy and how the government might store and use the information in the future.
In July the Constitutional Court overturned the NCB’s decision to publish the names of individuals in self-isolation to curb the spread of the virus. It found the decision unconstitutional as it violated citizens’ right to privacy and for their personal data to be protected. The court expressed concern that the publication of personal data on persons in self-isolation created a precondition for their stigmatization by the broader community and that their data could be used by an unlimited number of citizens. Of even greater concern to the court, the publication of personal data could also deter those who needed medical help from seeking such help, which would have the contrary effect of endangering their health and increasing the risk the coronavirus could spread to other persons.