A new overview of the decentralisation of spatial planning shows that, over the past seven months, the number of operational local planning agencies has increased from two to four, following the launch of agencies in the Capital City and the Municipality of Kolašin. However, the lack of qualified staff continues to prevent municipalities from independently assuming spatial planning responsibilities. At the same time, models for jointly organising local capacities have not taken root, while the state Agency for Spatial Planning of Montenegro has taken over the preparation of local spatial and urban plans in three municipalities.
In February this year, Institute Alternative found that, out of a total of twenty-five municipalities, nine had established local spatial planning companies, of which only two were operational at the time – in the municipalities of Nikšić and Herceg Novi. IA’s new overview shows that the number of established companies has remained unchanged, while the agencies in the Capital City and the Municipality of Kolašin have since become operational, bringing the total number of operational agencies to four. This was confirmed by Marina Izgarević Pavićević, State Secretary at the Ministry of Spatial Planning, Urbanism and State Property, at the 11th session of the Green Parliamentary Group, held on September 17th 2026.
We recall that the Law on Spatial Planning reintroduced local planning documents, thereby formally returning part of the competences in the area of spatial planning to municipalities. State-level planning documents are prepared by a company established by the Government, namely the Agency for Spatial Planning of Montenegro, while local planning documents are prepared by companies established by local self-governments. The Law also allows two or more municipalities to establish a joint company for the preparation of local planning documents, or for municipalities, on the basis of an agreement, to engage the state Agency.
For local agencies to become operational, they must obtain an official licence authorising them to prepare planning documents, which requires them to meet specific staffing requirements. To perform these tasks, local companies must employ a responsible planner and at least four planners, with five, seven or ten years of experience in spatial or urban planning, depending on their qualifications and position. According to official data published on the website of the Ministry of Spatial Planning, Urbanism and State Property, licences have been issued to the state Agency, as well as to the local agencies in Podgorica, Nikšić, Herceg Novi and Kolašin.
It was precisely because of limited staffing capacities that several municipalities indicated to Institute Alternative, during our previous research, that they intended to cooperate with one another. However, by September, none of these models had become operational in the form originally announced. The municipalities of Herceg Novi, Kotor and Tivat had planned to rely on the capacities of the Herceg Novi Agency, while the Municipality of Žabljak had announced cooperation with the Agency from the Municipality of Nikšić. The Municipality of Berane, meanwhile, had announced plans to establish a joint company with the municipalities of Mojkovac and Andrijevica.
In the meantime, the municipalities of Tivat, Žabljak and Berane entrusted the preparation of their spatial and urban plans to the state Agency for Spatial Planning of Montenegro. Although the Law essentially returns responsibility for preparing local planning documents to the local level, it also leaves open the possibility for the state, through the state Agency, to take over this task again.
In its response to IA, the Agency for Spatial Planning of Montenegro stated that: “The Government of Montenegro has so far concluded agreements with three municipalities regarding the preparation of spatial and urban plans. We note that the possibility cannot be excluded that the Government of Montenegro may soon conclude agreements with other municipalities as well, should they express an interest in engaging the state Agency.”
The Municipality of Žabljak confirmed to Institute Alternative that it has not yet engaged any agency for planning documents of a lower level than the spatial and urban plan, and that it is unable to perform these tasks independently due to insufficient staffing capacities.
A similar situation exists in the Municipality of Berane. Although the Decision on the Establishment of the Agency and its Statute have been adopted, one additional qualified professional is still required before the Agency can become operational, while discussions with the municipalities of Mojkovac and Andrijevica on a joint model are continuing.
The Municipality of Ulcinj stated that its previously restructured Agency has ten employees assigned to design and supervision tasks. However, under the current staffing structure, it still lacks a responsible planner, namely the Head of the Planning Sector. No candidates applied for this position, and the vacancy will therefore be re-advertised. “We believe there is a realistic possibility that the required professional staff can be secured and the relevant positions filled in the coming period, in line with the established staffing structure and the Agency’s needs,” the Municipality stated in its response to IA.
The Municipality of Rožaje has opted for cooperation with the state Agency, while intending to establish its own company in the future. The Institute in the Municipality of Bar is still not operational and does not have an act on internal organisation and job classification. In the Municipality of Bijelo Polje, an acting director of the Agency has been appointed, but there is no confirmation that the company has begun operating.
The Municipality of Gusinje also lacks the capacity to establish its own agency and stated that it is currently negotiating cooperation with the Municipality of Berane. The response from the Municipality of Kotor did not indicate any changes compared with the situation recorded in the previous round of research.
In the remaining municipalities, we did not identify any significant changes regarding the establishment or commencement of work of local spatial planning companies. No progress was recorded in Zeta, Tuzi, Pljevlja, Plav, Danilovgrad, Petnjica, Plužine, Šavnik, Cetinje, Budva and Kotor. For most of these municipalities, we found no new publicly available information, nor did they respond to inquiries from Institute Alternative.
We recall that local self-governments were required to establish these companies within 60 days of the Law entering into force, i.e. by the beginning of May 2025.
Dragana Jaćimović
Executive Coordinator
The article was produced as part of the project Civic Engagement for Better Local Governance, implemented by Institute Alternative with financial support from the European Union and co-financing from the Ministry of Regional–Investment Development and Cooperation with Non-Governmental Organisations.