Sound and robust frameworks are essential for the tourism sector to drive positive economic development, enhance competitiveness, and strengthen resilience within economies, particularly those heavily reliant on tourism. This chapter assesses the comprehensiveness of the legislative structure and practices governing tourism across three sub-dimensions. The first sub-dimension, governance and enabling conditions, assesses the effectiveness of efforts aimed at strengthening strategic co-ordination and co-operation in tourism across governance, vertical co-operation, public-private dialogue, and data collection. The second sub-dimension centred on accessibility, tourism offer and human resources, examines progress and challenges in addressing the sector’s connectivity framework and infrastructure, accommodation capacity and quality, and availability of qualified workforce. The third sub-dimension, sustainable and competitive tourism, explores the impact of tourism branding and marketing strategies, natural and cultural heritage valorisation frameworks, and operations promoting sustainable development.
Western Balkans Competitiveness Outlook 2024: Montenegro
16. Tourism policy
Abstract
Key findings
In the tourism policy dimension, Montenegro ranks first, followed by Serbia and Albania. Montenegro has made significant progress, achieving an overall score of 4.2 in the CO 2024 assessment, which is a considerable improvement compared to the 2021 assessment and also compared to the average score of 2.5 in the rest of WB6 (Table 16.1). These positive developments included tourism governance, vertical co-operation, public-private partnerships, improved data collection, and advancements in tourism marketing. However, room for improvement remains in connectivity, accommodation standards, workforce availability, sustainable tourism promotion, and heritage enhancement.
Table 16.1. Montenegro’s scores for tourism policy
The key findings are:
Montenegro continues to lead on tourism development in the region. Tourism is a significant pillar of its economy, accounting for approximately 24.5% of the economy’s GDP and accounting for around 22% of total employment in 2022 – the highest in the Western Balkans.
Montenegro is actively strengthening its strategic policy framework, exemplified by the adoption of a new tourism development strategy for 2022-25 with a sharp focus on promoting tourism through sustainability, innovation, and inclusivity. Although significant progress has been made in implementation, the availability of resources may pose challenges to achieving the plan’s objectives satisfactorily.
Montenegro is paving the way toward sustainable tourism growth and innovation within the region. It has namely adopted the Strategy of Smart Specialisation, which focuses on research and innovation, especially "sustainable and health tourism".
The National Council for Tourism, established and chaired by the prime minister, represents a step forward in inclusive decision making aimed at addressing key challenges and promoting sustainable development in tourism. This initiative entails navigating complex issues and harmonising the diverse interests of stakeholders to advance on green, smart, responsible, and inclusive practices.
Montenegro’s tourism sector is shaped by a public-private partnership model, as demonstrated by the Incentive Programme. This programme provides for the co-financing of tourism projects with private institutions, with the main aim of diversifying and improving the quality of tourism products.
While Montenegro has made significant progress in data collection, challenges remain due to funding and stakeholder engagement. The discontinuation of the Tourism Satellite Account (TSA) project data may have a long-term impact on data collection and decision-making processes.
While there have been some positive steps, there is still scope for enhancing the infrastructure to support a qualified workforce in Montenegro's tourism sector, with ongoing challenges related to skill sets, training, labour shortages during peak seasons, and language barriers. However, preparations are under way for an updated tourism human resources development strategy.
State of play and key developments
Montenegro’s tourism sector plays a vital role in its economy, contributing 24.5% to GDP in 2022, both directly and indirectly. Forecasts for 2023 suggest further growth, with a projected contribution of 26% to GDP, amounting to EUR 1.3 billion. International visitors significantly bolstered the economy, with a total spending of EUR 0.96 billion in 2022, reinforcing the sector's economic vitality. Tourism is a major driver of employment, accounting for 22.7% of total jobs in 2022, including jobs indirectly supported by the industry. Projections for 2023 indicate a further increase to 25.6%, highlighting the sector's role in providing livelihoods (World Travel and Tourism Council Research Hub, 2023[1]).
In 2022, Montenegro’s tourism sector saw significant growth, with 2 183 975 arrivals and 12 428 787 overnight stays (collective1 and individual accommodation), predominantly by foreign tourists. The largest share of overnight stays by foreign tourists came from Serbia (25.5%), followed by Russia (16.4%) and Bosnia and Herzegovina (9.9%). The average number of overnight stays per tourist is 3.7, compared to the next closest economy in the region, Serbia, where the figure is 3.16 overnight stays per tourist (MONSTAT, 2023[2]).
Figure 16.1 also illustrates a pronounced seasonal pattern of arrivals, with a clear focus on the summer months. This concentrated influx of visitors during the summer raises several issues for Montenegro’s tourism industry, including concerns related to overcrowding, environmental impact, economic dependence, strain on infrastructure, seasonal employment, and missed opportunities to attract visitors at other times of the year.
Figure 16.1. Arrivals and overnight stays in accommodation establishments by international and domestic tourists (2019-22) and seasonal distribution of arrivals (2022) in Montenegro
Stays and arrivals are expressed in millions (left); seasonal arrivals are expressed in thousands (right)
Source: MONSTAT (2023[2]).
Sub-dimension 15.1: Governance and enabling conditions
Tourism governance in Montenegro is anchored in its 2022-25 Tourism Development Strategy, which was adopted in 2022 under the guidance of an interdepartmental working group, including international partners and the tourism industry. The strategy underscores the importance of sustainable tourism and delineates a roadmap comprising six key objectives. A total budget of EUR 32 million was foreseen for its implementation from 2022 to 2025 in Montenegro. This strategy is also supported by other tourism‑related strategies or programmes (Table 16.2).
In 2022, 83% of the activities outlined in the Action Plan for Tourism Development were either fully completed or partially accomplished, involving 16 measures and 76 activities with a defined budget of EUR 27 million. Additionally, an extra EUR 5 million was earmarked for the implementation of the framework plan for the period 2023-25. Despite progress, challenges in resource allocation, stakeholder engagement and bureaucratic hurdles may impede the implementation of remaining activities. Amendments to the budget law significantly reduced funds available for the Action Plan's implementation by 47.75%, while the National Tourism Organisation also faces a 70% budget decrease, highlighting the need for co-ordinated efforts to address tourism development challenges in Montenegro.
Table 16.2. Montenegro’s tourism-related strategies
Source: Data collected from Montenegro Government for the Competitiveness Outlook assessment.
Montenegro has taken the lead in the region in adopting the Smart Specialisation Strategy, which focuses on research and innovation to drive economic and social development, with a particular emphasis on sustainable tourism and green practices. Despite challenges posed by climate change, the country is taking important steps toward innovative approaches in environmental management and marketing, requiring collaboration among stakeholders to effectively mobilise resources and enact meaningful change.
Vertical co-operation and information sharing in Montenegro have made significant strides, with mechanisms like the National Council for Tourism and co-ordinating bodies enhancing co-ordination among stakeholders. The government's approval of the National Council for Tourism in December 2022, chaired by the prime minister and comprising representatives from key ministries, institutions, and the Union of Municipalities, aims to address key challenges and promote sustainable development in tourism, emphasising green, smart, responsible, and inclusive tourism. To further enhance tourism development, local tourism organisations established by municipalities focus on strategic development aligned with the vision of eight tourism clusters outlined in Montenegro's tourism development strategy, emphasising the importance of aligning local strategies with the national vision for effective cohesion. Positively, the establishment of destination management organisations planned for the near future is likely to improve co-operation among all tourism organisations in Montenegro and contribute to the implementation of strategic objectives amid bureaucratic challenges (Partale and Partale, 2019[3]).
Public-private dialogue in Montenegro’s tourism sector reflects a proactive collaboration between government entities and private businesses, with the establishment of co-operation mechanisms showcasing positive steps, although sustaining inclusivity and balance between public and private interests can pose challenges. While an inclusive approach to strategy development is evident through the presentation of the national tourism strategy to the private sector and public debates during its preparation, effectively translating dialogue into action may encounter hurdles. The existing public-private partnership model, such as the Incentives Programme (Box 16.1) which co-finances tourism projects with private entities to enhance product quality and diversify offerings, underscores support for private initiatives, yet ensuring sustainability and expansion may necessitate careful financial planning, particularly in less-visited regions.
Box 16.1. Public-private partnerships - Incentives Programme
The Incentives Programme, which is implemented by the Ministry of Sustainable Development and Tourism in collaboration with the National Tourism Organisation, is a public-private partnership. This co-operation involves the co-financing of tourism projects carried out by private organisations and entrepreneurs. The programme aims to support projects, especially in the northern part of Montenegro, aimed at diversifying products, promoting activities and improving product quality. In this way, the project actively contributes to achieving the strategic goal of combining all products into a high-quality, year-round tourism offer.
Sources: Information provided by national authorities for the Competitiveness Outlook assessment; Government of Montenegro (2023[4]).
In the realm of data collection, Montenegro has taken significant steps to establish a comprehensive and standardised mechanism for collecting tourism-related data. The involvement of multiple institutions, including the Ministry of Sustainable Development and Tourism (MSDT), the National Tourism Organisation, local tourism organisations, and the Central Bank reflects a co-ordinated effort to gather relevant information. The commitment to effective use of technological tools and harmonisation of data collection methods with international standards, such as Eurostat, is crucial for improving data accuracy and efficiency, despite ongoing challenges in maintaining accuracy and consistency. Such challenges arise particularly when integrating data from various sources, and are attributed to barriers like lack of staff, insufficient funding, limited information sharing by the private sector, and lack of commitment from stakeholders.
The discontinuation of the Tourism Satellite Account (TSA)2 (OECD, EU, United Nations, World Tourism, 2010[5]) project challenges maintaining sufficient data-related information and decision-making capabilities due to financial constraints. However, plans are under way for a new tourism expenditure survey in 2023, requiring long-term financial commitments and resources. Additionally, the permanent online portal for tourism statistics presents a positive development for data accessibility, with further improvements in usability and functionality crucial for effective stakeholder engagement. Ultimately there will need to be established a robust monitoring and evaluation mechanism to ensure consistency and reliability of tourism data over time, in line with provisions of the Law on Statistics.
Sub-dimension 15.2: Accessibility, tourism offer and human resources
Concerning a connectivity framework, the economy has proactively sought to enhance tourism by temporarily exempting visa requirements for select source markets.3 However, these efforts have been hindered by the absence of a regional travel strategy, resulting in challenges in streamlining travel processes across the region and the need for durable, consistent strategies in travel planning, rather than seasonal adjustments limited to the summer period. Further evidence points to significant staff shortages in the summer and delays by the government in issuing work visas to foreigners.
Montenegro has made important efforts to promote sustainable and eco-friendly transportation options, such as electric vehicles and cycling infrastructure. Nevertheless, the adoption of these initiatives among tourists and locals may require further incentives and infrastructure development. Box 16.2 showcases steps taken by Albania to overcome similar obstacles.
Box 16.2. Joint efforts to improve accessibility and standards: Establishment of the inter‑institutional task force
The Albanian Government has established the Inter-institutional Task Force for the 2023 summer tourism season by Decision of Council of Ministers (DCM) No. 20 of 1 March 2023. This task force, which is made up of various institutions, was tasked with implementing the measures envisaged in the Action Plan, including the creation of entry and exit facilities at the national border crossings for tourist groups. The aim of the initiative was to improve the economy's infrastructure and facilitate the smooth entry and exit of tourists in order to create the conditions for a successful summer season.
In the 2023 summer season, Albania recorded a remarkable increase in foreign visitors: in September alone, more than 1.1 million tourists came to Albania - an increase of 30% compared to the previous year. In the entire nine-month period from January to September, over 8.3 million foreign arrivals were recorded, 1.9 million more than in the same period last year. This unprecedented success prompted an inter-institutional meeting where stakeholders discussed the economic contribution of the season and strategies for the sustainable development of year-round tourism. It was pointed out that Albania must continue to make efforts to position itself as a regional tourism centre, e.g. in the areas of infrastructure, safety and cleanliness, and the stakeholders were called upon to focus on tackling these issues together in order to maintain high standards and benefit from recent successes.
Sources: Information provided by national authorities for the Competitiveness Outlook assessment; Government of Albania (2023[6]).
In the area of accommodation capacity and quality, Montenegro has established a strong framework for ensuring high-quality accommodations, with a detailed rulebook outlining technical conditions and categorisation criteria to meet international standards. Additionally, the government has implemented tourism incentive programmes and is finalising plans to improve energy efficiency in the hotel industry. The unregulated nature of the accommodation-sharing economy in Montenegro poses a major challenge as it affects government revenues and creates an uneven playing field for tourism businesses. The lack of regulation contributes to the rise of informal practices, which can lead to safety concerns and inconsistent guest experiences. Implementing energy efficiency requirements across all accommodations may also pose challenges, and enforcement efforts may require additional resources. The government's active support for energy efficiency and continuous monitoring and evaluation of quality standards through the Tourist Inspection Authority are commendable. However, limited budgets and human resources in this area can hinder the effectiveness of inspections. Montenegro's categorisation process and framework are well established, but it will be crucial to address uncertainties and potential issues arising from unregulated accommodations in the sharing economy.
In terms of the availability of a qualified workforce, Montenegro's integration of human resources in the tourism sector is closely linked to the national Tourism Strategy, with the Qualification Council playing a key role in maintaining and updating the Qualification Framework. Montenegro's previous tourism human resources development strategy, spanning from 2007 to 2016, is being succeeded by the preparation of terms of reference for a new strategy in this area. Educational institutions collaboratively oversee quality assurance and accreditation, yet challenges persist in addressing skills gaps, language barriers and labour shortages, particularly evident during the summer when the influx of tourists surpasses the economy's total population. The reliance on basic training solutions appears insufficient to meet peak tourist demands, compounded by visa restrictions and administrative hurdles complicating the recruitment of foreign staff. This underscores the need for further development and attention in vocational education and training and higher education to ensure the effectiveness of human resource development strategies in the tourism sector.
Sub-dimension 15.3: Sustainable and competitive tourism
Montenegro's tourism branding and marketing demonstrates a solid foundation with the “Wild Beauty” brand and a well-defined strategy outlined in the National Brand Development Strategy. While efforts to develop communication strategies for online promotion in key markets are commendable, they also highlight the need for swift adoption and implementation of digital tools. Challenges include inadequate digital infrastructure in destinations, the potentially high costs of digital transformation, unequal technology access, and co-ordination issues between local and national levels, though positive co‑ordination of marketing activities involving both governmental entities and the private sector is observed. Collaboration with other Balkan economies, especially targeting international markets, presents a promising opportunity for expanding Montenegro's tourism reach. The Central Bank of Montenegro (CBCG) publishes quarterly data on revenue and expenditure in the travel and tourism sector (Statistics - International Economic Relations - Balance of Payments) and the National Tourism Organisation conducted a guest survey in 2017 and is planning a new survey for 2023. Key performance indicators such as visitor satisfaction, spending per visitor, brand awareness and marketing effectiveness can provide valuable insights, but are not consistently monitored in Montenegro to improve marketing performance and decision making.
The natural and cultural heritage valorisation framework in Montenegro is covering both cultural and natural heritage aspects. Including specific programmes and national frameworks for the conservation of cultural heritage is a positive step forward, and engaging various stakeholders – including private tourism stakeholders, local communities, academia and NGOs – is a positive approach that ensures broad participation in heritage preservation efforts. The focus on sustainability in the Strategy of Tourism Development aligns with global conservation goals. The government has adopted strategies and frameworks for both cultural and natural heritage, such as the National Programme for Cultural Development 2023-27 and the National Strategy for Sustainable Development until 2030, or the National Strategy for Integrated Coastal Zone Management. Challenges may arise from disparities in funding and staffing levels for managing heritage sites, potentially leading to inadequate resources for comprehensive conservation and preservation needs. Montenegro has actively pursued measures concerning heritage site management and sustainability, particularly through the implementation of monitoring and evaluation mechanisms, which include initiatives aimed at assessing the impact on the natural environment and efficiently managing visitors.
Montenegro’s commitment to the promotion of sustainable development and operations is embedded in a comprehensive policy framework in line with Montenegro's recognition as an ecological economy and the National Strategy for Sustainable Development until 2030. The integration of sustainability principles into official tourism documents is in line with global goals and utilises economic instruments, partnerships, incentives and capacity building to promote sustainable practices. Diversification of tourism offer and Montenegro joining the Global Sustainable Tourism Council in 2022 underline the commitment to invest in green energy and infrastructure (Global Sustainable Tourism Council, 2023[7]). Measures taken in 2022 include implementation of the Blue Flag programme, the upgrading of tourist attractions, and the development of a year-round tourism product to reduce seasonality. As part of the project "Upgrading new and underutilised tourist attractions", activities were carried out to upgrade cultural, historical and natural tourist sites in Bijelo Polje – the tomb of Ahmet and Pava, in Pljevlje; the Čehotina meander, in Šavnik; the Crnjak waterfall; and two hiking trails in the Rijeka Crnojevića-Obodska Pećina region. Efforts to promote sustainable destination management include workshops, certifications and networking with international institutions. The promotion of “green” accommodation ensures an improvement in quality in line with environmental standards. However, challenges persist due to the lack of independent assessments and an observatory for sustainable tourism.
Overview of implementation of Competitiveness Outlook 2021 recommendations
Progress on recommendations is solid: the economy has made strong advances in promoting co‑operation with local stakeholders to manage tourism development and advancing on sustainable development, while moderate improvements are evidenced in the public-private dialogue and human resource development. On the other hand, progress has stagnated in domains such as data collection since TSA has yet to be implemented. Table 16.3 shows the economy’s progress in implementing past recommendations for developing the tourism sector.
Table 16.3. Montenegro’s progress on past recommendations for tourism policy
The way forward for tourism policy
To ensure further successful development of tourism, policy makers should:
Develop tourism expansion and diversification strategies to enhance the sustainability and resilience of the tourism industry by reducing vulnerability to external shocks and distributing benefits more evenly across communities and regions. Key activities include cultivating niche tourism markets, championing lesser-known destinations, and introducing novel experiences and activities. Such strategies are crucial in crisis situations and maintaining liquidity within the sector's operations while safeguarding jobs. Additionally, alongside remedial measures, it is essential to implement development initiatives to curate a diverse, high-quality, and year-round tourist offering drawing upon the state's existing comparative advantages. Numerous analyses underscore the importance of dispersing tourism activities across multiple markets, particularly during crises, to mitigate the impact of external shocks and declines in traffic from one market by bolstering traffic in others.
Embark on a comprehensive digital transformation for tourism marketing. Digitalisation provides opportunities to use technology to provide solutions for wider sectoral issues such as the green transition and sustainable tourism management (OECD, 2022[8]). Montenegro should introduce digital tools to accelerate digital transformation for marketing. At the same time, the government should overcome the challenges in digital marketing for tourism businesses by investing in training programmes, improving digital infrastructure and removing barriers to implementation. A holistic approach to these measures will strengthen Montenegro's digital marketing capabilities.
Enhance strategic development through positioning in the field of sustainable tourism. Building on its efforts toward sustainability, Montenegro should strengthen its position as a green destination. This includes the expansion of sustainability certifications, promoting environmentally friendly practices, and communicating initiatives to tourists and the travel industry. Montenegro can draw inspiration from successful models for sustainable tourism, such as Swisstainable in Switzerland (Box 16.3). In addition, Montenegro should make considering sustainability criteria mandatory for all investments in tourism infrastructure, supported by public incentives.
Box 16.3. Swisstainable: Sustainable Tourism in Switzerland
Swisstainable, spearheaded by Switzerland Tourism, stands at the forefront of sustainable tourism initiatives in Switzerland, aiming to elevate the visibility of sustainability efforts within the sector. By integrating existing certifications and sustainability programmes, Swisstainable offers a unified framework without introducing new certifications. The initiative aligns with national objectives such as increasing the visibility of sustainable offerings, fostering future-oriented development, contributing to the SDGs, and providing transparency for guests seeking sustainable experiences.
The programme engages a broad spectrum of tourism stakeholders, including businesses, Destinations Management Organisations (DMOs), and Tourism Organisations (TO). It recognises the diverse nature of the tourism industry and accommodates various business categories. With three participation levels, Swisstainable ensures accessibility for a wide range of businesses, each with distinct requirements and access points.
For tourism industry stakeholders, participating in Swisstainable offers numerous benefits. Businesses can enhance their sustainability practices, gaining a competitive advantage in the growing market of sustainability-conscious travellers. Recognition by tourism organisations and improved attractiveness in the job market are additional advantages. Swisstainable partner businesses enjoy brand utilisation, effective marketing, online recognition, exclusive marketing opportunities, and access to a supportive network. The initiative serves as a model for sustainable tourism, demonstrating Switzerland's commitment to sustainable development and providing a roadmap for stakeholders to contribute effectively to national sustainability goals.
Sources: Swiss Tourism Federation (2024[9]); Switzerland Tourism (2024[10]).
Prioritise investment in skills development to ensure availability of a qualified workforce in tourism. Promoting a well-qualified workforce will be crucial for sustaining and enhancing the tourism industry in the economy. To address this, a comprehensive strategy that includes targeted training, collaboration with educational institutions, flexible staffing models, streamlined visa processes, and integration of technology and digitalisation and retention initiatives is recommended to mitigate the impact of staff shortages during the critical summer period in the Montenegrin tourism sector. Further, the strategy should focus on increasing the attractiveness of tourism studies, developing flexible educational programmes in co-operation with private stakeholders and introducing special training for foreign workers.
Develop comprehensive climate change strategies in the tourism sector to minimise greenhouse gas emissions in destinations. While Montenegro is developing a National Climate Change Adaptation Plan, addressing climate change in tourism remains a challenge that requires integrated adaptation and mitigation strategies. The government has an opportunity to lead the way in the region and should work with international and national partners to formulate and implement comprehensive strategies and action plans on climate change in tourism. In addition, providing a practical tool for tourism organisations and stakeholders, including a step‑by-step guide for creating a climate action plan, can support them in their own journey towards achieving zero net emissions.
References
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[4] Government of Montenegro (2023), Report on the Execution of Obligations from the Public-private Partnership Contract Implemented before the Adoption of the Law on Public-Private Partnership, and Entered in the Register of Public-Private Partnership Contracts, https://www.gov.me/en/documents/8082c876-80bb-492a-834d-d318aba95f37 (accessed on 28 May 2024).
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[9] Swiss Tourism Federation (2024), Swisstainable, https://www.stv-fst.ch/nachhaltigkeit/kompetenzzentrum/swisstainable (accessed on 28 May 2024).
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[1] World Travel and Tourism Council Research Hub (2023), Montenegro Economic Impact Report, https://researchhub.wttc.org/product/montenegro-economic-impact-report (accessed on 1 March 2024).
Notes
← 1. Collective accommodation facilities include hotels, inns, motels, holiday villages, tourist resorts, hostels, camps and other collective accommodation facilities. Collective accommodation does not include private accommodation (accommodation in houses and rooms for rent, or in tourist apartments).
← 2. The Tourism Satellite Account (TSA) is a standard statistical framework and the main tool for the economic measurement of tourism. The TSA allows for the harmonisation and reconciliation of tourism statistics from an economic (National Accounts) perspective. This enables the generation of tourism economic data (such as Tourism Direct GDP) that is comparable with other economic statistics.
← 3. In line with the need to gradually adapt visa policy to European Union standards, the economy annually revises the Visa Regulation Decree. In order to meet the needs of the Montenegrin economy, especially relating to tourism, the government usually approves visa exemptions for nationals of certain countries on a seasonal basis. In 2023, it was decided to temporarily grant a visa-free regime to citizens of the Republic of Kazakhstan, the Republic of Armenia, the Kingdom of Saudi Arabia, the Arab Republic of Egypt and the Republic of Uzbekistan.