PR Political Rights 27 40
CL Civil Liberties 57 60
Last Year's Score & Status
83 100 Free
Global freedom statuses are calculated on a weighted scale. See the methodology.

header1 Overview

The Principality of Monaco is a constitutional monarchy headed by Prince Albert II. The prince appoints the government, which is responsible only to him. Legislative power is exercised jointly by the prince and the freely elected parliament. Civil liberties are generally respected.

header2 Key Developments in 2021

  • In January, new rules of procedure for members of the parliament took effect. Among other things, the rules imposed new requirements on the acceptance of gifts and the management of potential conflicts of interest.
  • In June, the parliament passed a law that provides legal status to non-Monegasques who were born or adopted in Monaco and have since resided in the country. The legislation was gazetted in July.
  • In an October report, the Council of Europe’s (CoE) Group of States against Corruption (GRECO) noted that Monegasque authorities made significant progress in addressing government transparency and ethics. In its report, GRECO noted that legislation, proposals, and amendments were more accessible to the public via the parliament’s website.

PR Political Rights

A Electoral Process

A1 1.00-4.00 pts0-4 pts
Was the current head of government or other chief national authority elected through free and fair elections? 0.000 4.004

The hereditary monarch holds extensive executive authority, including the exclusive right to change the government, and there are no constitutional provisions allowing citizens to alter this system. The current prince, Albert II, took the throne after his father’s death in 2005. The head of government, known as the minister of state, is traditionally appointed by the monarch from a candidate list of three French nationals submitted by the French government. Pierre Dartout took office as minister of state in 2020.

A2 1.00-4.00 pts0-4 pts
Were the current national legislative representatives elected through free and fair elections? 4.004 4.004

The 24 members of the unicameral National Council are elected for five-year terms; the 16 candidates who receive the most votes are elected, and the remaining 8 seats are filled through list-based proportional representation. The 2018 elections were considered credible by international observers. The new political movement Priorité Monaco, led by veteran politician Stéphane Valeri and defectors from the more established Horizon Monaco, won 58 percent of the vote and 21 seats. Horizon Monaco itself took 26 percent and 2 seats, while the Union Monégasque took 16 percent and 1 seat. After the elections, Valeri became president of the National Council, which is regarded as the most powerful elected office in Monaco.

A3 1.00-4.00 pts0-4 pts
Are the electoral laws and framework fair, and are they implemented impartially by the relevant election management bodies? 4.004 4.004

The legal framework provides an adequate basis for credible elections, and a number of recent changes have improved the conduct of elections, including the modification of campaign finance rules in 2017 and the broadening of suffrage rights for detainees in 2014. However, in a 2018 report, the Organization for Security and Co-operation in Europe (OSCE) argued that the campaign finance system could be further strengthened.

Municipal authorities, led by the mayor of Monaco, form an Electoral Committee that administers elections with support from the Interior Ministry, and observers consider their conduct to be credible. However, technical meetings in preparation for elections are not open to the public, limiting the committee’s transparency.

B Political Pluralism and Participation

B1 1.00-4.00 pts0-4 pts
Do the people have the right to organize in different political parties or other competitive political groupings of their choice, and is the system free of undue obstacles to the rise and fall of these competing parties or groupings? 3.003 4.004

Political associations, groupings of people who hold similar political viewpoints, compete in Monaco, rather than traditional parties. There are no undue restrictions on the formation of new political associations. However, office seekers are prohibited from running as individual independent candidates; independents must instead form a list of at least 13 candidates to participate in elections.

B2 1.00-4.00 pts0-4 pts
Is there a realistic opportunity for the opposition to increase its support or gain power through elections? 2.002 4.004

Opposition political associations are able to gain seats in the parliament. In 2018, Priorité Monaco, also known as Primo!, won 21 seats, while Horizon Monaco fell from 20 seats to 2. However, there are structural limits on the opposition’s ability to secure executive power through elections, as the cabinet—appointed by the prince—is not responsible to the elected parliament.

B3 1.00-4.00 pts0-4 pts
Are the people’s political choices free from domination by forces that are external to the political sphere, or by political forces that employ extrapolitical means? 2.002 4.004

The fact that the head of government is a French national appointed from a list submitted by Paris, and that the powerful head of state is an unelected monarch, means that people’s political participation is heavily circumscribed by democratically unaccountable forces. Nevertheless, voters’ and candidates’ choices with respect to parliamentary representation are largely free from domination by such entities.

B4 1.00-4.00 pts0-4 pts
Do various segments of the population (including ethnic, racial, religious, gender, LGBT+, and other relevant groups) have full political rights and electoral opportunities? 3.003 4.004

Only about 9,000 of Monaco’s residents—roughly a quarter of the total—are citizens, and noncitizens do not have the right to vote or run for office, though a number of legal routes to naturalization are available. Most noncitizen residents are nationals of neighboring France or Italy.

Among the citizen population, women and members of racial or ethnic minority groups are free to participate in elections, both as voters and candidates, but women’s interests are not always well represented in the political system, and only eight women were elected to the parliament in 2018. The six-member council of ministers included one woman as of 2021.

C Functioning of Government

C1 1.00-4.00 pts0-4 pts
Do the freely elected head of government and national legislative representatives determine the policies of the government? 2.002 4.004

The hereditary prince has significant governing authority, including the exclusive power to initiate legislation, conduct foreign policy, and approve changes to the constitution. However, all legislation and the budget require parliamentary approval, and the parliament is generally free from interference by unelected groups.

C2 1.00-4.00 pts0-4 pts
Are safeguards against official corruption strong and effective? 3.003 4.004

There have been a series of recent improvements in the legal framework for combating corruption. Rules on accepting gifts and potential conflicts of interest were included in the rules of procedure that took effect in January 2021. A report from GRECO published in October noted that Monegasque authorities made significant progress in strengthening the country’s ethics framework. In May, for example, the post of ethics adviser was filled, while the National Council established an ethics committee in July. The GRECO report concluded that Monaco partially or fully adopted 11 of its 16 recommendations.

Nevertheless, high-level corruption remains a problem, and officials sometimes act with impunity. In 2017, Philippe Narmino resigned as director of judicial services, or justice minister, after it was revealed that wealthy Russian businessman Dmitriy Rybolovlev provided gifts in exchange for pursuing fraud charges against Swiss art dealer Yves Bouvier. The Rybolovlev case revealed extensive corruption within the judiciary. In 2019, Laurent Anselmi was replaced as justice minister months after he unexpectedly denied a request for a term renewal from the judge overseeing the investigation into the Rybolovlev scandal. However, Anselmi then became foreign minister. In September 2021, Rybolovlev—who legally pursued Bouvier in five countries and territories—effectively lost his ninth case against the art dealer when a Swiss prosecutor dropped proceedings, though Rybolovlev vowed to appeal.

C3 1.00-4.00 pts0-4 pts
Does the government operate with openness and transparency? 4.004 4.004

The law generally provides for public access to government information, including draft laws and proposed legislation. Parliamentarians are bound by the newly implemented rules of procedure and are subject to scrutiny from the ethics adviser, who is empowered to investigate conflict-of-interest and asset-declaration concerns. The rules of procedure also require the publication of legislative committee agendas and written opinions. The October 2021 GRECO report also noted that the National Council’s website hosted legislation, proposals, and amendments to enhance public access to such material.

There are no financial disclosure laws in place for lawmakers or officials appointed by the prince.

Score Change: The score improved from 3 to 4 because the parliament implemented several rule changes to increase the openness of parliamentary processes, including publishing amendments, proposals, and legislation online.

CL Civil Liberties

D Freedom of Expression and Belief

D1 1.00-4.00 pts0-4 pts
Are there free and independent media? 4.004 4.004

The constitution provides for freedom of expression, and press freedom is generally respected in practice. Monaco has a weekly government newspaper, an English-language monthly, and several online publications. There is one major private broadcaster based in the country. French and Italian broadcast and print media are widely available, and internet access is not restricted.

D2 1.00-4.00 pts0-4 pts
Are individuals free to practice and express their religious faith or nonbelief in public and private? 4.004 4.004

Roman Catholicism is the official state religion, but the constitution guarantees freedom of religion and public worship, and this is largely respected in practice. Jehovah’s Witnesses have struggled to secure official recognition as a religious association despite favorable rulings by the Supreme Court.

D3 1.00-4.00 pts0-4 pts
Is there academic freedom, and is the educational system free from extensive political indoctrination? 4.004 4.004

There are no undue restrictions on academic freedom.

D4 1.00-4.00 pts0-4 pts
Are individuals free to express their personal views on political or other sensitive topics without fear of surveillance or retribution? 4.004 4.004

People are generally free to express their personal views without fear of retribution. Insulting the ruling family is illegal and can result in prison sentences of up to five years, but the law is infrequently enforced.

E Associational and Organizational Rights

E1 1.00-4.00 pts0-4 pts
Is there freedom of assembly? 4.004 4.004

The constitution provides for freedom of assembly, which is generally respected in practice.

E2 1.00-4.00 pts0-4 pts
Is there freedom for nongovernmental organizations, particularly those that are engaged in human rights– and governance-related work? 4.004 4.004

No significant restrictions are imposed on the formation or operation of nongovernmental organizations (NGOs).

E3 1.00-4.00 pts0-4 pts
Is there freedom for trade unions and similar professional or labor organizations? 4.004 4.004

The law grants workers the right to establish unions and bargain collectively, and antiunion discrimination is prohibited. All workers except government employees have the right to strike. Unions and employers engage in collective bargaining in practice.

F Rule of Law

F1 1.00-4.00 pts0-4 pts
Is there an independent judiciary? 3.003 4.004

The constitution provides for an independent judiciary. The prince names five full members and two judicial assistants to the Supreme Court based on nominations by the National Council, government bodies, and the lower courts. The recruitment process for judges lacks transparency, which contributes to a perception that they may lack independence. The Judicial Service Commission (CSJ) is responsible for ensuring the independence of the judiciary. While the CSJ’s autonomy was recently strengthened, only some of its members are selected by their peers. In its October 2021 report, GRECO noted that CSJ activity reports are not publicly available. The state secretary for justice, formerly known as the director of judicial services, oversees the judicial and law enforcement systems and is responsible only to the prince. Approximately half of the judges in Monaco are Monegasque nationals, and the other half are French nationals.

Concerns about judicial independence resurfaced in 2019, when the director of judicial services turned down a request for a three-year term renewal from the judge overseeing the investigation into the Rybolovlev corruption scandal. The director was replaced later that year.

F2 1.00-4.00 pts0-4 pts
Does due process prevail in civil and criminal matters? 4.004 4.004

Due process rights are generally respected. Defendants are presumed innocent until proven guilty and are informed of the charges against them promptly. Defendants have access to attorneys and sufficient time to prepare a defense. A May 2021 report by the CoE’s Committee for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment criticized the relatively poor conditions of the Remand Prison and the size of court waiting cells, though the body reported that prisoners were generally well treated.

F3 1.00-4.00 pts0-4 pts
Is there protection from the illegitimate use of physical force and freedom from war and insurgencies? 4.004 4.004

The population faces no major threats to physical security. Violent crime and excessive use of force by police are both rare in Monaco.

F4 1.00-4.00 pts0-4 pts
Do laws, policies, and practices guarantee equal treatment of various segments of the population? 3.003 4.004

Monaco lacks a law that broadly prohibits discrimination based on race or ethnicity, though insults and defamation on such grounds are illegal. In the absence of a comprehensive law, Article 14 of the European Convention on Human Rights is used to prevent and punish discrimination.

The law prohibits discrimination based on gender, and women’s rights are generally respected. However, the European Commission against Racism and Intolerance has noted that women do not enjoy the same rights to social benefits as their male counterparts, as men receive head-of-household status by default, and has called for the establishment of a program guaranteeing the equal treatment of LGBT+ people.

A law passed in June 2021 and gazetted in July provides legal status to non-Monegasques who were born or adopted in Monaco and have since resided in the country. Individuals in the “Children of the Nation” category, who were previously regarded as foreigners, would effectively receive expanded access to housing and employment under this legislation.

G Personal Autonomy and Individual Rights

G1 1.00-4.00 pts0-4 pts
Do individuals enjoy freedom of movement, including the ability to change their place of residence, employment, or education? 4.004 4.004

There are no significant restrictions on freedom of internal movement or foreign travel. Temporary movement restrictions that were imposed during the COVID-19 pandemic in 2021 were generally considered legitimate measures to protect public health.

G2 1.00-4.00 pts0-4 pts
Are individuals able to exercise the right to own property and establish private businesses without undue interference from state or nonstate actors? 3.003 4.004

Property rights are respected, and noncitizens holding a residence permit may purchase property and establish businesses. However, obtaining government approval to start a business is often a lengthy and complex process, and related costs can be prohibitively expensive.

G3 1.00-4.00 pts0-4 pts
Do individuals enjoy personal social freedoms, including choice of marriage partner and size of family, protection from domestic violence, and control over appearance? 4.004 4.004

Personal social freedoms are generally respected. Abortion remains illegal except under special circumstances, including rape and a risk to the pregnant person’s life or physical health. In 2019, however, the parliament passed legislation that removed criminal punishments for people who undergo abortions; health professionals could still face penalties for performing an abortion in Monaco. Also in 2019, the parliament adopted a law that allows civil partnerships for all couples, including those of the same sex. Domestic violence is outlawed in Monaco, and there are few reported incidents. The government and NGOs provide a network of support services for victims of domestic violence.

G4 1.00-4.00 pts0-4 pts
Do individuals enjoy equality of opportunity and freedom from economic exploitation? 4.004 4.004

Legal protections against labor exploitation are adequately enforced.

On Monaco

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  • Global Freedom Score

    84 100 free