COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report Country Chapter on the rule of law situation in Luxembourg Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 Rule of Law Report The rule of law situation in the European Union
Date: 2025-07-08
Institutions: European Commission, Secretariat-General
Subjects: Luxembourg, administrative transparency, corruption, democracy, freedom of the press, human rights, independence of the judiciary, pluralism in the media, rule of law, whistleblowing

EN 

  EN 

   EUROPEAN COMMISSION  Strasbourg, 8.7.2025  SWD(2025) 916 final  COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report                    Country Chapter on the rule of law situation in Luxembourg Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 Rule of Law Report                      The rule of law situation in the European Union {COM(2025) 900 final} - {SWD(2025) 901 final} - {SWD(2025) 902 final} - {SWD(2025) 903 final} - {SWD(2025) 904 final} - {SWD(2025) 905 final} - {SWD(2025) 906 final} - {SWD(2025) 907 final} - {SWD(2025) 908 final} - {SWD(2025) 909 final} - {SWD(2025) 910 final} - {SWD(2025) 911 final} - {SWD(2025) 912 final} - {SWD(2025) 913 final} - {SWD(2025) 914 final} - {SWD(2025) 915 final} - {SWD(2025) 917 final} - {SWD(2025) 918 final} - {SWD(2025) 919 final} - {SWD(2025) 920 final} - {SWD(2025) 921 final} - {SWD(2025) 922 final} - {SWD(2025) 923 final} - {SWD(2025) 924 final} - {SWD(2025) 925 final} - {SWD(2025) 926 final} - {SWD(2025) 927 final} - {SWD(2025) 928 final} - {SWD(2025) 929 final} - {SWD(2025) 930 final} - {SWD(2025) 931 final}  
 
 
ABSTRACT 

The  level  of  perceived  judicial  independence  in  Luxembourg  continues  to  be  very  high 
among  the  general  public  and  high  among  companies.  The  National  Council  for  Justice  is 
fully operational and functions well. Some steps have been made on the digitalisation of the 
judiciary,  as  efforts  are  ongoing  to  implement  digital  solutions  for  courts  to  exchange  with 
parties and legal representatives. The reform of the criminal justice system as regards minors, 
which  started  in  2024,  has  not  advanced  further.  A  large-scale  recruitment  initiative  in  the 
judiciary  is  underway  to  address  recruitment  challenges  and  vacancies.  The  courts  remain 
efficient, and the clearance rate remains stable. 

The perception among experts, citizens and business executives is that Luxembourg is one of 
the  least  corrupt  countries  in  the  EU  and  the  world.  The  Corruption  Prevention  Committee 
continues with the implementation of its obligations under the Anti-Bribery Convention and 
is  considering  elaborating  an  anti-corruption  plan.  The  Government  and  the  Corruption 
Prevention Committee are looking into the reasons for the significant decrease in the number 
of  reported  corruption  cases  and  ongoing  investigations  over  the  past  year.  Additional 
recruitments  are  planned  in  the  police  and  prosecution  services  dealing  with  economic  and 
financial  crime,  while  some  difficulties  to  attract  good  candidates  remain.  Following  an 
adopted amendment, more extensive information on lobbying will become public and further 
efforts  are  being  made  to  increase  the  transparency  of  interactions  between  members  of 
Parliament  and  lobbyists.  Further  amendments  to  introduce  codes  of  conduct  for  elected 
representatives  and  officials  at  municipal  level  are  considered  by  the  Government.  The 
Deontology  Committee  was  given  additional  investigation  powers.  The  Office  for 
Whistleblowers, set up in 2023, plans to  release its first activity report. Corruption cases in 
the area of public procurement are effectively investigated and prosecuted.  

The process of revising the regulatory framework applicable to electronic media, as well as 
the  competences  of  the  Luxembourg  Independent  Audiovisual  Authority  (ALIA)  has  been 
initiated. The Press Council adopted a new code of ethics, and the Government announced an 
increase  in  its  public  subsidy.  An  Audience  Council  was  established  for  public  broadcaster 
Radio 100,7 and reflections are ongoing to broaden the reach of its content. The Government 
introduced a draft law reforming the legal framework on access to official documents while 
stakeholders  seek  further  clarity  on  enforceability  and  timelines.  The  Government  has 
committed  to  strengthening  the  protection  of  journalists  against  physical  violence  and 
intimidation,  with  the  objective  of  ensuring  a  safe  environment  for  free  expression  and 
democratic debate.  

Stakeholder consultations are reported to work well in practice. The reform intended to make 
the Consultative Commission for Human Rights (CCDH) more independent is ongoing. The 
civic space is open and diverse.  

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RECOMMENDATIONS 

Overall, concerning the recommendations in the 2024 Rule of Law Report, Luxembourg has 
made: 

•  Some progress on strengthening efforts to achieve full digitalisation of civil, criminal and 

administrative proceedings.  

•  Significant  progress  on  stepping  up  efforts  to  increase  the  information  contained  in  the 
transparency register, including by covering all the information set out in the Parliament’s 
rules of procedures.  

•  Some progress on taking forward the reform of the legal framework for the disclosure of 
official  documents,  taking  into  account  European  standards  on  access  to  official 
documents. 

•  Fully  implemented  the  recommendation  on  improving  the  legislative  decision-making 
process notably at the level of Parliament by increasing the transparency and involvement 
of stakeholders in the public consultations. 

On this basis, and considering other developments that took place in the period of reference, 
it is recommended to Luxembourg to: 

•  Step  up  efforts  to  achieve  full  digitalisation  of  civil,  criminal  and  administrative 

proceedings.  

•  Complete  the  reform  of  the  legal  framework  for  the  disclosure  of  official  documents, 

taking into account European standards on access to official documents.  

2 

 
 
 
 
 
I. 

JUSTICE SYSTEM1 

Independence  

The level of perceived judicial independence in  Luxembourg continues to be very high 
among  the  general  public  and  high  among  companies.  Overall,  77%  of  the  general 
population and 74% of companies perceive the level of independence of courts and judges to 
be  ‘fairly  or  very  good’  in  20252.  The  perceived  judicial  independence  among  the  general 
public remains at the same level as in 2024 (77%) and in 2021 (77%). The perceived judicial 
independence  among  companies  remains  at  the  same  level  as  in  2024  (74%)  and  has 
increased in comparison with 2021 (71%).   

The  National  Council  for  Justice  is  fully  operational  and  functioning  effectively.  As 
reported in 2023 and 20243, the National Council for Justice was established in 2023 as the 
main  responsible  institution  for  appointment,  appraisal,  promotion,  and  disciplinary 
proceedings  of  magistrates.  It  is  now  fully  operational,  operating  according  to  European 
standards, after a period of initial setup for the institution. Both the Council itself and outside 
stakeholders  view  its  work  positively4.  The  Council  is  actively  involved  in  discussions  on 
recruitment  and eligibility  criteria in  the judiciary5.  In line  with  its  mandate, the Council is 
responsible  for  disciplinary  cases  against  judges,  which  also  led  to  some  decisions  by  the 
administrative judiciary6. While the Council publishes its recommendations and views on its 
website,  members  of  the  judiciary  have  called  for  more  systematic  information  about  the 
Council’s internal decision-making and its decisions, such as access to its minutes, either in 
full or in abbreviated form7.  

Quality 

Some  progress  has  been  made  to  address  the  recommendation  on  the  digitalisation  of 
the  judiciary,  as  efforts  are  ongoing  to  implement  digital  solutions  for  courts  to 
exchange with parties and legal representatives8. For civil proceedings, a public contract 

1  An overview of the institutional framework for all four pillars can be found here. 
2   Figures 50 and 52, 2025 EU Justice Scoreboard and Figures 49 and 51, 2023 EU Justice Scoreboard. The 
level  of  perceived  judicial  independence  is  categorised  as  follows:  very  low  (below  30%  of  respondents 
perceive judicial independence as fairly good and very good); low (between 30-39%), average (between 40-
59%), high (between 60-75%), very high (above 75%). 

3   2024 Rule of Law Report, Luxembourg, p. 3-4.  
4   Country  visit  Luxembourg,  2025,  National  Council  for  Justice,  the  Council  of  State  and  the  Groupement 

des Magistrats Luxembourgeois.  

5   Country visit Luxembourg, 2025, Ministry of Justice and the National Council for Justice. See in particular 
Opinion of the National Council for Justice on the parliamentary amendments of 3 February relating to draft 
law 8433’ and ‘Recommendation No 2/2025 of the National Council for Justice on the basis of Article 26 of 
the  Law  of  23  January 2023 on  the  organisation  of  the  National  Council  for  Justice,  Future  Operation of 
Justice and the National Council for Justice’ of 17 February 2025. 

6   Country  visit  Luxembourg,  2025,  National  Council  for  Justice  and  the  Groupement  des  Magistrats 
Luxembourgeois. As set out notably in Articles 19-24 of the 2023 Law on the National Council for Justice, 
the Council hears individual complaints against magistrates and may decide on certain measures, including 
investigations or disciplinary proceedings. Such measures are subject to judicial review. These cases remain 
exceptional. Past cases have  since been brought before  the administrative courts, which have issued final 
decisions.  

7   Country visit Luxembourg, 2025, President of the Supreme Court and the Constitutional Court.  
8   The  2024  Rule  of  Law  Report  had  recommended  to  Luxembourg  to  ‘strengthen  efforts  to  achieve  full 
digitalisation  of  civil,  criminal  and  administrative  proceedings’.  Luxembourg  has  procedural  rules  and 

3 

 
 
 
 
was awarded in November 2024 to digitalise civil proceedings9 and a software release for a 
platform for the use by legal representatives is expected for the second half of 2025. For non-
professional individuals, the use of the ‘MyGuichet’ platform is planned for the use in civil 
proceedings10.  Notaries  will  use  their  own  platform,  already  available  as  a  pilot  project, 
which is foreseen for later use also by bailiffs11. For criminal cases, the General Prosecutor’s 
Office  has  set  up  a  dedicated  Directorate  to  address  the  issue.12  The  prosecution  service  is 
also  cooperating  with  services  in  France  and  Belgium  to  investigate  the  possibility  of 
adapting  their  digital  solutions  for  Luxembourg,  including  for  civil  cases13.  In  the 
administrative  courts,  a  new  software  to  digitalise  the  interaction  with  parties  and  legal 
representatives  is  also  in  preparation14..At  the  current  state  of  development,  few  digital 
solutions  for  parties  and  their  legal  representatives  to  initiate  and  follow  proceedings  are 
available15. While the administrative judiciary had launched test projects  in proceedings for 
interim measures and in asylum cases16, regular filing of actions and briefs, and the exchange 
between  the  courts  and  parties,  in  particular  in  civil  proceedings,  is  still  done  by  post  or 
telefax17. In individual cases, judges may agree with lawyers to send copies of decisions or 
notifications  of  hearing  dates  informally  by  e-mail18.  Many  details  about  the  software 
developed  under  the  ‘paperless  justice’  project  in  both  civil  and  criminal  proceedings  and 
administrative  proceedings  remain  to  be  defined19.  Draft  laws  to  bring  the  reform  forward 
remain  at  government  or  Parliament  committee  stage20.  An  operational  system  is  not 
expected  before  202621.  On  this  basis,  some  progress  on  the  recommendation  of  the  2024 
Rule of Law Report has been made.  

The reform of the criminal justice system as regards minors has advanced further in the 
course of 2024 and 2025. As previously reported, three draft laws to fundamentally reform, 
in  accordance  with  international  standards,  the  role  and  treatment  of  minors  in  criminal 
proceedings are under discussion22. The draft laws aim to establish a criminal justice system 
for  minors,  the  protection  of  minor  victims  and  witnesses  in  criminal  proceedings  and  the 

digital  tools  available  within  the  courts  and  prosecution  service.  Figures  43  to  46  of  the  2024  Justice 
Scoreboard. 

9   Luxembourg Government (2025a), written input, p. 1. 
10   Follow-up meeting Luxembourg, 2025.  
11   Follow-up meeting Luxembourg, 2025. 
12   Country visit Luxembourg, Directorate for Information and Digitalisation, 2025, Prosecution Service. 
13   Follow-up meeting Luxembourg, 2025. 
14   Luxembourg Government (2025a) written input, p. 1.  
15   Country visit Luxembourg, 2025, Supreme Court, Bar Association, Groupement des Magistrats  

Luxembourgeois. 

16   Country visit Luxembourg, 2025, Administrative Court.  
17   Country visit Luxembourg, 2025, Supreme Court, Luxembourg Administrative Court.  
18   In addition to a regular notification. Country visit Luxembourg, 2025, Bar Association and the Groupement 

des Magistrats Luxembourgeois.  

19   Country visit Luxembourg, 2025, Ministry of Justice, the Parliament, the Supreme Court and Constitutional 
Court, the Administrative Court and the bar association. Luxembourg has a well-functioning online portal 
for  the  interaction  with  the  administration,  www.guichet.lu,  but  the  Bar  Association  considers  that  this 
portal is not fit for purpose when it comes to judicial proceedings. Points for discussion among stakeholders 
include whether there will be a single platform or separate ones for the different judicial branches and the 
source of the software. 

20   Country  visit  Luxembourg,  2025,  the  Ministry  of  Justice  and  the  Parliament,  drafts  are  notably  under 

consideration in the ‘Rules Committee’.  

21   Country visit Luxembourg, 2025, Groupement des Magistrats Luxembourgeois, bar association.  
22   See also 2024 Rule of Law Report, Luxembourg, p. 6. See further figure 29, 2025 EU Justice Scoreboard. 
The draft laws also follow up on a visit to Luxembourg by the Council of Europe anti-torture Committee 
(CPT) in 2023.  

4 

 
 
 
 
protection  and  assistance  of  minors  in  other  settings23.  Following  opinions  issued  on  these 
drafts  by  the  Council  of  State  in  202324  amendments  have  been  adopted  by  the  Council  of 
Government  in  May  2025  and  new  opinions  by  the  Council  of  State  are  currently  being 
awaited.  while  the  draft  laws  have  not  been  voted  into  law25.  The  reform  aims  to  align  the 
Luxembourgish  legal  framework  with  the international  standards  regarding the treatment  of 
minors by the judicial system and to establish a dedicated criminal justice system for minors, 
which  features  specific  rights  and  guarantees  for  the  interests  of  the  child26..  Under  the 
current  framework,  lawyers  are  court-mandated  and  appointed  by  judges  from  a  list. 
However,  not  enough  lawyers  volunteer,  leading  to  difficulties  in  finding  adequate 
representation27.  The Ombudsman for Children and Youth expressed  reservations about  the 
qualifications  required  to  feature  on  this  list,  which  is  currently  a  one-day  training, 
considering it insufficient given the sensitivity of representing minors28.  

A large-scale recruitment initiative is underway to address recruitment challenges and 
vacancies.  All  branches  of  the  judiciary  report  difficulties  in  filling  vacancies29.  These 
difficulties  are  particularly  common  in  the  administrative  judiciary,  notably  in  the  area  of 
asylum and tax law30. There were no applications to a recent vacancy for the post of one of 
the  Luxembourg  European  Delegated  Prosecutors31.  The  Government  has  tabled  a 
‘pluriannual programme’ in July 2024, seeking to recruit 94 new magistrates and 20 justice 
attachés until 2027, with on average 15 recruitments per year, adding a third of new posts to 
the existing judiciary32. Judges welcome this development but consider it ambitious in view 
of  certain  challenges  to  recruitment33,  such  as  the  need  for  judges  to  be  fluent  in  all  three 
national languages, and for judges to have five years of experience as lawyers, if they wish to 
join from  outside the judiciary. Judicial positions are therefore  filled, in  part, by law clerks 
(référendaires)34.  The  Government  is  also  discussing  a  future  reform  which  could  lower 
professional requirements for candidates joining from outside the judiciary35.  

23  Draft laws 7991, 7992 and 7994, respectively. 
24   Opinion 60.980 to 60.983 and Opinion 61.692 of the Council of State. 
25   Country visit Luxembourg, 2025, Chamber of Deputies and the Ombudsman for Children and Youth.  
26   See already 2024 Rule of Law Report,  Luxembourg, p. 6.  Country visit Luxembourg, 2025,  Ombudsman 
for Children and Youth. Main features include the right to be assisted by the legal representatives or another 
appropriate  adult,  the  right  to  a  specialised  lawyer,  the  right  to  be  auditioned  by  special  trained  police 
officers,  the  right  to  a  set  of  measures  aiming  at  avoiding  incarceration,  as  well  as  the  right  to  be 
incarcerated  in  a  specifically  created  prison  for  minors  rather  than  a  prison  for  adults,  which  currently 
occurs in some exceptional cases. Victims and witnesses will also have specific rights, such as the right to 
be  accompanied by  the  legal representatives  or  another  person  of  their  choosing,  the  right  to  a  lawyer  as 
well as the right to a set of guarantees aiming at avoiding contact with the suspect or exposing information 
regarding their identity. While efforts are made to house notably suspects accused of misdemeanours in the 
youth facility, in one recent case, a 13-year-old girl was housed in the adult prison. 

27   Country visit Luxembourg, 2025, Bar association.  
28   Country  visit  Luxembourg,  2025,  Ombudsman  for  Children  and  Youth.  See  also  Luxemburger  Wort, 

2025b. 

29   Country  visit  Luxembourg,  2025,  Ministry  of  Justice,  Groupement  des  Magistrats  Luxembourgeois, 

Supreme Court and Administrative Court. This also affects the prosecution service.  

30   Country visit Luxembourg, 2025, Administrative Court.  
31   Country visit Luxembourg, 2025, Prosecution Service.  
32   Luxembourg Ministry of Justice, ‘Garantir une justice efficace’, pointing to a creation of 200 new posts.  
33   Country visit Luxembourg, 2025, Supreme Court and Groupement des Magistrats Luxembourgeois.  
34   Country  visit  2025,  Supreme Court  and  Administrative  Court.  Référendaires  are  law  clerks  that  are  fully 

qualified but are not required to have Luxembourgish nationality nor to speak all national languages. 

35   Country visit Luxembourg, 2025, Groupement des Magistrats Luxembourgeois and the Ministry of Justice. 
The Groupement des Magistrats Luxembourgeois considers that the recruitment of new judges from outside 

5 

 
 
 
 
Efficiency 

The courts remain efficient, the clearance rate slightly decreased but it remains overall 
stable. Courts remain efficient, although the estimated time needed to resolve a case at first 
instance in civil, commercial or administrative proceedings in 2023 has slightly increased in 
comparison to 202236. The clearance rate remains overall stable37. The length of proceedings 
for litigious civil and commercial cases at first instance remains among the most efficient in 
the EU for 2022, with an increase compared to 2021. These cases took longer at second and 
third instance, with an increase also compared to 202138. As regards administrative cases, the 
length of proceedings in 2022 remained higher at first instance than for second instance39. 

II. 

ANTI-CORRUPTION FRAMEWORK  

The perception among experts, business  executives and citizens is  that Luxembourg is 
one  of  the  least  corrupt  countries  in  the  EU  and  the  world.  In  the  2024  Corruption 
Perceptions Index by Transparency International, Luxembourg scores 81/100, ranks 3rd in the 
European  Union  and  5th  globally40.  This  perception  has  been  relatively  stable41.  The  2025 
Special  Eurobarometer  on  Corruption  shows  that  52%  of  respondents  consider  corruption 
widespread  in  their  country  (EU  average  69%)  and  10%  of  respondents  feel  personally 
affected by corruption in their daily lives (EU average 30%). As regards businesses, 40% of 
companies consider that corruption is widespread (EU average 63%) and 35% consider that 
corruption  is  a  problem  when  doing  business  (EU  average  35%).  Furthermore,  35%  of 
respondents find that there are enough successful prosecutions to deter people from  corrupt 
practices  (EU  average  36%),  while  61%  of  companies  believe  that  people  and  businesses 
caught for bribing a senior official are appropriately punished (EU average 33%)42. 

The Corruption Prevention Committee (COPRECO) continues with the implementation 
of its obligations under the Anti-Bribery Convention and is considering elaborating an 
anti-corruption  plan.  In  2024,  COPRECO  maintained  a  focus  on  the  evaluation  of 

the judiciary, when filling higher career positions, however needs to take account of career expectations of 
long-serving  judges  based  on  their  time  spent  in  the  judiciary,  when  it  comes  to  filling  higher  career 
positions. 

36   Figure 4, 2025 EU Justice Scoreboard. The estimated time needed to resolve civil, administrative and other 
cases rose to 198 days in 2023 from 183 days in 2022. In 2022, the average was 182 days, it stood at 221 
days  in  2023.The  estimated  time  needed  to  resolve  a  case  at  first  instance  in  civil  and  commercial  cases 
category  rose  notably  by  39  days  between  2022  and  2023,  but  remain  fairly  low  in  comparison  to  other 
Member States. 

37   Figure 10 and 11, 2025 EU Justice Scoreboard. The clearance rate for litigious civil and commercial cases 
decreased to 93% for 2023 from 98% in 2022. For administrative cases, it increased to 98% in 2023 from 
92% in 2022.  

38   Figure 6, 2025 EU Justice Scoreboard and 2024 Rule of Law Report, Luxembourg, p. 7, the estimated time 
needed to resolve litigious civil and commercial cases at all court instances for 2023 stood at 221 days at 
first instance, 497 days at second instance and 427 days at third instance. For 2022, the length in days is 182 
days for first instance, 464 days for second instance and 216 days for last instance.  

39   Figure  9,  2025  EU  Justice  Scoreboard  -  It  stood  at  479  days  at  first  instance  and  at  288  days  at  second 

instance, in 2023.  

40   The level of perceived corruption is categorised as follows: low (above 79); relatively low (between 79-60), 

relatively high (between 59-50), high (below 50). 

41   In 2020 the score was 80, while, in 2024, the score is 81. The score significantly increases/decreases when 
it  changes  more  than  five  points;  improves/deteriorates  (changes  between  4-5  points);  is  relatively  stable 
(changes from 1-3 points) in the last five years.  

42   Data from Special Eurobarometer 561 (2025) and Flash Eurobarometer 557 (2025). 

6 

 
 
 
Luxembourg’s  implementation  of  the  OECD  Anti-Bribery  Convention.  COPRECO  will 
present concrete measures to implement the OECD’s recommendations in early 202643. The 
Government  is  considering  proposing  a  formal  anti-corruption  strategy  as  well  as  possible 
adaptations to the COPRECO’s functioning44.  

The  Government  and  COPRECO  are  looking  into  the  reasons  for  the  significant 
decrease  in  the  number  of  reported  corruption  cases  and  ongoing  investigations  over 
the  past  year.  The  number  of  corruption  cases  registered  in  the  State  Prosecutor’s  Office 
showed a significant decrease in 2024 with nine cases opened compared to 31 cases in 2023. 
Data  for  2024  shows  the  number  of  convictions  remained  stable45.  A  few  foreign  bribery 
cases were initiated in recent years, while more steps could be taken to better identify risks in 
this area46.  The Police reported no breach of the transparency and integrity charter47. While 
there  were  no  corruption  and  integrity-related  cases  in  Parliament  in  202448,  the  Court  of 
Audit identified certain minor irregularities during its 2024 audits of political party financing 
for  the  year  202349.  In  2024,  the  EPPO  opened  investigations  in  two  corruption  cases, 
accounting  for  5%  of  all  active  EPPO  cases  in  Luxembourg50.  The  overall  cooperation 
between the EPPO, the judicial police, and the national prosecution offices continues to work 
well51.  

Additional recruitments are planned in the police and prosecution services dealing with 
economic and financial crime, while some difficulties to attract good candidates remain. 
The large-scale recruitment programme in the judiciary provides for the creation of new posts 
for magistrates within the services dealing with economic and financial crime52. In addition, 

43   See  2024  Rule  of  Law  Report,  Luxembourg,  p.  8.  OECD  (2024),  Implementing  the  OECD  Anti-Bribery 

Convention in Luxembourg: Phase 4 Report, pp. 51, 95 and 96. 

44   Country  visit  Luxembourg,  2025,  COPRECO  and  Ministry  of  State.  See  also  2024  Rule  of  Law  Report, 
Luxembourg, p. 8. Parties to the UN Convention against Corruption are required to ensure the existence of 
an  independent  body  that  oversees  and  coordinates  preventive  anti-corruption  policy.  COPRECO  is 
currently set up as a consultative and interministerial institution. 

45   Luxembourg  Government  (2025a)  written  input,  p.  6.  There  were  five  convictions,  four  of  which  final, 

compared to three in 2023. 

46   Between 1999 and 2023, Luxembourg only carried out 7 foreign bribery investigations of which there were 
4 prosecutions, 2 discontinued investigations and 1 ongoing investigation. Only one of these has received a 
final judgment. OECD (2024), Implementing the OECD Anti-Bribery Convention in Luxembourg: Phase 4 
Report, p. 11. 

47   Luxembourg Police, written reply to follow-up questions in the context of the country visit, pp. 2-3. 
48   Country visit Luxembourg, Parliament. In 2024, there were only two cases where guidance was sought on 

the interpretation of rules. No administrative proceeding was opened. 

49   Country  visit  Luxembourg,  written  contribution,  Court  of  Audit.  During  its  2024  audit  of  declarations 
submitted  in  2023,  the  following  irregularities  were  identified  by  the  Court  of  Audit:  some  declarations 
were outdated, and one political party failed to submit its declaration. Although these were not deemed to 
have a major direct impact on the use of public funds, the matter was referred to the relevant prosecution 
authorities. 

50    EPPO (2025a), p. 43.   
51    EPPO(2025b),  written  input,  p.  35  and  country  visit  Luxembourg,  Police  and  Prosecution  Service.  A 
dedicated EPPO section was created within the economic and financial crime department of the Police and 
recruitment  processes  for  two  police  investigators  and  one  European  Delegated  Prosecutor  have  been 
launched.  The  EPPO  nevertheless  reported  a  need  for  additional  resources  to  help  national  authorities 
support its work. 

52    Luxembourg (2024a). This law results from the division in two of the draft law 8299: Draft law no. 8299A 
on  the  multi-year  recruitment  programme  for  the  judiciary  (adopted  on  24  July  2024  and  published  on  1 
August  2024)  and  draft  law  No.  8299B  on  the  creation  of  a  reserve  pool  of  magistrate  positions  at  the 

7 

 
 
 
 
police services dealing with economic and financial crimes also obtained an increase of civil 
personnel  supporting  the  criminal  services,  as  well  as  an  increase  of  around  200  additional 
police officers per year53. A few of those additional positions were already filled54, with no 
significant  increase  compared  to  202355.  Some  difficulties  were  reported  by  prosecution 
services to attract and recruit good candidates56. 

There  was  significant  progress  regarding  the  recommendation  on  information 
contained  in  the  lobbying  register  with  further  efforts  being  made  to  increase  the 
transparency  of  interactions  between  members  of  the  Parliament  and  lobbyists57.  In 
March 2025, the Parliament’s conference of presidents adopted an evaluation with proposals 
to render the lobbying register more informative and in line with international transparency 
standards58. Following this evaluation, an amendment to the internal Rules of Procedures of 
the  Parliament  was  adopted  in  June  202559.  The  amendment  provides  for  more  extensive 
information60  to  be  directly  published  on  the  Parliament’s  website,  taking  into  account  the 
relevant international standards61, within a maximum of six weeks after the meeting62. This 
new  system  will  be  operational  as  of  15  September  202563.  Considering  that  there  was 
insufficient awareness of the revised Code of Conduct, the Parliament’s administration also 

National Council for Justice (still pending). See already in 2023 Rule of Law Report, Luxembourg, p. 10, 
footnotes 79 and 81). Country visit Luxembourg, 2025, Ministry of Justice and State Prosecution Service. 

53   Country visit Luxembourg, State Police services.   
54   Luxembourg Government (2025a), written input, pp. 2-3. One additional staff member has been recruited in 
the anti-money laundering/terrorist financing section of the Police in 2024 (increase from 19 in 2022 to 29 
in 2023 and 30 in 2024). The number of magistrates at the Economic and Financial Crime Section of the 
Prosecution Service slightly increased from 16 in 2023 to 18 in 2024 in the General Prosecutor’s Office and 
from  39  in  2023  to  43  in  2024  in  the  State  Prosecutor’s  Office.  Two  investigative  judges  joined  the 
anticorruption offices, one in Luxembourg and one in Diekirch.    

55   Luxembourg Government (2025a), written input, pp. 4-5. 2024 Rule of Law Report, Luxembourg, pp. 9-10. 
56   EPPO (2025b), written input, p. 35. Country visit Luxembourg, 2025, State Prosecution Service.  
57   2024 Rule of Law Report, Luxembourg, p. 2. The Commission recommended to Luxembourg to  ‘step up 
efforts  to  increase  the  information  contained  in  the  transparency  register,  including  by  covering  all  the 
information set out in the Parliament’s rules of procedures’.   

58   Country  visit  Luxembourg,  2025,  Parliament.  Parliament  (2025),  Evaluation  report  on  the  transparency 
register, as adopted by the conference of presidents on 13 March 2025.  This evaluation concluded that the 
transparency register should be reformed.  

59    Chamber of Deputies (2025c),as adopted through unanimous first plenary vote on 10 June 2026, with a start 
of application 15 September 2025. A derogation was requested for the second plenary vote, see Chamber of 
Deputies (2025d),  Luxemburger Wort, 2025a. Tageblatt, 2025a.  

60   The draft amendment provides for the following information to be covered by the transparency register: ‘1° 
the  date  and  place  of  the  interview,  2°  the  surname  and  forename  of  the  members  of  the  Chamber  of 
Deputies  present  at  the  interview,  3°  the  surname  and  forename  of  the  interest  representatives  and  third 
parties  present  at  the  interview,  4°  the  name,  company  name,  registered  office  address  and  registration 
number […],  5°  a  summary description  of  the  position  defended  by  the  interest  representatives  and  third 
parties by in relation to legislative activities, 6° if applicable, the bills or proposals for legislation as well as 
the laws on which the  discussions focused.’ 

61   The proposed text is in line with international standards, such as the OECD Principles for Transparency and 
Integrity  in  Lobbying  and  Influence:  OECD/LEGAL/0379,  Recommendation  of  the  Council  on 
Transparency and Integrity in Lobbying and Influence. 

62    The  explanatory  section  of  the  report  by  the  Committee  on  Rules  of  Procedures  (2025c)  on  the  draft 
amendment  proposal  Nr  8531  seems  to  restrict  publication  to  meetings  explicitly  requested  as  regards 
ongoing legislative works and excluding general policy meetings.  

63   Chamber  of  Deputies,  Committee  on  Rules  of  Procedures  (2025c),  follow-up  outreach  meeting  on  the 
recommendation.  Follow-up  meeting,  Chamber  of  Deputies.  Committee  on  Rules  of  Procedures  (2025c), 
report on the draft amendment proposal Nr 8531, p.7.  

8 

 
 
 
offered  training  on  Parliamentary  ethical  rules  and  obligations64.  In  light  of  the  adopted 
revision  of  the  provisions  in  the  internal  Rules  of  Procedures  pertaining  to  the  lobbying 
register,  there  has  been  significant  progress  on  implementing  the  recommendation  made  in 
the 2024 Rule of Law Report.  

Further  amendments  to  the  draft  laws  introducing  codes  of  conduct  for  elected 
representatives and officials at municipal level are considered by the Government.  The 
process  towards  the  adoption  of  the  draft  law  and  draft  Grand-Ducal  Regulation  regarding 
ethics and transparency in the local administrations is still ongoing65. The drafts will aim to 
reflect rules and ethics principles applicable to members of the Parliament, since they often 
combine  their  office  with  a  mandate  as  a  locally  elected  representative.  A  dedicated 
transparency  register  for  the  local  administrations,  inspired  by  the  register  existing  for  the 
members  of  the  Government  is  also  envisaged  by  the  Government66.  The  transmission  of 
information to the two existing transparency registers of the Government was simplified and 
accelerated67.   

The  Deontology  Committee  was  given  additional  investigation  powers68.  The  Codes  of 
Conduct  of  Members  of  the  Government  and  their  advisers  were  amended,  reflecting  the 
Deontology  Committee’s  2024  recommendations  to  the  Government69.  Notably,  the 
Deontology Committee now has the possibility to hear any stakeholders it deems relevant in 
the context of its  evaluations,  the possibility to submit  written questions to  members of the 
Government and their advisers, and to ask for any document it deems necessary to fulfil its 
mission70.  In  its  2024  annual  report,  the  Deontology  Committee  found  no  breaches  of  the 
Codes of Conduct for Members of Government or their Advisers, nor any conflict of interest, 
or irregularities in 2024 as regards Government meetings71.   

64   Chamber of Deputies (2025a). See also 2024 Rule of Law Report, Luxembourg, p. 11. 
65   Country visit Luxembourg, Ministry of Home Affairs. The opinion of the Council of State was received in 
November 2024. See 2024 Rule of Law Report, p. 12. The Government aims to close the consultation stage 
in July 2025. 

66   Country visit Luxembourg, Ministry of Home Affairs. 
67    Country  visit  Luxembourg,  Ministry  of  State.  Virgule  (2024).  Ministries  are  now  directly  encoding 
information  in  the  registries,  to  ensure  faster  transmission  of  information.  Information  included  in  the 
transparency  registers  for  meetings  between  members  of  the  Government  and  their  advisers  with  third 
parties include the name, the date of the meeting, the entity of the third parties, the position promoted by 
third parties, and the legislation targeted. Deontology Committee (2025a), p.6, The Deontology Committee 
can now monitor the meetings that took place during the year and did not detect any irregularities in 2024. 
68    Formerly  ‘Ethics  Committee’  of  the  Government,  renamed  as  Deontology  Committee  as  a  result  of  the 

amendments of 25 October 2024 to the Internal Rules of the Government.  

69   Deontology Committee (2024a) and (2024b), Recommendations, respectively published on 9 April and 15 
July 2024. Luxembourg Government (2025a), pp. 3-4. Country visit Luxembourg, 2025, Ministry of State. 
See  revised  Annexes  D  (Code  of  conduct  for  members  of  the  Government)  and  F  (Code  of  conduct  for 
advisers  who  are  assistants  to  the  Government)  to  Internal  Rules  of  the  Government,  following  the 
amendments of 25 October 2024. See also revised Deontology Committee (2024c). 

70   See Article 27 of Annex D and Article 13 of Annex F to the Internal Rules of the Government, as revised 

by the amendments of 25 October 2024. 

71   Deontology  Committee  (2025a),  pp. 5-6.  The  Report  also deals  with  the  implementation  of  the  Codes  of 
Conduct for government members and their advisers. No new member of government took office in 2024, 
hence no declaration  of  interests  was  reviewed.  No  transfer  to  the  private  sector  upon leaving office  was 
notified to the Deontology Committee. As regards government advisers, 29 declarations of interests were 
received and reviewed, with only three clarification requests needed and no conflict of interests identified.. 

9 

 
 
 
The Office for Whistleblowers, set up in 2023, plans to release its first activity report72. 
As  regards  internal  whistleblowing  mechanisms  in  the  prosecution  service,  exchanges  are 
ongoing at district prosecutors’ level. Two cases were opened on the basis of whistleblowing 
reports in 202473. While welcoming the Office overall, some civil society organisations regret 
that the Office does not have the role of a centralised official reporting channel74. 

Corruption  cases  in  the  high-risk  area  of  public  procurement  are  effectively 
investigated and prosecuted. Businesses’ attitudes towards corruption in the EU show that 
18%  of  companies  in  Luxembourg  (EU  average  25%)  think  that  corruption  has  prevented 
them  from  winning  a  public  tender  or  a  public  procurement  contract  in  practice  in  the  last 
three  years75.  77%  of  companies  perceive  the  level  of  independence  of  the  public 
procurement review body (Administrative Court) as very or fairly good76. The Single Market 
and  Competitiveness  Scoreboard  on  access  to  public  procurement  in  Luxembourg  reports 
27%  of  single  bids  for  2023  (EU  average  29%).  Corruption  cases  continued  to  be  reported 
and prosecuted in public procurement, which remains, together with the financial sector77, a 
sector at higher risk78. Higher risks were also identified at municipal level79.   

III.  MEDIA PLURALISM AND MEDIA FREEDOM 

The process of revising the regulatory framework applicable to electronic media, as well 
as the competences of the Luxembourg Independent Audiovisual Authority (ALIA), has 
been  initiated.  The  primary  objective  of  this  reform  is  to  modernise  national  legislation  in 
light  of  technological  developments,  evolving  media  consumption  practices,  online  content 
creators and the implementation of Union law, notably the European Media Freedom Act80. 
Internal  governance  challenges  persist,  particularly  due  to  the  infrequent  meetings  of  its 
Board,  which  limits  the  Authority’s  operational  effectiveness81.  Stakeholders  have  recently 
expressed  some  concerns  about  the  transparency  and  independence  of  its  governance82. 
Overall,  ALIA  highlights  its  positive  cooperation  with  the  relevant  ministries  and  has  been 
assured of additional financial and human resources to reinforce its capabilities83. 

72   Country visit Luxembourg, Ministry of State. Trainings and awareness-raising activities were provided to 
the  relevant  entities  for  internal  reporting  within  public  institutions  in  2024.  The  Office’s  annual  activity 
report had not been released yet at the time of 2025 Rule of Law Report’s publication.  

73   Country visit Luxembourg, State Prosecution Service.    
74   StopCorrupt (2025), p. 3. The Government  maintains a dedicated website for the public  on ‘MyGuichet’. 

An additional dedicated website for the Office came online.   

75    Flash Eurobarometer 557 on Businesses’ attitudes towards corruption in the EU (2025). This is 7 percentage 

points below the EU average. 

76   Figure 59, 2025 EU Justice Scoreboard. 
77   See  Transparency International (2024). OECD (2024), Implementing the OECD Anti-Bribery Convention 
in Luxembourg: Phase 4 Report, pp. 9-10.  Country visit Luxembourg, 2025, State Prosecution Service and 
Police.  StopCorrupt (2025), p. 3.  

78   Country  visit  Luxembourg,  State  Prosecution  Service.  Two  cases  are  ongoing  regarding  public 
procurement,  one  high  level  international  case  and  one  national  case  at  municipal  level.  There  was  one 
conviction in 2024.  

79   Country visit Luxembourg, State Prosecution Service. 
80   Luxembourg Government (2025a), p. 7-8. 
81   Country visit Luxembourg, Luxembourg Independent Audiovisual Authority (ALIA). 
82   CCDH, written input, p.16  
83   Country visit Luxembourg, ALIA.   

10 

 
 
 
The  Press  Council  adopted  a  new  Code  of  Ethics  and  the  Government  announced  an 
increase in its public subsidy84. The new Code of Ethics emphasises the core principles of 
responsibility,  integrity,  and  respect  for  human  rights  as  central  to  guiding  journalistic 
practice  in  Luxembourg  85.  On  the  support  of  journalists,  a  new  draft  law  aims  to  clarify 
existing  provisions,  adjust  financial  mechanisms  to  better  support  diverse  and  innovative 
media projects, and introduce de minimis aid. The Government also carried out a review of 
the  implementation  of  the  support  schemes  for  professional  journalism  based  on  a 
consultation with the beneficiaries of press aid  as well as representative bodies of the press 
and  journalists86.  The  Press  Council  and  the  Luxembourg  Association  of  Professional 
Journalists (ALJP) see the changes as useful refinements, but not major developments87.  

An  Audience  Council  was  established  for  public  broadcaster  Radio  100,7  and 
reflections are ongoing to broaden the reach of its content. A new Audience Council was 
established  and  met  for  the  first  time  in  2024.  Its  mission  is  to  offer  informed  and  critical 
feedback on how Radio 100,7 fulfils its public service remit88. While satisfied with the 2022 
legal  framework,  the  broadcaster  notes  that  its  remit  remains  limited  to  Luxembourgish, 
despite  proposals  to  broaden  access  to  news  in  other  languages89.  A  follow-up  with  the 
Government  is  expected in  the coming years.  The broadcaster  also  highlights limitations in 
content offering, especially in entertainment, fiction, and international news90. While editorial 
autonomy and political independence of public service media remain at a very low risk91, the 
Media Pluralism Monitor 2025 report assesses that media concentration continues to be high, 
with market plurality at high risk92.  

Some  progress  has  been  made  in  reforming  the  legal  framework  on  access  to  official 
documents,  while  stakeholders  seek  further  guarantees  on  enforceability  and 
timelines.93 In July 2024, the Government tabled a draft law that would entail a specific right 
of access to information for journalists 94. This draft law creates a legal obligation for public 
bodies to disclose information, broadens the definition of ‘document’, and establishes priority 
handling for journalists’ requests, in line with the Council of Europe’s Tromsø Convention. 
The  ALJP  and  the  Press  Council  welcomed  the  overall  direction  of  the  draft  law  but 
expressed  concerns  about  the  lack  of  enforceable  accountability  mechanisms  for  public 
authorities  which  delay  or  refuse  responses.  The  ALJP  and  the  Press  Council  also  see  the 
general  requirement  for  public  bodies  to  respond  as  soon  as  possible  as  insufficient  and 
propose that authorities should at least be obliged to notify applicants when deadlines cannot 
be met95. The Consultative Commission for Human Rights (CCDH) is aware of two cases in 

84   Country visit Luxembourg, Press Council and ALJP.  
85   Luxembourg Press Council (2025a), second batch, p.3. The new Code of Ethics is accessible online on their 

website. 

86   Luxembourg Government (2025a), written input, p. 8. 
87   Country visit, Press Council and the Luxembourg Association of Professional Journalists (ALJP). 
88   Law of 12 August 2022 on the organisation of the public institution ‘Public Service Media 100,7’, Article 7. 
89   Country visit Luxembourg, Radio 100,7. 
90   Country visit Luxembourg, Radio 100,7. 
91   2025 Media Pluralism Monitor, Luxembourg, p. 28.  
92   2025 Media Pluralism Monitor, Luxembourg, pp. 20, 21, 28, 30, 33. 
93   The  2024  Rule  of  Law  Report  had  recommended  Luxembourg  to  ‘Take  forward  the  reform  of  the  legal 
framework  for  the  disclosure  of  official  documents,  taking  into  account  European  standards  on  access  to 
official documents’, Rule of Law report 2024, p. 2. 

94   Draft law concerning the promotion of professional journalism and the democratic debate of 24 July 2024. 

See also 2024 Rule of Law, Luxembourg, p. 17. 
95   Country visit Luxembourg, Press Council and ALJP. 

11 

 
 
 
which  journalists  and  NGOs  have  faced  obstacles  in  accessing  public  information96.  The 
Access  to  Documents  Commission  also  welcomed  the  new  draft  law  as  a  step  in  the  right 
direction  towards  aligning  Luxembourg’s  legal  framework  with  European  standards  on 
access  to  public  information97.  Overall,  some  progress  on  the  recommendation  of  the  2024 
Rule of Law Report has been made. 

The Government has committed to strengthening the protection of journalists, with the 
objective of ensuring a safe environment for free expression and democratic debate. A 
dedicated working  group has been established to address  the safety  of journalists98. Among 
its priorities is the drafting of a National Action Plan on the Safety of Journalists, in response 
to concerns such as the declining trust in professional journalism, which has been identified 
as a significant risk by the Government99. A civil case involving an RTL journalist led to a 
controversy  regarding  potential  ex  ante  restrictions  on  press  freedom.  In  its  judgment  of 
December 2024, the Court of Appeal upheld a ban on RTL to identify an individual as found 
guilty  of  embezzlement  in  a  previous  court  ruling.  The  Press  Council  and  the  ALJP  have 
criticised  the  ruling  and  expressed  their  support  for  RTL100  on  grounds  of  public  access  to 
information and proportionality101. In light of the judgment, the Press Council also called for 
stronger safeguards to protect journalistic sources and defend the rights of journalists.102 An 
appeal of the judgment by RTL to the Court of Cassation is pending. Since the publication of 
the 2024 Rule of Law Report, no new alerts have been recorded on the Council of Europe’s 
Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists103.    The  Media 
Freedom Rapid Response mechanism has identified one alert related to the above-mentioned 
case104.  

IV. 

OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES 

Stakeholder  consultations  are  reported  to  work  well  in  practice105.  Under  the  current 
rules,  there  are  regular  opinions  by  the  Council  of  State,  professional  chambers  or 
associations  or  stakeholders  specifically  asked  by  the  Chamber  of  Deputies.  There  are  no 
indications  of  acute  problems106.  Submissions  by  stakeholders  are  circulated  among  all 
Members of Parliament to ensure transparency, and any Member of Parliament can demand 
discussion of a submission in Committee or in the Plenary. References to stakeholder input is 
also  regularly  included  in  reports  by  the  rapporteur  in  Parliament  and  the  reasoning  tabled 

96   The  CCDH  highlighted  two  ongoing  cases  concerning  access  to  information:  one  involving  an  NGO’s 
request to the Luxembourg City municipality; and another where a journalist and the ALJP challenged the 
Ministry  of  Internal  Affairs’  refusal  to  disclose  documents  on  Luxembourg’s  cooperation  with  Frontex. 
CCDH (2025), p.17. 

97   Country visit Luxembourg, Commission d’accès aux documents. 
98   This group includes representatives from the  Ministries of Justice and Foreign Affairs, the Media Service, 
the Information and Press Service, the Press Council, and ALJP. Luxembourg Government (2025a), p. 8-9. 

99   Luxembourg Government (2025a), p. 8-9. 
100   Luxembourg Press Council (2025b). 
101   Luxembourg Press Council (2025a), p.1 and 2 
102   Luxembourg Press Council (2025a), p.3. 
103   Council of Europe, Platform to promote the protection of journalism and safety of journalists, Luxembourg.  
104   European Centre for Press and Media Freedom, Media Freedom Rapid Response – Luxembourg. 
105   The  2024  Rule  of  Law  Report  had  recommended  to  Luxembourg  to  ‘improve  the  legislative  decision-
making  process  notably  at  the  level  of  the  Chamber  of  Deputies  by  increasing  the  transparency  and 
involvement of stakeholders in the public consultations’.  

106   Country  visit  Luxembourg,  Ministry  of  Justice  and  Chamber  of  Deputies.  On  the  Chamber  of  Deputies’ 
website, stakeholder input is listed as an opinion (‘avis’) for the respective file of the draft law (‘références 
au dossier’). See also OECD (2025).  

12 

 
 
 
alongside a draft. Moreover, since 2023, any 125 citizens can submit a citizens’ initiative107 
requesting Parliament to legislate108. In light of these findings the recommendation made in 
the 2024 Rule of Law Report is considered fully implemented.  

On  1  January  2025,  Luxembourg  had  4  leading  judgments  of  the  European  Court  of 
Human  Rights  pending  implementation,  an  increase  of  2  compared  to  the  previous 
year109. At that time, Luxembourg’s rate of leading judgments from the past 10 years that had 
been implemented was at 33% (compared to 50% in 2024, 67% remained pending), and the 
average time that the judgments had been pending implementation was 1 year and 6 months 
(compared  to  1  year  and  5  months  in  2024)110.  The  oldest  leading  judgment,  pending 
implementation for almost 3 years, concerns the Court of Cassation’s excessive formalism in 
civil matters111. As regards the respect of payment deadlines, on 31 December 2024 there was 
1  case  in  total  awaiting  confirmation  of  payments  (compared  to  0  in  2023)112.  On  16  June 
2025, the number of leading judgments pending implementation had increased to 5113.  

Almost  nine  in  ten  companies  surveyed  in  Luxembourg  express  confidence  in  the 
effectiveness of investment protection. 89% of companies are very or fairly confident that 
investments are protected by law and courts114. As regards authorities relevant for economic 
operators,  77%  perceive  the  level  of  independence  of  the  national  competition  authority 
(Competition  Authority)  as  very  or  fairly  good.115  A  number  of  judicial  mechanisms  are  in 
place at the level of the Administrative Court to ensure the implementation of administrative 
court  judgments,  including  disciplinary  actions  against  the  responsible  officials,  the 
possibility to substitute the annulled administrative act, and to award direct and consequential 
damages and compensation116. 

The reform intended to make the Consultative Commission for Human Rights (CCDH) 
more independent remains ongoing. As in 2023 and 2024, this reform would eventually see 
the CCDH being  attached to  Parliament instead of the Ministry of State, as is  currently the 
case,  to  increase  its  financial  and  operational  independence117.While  the  Government 
supports the reform, its outline remains subject to debate118. 

107   See also the information available under: https://www.chd.lu/fr/node/1299. 
108   Follow-up meeting, Chamber of Deputies.  
109   For  an  explanation  of 

the  supervision  process,  see 

the  website  of 

the  Council  of  Europe, 

https://www.coe.int/en/web/execution/the-supervision-process.   

110   All figures calculated by the European Implementation Network (EIN) and based on the number of cases 
that are considered pending at the annual cut-off date of 1 January 2025. EIN (2025), written input, p. 6. 
111   European  Court  of  Human  Rights,  judgment  of  12  October  2021,  application  no.  35245/18,  Foyer 

Assurances S.A. v. Luxembourg, pending implementation since 2021.  

112   Council of Europe (2025), p. 157.   
113   Data according to the online database of the European Court of Human Rights (HUDOC). 
114   Figure 54, 2025 EU Justice Scoreboard, Only 2% and 3% of the surveyed investors respectively perceive 
the frequent changes in legislation or concerns about the quality of the law-making process, and the quality, 
efficiency  or  independence  of  justice,  respectively,  as  a  reason  for  the  lack  of  confidence  in  investment 
protection. 

115   Figure 60, 2025 EU Justice Scoreboard. 
116   Figure 49, 2025 EU Justice Scoreboard. The data presented reflects exclusively the mechanisms in place at 
the level of the highest administrative jurisdictions; the same or other mechanisms may be in place at lower 
instance administrative courts. 

117   Country visit Luxemburg, CCDH. 2024 Rule of Law Report, Luxembourg, p. 19. ENNHRI (2025), pp. 3-4. 
118   CCDH (2025), p. 18. The CCDH has voiced concern over a possible politicisation should the reform entail 

that political parties are to be represented in the CCDH.  

13 

 
 
 
The  civic  space  remains  open  and  diverse119.  Civil  society  organisations  perceive  civic 
space  as  vibrant  with  ample  funding  available120.  Civil  society  organisations  and  the 
Government  have  been  in  a  dialogue  concerning  the  impact  of  a  2023  law  on  non-profit 
associations,  imposing  stricter  requirements  to  prevent  money  laundering  and  terrorist 
financing121,  which  saw  subsequent  changes  and  transitionary  arrangements  to  avoid  undue 
burdens for small non-profit associations122.  

119   Rating  given  by  Civicus,  Latvia.  Ratings  are  on  a  five-category  scale  defined  as:  open,  narrowed, 

obstructed, repressed and closed. 

120   Country visit Luxembourg, CSOs Finance and Human Rights and Devoir de Vigilance.  
121   Country  visit  Luxembourg,  Finance  and  Human  Rights.  The  new  rules  impose  e.g.  that  board  members 

have to have a Luxembourg identification number.  

122   Law of 7 August 2023 on non-profit organisations and foundations. For new non-profit organisations, the 
new law is immediately applicable. For existing non-profit organisations, a 24-month transitionary period 
applies. 

14 

 
 
 
 
Annex I: List of sources in alphabetical order* 

* The list of contributions received in the context of the consultation for the 2024 Rule of Law report 
can 
https://commission.europa.eu/publications/2025-rule-law-report-targeted-
stakeholder-consultation_en. 

found 

be 

at 

Chamber  of  Deputies  of  the  Grand  Duchy  of  Luxembourg,  Transparency  Register  website, 
https://www.chd.lu/fr/registre-de-transparence.  

Chamber  of  Deputies  of  the  Grand  Duchy  of  Luxembourg  (2023),  Details  on  the  future  citizens 
legislative  initiative’  (Des  précisions  pour  la  future  initiative  législative  citoyenne),  10  May  2023, 
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Chamber of Deputies of the Grand Duchy of Luxembourg (2024), Draft law no. 842 on the promotion 
of 
https://wdocs-
pub.chd.lu/docs/exped/0149/001/298015.pdf.  

professional 

democratic 

journalism 

debate), 

8421, 

and 

no. 

the 

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Parliamentarians (Code de conduite des députés luxembourgeois en matière d’intérêts financiers et de 
conflits d’intérêts). This code is published as annex 1 to the Règlement de la Chambre des Députés in 
its  version  of  March  2025,  https://www.chd.lu/sites/default/files/2025-04/reglement-chd-15-03-
2025.pdf. 

Chamber  of  Deputies  of  the  Grand  Duchy  of  Luxembourg  (2025b),  Evaluation  Report  on  the 
Transparency  Register  introduced  in  the  Chamber  in  2021  (Rapport  d’évaluation  du  registre  de 
transparence  de  la  Chambre  des  Députés),  https://www.chd.lu/sites/default/files/2025-04/rapport-
evaluation-registre-de-transparence-2025.pdf.    

Chamber  of  Deputies  of  the  Grand  Duchy  of  Luxembourg,  Committee  on  Rules  of  Procedures 
(2025c),  Report  of  the  Committee  on  the  proposed  draft  amendment  to  the  internal  Rules  of 
Procedures  Nr  8531  (Rapport  de  la  Commission  du  Règlement  -  Proposition  de  modification  du 
Règlement de la Chambre des Députés relative au registre de transparence et au Code de conduite 
des députés luxembourgeois en matière d’intérêts financiers et de conflits d’intérêts).  

Chamber of Deputies of the Grand Duchy of Luxembourg (2025d), website, case-related activity for 
the draft amendment Nr 8531, https://www.chd.lu/fr/dossier/8531. 

Centre  for  Media  Pluralism  and  Freedom  (CMPF)  (2025),  Media  Pluralism  Monitor  2025, 
https://cmpf.eui.eu/media-pluralism-monitor/. 

Civicus, 
https://monitor.civicus.org/country/luzembourg/.  

tracking 

Monitor 

civic 

space 

– 

Luxembourg, 

Consultative  Commission  for  Human  Rights  of  the  Grand  Duchy  of  Luxembourg  (CCDH)  (2025), 
written input for the 2025 Rule of Law Report.  

Council  of  Europe,  Platform  to  promote  the  protection  of  journalism  and  safety  of  journalists, 
Luxembourg, https://fom.coe.int/en/pays/detail/11709546. 

Council of State (2023a), Opinion 60.981 of 16 May 2023 on the draft Grand-Ducal Regulation on the 
organisation of criminal detention arrangements for minors (Avis 60.981 du 16 mai 2023 sur le projet 
de règlement grand-ducal portant organisation des régimes de détention pénale pour mineurs). 

15 

 
 
Council  of  State  (2023b),  Opinion  60.982  of  1  June  2023  on  the  draft  law  introducing  criminal 
proceedings for minors (Avis 60.982 du 1er juin 2023 sur le projet de loi portant introduction d’une 
procédure pénale pour mineurs).  

Council  of  State  (2023c)  Opinion  60.980  of  1  June  2023  on  the  draft  law  on  aid,  support  and 
protection for minors, young adults (Avis 60.980 du 1er juin 2023, sur le projet de loi portant aide, 
soutien et protection aux mineurs, aux jeunes adultes et aux familles).  

Council  of  State  (2023d),  Opinion  60.983  of  4  July  2023  on  the  draft  law  on  the  rights  of  minors 
victims and witnesses in criminal proceedings (Avis 60.983 du 4 juillet 2023 sur le projet de loi relatif 
aux droits des mineurs victimes et témoins dans le cadre de la procédure pénale).  

Council of State (2024), Opinion 61.692 of 27 February 2024 on informing the legal representatives 
of  minors  deprived  of  liberty  (Avis  61.692  du  27  février  2024  portant  sur  l’information  des 
représentants légaux des mineurs privés de liberté). 

Court of Audit of the Grand Duchy of Luxembourg (2025a), written input for the 2025 Rule of Law 
Report. 

Court of Audit of the Grand Duchy of Luxembourg (2025b), Special report on the costs of large-scale 
testing (Rapport special sur les dépenses engendrées par le “Large Scale Testing”), https://cour-des-
comptes.public.lu/dam-assets/fr/rapports/rapports-speciaux/2025/rapport-lst-vf.pdf. 

European  Centre  for  Press  and  Media  Freedom  (2025),  Media  Freedom  Rapid  Response  – 
Luxembourg, https://www.mfrr.eu/monitor/. 

European Commission (2023), Single Market and Competitiveness Scoreboard.  

European Commission (2024), 2024 Rule of Law Report country chapter on the rule of law situation 
in Luxembourg. 

European Commission (2025a), 2025 EU Justice Scoreboard. 

European  Commission  (2025b),  Flash  Eurobarometer  554,  Perceived  independence  of  the  national 
justice systems in the EU among the general public. 

European  Commission  (2025c),  Flash  Eurobarometer  555,  Perceived  independence  of  the  national 
justice systems in the EU among companies.   

European Commission (2025d), Flash Eurobarometer 557, Businesses’ attitudes toward corruption in 
the EU. 

European Commission (2025e), Special Eurobarometer 561, Citizens’ attitudes towards corruption in 
the EU.  

European  Court  of  Human  Rights  (2021),  judgment  of  12  October  2021,  application  no.  35245/18, 
Foyer Assurances S.A. v. Luxembourg. 

European Court of Human Rights, HUDOC database, https://www.echr.coe.int/hudoc-database.  

European Network of National Human Rights Institutions (ENNHRI) (2025), State of the rule of law 
in  Europe,  Reports  from  National  Human  Rights  Institutions,  Luxembourg,  https://rule-of-
law.ennhri.org/. 

European Public Prosecutor’s Office (EPPO) (2025a), Annual Report 2024.  

16 

 
 
European Public Prosecutor’s Office (EPPO) (2025b), written contribution to the 2025 Rule of Law 
Report. 

Deontology Committee, previously Ethics Committee, (2024a), Recommendations to the Government 
https://gouvernement.lu/dam-assets/systeme-
(Recommendations), 
politique/gouvernement/comite-ethique/recommandations/20240409-recommandations-comit-
dthique.pdf.  

2024, 

April 

10 

Deontology Committee (2024b), Recommendations to the Government (Recommendations), 15 July 
2024, 
https://gouvernement.lu/dam-assets/systeme-politique/gouvernement/comite-
ethique/recommandations/20240715-recommandations.pdf.  

Deontology  Committee  (2024c),  Internal  Regulations  of  the  Deontology  Committee,  (Règlement 
d’ordre  intérieur  du  Comité  de  Déontologie),  11  December  2024,  https://gouvernement.lu/dam-
assets/systeme-politique/gouvernement/comite-ethique/20250127-cd-roi-version-publier.pdf.    

Deontology Committee (2025a), 2024 Annual Report (Rapport d’activités du Comité de déontologie), 
27 
January  2025,  https://gouvernement.lu/dam-assets/systeme-politique/gouvernement/comite-
ethique/rapport-annuel/20250127-cd-rapport-annuel-dactivits.pdf. 

Deontology  Committee  (2025b),  Internal  Order  (Règlement  d’Ordre  Intérieur  du  Comité  de 
Déontologie).  Published  as  part  of  annexes  D  and  F  to  the  Internal  Order  of  the  Government 
(Règlement interne du Gouvernement) in its version of March 2025. 

Luxembourg (2024a), Mémorial A No 336/2024, Law of 24 July 2024 creating judicial attaché posts 
(Mémorial A No 336/224, Loi du 24 juillet 2024 portant création de postes d’attaché de justice). 

Luxembourg (2024b), Draft law no. 8299A on the multi-year recruitment programme for the judiciary 
(Projet de loi n°8299A sur le programme pluriannuel de recrutement dans la magistrature).  

Luxembourg (2024c), ‘Draft law no. 8299B on the creation of a reserve pool of magistrate positions 
at the  National  Council  for  Justice’ (Projet  de  loi  n°8299B  sur  la  création  d’un pool  de  réserve de 
postes de magistrat auprès du CNJ).  

Luxembourg  Government,  Ministry  of  Justice  (2024),  Ensuring  effective  justice:  Adoption  of  an 
ambitious  multiannual  recruitment  programme  in  the  judiciary  (Garantir  une  justice  efficace: 
Adoption d'un programme pluriannuel de recrutement ambitieux dans la magistrature), Press release  
11 
2024, 
July 
https://mj.gouvernement.lu/fr/actualites.gouvernement2024+fr+actualites+toutes_actualites+communi
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Luxembourg Government (2025a), written input for the 2025 Rule of Law Report (updated version). 

Luxembourg Government (2025b), written input for the 2025 Rule of Law Report regarding the single 
market dimension. 

Luxembourg  Government  (2025c),  written  reply  to  follow-up  questions  for  the  2025  Rule  of  Law 
Report of 10 March 2025. 

Luxembourg,  Government  website,  transparency  registers  for  the  members  of  the  government  and 
their  advisers,  https://gouvernement.lu/fr/systeme-politique/gouvernement/deontologie-declarations-
registres/2023-2028/registres-entrevues.html.  

Luxembourg, Government website, Guichet.lu (general online administrative procedures’ website for 
citizens  in  Luxembourg),  dedicated  webpage  regarding  the  Whistleblowing  Office  (Office  des 

17 

 
 
signalements), 
signalements.html.  

https://guichet.public.lu/fr/citoyens/justice/lanceurs-alerte/alerte-office-

Luxembourg Press Council (2025a), written input for the 2025 Rule of Law Report.  

Luxembourg  Press  Council  (2025b),  The  Judiciary  prohibits  journalists  from  telling  the  truth  (La 
justice 
la  verité),  Press  release  of  27  January  2025, 
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journalistes  de  dire 

interdit  aux 

Luxembourg Police (2025), additional written input. 

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für  das  Transparenzregister  der  Abgeordneten  müssen  noch  geklärt  werden), 
(Details 
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geklaert-werden/67950305.html.  

Luxemburger  Wort  (2025b),  Sobering  judgment  of  the  OKaJu  on  protection  plans  for  minors 
(Ernüchterndes 
Jugendschutzplänen), 
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Okaju 

Urteil 

des 

zu 

National Council for Justice (2025a), Opinion of the National Council for Justice on the parliamentary 
amendments of 3 February relating to draft law 8433 (Avis du Conseil national de la justice sur les 
amendements  parlementaires  du  3  février  relatifs  au  projet  de  loi  8433),  3  February  2025, 
https://cnj.public.lu/fr/publications/avis-cnj-8433.html.  

National Council for Justice (2025b), Recommandation no 2/2025 du Conseil national de la justice sur 
base de l’article 26 de la loi du 23 janvier 2023 portant organisation du Conseil national de la justice, 
Fonctionnement futur de la justice et du Conseil national de la justice (Recommendation No 2/2025 of 
the  National  Council  for  Justice  on  the  basis  of  Article 26  of  the  Law  of  23  January  2023  on  the 
organisation  of  the  National  Council  for  Justice,  Future  Operation  of  Justice  and  the  National 
Council for Justice), 17 February 2025, https://cnj.public.lu/en/publications/recommandation2.html. 

Organization for Economic Cooperation and Development (OECD) (2024), Implementing the OECD 
Anti-Bribery Convention in Luxembourg, Phase 4 Report by the OECD Working Group on Bribery, 4 
March 
https://www.oecd.org/en/publications/2024/03/implementing-the-oecd-anti-bribery-
convention-in-luxembourg_43a6beb2.html. 

2024, 

Organization for Economic Cooperation and Development (OECD) (2025), OECD Regulatory Policy 
Outlook  2025:  Luxembourg,  9  April  2025,  https://www.oecd.org/en/publications/oecd-regulatory-
policy-outlook-2025_56b60e39-en/full-report/luxembourg_1085c010.html. 

Ombudsman for Children and Youth (Ombudsman fir Kanner a Jugendlecher) (2025), written input 
for the 2025 Rule of Law Report. 

StopCorrupt (2025), written input for the 2025 Rule of Law Report.  

Tageblatt  (2025),  ‘Luxembourg  unanimously  for  more  transparency:  The  Chamber  gives  itself  new 
rules  (Luxemburg  einstimmig  für  mehr  Transparenz:  Die  Chamber  gibt  sich  neue  Regeln), 
https://www.tageblatt.lu/headlines/einstimmig-fuer-mehr-transparenz-die-chamber-gibt-sich-neue-
regeln/.  

Transparency 
https://www.transparency.org/en/news/cpi-2024-trouble-at-the-top.  

International 

(2024), 

2024: 

CPI 

Trouble 

at 

the 

top, 

18 

 
 
 
(2025), 
Transparency 
https://www.transparency.org/en/cpi/2024.   

International 

Corruption 

Perceptions 

Index 

2024, 

Virgule (2024), Government more rigorous on transparency (Le gouvernement davantage rigoureux 
transparence),  https://www.virgule.lu/luxembourg/le-gouvernement-davantage-
en  matière  de 
rigoureux-en-matiere-de-transparence/23661203.html.  

19 

 
 
 
Annex II: Country visit to Luxembourg 

The Commission services held virtual meetings in March 2025 with: 

Initiative devoir de vigilance 

•  Administrative Court 
•  Chambre des Députés (Chamber of Deputies, Parliament) 
•  Comité de déontologie (formerly: Ethics Committee) 
•  Commission for access to documents 
•  Committee for the Prevention of Corruption (COPRECO) 
•  Constitutional Court 
•  Consultative Commission for Human Rights (CCDH) 
•  Council of State 
•  Finance & Human Rights 
•  Groupement des magistrats Luxembourgeois 
• 
•  Les Barreaux de Luxembourg et de Diekierch 
•  Luxembourg Association of Journalists (ALJP) 
•  Luxembourgish Media Regulator (ALIA) 
•  Luxembourg Press Council 
•  Ministry of Foreign and European Affairs 
•  Ministry of Home Affairs 
•  Ministry of Justice 
•  Ministry of State 
•  National Council for Justice 
•  Ombudsman 
•  Ombudsman for Children and Youth (Ombudsman fir Kanner a Jugendleche, Okaju).  
•  Police grand-ducale 
•  Prosecution service 
•  Radio 100,7 
•  StopCorrupt 
•  Supreme Court of Justice  

* The Commission also met the following organisations in a number of horizontal meetings:  

•  Amnesty International 
•  Araminta 
•  Civil Liberties Union for Europe  
•  Civil Society Europe  
•  European Civic Forum  
•  European Partnership for Democracy 
•  European Youth Forum, 
• 
• 
•  JEF Europe 
•  Philea – Philanthropy Europe Association. 

International Commission of Jurists  
International Federation for Human Rights (FIDH) 

20 

 
 
 
•  Transparency International  

21