COMMISSION STAFF WORKING DOCUMENT 2025 Rule of Law Report Country Chapter on the rule of law situation in Sweden 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

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EUROPEAN
COMMISSION
Strasbourg, 8.7.2025
SWD(2025) 927 final
COMMISSION STAFF WORKING DOCUMENT
2025 Rule of Law Report
Country Chapter on the rule of law situation in Sweden
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
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ABSTRACT
In Sweden, the level of perceived judicial independence continues to be very high among the
general public and is now high among companies. The Government presented proposals
amending the Constitution to further strengthen judicial independence, in particular as
regards judges’ appointments, disciplinary procedures, and establishing a more independent
court administration agency. The debate on strengthening safeguards to ensure independence
in the nomination of lay judges is still ongoing but has not yet led to any changes. The
Swedish courts were granted increased financial resources to deal with an increase in cases
and to increase security at courts. Swedish judges’ salaries are set within the parameters of a
collective agreement between the National Courts Administration and the trade union
representing judges, and reviewed annually based on an individual assessment. Initiatives
related to the right to an effective remedy are on-going, including as regards the threshold to
qualify for legal aid. The justice system continues to perform efficiently despite a peak of
incoming cases in 2024.
The perception among experts, citizens and business executives is that Sweden is one of the
least corrupt countries in the world. New legislation on limitation periods has now entered
into force while the Government continues to review criminal legislation in relation to
corruption. The investigation and prosecution of corruption continues to achieve results,
although addressing foreign bribery remains a challenge and law enforcement are concerned
by a possible underreporting of corruption cases. The obligation for agencies under the
Government to prevent corruption is now clarified in law, while some gaps in asset
declaration for public officials remain. A committee recommended reforms to the political
party financing framework and introduction of rules on lobbying, while there hasn’t been any
follow-up so far on the evaluation of the rules on revolving doors. Measures are taken to
address the risk of infiltration of the public service by organised crime through corruption,
such as the adoption of legislation to strengthen background checks of municipal employees.
The independent national regulatory authority, the Swedish Agency for the Media, deals with
an increasing variety of tasks. The Government is preparing to renew the periodic public
service mission with new rules for independence of public service media. The access to
documents framework has been adjusted to counter the misuse of transparency by organised
crime. The overall conditions for journalists remain favourable and the Swedish Agency for
the Media has been tasked to monitor the safety of journalists.
Some stakeholders express concern about the acceleration of legislative preparatory work
which they consider poses challenges to public participation. The Government presented a
proposal amending the Constitution to provide a framework to better deal with serious crises.
It also presented a proposal to strengthen the procedure for amending the Constitution. The
National Human Rights Institution has obtained an A-status accreditation and the
Parliamentary Ombudsmen discharge their mandates effectively. There were further steps on
the legal framework for the funding and operation of civil society organisations, which
entered into force in 2025. The civil society space remains open.
2
RECOMMENDATIONS
Overall, concerning the recommendations in the 2024 Rule of Law Report, Sweden has
made:
• No progress on ensuring that the nomination system of lay judges safeguards their
independence, taking into account European standards on judicial independence.
• No progress on ensuring the appropriate follow-up to the evaluation of the rules on
revolving doors.
• No further progress on strengthening the fight against foreign bribery, by amending the
existing legal definitions to improve on the prosecution of, and final judgments in foreign
bribery cases.
• Significant progress on continuing efforts to ensure that the reforms to the legal
framework for the funding and operation of civil society organisations do not unduly
affect civil society engagement.
On this basis, and considering other developments that took place in the period of reference,
it is recommended to Sweden to:
• Ensure that the nomination system of lay judges safeguards their independence, taking
into account European standards on judicial independence.
• Strengthen the fight against foreign bribery, including through amending the existing
legal framework and improving enforcement.
• Ensure the appropriate follow-up to the evaluation of the rules on revolving doors.
3
I. JUSTICE SYSTEM1
Independence
The level of perceived judicial independence in Sweden continues to be very high among
the general public and is now high among companies. Overall, 76% 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
. Among the general public, the perceived judicial
independence has slightly decreased in comparison with 2024 (78%), although it is higher in
comparison with 2021 (71%). The perceived judicial independence among companies has
slightly decreased in comparison with 2024 (75%), although it is higher in comparison with
2021 (71%).
The Government presented proposals amending the Constitution to strengthen judicial
independence, including by establishing a more independent court administration
agency. To set up such an agency, on 29 April 2025, the Government presented
constitutional3
amendments based on a 2023 report of an all-party committee of inquiry on
strengthening the protection of democracy and the independence of the judiciary (‘2020
committee of inquiry’)4
. The new court administration agency is designed to be more
independent from the Government than the current National Courts Administration, notably
in terms of being headed by a Board – where the majority of members are or have been
judges – and that Board would appoint the agency’s director5
. A decision to remove a Board
member (other than at own request) could be taken only by the Parliament with at least three-
fourths of the voters and more than half of the members of the Parliament having to vote in
favour. The nomination procedure for the Board members will be laid down in legislation. In
that respect, in its 2023 report, the 2020 committee of inquiry proposed that a specific
nomination procedure should be introduced to ensure that the courts have a significant
influence over the composition of the Board and the Government may only appoint a person
who has been proposed for the role of member or a deputy6
. The new agency would
essentially have the same tasks as the National Courts Administration. The constitutional
amendments also cover issues on retirement of judges of the Supreme Courts and other
judges7
, laying down a range for the number of the judges at the Supreme Courts, and a
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
The Swedish Constitution consists of four fundamental laws: the Instrument of Government, the Act of
Succession, the Freedom of the Press Act and, the Fundamental Law on Freedom of Expression.
4
Swedish Government (2025f), and Swedish Government (2023b),.
5
The Board would appoint the Director of the new agency, rather than the Government as is presently the
case for the National Courts Administration. Swedish Government (2025f).
6
The 2020 committee of inquiry considered that the courts should nominate two candidates per one vacant
Board position for the judiciary, out of which the Government should appoint one of the two candidates.
Swedish Government (2023b).
7
The Committee of Inquiry proposed that the Constitution should provide that Supreme Court judges can be
removed from office only if they have reached a statutory retirement age and not apply retroactively. On
application from a Supreme Court judge, the new courts agency would be able to decide upon a higher
retirement age. The Committee of Inquiry considered that the proposals for the Supreme Court judges
should also apply to other judges. The retirement age will be laid down in law. Swedish Government
(2025f),and Swedish Government (2023b).
4
special joint composition with judges of both Supreme Courts8
. For the constitutional
amendments to be adopted, the Parliament must pass two identically worded votes in favour
by simple majority with a parliamentary election between both votes; the next regular
election is foreseen in September 2026. The legislative amendments should enter into force
on 1 January 2027 and the constitutional amendments on 1 April 2027. The Government will
present the relevant legislative amendments after the constitutional proposal.
The Government presented a proposal amending the Constitution to further strengthen
judicial independence, in particular on judges’ appointments and disciplinary
procedures. On 29 April 2025, the Government presented proposals for constitutional
amendments9
. The constitutional amendments strengthen judicial independence by providing
that the Government can appoint judges only after a proposal from a special body, such as the
Judges Proposal Board, where a majority of its members are or have been permanent judges.
At present, all permanent judges are appointed by the Government upon a recommendation
by the Judges Proposals Board. The Government is not bound by the Board’s proposal but
cannot appoint a person who has not first been heard by the Board10
. Furthermore, the 2020
committee of inquiry proposed that a Disciplinary Board for Judges should be established and
consisting of a majority of members who are or have been judges. The Government’s
constitutional amendments extend the right to judicial review in case of dismissal by a body
other than a court. In such judicial review, only permanent judges may take part. It is further
proposed that should a dismissal be decided by any other authority than a court, a majority of
its members must be or have been permanent judges11
. As one part of that process, on 13
May 2025, a committee of inquiry presented a report for future legislative provisions on
disciplinary procedures for permanent judges, establishment of a Disciplinary Board for
Judges and adjustments to the Judicial Proposals Board. The report has been referred for
public consultation until 26 September 202512
. The work on the different strands is expected
to be completed once the legislative amendments enter into force on 1 January 2027 and the
constitutional amendments on 1 April 2027.
Although the debate on the nomination system for lay judges continues, there was no
progress made on the 2024 recommendation13. Lay judges in Sweden are nominated
exclusively by the political parties and elected by municipal councils or county council
assemblies14
. A national debate on the role of political parties in the nomination process of
lay judges is ongoing. The link between the lay judges and the political parties that nominate
them has given rise to public concern about perceptions of lay judges’ independence and
impartiality in some cases. The Swedish National Courts Administration noted that each year
8
This may be appropriate, for example, if EU law is unclear in a particular area or a question arises as to
whether the Supreme Court or the Supreme Administrative Court are entitled to deal with a particular case.
9
Swedish Government (2025f) Strengthening the protection of the independence of courts and judges.
10
If the Government intends to appoint a person not proposed by the Board, it has to refer the matter back to
the Board. 2020 Rule of Law Report, Sweden, p. 4.
11
According to the new constitutional provision, where a judge has been removed from office otherwise than
by a decision of a court, they are entitled to a judicial review. The same applies where a judge has been
suspended from his or her duties, ordered to undergo a medical examination or disciplined. The court
considering the case consists of permanent judges only, with a majority of members who are or have been
judges on any other deciding body.
12
Swedish Government (2025j).
13
The 2024 Rule of Law Report recommended to Sweden to “ensure that the nomination system of lay judges
safeguards their independence, taking into account European standards on judicial independence”.
14
2024 Rule of Law Report, Sweden, p. 6.
5
a few instances attract media attention, and serious irregularities can lead to a mistrial15
.
Many stakeholders argue for a change of the nomination system16
. The Government has not
taken any specific steps to implement the recommendation of the 2024 Rule of Law Report17
and therefore no progress has been made.
Quality
The digitalisation of justice in Sweden continues to be at a very good level overall. There
are procedural rules allowing digital technology in courts in civil, commercial,
administrative, and criminal cases, as well as online information about the judicial system for
the general public18
. Efforts are ongoing to ascertain how legal information can be provided
to the public in a digital, uniform, secure and efficient manner based on the users’ needs19
. In
2024, the Swedish National Courts Administration also took further steps towards making the
case management process completely digital, by introducing the ability to sign judgments and
decisions digitally20
. Nevertheless, some gaps remain on digital solutions to conduct and
follow criminal proceedings. These gaps include the possibility for victims and defendants to
access their ongoing case electronically, accessing first instance court judgments online, or
arrangements for machine readability of judgments21
.
The Swedish courts were granted increased financial resources for the period of 2025-
2027 to deal with an increase in cases and to increase security at courts. This increase in
resources was part of a broader investment in the entire justice system. The additional
resources for the courts are meant to manage an increase in cases and to increase security in
the courts22
. Stakeholders in the judicial system consider that the financial resources for the
period 2025-2027 are sufficient23
. The National Courts Administration expects that most of
the courts will use the additional funds for further recruitments and investments in security24
.
To strengthen the security of the courts, the National Courts Administration also submitted a
proposal to the Government for a constitutional amendment to enable background checks
during the recruitment phase for court employees to reduce the risk of criminal infiltration
and irregularities25
.
Swedish judges’ salaries are set within the parameters of a collective agreement between
the National Courts Administration and the trade union representing judges, and
reviewed annually based on an individual assessment. In October 2024, the European
15
National Courts Administration (2025), written input.
16
Country visit Sweden, Judges Association, Bar Association, Swedish Institute for Human Rights, Civil
Rights Defenders and the Swedish Section of the International Commission of Jurists. The Swedish Lay
Judges Association considers that the challenges concerning the perception of lay judges’ independence and
impartiality could be addressed with better training of lay judges and the political parties that nominate
them. Country visit Sweden, Swedish Lay Judges Association; ENNHRI (2025).
17
Swedish Government (2025a) written input.
18
2025 EU Justice Scoreboard, figure 40 and 41.
19
The National Courts Administration submitted a report to the Government on 28 May 2025. National
Courts Administration (2025a).
20
Swedish Government (2025a), written input, p. 2.
21
2025 EU Justice Scoreboard, figures 46, 47 and 48.
22
Swedish Government (2024f). From 2025 to 2027, their budget will increase from approximately EUR 744
million to EUR 799 million (SEK 8.2 billion to SEK 8.8 billion).
23
Country visit Sweden, Judges Association, National Courts Administration, Prosecution Service.
24
Each court is its own Government agency, and consequently has its own budgetary responsibility and can
use the resources as they see fit. National Courts Administration (2025), written contribution.
25
Swedish Government (2024a).
6
Association of Judges adopted a resolution, urging the Swedish Government to replace the
existing salary system with a system which fully excludes any possible impact on judicial
independence, in line with well-established international standards26
. Swedish judges’
salaries are set within the parameters of a collective agreement, between the trade union
representing judges the National Courts Administration for newly appointed judges, but are
then subject to review on an annual basis between the judge and the responsible court
president27
. A survey commissioned by the Swedish Judges’ Association highlighted the
challenges of Swedish judges related to the existing salary system28
. The Swedish Judges’
Association considers that this remuneration system is not transparent and is vulnerable to
interference through the remuneration of (individual) judges. The Swedish Judges’
Association considers that the system has not alleviated problems with recruitment of judges,
which was the intention of its introduction in 2005.
Initiatives related to the right to an effective remedy are on-going. In January 2025, an
all-party committee tasked with investigating issues relating to the protection of fundamental
rights and freedoms delivered its report on possible amendments to the Constitution29
. In
particular, it noted that Swedish law does not contain a generally applicable rule on the right
to judicial review at constitutional level30
, whereas such provisions are included in the
European Convention on Human Rights and the EU Charter of Fundamental Rights. The
committee proposed that the right to judicial review should be enshrined in the Constitution31
.
Another issue linked to effective remedy has been explored since the Government mandated
an inquiry in 202432
to examine specific questions related to legal assistance, including as
regards the review of the threshold for legal aid under the Legal Aid Act. The threshold for
legal aid in civil cases has not been adjusted to inflation since 1999 and, as a result, the
number of persons qualifying for legal aid has steadily decreased in the past decades33
. As
regards administrative courts, stakeholders have pointed out that particular challenges exist
with regard to effective judicial redress34
. These concern, in particular, the fact that based on
a ruling of the Supreme Administrative Court35
, individuals do not get their costs reimbursed
in the administrative court procedures, even if they win their case, but need to start a new
court procedure in the general courts to this end. The inquiry will also consider whether, in
certain cases, individuals should be able to obtain reimbursement of legal costs in the context
26
European Association of Judges (2024), Resolution concerning the Remuneration of Judges in Sweden.
27
The salaries are based on a collective agreement between the National Courts Administration and the Trade
Union representing judges which states that remuneration may never be based on grounds contradictory to
the interest of independence regarding the application of the law. The agreement sets minimum levels of
pay. Swedish Government (2020), written input, pp. 7-8.
28
2024 Rule of Law Report, Sweden, p. 10.
29
Swedish Government (2025b).
30
The right to judicial review is laid down in individual laws, for example in the Code of Judicial Procedure,
the Administrative Procedure Act and the Administrative Procedure Act, as well as in a large number of
sectoral laws. Swedish Government (2025i), p. 68-69.
31
Swedish Government (2025b).
32
Swedish Government (2024b).
33
In addition, individuals that qualify for the aid have to pay a legal aid fee between 2% and 40%. 2023 Rule
of Law Report, Sweden, p. 9. The threshold for the amount of earned income remains at SEK 260 000 per
year. The average salary in Sweden in 2023 was approximately EUR 43 464 (SEK 478 800). Dagens
Juridik (2025), "The Legal Aid Institute is a castle in the air and a threat to the rule of law 2.0".
34
In this context, stakeholders referred to a report noting that public authorities or private bodies conferred a
public function can also exclude the possibility of a judicial review or obtaining compensation for damage
from the state for administrative decisions that were ruled to be illegal. Centrum for Rättvisa (2025),
Report: No chance against the authorities?; ENNHRI (2025).
35
Judgment of the Supreme Administrative Court of 4 March 2022, case 6184-19.
7
of a case before an administrative court. .. The inquiry report should be submitted by 1
August 2025.
Efficiency
The justice system continues to perform efficiently despite a peak of incoming cases in
2024. The number of incoming civil and commercial litigious cases has remained
comparatively low in 2023, while the number of incoming administrative cases remains the
highest among EU Member States. The estimated time needed to resolve litigious civil and
commercial cases at all court instances remains comparatively short (in 2023, 157 days at
first instance, 108 days at second instance and 150 at third instance). The estimated time
needed to resolve administrative cases at all court instances was among the lowest among the
Member States (in 2023, 83 days at first instance, 72 days at second instance and 86 at third
instance). The clearance rate for civil and commercial litigious cases has decreased (97% in
2023 compared to 102% in 2022) yet improved for administrative cases (105% in 2023
compared to 103% in 2022). The number of pending litigious civil and commercial cases at
first instance is one of the lowest among Member States36
. According to the National Courts
Administration, in 2024, the courts had the highest ever number of incoming (507 851, an 8%
increase compared to 2023) and decided cases (504 398, a 6% increase compared to 2023)37
.
The increase in cases has been most marked at the Supreme Court, where the number of
pending cases has continued the negative trend (2 774 pending cases at the end of 2024 as
compared to 1 041 pending cases at the end of 2020)38
.
II. ANTI-CORRUPTION FRAMEWORK
The perception among experts, citizens and business executives is that Sweden is one of
the least corrupt countries in the world. In the 2024 Corruption Perception Index by
Transparency International, Sweden scores 80/100 and ranks fourth in the European Union
and eight globally39
. This perception has deteriorated over the past five years40
. The 2025
Special Eurobarometer on Corruption shows that 51% of respondents consider corruption
widespread in their country (EU average 69%) and 12% of respondents feel personally
affected by corruption in their daily lives (EU average 30%). As regards businesses, 45% of
companies consider that corruption is widespread (EU average 63%) and 16% consider that
corruption is a problem when doing business (EU average 35%). Furthermore, 29% of
respondents find that there are enough successful prosecutions to deter people from corrupt
practices (EU average 36%), while 51% of companies believe that people and businesses
caught for bribing a senior official are appropriately punished (EU average 33%)41
.
The 2024-2027 Action Plan against corruption and undue influence is the main strategic
document in the fight against public sector corruption and continues to be implemented.
The ‘Action Plan against corruption and undue influence 2024-2027’ was adopted in July
36
2025 EU Justice Scoreboard, figures 2, 3, 6, 8, 10, 11, and 13.
37
National Courts Administration (2025), The annual report for 2024 is submitted to the Government.
38
Swedish Supreme Court (2025), Activity report of the Supreme Court, p. 49.
39
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).
40
In 2020 the score was 85, while, in 2024, the score is 80. 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.
41
Data from Special Eurobarometer 561 (2025) and Flash Eurobarometer 557 (2025).
8
202442
. The Agency for Public Management, with its expanded and more permanent anti-
corruption role, is implementing the main workstrands. These include further analysis of how
Government agencies and local government implement their anti-corruption obligations, as
well as study work on the perception of corruption of government employees43
. Linked to the
new Action Plan, the Government has asked the OECD to conduct an integrity review44
. Civil
society is satisfied with the broad consultations to prepare the Action Plan as well as its
expanded scope45
where the private sector was not involved46
. A governmental Anti-
Corruption Forum will propose recommendations by the end of 2025 on how to strengthen
the Government’s policy to prevent corruption47
.
New legislation on limitation periods was adopted and the Government continues to
work on reviewing criminal law legislation in relation to corruption. A law proposed by
the Government in November 2024 to extend limitation periods for serious crimes – notably,
from ten to fifteen years for serious bribery offences48
was adopted by Parliament in February
2025 and entered into force in April 202549
. The law also ensures that the imposition of an
imprisonment sentence is not subject to limitation periods. The new confiscation regime that
entered into force in November 2024 includes the possibility to confiscate unexplained
wealth. The committee of inquiry established in February 202450
with a broad mandate to
review criminal law legislation on corruption, continues its work. It is expected to present its
recommendations by the end of July 2025.
While the work of the relevant committee is ongoing, there has been no further progress
on the recommendation concerning the fight against foreign bribery in the absence of
improvement on the legal definitions and the prosecution of foreign bribery cases51.
Legal limitations, including as regards the definition of foreign bribery and the liability of
legal persons persist and hinder enforcement, as again highlighted by the OECD in December
202452
. Amending the applicable legislation in relation to foreign bribery is one of the
objectives of the committee that will examine criminal law legislation in the fight against
corruption53
. Both the OECD and civil society doubt that enforcement difficulties can be
addressed without legislative change54
. Difficulties to gather the necessary evidence, and
complex mutual legal assistance requests with some third countries further hamper
enforcement55
. Therefore, as the legal definitions of foreign bribery remain limited and there
42
2024 Rule of Law report, Sweden, pp. 12-13.
43
Country visit Sweden, Agency for Public Management and Ministry of Finance; and Swedish Government
(2025), written input, p. 33.
44
Swedish Government (2025), written input, p. 3. In essence, an integrity review is a broad review of the
country’s preventative anti-corruption policies.
45
Country visit Sweden, Transparency International.
46
2024 Rule of Law Report, Sweden, p. 12-13.
47
Country visit Sweden, Agency for Public Management.
48
Gross giving of a bribe and gross taking of a bribe.
49
Swedish Government (2025), written input, p. 7.
50
2024 Rule of Law report, Sweden, pp. 13-14.
51
The 2024 and 2023 Rule of Law Reports recommended to Sweden to ‘strengthen the fight against foreign
bribery, including through amending existing legal definitions and improving on prosecution and final
judgments of cases’.
52
Sweden’s insufficient action leaves companies unpunished for foreign bribery offences, says OECD
Working Group on Bribery. OECD (2024a), p. 7 and OECD (2024b).
53
2024 Rule of Law report, Sweden, p. 14.
54
OECD (2024a), p.4, OECD (2024b) and Country visit Sweden, Prosecution Service and Transparency
International.
55
OECD (2024a), pp. 29-30 and Country visit Sweden, Prosecution Service.
9
is no improvement in the prosecution of foreign bribery cases, there has been no further
progress on the recommendation made in the 2024 Rule of Law Report.
The investigation and prosecution of corruption continues to achieve results, although
law enforcement is concerned by the possible underreporting of corruption cases. The
Prosecution Authority and the Police Authority consider that they have a sufficient level of
resources56
, although issues over the staffing and performance of the Police Authority’s
intelligence unit in corruption cases remain57
. These authorities continue to have a generally
good cooperation and achieve results in the fight against corruption. Data from the National
Council for Crime Prevention indicates that, following an increase in reported bribery cases
in 2023, reports have decreased to 76 cases for passive bribery and 67 cases for active bribery
in 202458
. In 2023, prosecutions were initiated for 166 bribery offences and 50 convictions
were obtained in bribery cases, with one resulting in imprisonment59
. The Police assumes that
the actual number of corruption cases is much higher but is underreported, citing a lack of
incentive to report such conduct, for example at local level or in the private sector60
. In
addition, the phenomenon of “corruption brokers” – where brokers act as middlemen
searching for bribes – is on the rise61
. A new financial intelligence centre, based on the
cooperation between the Tax Authority, the police and the Economic Crime Authority was
set up on 1 April 2025 to better combat fraud, money laundering and the criminal economy.
The authorities expect that the new setup could also help detect corruption62
. Sweden joined
the European Public Prosecutor’s Office in 2024 and the prosecutors report good
cooperation63
.
The obligation for agencies under the Government to prevent corruption is now
clarified in law, while some gaps in asset declaration for public officials remain. Sweden
relies on a strong culture of transparency, where ethical guidance is decentralised, and each
individual ministry and Government agency is responsible for its own ethical guidelines64
.
The obligation for each agency to implement a corruption prevention policy is now more
clarified in law65
. A handbook summarising guidance for top-level officials on topics such as
conflicts of interest, restrictions when leaving office and rules on travel is available66
. The
ethical guidelines for all civil servants of the Government Offices (Regeringskansliet) remain
under revision without a clear timeline67
. Asset declaration obligations of ministers and state
56
Country visit Sweden, public prosecution service and Police Authority. See also 2024 Rule of Law Report,
Sweden, pp. 14-15.
57
2024 Rule of Law Report, Sweden, pp. 14-15 and Country visit Sweden, Public Prosecution Service.
58
In 2022, there were 80 reports on passive bribery, whereas in 2023 the number of reports on passive bribery
was 115. For active bribery, there were 90 reports in 2022 and 146 in 2023. National Council for Crime
Prevention (2025) and Public Prosecution Service (2025).
59
Overall, there were 72 convictions and 2 cases that resulted in imprisonment for all corruption offences
including bribery and trading in influence. Ibidem.
60
Police National Anti-Corruption Unit (2024) and Country visit Sweden, Police Authority.
61
This includes for example in the motor vehicle inspection sector or the financial sector (lending). Police
National Anti-Corruption Unit (2024) and Country visit Sweden, Police Authority.
62
The centre should be fully operational by 31 December 2027. Swedish Government (2025), written input, p.
4 and Country visit Sweden, Ministry of Finance and Economic Crime Authority.
63
Swedish Government (2025), written input, p. 4.
64
2024 Rule of Law Report, Sweden, pp. 16-17.
65
Regulation clarifying the responsibilities of government managers in the prevention of corruption. It entered
into force on 1 July 2025.
66
GRECO Fifth evaluation round – second compliance report, recommendation ii, paragraphs 14-22.
67
Country visit Sweden, Ministry of Justice and Ministry of Finance
10
secretaries68
do not include information on significant liabilities or information on their
spouses and some dependent family members69
. Various categories of officials, including
senior law enforcement officials, do not need to declare assets70
. The Government does not
plan to further amend the asset declaration regime71
, despite the pending recommendation of
GRECO72
.
An all-party committee of inquiry recommended to introduce lobbying rules, including
a transparency register. There are still no rules on how to engage with lobbyists and on
disclosure of lobbying contacts, as also noted by GRECO73
. An all-party committee
mandated to consider whether there is a need to strengthen transparency regarding contacts
between political decision-makers and lobbyists74
recommended in May 2025 that the
Government should introduce – for the first time – clear rules on lobbying. In particular, it
recommended introducing a transparency register where lobbyists would need to register
their contacts with the political level three times per year75
. The Government will examine
the report and announce a possible follow-up in the future.
There has been no progress to follow up on the inquiry on rules on revolving doors, as
the Government has not announced any action in response to the report of the
committee76. The Government continues to reflect on the results of the inquiry and has not
yet taken any position on future legislative (or other) changes to the rules on revolving
doors77
. A committee of inquiry concluded in 2023 that the rules on revolving doors, while fit
for purpose, should be amended, for example to extend the transitionary restrictions to a
wider scope of individuals namely heads of Government agencies, and to allow for the
possibility to widen the scope to lower-level employees executing critical functions78
. In
2024, the Board for the Examination of Transitionary Restrictions received a total of three
reports. The Board did not impose restrictions concerning the content of the future
employment in any of these cases79
. Given that the Government is still examining the follow-
68
Ministers and state-secretaries are required to declare their financial interests; the declaration needs to be
supported by statements from banks and/or stockbrokers. These are checked by the Government Offices
and may be provided to the public upon request (GRECO Fifth evaluation round – compliance report,
recommendation viii, paragraphs 50-52).
69
2022 Rule of Law Report, Sweden, p. 11.
70
As regards senior public officials, if it is necessary with regard to the existence of inside information within
an authority, the Government may decide that the authority’s management must report their holdings of
financial instruments. In such cases senior public officials at central level such as heads of central executive
authorities, Secretaries-General, Directors-General, etc are covered. The authority may, in turn, decide that
other employees and contractors that have access to inside information as a part of their employment must
be covered by the same reporting obligations. See also 2024 Justice Scoreboard, Figures 60, 61, and 62.
71
Country visit Sweden, Ministry of Justice.
72
Reconfirmed in the GRECO Fifth evaluation round – Second Compliance report. The GRECO Fifth
Evaluation Round – Addendum to the Second Compliance Report confirmed that recommendation viii on
the control of asset declarations was implemented, while the recommendation vii on the inclusion of
significant liabilities and declarations for spouses and dependent family members remains to be
implemented.
73
Reconfirmed in the GRECO Fifth evaluation round –Second Compliance report.
74
2024 Rule of Law Report, Sweden, pp. 17-18 .
75
2023 Transparency Committee
76
The 2024 Rule of Law Report recommended to Sweden to ‘‘ensure the appropriate follow-up to the
evaluation of the rules on revolving doors”.
77
Country visit Sweden, Ministry of Justice and Ministry of Finance.
78
2024 Rule of Law report, Sweden, p. 18.
79
Board for the Examination of Transitionary Restrictions for Ministers and State Secretaries (2025).
11
up to its conclusions, there has been no progress on implementing the recommendation from
the 2024 Rule of Law Report.
An all-party committee of inquiry recommended reforms to the framework for political
party financing to increase transparency. An all-party committee recommended reforms
following a review of the transparency of financing of political parties80
. The committee
recommended to completely prohibit anonymous donations and foreign contributions. It also
recommended to introduce an obligation for parties to cover expenses, assets and debts (and
not only income) in their financial disclosures81
. The inquiry does not see the need to strictly
regulate donations of trade unions to political parties, while providing some options on how
this could be achieved, in line with its mandate82
The Government will now examine the
report and announce a possible follow-up in the future. The Legal, Financial and
Administrative Services Agency (Kammarkollegiet), responsible for the oversight of political
party financing, opened a total of 10 enforcement cases in 202483
. The political party
financing disclosures remain publicly available on the website of the Agency.
The 2021 Whistleblowers Act continues to be implemented, although some issues are
noted with corruption-related reports84
. The Police Authority received few whistleblower
reports in relation to corruption allegations. The Authority considered that the general quality
of reports was low – i.e. there is rarely sufficient actionable information for the Police to start
an investigation85
. Civil society considers that more awareness-raising is needed, as people
often report unrelated labour issues instead of submitting actionable whistleblower reports86
.
Measures are being taken to address the risk of infiltration of the public service by
organised crime through corruption, such as the adoption of legislation to strengthen
background checks of municipal employees. Businesses’ attitudes towards corruption in
the EU show that 32% of companies in Sweden (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 years87
. 64% of companies perceive the level of independence of the public
procurement review bodies (administrative courts) as very or fairly good88
. The Single
Market and Competitiveness Scoreboard on access to public procurement in Sweden reports
11% of single bids for 2023 (EU average 29%). Public procurement remains one of the main
corruption risk areas, which is being addressed in the new Anti-Corruption Plan89
and the
committee of inquiry focused on criminal law reforms related to corruption90
. According to
businesses, high local and regional subsidiarity results in fragmented public procurement
processes, and the system shows an overall lack of transparency91
. For the Government,
addressing the possible infiltration of organised crime actors in the public service continues
80
2024 Rule of Law Report, Sweden, pp. 18-19.
81
2023 Transparency Committee.
82
2023 Transparency Committee.
83
The Legal, Financial and Administrative Services Agency (2025), pp. 69-70.
84
Act on Protection of Persons who Report Wrongdoings, 2021:890.
85
Country visit Sweden, Police Authority and Special Investigations Department.
86
Country visit Sweden, Transparency International.
87
Flash Eurobarometer 557 on Businesses’ attitudes towards corruption in the EU (2025). This is the same as
the EU average.
88
Figure 59, 2025 EU Justice Scoreboard.
89
See above under section II.
90
One of the issues under discussion is how to better address corruption in public procurement. Swedish
Parliament (2024).
91
Country visit Sweden, Swedish Confederation of Industries.
12
to be a major strategic priority92
. Local authorities are particularly vulnerable due to their
smaller scale despite a still large amount of funds managed93
. This is a focus of the National
Council for Crime Prevention94
. Legislation to strengthen background checks of municipal
employees and allowing further exchange of information among agencies to prevent such
infiltration came into force on 1 June 202595
. Further analyses are ongoing to idenitfy the
extent of the risk96
.
III. MEDIA PLURALISM AND MEDIA FREEDOM
The independent national regulatory authority, the Swedish Agency for the Media,
deals with an increasing variety of tasks. The Agency considers to have adequate resources
for its operations. Its financial resources were increased in 2024 to address new functions,
including those deriving from the Digital Services Act97
. It has also started new tasks linked
to the promotion of media and information literacy and the safety of journalists. In parallel,
the Agency has received and processed applications for financial support under the Media
Subsidies Act and has been tasked to analyse the impact of the support98
. The envisaged
temporary support scheme helping current affairs and news journals to adapt to new digital
market conditions has been discarded. This is because a public consultation revealed a need
for more permanent support with a larger scope99
. The MPM 2025 continues to maintain a
very low risk regarding the independence and effectiveness of the media authority100
.
The Government is preparing to renew the periodic public service mission with new
rules for independence of public service media. The Government is working on the
upcoming renewal of the public service mission 2026-2033. A Government bill on a new
Public Service Act, including amendments to the existing Radio and Television Act was
submitted to the Parliament in May 2025101
. The objectives of the new Act include to further
clarify the remit of the public service mission, financing, the appointment of board members
and the chief executive officer, and the conditions for content not directly related to television
or radio broadcasting in the terrestrial network102
. The reform also aims to align the national
legislation with the European Media Freedom Act, including in respect of independence
92
2024 Rule of Law Report, Sweden, pp. 15-16 and Swedish Government (2025), written input, pp. 3-5.
93
Country visit Sweden, Economic Crime Authority and Public prosecution service; and Police National
Anti-Corruption Unit (2024), p. 2.
94
In framework of the plan, the Agency for Public Management will carry out work regarding the protection
of local elected officials and the prevention of corruption through internal control mechanisms at local and
regional level. The Agency for Public Management and National Council for Crime Prevention will support
the work against undue influence in the public administration. It will do so by creating and evaluating
support materials and increasing awareness of the phenomenon, and report to the Government on its work
by May 2026 Country visit Sweden, Agency for public management and Swedish Government, written
input, pp. 3-5.
95
Ministry of Justice (2024) and Ministry of Justice (2025b).
96
The National Council for Crime Prevention published a report on how system-threatening actors use illicit
influence against politically elected representatives. The Swedish Association of Local Authorities and
Regions (SKR) has been given a similar task regarding regions and municipalities and submitted a report in
March 2025.
97
This increase was by approximately €562 900 (SEK 6.2 million).
98
Swedish Agency for the Media (2025a), Swedish Agency for the Media (2024b) and Swedish Agency for
the Media (2025b); Swedish Government (2025h).
99
Swedish Government (2025c).
100
2025 Media Pluralism Monitor, country report for Sweden, p. 10.
101
Swedish Government (2025g).
102
Swedish Government (2025a), written input, p. 10.
13
requirements. The Government bill also includes proposals on guidelines, conditions and
funding for public service media in 2026–2033103
. While the objectives of the reform are
generally welcomed, public service media in Sweden have expressed concerns about some of
the preliminary proposals made by the dedicated parliamentary committee’s report104
, as they
see risks to their independence. These are related to the sufficiency of the public service
media’s future funding and ensuring an unbiased analysis of their productivity, impartiality
and efficiency105
. Other stakeholders have asked for more thorough consideration of the
sustainability of financing106
. Increasing statements regarding an alleged lack of impartiality
in public service media were mentioned as a growing risk107
. The MPM 2025 continues to
report a very low risk concerning the independence of public service media108
.
The Government plans to reform the licensing of commercial radio channels. The
Government continues to work on a proposal aiming to set conditions for revoking
broadcasting licenses where there is a risk to national security109
. In parallel, a Government
bill has been submitted to the Parliament that aims to reform the licensing of commercial
radio channels. The proposed amendments in the Radio and Television Act aim to improve
the long-term sustainability of commercial radio operations and support independent media
by having the same tendering procedure for the licencing of both analogue and digital
commercial radio channels. The new rules would also replace the current upfront
broadcasting fee with an annual fee based on the market value of the licence and is largely
supported by Swedish media stakeholders110
. A mapping prepared by the Swedish Agency
for the Media and research carried out by an academic knowledge centre show that media
ownership of radio, television, streaming and daily newspapers is becoming increasingly
concentrated111
. The MPM 2025 continues to give a high-risk score for the plurality of media
providers in Sweden112
.
The access to documents framework has been adjusted to counter the misuse of
transparency by organised crime. Legislation on access to documents generally guarantees
wide availability of information and the MPM 2025 maintains a low risk in the field of
protection of the right to information113
. New exceptions to the right to information have been
introduced to the Public Access to Information and Secrecy Act to counter the misuse of
transparency by organised crime and further amendments are under discussion114
. Journalists
considered that the amendments have collectively, to some extent, decreased the traditionally
high level of transparency115
. In November 2024, an inquiry presented its report on enhanced
protection of personal data in the area of freedom of the press and freedom of expression,
103
Country visit, Ministry of Culture.
104
Swedish Government (2024c).
105
Country visit, Swedish Television (SVT), Swedish Radio (SR) and Swedish Educational Radio (UR); SR
(2024); Public Media Alliance (2024).
106
Swedish Union of Journalists (2024), Swedish Financial Management Agency (2024).
107
Country visit Sweden, Media ombudsman and SVT.
108
2025 Media Pluralism Monitor, country report for Sweden, p. 19.
109
2024 Rule of Law Report, Sweden, p. 21; Country visit, Ministry of Culture and the Swedish Agency for
the Media.
110
Swedish Government (2025e), Swedish Government (2025a), written input p. 10-11; Country visit,
Ministry of Culture.
111
Swedish Agency for the Media (2024a); Nordicom (2024).
112
2025 Media Pluralism Monitor, country report for Sweden, pp. 15-16.
113
2024 Rule of Law Report, Sweden, p. 22; 2025 Media Pluralism Monitor, country report for Sweden, p. 12.
114
Swedish Government (2025k); Swedish Government (2024g); Swedish Government (2024d).
115
Swedish Union of Journalists (2025); Country visit, Swedish Union of Journalists.
14
proposing constitutional amendments regarding the private sector search services that publish
personal data. This concerns personal data available about violations of the law, as well as
individuals’ addresses, telephone numbers, marital status and other data relating to their
personal circumstances116
. Sweden has ratified the Council of Europe Convention on Access
to Official Documents117
.
The overall conditions for journalists remain favourable and the Swedish Agency for
the Media has been tasked to monitor the safety of journalists. Due to its constitutional
protection, the MPM 2025 deems the protection of freedom of expression to carry a low-risk
score in Sweden. Furthermore, journalists in Sweden have generally good working
conditions118
. To support journalists further, the Swedish Agency for the Media has been
officially assigned an ongoing task to monitor journalists’ safety119
. In autumn 2024, it held
seven dialogues with relevant stakeholders120
. A specific report on the state of play regarding
the safety of journalists was adopted, mapping relevant research, legal and societal
initiatives121
. The Government continues to financially support the non-profit organisation
Victim Support Sweden to offer help to journalists and other media workers who need
protection122
. In addition, the Government has decided to increase its support to organisations
that support independent journalists around the world, including through the Reporters
Shield, an international initiative123
. Since the 2024 Rule of Law Report, two new alerts have
been recorded on the Council of Europe’s Platform to promote the protection of journalism
and safety of journalists124
. They concern the vandalisation of the building of the Swedish
Public Broadcaster SVT and a protest outside the home of a Swedish journalist. The Mapping
Media Freedom monitoring report has identified nine alerts125
. Besides the above-mentioned
incidents, these alerts concern surveillance and harassment of certain journalists with
threatening emails and vandalisation of the reception area of the editorial offices of three
private newspapers. The police and media publishers have continued their cooperation to
prevent crimes against journalists, with calls to do more126
.
IV. OTHER INSTITUTIONAL ISSUES RELATED TO CHECKS AND BALANCES
Some stakeholders express concern about the acceleration of legislative preparatory
work, which they consider poses challenges to public participation. In 2024, the
Government launched 304 public consultations on legislative initiatives. The average
deadline for these public consultations was 12.7 weeks127
. As required by the Constitution,
the Government refers a report of a committee of inquiry for public consultation to relevant
116
Swedish Government (2024h).
117
Council of Europe Convention on Access to Official Documents (CETS No. 205), also known as the
Tromsø Convention, entered into force on1 December 2020.
118
2025 Media Pluralism Monitor, country report for Sweden, p. 11.
119
Swedish Government (2025a), written input p. 11; Swedish Agency for the Media (2025c).
120
Country visit Sweden, Ministry of Culture; Swedish Agency for the Media (2025b).
121
Swedish Agency for the Media (2025c).
122
Swedish Government (2025a), written input p. 11.
123
Swedish Government (2024e); 2025 Media Pluralism Monitor, country report for Sweden, p. 5.
124
Council of Europe, Platform to promote the protection of journalism and safety of journalists. Sweden has
responded to one of the two alerts.
125
European Centre for Press and Media Freedom, Media Freedom Rapid Response – Sweden.
126
Country visit, Swedish Publishers’ Association, Swedish Union of Journalists.
127
The shortest identified consultation period was two days, whereas the second and third shortest consultation
periods were one week. The two longest consultation periods were 20 weeks long. Swedish Government
(2025a), written input.
15
bodies, municipalities and counties, as well as from organisations and individuals128
. Some
civil society stakeholders are concerned that the pace of legislative change makes it difficult
to have an overview of initiatives across different sectors, as well as impacting on the quality
of legislation and due consideration for human rights. Stakeholders also considered that
contrary to the established national practice, the terms of reference for inquiries increasingly
tend to pre-determine the desired outcome of the inquiry129
. Since February 2024, the
Government also used shortened inquiry times for nine legislative initiatives considered
urgent and politically important, which overall take about 10-12 months from the launch of
an inquiry until a proposal is presented to Parliament130
. As far as constitutional checks are
concerned, in 2024, the Government submitted 118 legislative proposals to the Council on
Legislation, which gave a negative opinion or seriously questioned 15 proposals. In four
cases, the Government partially adjusted the proposals before them to Parliament, whereas in
six cases the Government submitted the proposals without any adjustments131
.
Over two thirds of the companies surveyed in Sweden express confidence in the
effectiveness of investment protection. 76% of companies are very or fairly confident that
investments are protected by law and courts132
. As regards authorities relevant for economic
operators, 68% of companies perceive the level of independence of the national competition
authority (the Competition Authority) as very or fairly good133
. There are no judicial
mechanisms in place at the level of the Supreme Administrative Court to ensure the
implementation of administrative court judgments134
.
The Government presented a proposal amending the Constitution to provide a
framework to better deal with serious crises. On 5 June 2025, the Government presented
proposals for constitutional amendments aiming to strengthen the constitutional preparedness
and ensure an effective, democratic and legal governance in war and other severe crises135
.
The Government proposes, among other, specific rules on adopting provisions in serious
128
Swedish Government (2025a), written input.
129
Liberties (2025), p. 20-21. Country visit Sweden, National Forum of Voluntary Organisations, Swedish
Institute for Human Rights, Civil Rights Defenders and the Swedish Section of the International
Commission of Jurists. In general, civil society organisations see a continued reduction in Government
interest in civil society consultations. Forum (2025), written input. ENNHRI (2025).
130
2024 Rule of Law Report, Sweden, p. 25. The time for public consultations varies depending on the scope
of the proposals and the urgency of the issue but is normally set to three months and the pre-legislative
inquiry is normally shortened to six months. This procedure is used for initiatives that i) are considered
urgent from a political perspective and could lead to significantly negative consequences for society if the
Government would not act quickly, ii) can be managed through a well-defined assignment with a clear
focus, and iii) need to be dealt with more urgently than within the time deemed necessary through the
application of ordinary working methods. Swedish Government (2025a), written input.
131
In the five remaining cases, the Government submitted a proposal that had been adjusted in accordance with
the views of the Council on Legislation. Where it did not adjust the proposals based on the views of the
Council on Legislation, the Government put forward arguments to the Parliament in support of its position.
Swedish Government (2025a), written input.
132
Figure 54, 2025 EU Justice Scoreboard. Only 8% and 5% 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.
133
Figure 60, 2025 EU Justice Scoreboard.
134
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.
135
Swedish Government (2025l), Strengthened Constitutional Preparedness.
16
peacetime crises to be introduced in the Constitution, which would allow the Parliament, if
needed, to grant the Government specific powers to adopt provision136
. It is also proposed
that the possibilities for the Parliament to convene in difficult situations should be
strengthened. The proposal is based on an all-party committee report. The constitutional
amendments should enter into force on 1 January 2027.
The Government presented a proposal to strengthen the procedure for amending the
Constitution. On 29 April 2025, the Government presented a proposal on the procedure for
amending the Constitution based on the proposals of the 2020 committee of inquiry. At
present, the Parliament can amend the Constitution by passing two identically worded votes
in favour by simple majority, whereby a parliamentary election (ordinary or early election)
must be held between the first and second vote. To strengthen the protection of democracy
and, in line with a proposal of the 2020 committee of inquiry, the Government proposed that
more than half of the members of Parliament must vote in favour of the first and second vote
(quorum) and a two-thirds majority in the Parliament should be required for the second vote
to amend the Constitution. The proposal to amend these constitutional rules is based on a
unanimously endorsed report of the 2020 committee of inquiry. The constitutional
amendments should enter into force on 1 April 2027137
.
The National Human Rights Institution has obtained an A-status accreditation and the
Parliamentary Ombudsmen discharge their mandates effectively. The Swedish National
Human Rights Institute has had adequate funds to carry out its ongoing level of operations,
but it considers the funds would need to be gradually increased to allow it to completely fulfil
its mandate138
. In November 2024, the Institute obtained an A-status accreditation by the
Global Alliance of National Human Rights Institutions (GANHRI)139
. In December 2024, the
Government appointed two new members to the Institute’s Governing Board140
. However,
the Institute expressed concerns that the Government’s appointment process had not
sufficiently safeguarded the Institute’s independence. In accordance with the relevant legal
provisions, the Swedish Bar Association, universities and colleges, and the Institute’s
Advisory Council were invited to submit nominations. The Government chose not to appoint
any of the candidates nominated by the Advisory Council, and one of the individuals the
Government appointed was not nominated by any of the nominating bodies. GANHRI
recommended to Sweden to strengthen the protection of the Institute’s independence by
clarifying the rules for the appointment of Board members141
. The Parliamentary
136
2024 Rule of Law Report, Sweden, p. 21.
137
Swedish Government (2025f), Strengthening the protection of democracy and the independence of the
judiciary. The Government also proposed that the requirement to obtain an opinion from the Council on
Legislation should be extended to include constitutional amendment proposals regarding fundamental
freedoms and rights (presently this applies only to constitutional amendments in the area of freedom of the
press and freedom of expression).
138
The Swedish Institute for Human Rights was allocated approximately EUR 4.58 million (SEK 53.8 million)
for the full year 2025. Swedish Government (2025), written input, p. 12. ENNHRI (2025).
139
Country visit Sweden, Swedish Institute for Human Rights.
140
Swedish Institute for Human Rights (2024a), The Government has appointed two new members to the
Agency's Board of Directors. The Swedish Institute for Human Rights is led by a Governing Board
consisting of the Director agency and seven other members; the latter are appointed by the Government for
a period of five years. The term of two members expired at the end of 2024 and the Government appointed
the new members for the period 2025-2029.
141
Swedish Institute for Human Rights (2024b), The government's appointment process raises concerns about
the institute's independence. The Swedish Bar Association refrained from nominating. The Governing
Board did not make any judgement on the qualifications of the individuals appointed by the Government.
17
Ombudsmen consider that they have adequate resources and report good cooperation142
with
and adequate follow-up given by public authorities to their recommendations. In 2024, the
complaints to the Parliamentary Ombudsmen increased by around 11% to 11 703 in total, the
highest number in the history of that body143
.
On 1 January 2025, Sweden had 1 leading judgment of the European Court of Human
Rights pending implementation, the same number as the previous year144. At that time,
Sweden’s rate of leading judgments from the past 10 years that had been implemented was at
86% (compared to 90% in 2024; 14% remained pending), and the average time that the
judgments had been pending implementation was 3 years and 7 months (compared to 2 years
and 7 months in 2024)145
. The only leading judgment, pending implementation for 4 years,
concerned insufficient safeguards in bulk signals-intelligence gathering146
. As regards the
respect of payment deadlines, on 31 December 2024 there were no cases awaiting
confirmation of payments (same as in 2023)147
. On 16 June 2025, there were no leading
judgments pending implementation left148
.
There was significant progress on the recommendation concerning the legal framework
for the funding and operation of civil society organisations, which entered into force in
2025149. On 1 January 2025, the rules concerning a new “democracy condition”150
applying
to the state’s support to religious communities and to support from the General Inheritance
Fund, entered into force. With this condition, the Government aims to ensure that
organisations or associations that promote extremism, undermine democracy or act contrary
to the fundamental values of society do not receive public funds. It has been working on
introducing the new “democracy condition” in the grant regulations that regulate support to
142
Parliamentary Ombudsmen (2023) Report of the Parliamentary Ombudsmen, p. 18. In 2024 in two
instances, the Parliamentary Ombudsmen have however criticised the Prosecution Authority and the Police
Authority for having failed to live up to constitutional obligations to assist the Ombudsmen. Decisions in
cases 2478-2023 and 5614-2023. In order for the Parliamentary Ombudsmen to fulfil their tasks, they need
access to accurate and complete information. The Parliament’s Constitution Committee underlined the
importance of always complying with the constitutional obligation to provide the Ombudsmen with
information and opinions at their and to assist them in their investigations.
143
Parliamentary Ombudsmen (2024), Report of the Parliamentary Ombudsmen 2024, p. 10.
144
For an explanation of the supervision process, see the website of the Council of Europe.
145
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. 8-9.
146
Judgment of the ECtHR, 35252/08, Centrum for Rattvisa v. Sweden, pending implementation since 2021.
147
Council of Europe (2025), p. 157.
148
Data according to the online database of the Council of Europe (HUDOC).
149
The 2024 Rule of Law Report recommended to Sweden to “continue efforts to ensure that the reforms to
the legal framework for the funding and operation of civil society organisations do not unduly affect civil
society engagement”.
150
MUCF (2024), On 1 January 2025, new conditions for democracy will begin to apply to those who apply
for state grants. An organisation’s purpose needs to be compatible with the values of a democratic society
and it needs to be democratically organised, respect the ideas of democracy in its activities, including the
principles of equality and non-discrimination. A grant may not be awarded if, in the course of its activities,
the organisation or any of its representatives: 1) uses violence, coercion or threats against a person or
otherwise violates a person's fundamental rights and freedoms; 2) discriminates against persons, groups or
otherwise violates the principle of equality; 3) defends, promotes or encourages the behaviour under 1) or
2); or 4) opposes the democratic system of government. Support may also not be granted if one of its
partner organisations, or a representative of the partner organisation, is acting in a manner referred to under
1). If an organisation, its representatives, its partner organisation or its representatives have acted in such a
way that they do not meet the conditions of democracy, they can still be awarded a grant subject to specific
reasons.
18
civil society151
. Such conditions were outlined before in the various regulations on
Government funding and the new rules aim to apply a uniform condition. The Government
has also provided the Swedish Agency for Youth and Civil Society (MUCF), with resources
to support grant-giving bodies in providing grants in a uniform way and to meet the needs of
civil society152
. Stakeholders have highlighted that it will be important to ensure that the new
rules are implemented in a predictable and objective manner 153
. Considering that the new
rules regarding the funding and operation of civil society organisations came into force and
are being progressively implemented, there has been significant progress.
The civil society space remains open. Sweden is considered to have an open civic space154
,
which is overall functioning well155
. However, stakeholders have expressed concerns related
to the increasing uncertainty in public funding, notably in view of the defunding and funding
cuts to certain organisations 156
.
151
Swedish Government (2025a), written input, p. 13-14.
152
ENNHRI (2025)
153
Country visit Sweden, National Forum of Voluntary Organisations, Swedish Institute for Human Rights and
Civil Rights Defenders.
154
According to the rating by CIVICUS. Ratings are on a five-category scale defined as: open, narrowed,
obstructed, repressed and closed.
155
Country visit Sweden, National Forum of Voluntary Organisations, Civil Rights Defenders, Swedish
Institute for Human Rights.
156
As reported already in the 2024 Report, stakeholders referred to the continued impacts in view of the
defunding of certain organisations and funding cuts to organisations involved in development cooperation
student associations, or consumer associations. 2024 Rule of Law Report, Sweden, p. 27. ForumCiv (2024).
19
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 be found at https://commission.europa.eu/publications/2025-rule-law-report-targeted-
stakeholder-consultation_en..
Board for the Examination of Transitionary Restrictions for Ministers and State Secretaries (2025)
Report on the activities of the Board for reviewing the transfer restrictions of ministers and certain
other officials in 2024, https://data.riksdagen.se/fil/594AB75B-3209-4A15-8502-78CD48461AD4
Centre for Media Pluralism and Media Freedom, Monitoring Media Pluralism in the Digital Era in the
year 2024 (2025) Country report: Sweden.
Centrum for Rättvisa (2025), Report: No chance against the authorities? (rapport : Chanslös mot
myndigheterna?), https://centrumforrattvisa.se/ny-rapport-chanslos-mot-myndigheterna/
Council of Europe Convention on Access to Official Documents (CETS No. 205) (2025),
https://www.coe.int/en/web/conventions/full-list?module=signatures-by-treaty&treatynum=205.
Dagens Juridik (2025), The Legal Aid Institute is a castle in the air and a threat to the rule of law 2.0,
(Rättshjälpsinstitutet är ett luftslott och ett hot mot rättssäkerheten 2.0),
https://www.dagensjuridik.se/opinion/rattshjalpsinstitutet-ar-ett-luftslott-och-ett-hot-mot-
rattssakerheten-2-0/
ENNHRI (2025), Sweden Country Report, https://rule-of-law.ennhri.org/node/270.
European Association of Judges (2024), Resolution concerning the Remuneration of Judges in
Sweden, https://www.iaj-uim.org/iuw/wp-content/uploads/2024/10/EAJ-Resolution-on-the-
remuneration-of-judges-in-Sweden.pdf
European Centre for Press and Media Freedom, Media Freedom Rapid Response – Sweden.
European Commission (2024), Sweden officially joins the European Public Prosecutor’s Office,
https://ec.europa.eu/commission/presscorner/detail/en/mex_24_3822
European Commission (2025), EU Justice Scoreboard.
European Court of Human Rights, Judgment of 25 May 2021, Centrum for Rattvisa v. Sweden,
35252/08.
European Implementation Network (2025), Contribution from the European Implementation Network
for the 2025 Rule of Law Report.
Forum (2025), Contribution from Forum for the 2025 Rule of Law Report.
Forumciv (2024), The government's reform of Swedish development assistance is hitting non-profit
organisations hard (Regeringens reform av det svenska biståndet slår hårt mot ideella
organisationer), https://forumciv.org/sv/Tidoattacken
GRECO Fifth Evaluation Round – Second Compliance Report, 15 November 2023,
https://rm.coe.int/fifth-evaluation-round-preventing-corruption-and-promoting-integrity-i/1680ad4732
GRECO Fifth Evaluation Round – Addendum to the Second Compliance Report, 3 April 2025,
https://rm.coe.int/grecorc5-2025-3-final-eng-add-to-the-2nd-compliance-report-sweden-
publ/1680b50a94
20
Legal, Financial and Administrative Services Agency (2025), Annual Report 2024,
https://www.kammarkollegiet.se/download/18.4f1f8bef194d33448f95256a/1740400141885/Kammar
kollegiets%20%C3%A5rsredovisning%202024.pdf
Liberties (2025), Rule of Law Report, https://www.liberties.eu/f/vdxw3e
Ministry of Justice (2024), Extended register checks when hiring in the municipality (Utökade
registerkontroller vid anställning i kommun), https://www.regeringen.se/rattsliga-
dokument/departementsserien-och-promemorior/2024/10/ds-202424
Ministry of Justice (2025a), Government gives additional directives to the 2023 Transparency
Committee (Regeringen ger tilläggsdirektiv till 2023 års insynskommitté),
https://www.regeringen.se/pressmeddelanden/2025/01/regeringen-ger-tillaggsdirektiv-till-2023-ars-
insynskommitte/
Ministry of Justice (2025b), Increased opportunities for register checks to combat corruption and
illicit advocacy (Utökade möjligheter till registerkontroller för att bekämpa korruption och otillåten
påverkan), https://www.regeringen.se/pressmeddelanden/2025/05/utokade-mojligheter-till-
registerkontroller-for-att-bekampa-korruption-och-otillaten-paverkan/
MUCF (2024), On 1 January 2025, new conditions for democracy will begin to apply to those who
apply for state grants (Den 1 januari 2025 börjar nya demokrativillkor att gälla för dig som söker
statsbidrag) https://www.mucf.se/om-oss/aktuellt/den-1-januari-2025-borjar-nya-demokrativillkor-
att-galla-dig-som-soker-statsbidrag
National Courts Administration (2025a), https://www.domstol.se/globalassets/filer/gemensamt-
innehall/rapporter/redovisning_en-saker-och-effektiv-tillgang-till-rattsinformation.pdf
National Courts Administration (2025b), The annual report for 2024 is submitted to the Government,
https://www.domstol.se/domstolsverket/nyheter/2025/02/arsredovisningen-for-2024-lamnas-till-
regeringen/
National Council for Crime Prevention (2025), Contribution from the National Council for Crime
Prevention for the 2025 Rule of Law Report.
Nordicom (2024), Media market concentration increass in Sweden,
https://www.nordicom.gu.se/en/latest/news/media-market-concentration-increases-sweden
OECD (2024a), OECD Anti-Bribery Convention Phase 4 Report Sweden,
https://www.oecd.org/en/publications/2024/12/oecd-anti-bribery-convention-phase-4-report-on-
sweden_ac496ae1.html
OECD (2024b), Sweden’s insufficient action leaves companies unpunished for foreign bribery
activities says OECD Working Group on Bribery, https://www.oecd.org/en/about/news/press-
releases/2024/12/sweden-s-insufficient-action-leaves-companies-unpunished-for-foreign-bribery-
offences-says-oecd-working-group-on-bribery.html
Parliamentary Ombudsmen (2023), Report of the Parliamentary Ombudsmen (Justitieombudsmännens
ämbetsberättelse), https://data.riksdagen.se/fil/C56AFFE2-75F7-45A6-AA48-5AA2F1897E92
Parliamentary Ombudsmen (2024), Report of the Parliamentary Ombudsmen 2024
(Justitieombudsmännens ämbetsberättelse 2024), https://data.riksdagen.se/fil/F16AE8EA-EF61-
40E9-B9CA-1BFAB601A753
21
Police National Anti-Corruption Unit (2024), Annual Report of the National Anti-Corruption Unit,
https://polisen.se/siteassets/dokument/ovriga_rapporter/korruption-i-sverige---en-lagesbild-arsrapport-
fran-nationella-anti-korruptionsgruppen.pdf
Public Media Alliance (2024), Sweden: Public media fear funding proposal is “insufficient”,
https://www.publicmediaalliance.org/sweden-public-media-describe-funding-proposal-as-
insufficient/.
Public Prosecution Service (2025), Contribution from the Public Prosecution Service for the 2025
Rule of Law Report.
Supreme Administrative Court, Judgment of 4 March 2022, case 6184-19.
Supreme Court (2025), Activity report of the Supreme Court (HÖGSTA DOMSTOLENS
VERKSAMHETSBERÄTTELSE),
https://www.domstol.se/globalassets/filer/domstol/hogstadomstolen/verksamhetsberattelser/hogsta-
domstolens-verksamhetsberattelse-2024.pdf
Swedish Agency for the Media (2024a), The media map of the Swedish Agency for the Media shows
an increasing concentration of ownership (Mediemyndighetens mediekarta visar på en ökande
ägarkoncentration), https://mediemyndigheten.se/nyhetsrum/nyhetslista/2024/mediemyndighetens-
mediekarta-visar-pa-en-okande-agarkoncentration/.
Swedish Agency for the Media (2024b), 191 applications for media support (191 ansökningar om
mediestöd), https://mediemyndigheten.se/nyhetsrum/nyhetslista/2024/191-ansokningar-om-
mediestod-for-2025/
Swedish Agency for the Media (2025a), Contribution from the Swedish Agency for the Media for the
2025 Rule of Law Report.
Swedish Agency for the Media (2025b), Annual Report 2024 (Årsredovisning 2024),
https://mediemyndigheten.se/nyhetsrum/nyhetslista/2025/forsta-verksamhetsaret-for-
mediemyndigheten---arsredovisning-2024/.
Swedish Agency for the Media (2025c), Journalists’ Safety – Knowledge Overview (Journalisters
säkerhet – En kunskapsöversikt) https://mediemyndigheten.se/globalassets/rapporter-och-
analyser/2025/journalisters-sakerhet--en-kunskapsoversikt.pdf,
https://mediemyndigheten.se/globalassets/rapporter-och-analyser/2025/journalisters-sakerhet--en-
kunskapsoversikt.pdf.
Swedish Financial Management Agency (2024), Public service in troubled times (Public service i
oroliga tider),
https://www.regeringen.se/contentassets/1ea637356799430dbc3c8a44b10ed531/ekonomistyrningsver
ket.pdf.
Swedish Government (2023a), Secure and efficient access to legal information (Uppdrag om en säker
och effektiv tillgång till rättsinformation),
https://www.regeringen.se/regeringsuppdrag/2023/12/uppdrag-om-en-saker-och-effektiv-tillgang-till-
rattsinformation/https://www.regeringen.se/regeringsuppdrag/2023/12/uppdrag-om-en-saker-och-
effektiv-tillgang-till-rattsinformation/
Swedish Government (2023b), Strengthening the protection of democracy and judicial independence
(Förstärkt skydd för demokratin och domstolarnas oberoende),
https://www.regeringen.se/contentassets/fcde0b9ad7154db5a01527f72b0f4103/forstarkt-skydd-for-
demokratin-och-domstolarnas-oberoende-sou-2023-12.pdf
22
Swedish Government (2024a), Increased possibilities for register checks (Utökade möjligheter till
registerkontroller),https://www.regeringen.se/contentassets/08330e1b747c4951b2715e8433f6c47e/do
mstolsverkets-hemstallan-utokade-mojligheter-till-registerkontroller.pdf
Swedish Government (2024b), Legal aid and the expenses for legal assistance,
https://www.regeringen.se/rattsliga-dokument/kommittedirektiv/2024/04/dir.-
202439#:~:text=R%C3%A4ttsliga%20bitr%C3%A4den%20och%20r%C3%A4tteg%C3%A5ngskost
nader%20%E2%80%93%20sk%C3%A4rpt,2024%3A39&text=En%20s%C3%A4rskild%20utredare
%20ska%20se%20%C3%B6ver%20regelverket%20f%C3%B6r%20ers%C3%A4ttning%20till%20r
%C3%A4ttsliga%20bitr%C3%A4den
Swedish Government (2024c), Responsibility and independence - public service in troubled times
(Ansvar och oberoende - public service i oroliga tider), https://www.regeringen.se/rattsliga-
dokument/statens-offentliga-utredningar/2024/05/sou-202434/.
Swedish Government (2024d), A more legally secure and efficient court process (En mer rättssäker
och effektiv domstolsprocess) https://www.regeringen.se/rattsliga-dokument/statens-offentliga-
utredningar/2024/06/sou-202451/.
Swedish Government (2024e), Government increases support to vulnerable and persecuted
journalists, https://www.government.se/press-releases/2024/07/government-increases-support-to-
vulnerable-and-persecuted-journalists/
Swedish Government (2024f), Press release “From SEK 69 billion to SEK 100 billion in five years –
continued extensive investments to restore security in Sweden” (Från 69 till 100 miljarder på fem år
– fortsatt omfattande satsningar för att återupprätta tryggheten i Sverige),
https://www.regeringen.se/pressmeddelanden/2024/09/fran-69-till-100-miljarder-pa-fem-ar--fortsatt-
omfattande-satsningar-for-att-ateruppratta-tryggheten-i-sverige/
Swedish Government (2024g), Anonymous witnesses (Anonyma vittnen),
https://www.regeringen.se/rattsliga-dokument/proposition/2024/10/prop.-20242520.
Swedish Government (2024h), Personal data and the media constitutions (Personuppgifter och
mediegrundlagarna) SOU 2024:75, https://www.regeringen.se/rattsliga-dokument/statens-offentliga-
utredningar/2024/11/sou-202475/.
Swedish Government (2025a), Contribution from the Swedish Government for the 2025 Rule of Law
Report.
Swedish Government (2025b), Press release “The 2023 Committee on Freedom and Rights submits
its report” (2023 års fri- och rättighetskommitté överlämnar sitt betänkande),
https://regeringen.se/pressmeddelanden/2025/01/2023-ars-fri--och-rattighetskommitte-overlamnar-
sitt-betankande/
Swedish Government (2025c), The Government is not proceeding with proposals regarding journal
support (Regeringen går inte vidare med förslag gällande tidskriftsstöd),
https://www.regeringen.se/pressmeddelanden/2025/02/regeringen-gar-inte-vidare-med-forslag-
gallande-tidskriftsstod/
Swedish Government (2025d), The Government decides on referral to the Council on Legislation on
commercial radio (Regeringen beslutar om lagrådsremiss om kommersiell radio),
https://www.regeringen.se/pressmeddelanden/2025/02/regeringen-beslutar-om-lagradsremiss-om-
kommersiell-
radio/#:~:text=Regeringen%20har%20i%20dag%20beslutat,digital%20och%20analog%20kommersie
ll%20radio.
23
Swedish Government (2025e), Government proposes new conditions for commercial radio
(Regeringen föreslår nya villkor för kommersiell radio)
https://www.regeringen.se/pressmeddelanden/2025/04/regeringen-foreslar-nya-villkor-for-
kommersiell-radio/.
Swedish Government (2025f), Strengthening the protection of democracy and the independence of the
judiciary (Stärkt skydd för demokratin och domstolarnas oberoende),
https://www.regeringen.se/pressmeddelanden/2025/04/starkt-skydd-for-demokratin-och-
domstolarnas-oberoende/
Swedish Government (2025g), Bill on public service 2026–2033 adopted (Proposition om public
service 2026–2033 beslutad), https://regeringen.se/pressmeddelanden/2025/05/proposition-om-public-
service-20262033-beslutad/.
Swedish Government (2025h), The Media Authority will follow up on media support
(Mediemyndigheten ska följa upp mediestödet)
https://regeringen.se/pressmeddelanden/2025/05/mediemyndigheten-ska-folja-upp-mediestodet/.
Swedish Government (2025i), Some questions on fundamental rights and freedoms (Några frågor om
grundläggande fri- och rättigheter),
https://www.regeringen.se/contentassets/5bac301322db4e3b992b2d8d649a48b5/nagra-fragor-om-
grundlaggande-fri--och-rattigheter-sou-20252.pdf
Swedish Government (2025j) Strengthening the protection of the independence of courts and judges
(Stärkt skydd för domstolarnas och domarnas oberoende)
https://www.regeringen.se/remisser/2025/05/remiss-av-sou-202556-starkt-skydd-for-domstolarnas-
och-domarnas-oberoende/?mtm_campaign=Remiss&mtm_source=Remiss&mtm_medium=email
Swedish Government (2025k) Stronger protection for public employees against violence, threats and
harassment, etc. (Ett starkare skydd för offentliganställda mot våld, hot och trakasserier m.m.)
https://www.regeringen.se/rattsliga-dokument/proposition/2025/03/prop.-202425141.
Swedish Government (2025l), Strengthened Constitutional Preparedness (Stärkt konstitutionell
beredskap), https://regeringen.se/rattsliga-dokument/proposition/2025/06/prop.-202425155
Swedish Institute for Human Rights as part of ENNHRI (2025), Contribution from the European
Network of National Human Rights Institutions for the 2025 Rule of Law Report.
Swedish Institute for Human Rights (2024a), The Government has appointed two new members to the
Agency's Board of Directors (Regeringen har förordnat två nya ledamöter i myndighetens styrelse),
https://mrinstitutet.se/nyheter/regeringen-har-forordnat-tva-nya-ledamoter-i-myndighetens-styrelse/
Swedish Institute for Human Rights (2024b), The government's appointment process raises concerns
about the institute's independence (Regeringens tillsättningsprocess väcker oro för institutets
oberoende), https://mrinstitutet.se/nyheter/regeringens-tillsattningar-vacker-oro-for-institutets-
oberoende/
Swedish Media Publishers’ Association (2024) TU strongly criticizes search service investigation (TU
riktar stark kritik mot söktjänstutredning), https://tu.se/pressmeddelanden/tu-riktar-stark-kritik-mot-
soktjanstutredning/.
Swedish National Courts Administration (2025), The annual report for 2024 is submitted to the
Government (Årsredovisningen för 2024 lämnas till regeringen),
https://www.domstol.se/domstolsverket/nyheter/2025/02/arsredovisningen-for-2024-lamnas-till-
regeringen/
24
Swedish Parliament (2024), Criminal law measures against corruption and misconduct (Straffrättsliga
åtgärder mot korruption och tjänstefel), https://www.riksdagen.se/sv/dokument-och-
lagar/dokument/kommittedirektiv/straffrattsliga-atgarder-mot-korruption-och_hcb114/
Swedish Radio (2024) Proposals leading to gradual dismantling (Förslag som leder till gradvis
nedmontering), https://www.sverigesradio.se/artikel/forslag-som-leder-till-gradvis-nedmontering.
Swedish Union of Journalists (2024), The Swedish Union of Journalists' consultation response to the
PS inquiry (Journalistförbundets remissvar på ps-utredningen),
https://www.sjf.se/aktuellt/202409/journalistforbundets-remissvar-pa-ps-utredningen.
Swedish Union of Journalists (2025), Transparency database (Öppenhetsdatabasen)
https://www.sjf.se/yrkesfragor/oppenhet/oppenhetsdatabasen.
Transparency Committee (2023), Increased transparency of political processes (Ökad insyn i politiska
processer), https://www.regeringen.se/rattsliga-dokument/statens-offentliga-utredningar/2025/05/sou-
202552/
25
Annex II: Country visit to Sweden
The Commission services held virtual meetings in February 2025 with:
• Agency for Public Management
• Civil Rights Defenders
• Economic Crime Authority
• Swedish Judges Association
• Media Ombudsman
• Ministry of Culture
• Ministry of Finance
• Ministry of Justice
• National Council for Crime Prevention
• National Courts Administration
• National Forum of Voluntary Organisations
• Office of the Parliamentary Ombudsmen
• Office of the Prime Minister
• Police Authority, including Special Investigation Department
• Prosecution Service
• Secretariat of the Constitution Committee
• Supreme Administrative Court
• Supreme Court
• Swedish Agency for the Media
• Swedish Bar Association
• Swedish Confederation of Industries
• Swedish Educational Radio (UR)
• Swedish Institute for Human Rights
• Swedish Lay Judges Association
• Swedish Publishers’ Association
• Swedish Radio (SR)
• Swedish Section of the International Commission of Jurists
• Swedish Television (SVT)
• Swedish Section of the International Commission of Jurists
• Swedish Union of Journalists
• Transparency International
* 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,
26
• International Commission of Jurists
• International Federation for Human Rights (FIDH)
• JEF Europe
• Philea – Philanthropy Europe Association.
• Transparency International