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

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}
Offentligt
KOM (2025) 0900 - SWD-dokument
Europaudvalget 2025
1
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.
2
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.
3
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
4
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.
5
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
6
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).
7
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
8
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.
9
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..
10
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.
11
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.
12
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).
13
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.
14
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.
15
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.
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,
https://www.chd.lu/fr/node/1299.
Chamber of Deputies of the Grand Duchy of Luxembourg (2024), Draft law no. 842 on the promotion
of professional journalism and the democratic debate), no. 8421, https://wdocs-
pub.chd.lu/docs/exped/0149/001/298015.pdf.
Chamber of Deputies of the Grand Duchy of Luxembourg (2025a), Code of Conduct for
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, Monitor tracking civic space – Luxembourg,
https://monitor.civicus.org/country/luzembourg/.
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).
16
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.
17
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
(Recommendations), 10 April 2024, https://gouvernement.lu/dam-assets/systeme-
politique/gouvernement/comite-ethique/recommandations/20240409-recommandations-comit-
dthique.pdf.
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 July 2024,
https://mj.gouvernement.lu/fr/actualites.gouvernement2024+fr+actualites+toutes_actualites+communi
ques+2024+07-juillet+11-justice-efficace-recrutement-magistrature.html.
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
18
signalements), https://guichet.public.lu/fr/citoyens/justice/lanceurs-alerte/alerte-office-
signalements.html.
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 interdit aux journalistes de dire la verité), Press release of 27 January 2025,
https://www.press.lu/wp-content/uploads/2025/01/20250127_CdP_COM_Nickts.pdf.
Luxembourg Police (2025), additional written input.
Luxemburger Wort (2025a), Details of the Members’ Transparency Register still need to be clarified
(Details für das Transparenzregister der Abgeordneten müssen noch geklärt werden),
https://www.wort.lu/politik/details-fuer-das-transparenzregister-der-abgeordneten-muessen-noch-
geklaert-werden/67950305.html.
Luxemburger Wort (2025b), Sobering judgment of the OKaJu on protection plans for minors
(Ernüchterndes Urteil des Okaju zu Jugendschutzplänen),
https://www.wort.lu/politik/ernuechterndes-urteil-des-okaju-zu-jugendschutzplaenen/69460905.html.
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 2024, https://www.oecd.org/en/publications/2024/03/implementing-the-oecd-anti-bribery-
convention-in-luxembourg_43a6beb2.html.
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 International (2024), CPI 2024: Trouble at the top,
https://www.transparency.org/en/news/cpi-2024-trouble-at-the-top.
19
Transparency International (2025), Corruption Perceptions Index 2024,
https://www.transparency.org/en/cpi/2024.
Virgule (2024), Government more rigorous on transparency (Le gouvernement davantage rigoureux
en matière de transparence), https://www.virgule.lu/luxembourg/le-gouvernement-davantage-
rigoureux-en-matiere-de-transparence/23661203.html.
20
Annex II: Country visit to Luxembourg
The Commission services held virtual meetings in March 2025 with:
• 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
• Initiative devoir de vigilance
• 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,
• International Commission of Jurists
• International Federation for Human Rights (FIDH)
• JEF Europe
• Philea – Philanthropy Europe Association.
21
• Transparency International