<Title> Education in Montenegro - needs assessment </Title>

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donors.">
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EDUCATION IN MONTENEGRO
NEEDS ASSESSMENT
TABLE OF CONTENTS

0. Executive Summary 3
1. Introduction 4
2. Education System in Montenegro 5
2.1. Education Finance 5
2.2. Basic Data 5
2.3. Legal Framework 6
2.4. The Ministry of Education and Science (MES) 6
2.5. MES Priorities for State Investment 6
2.6. Structure and Status of the System 6
2.6.1. Pre-School Education
2.6.2. Primary Education
2.6.3. Secondary Education
2.6.4. Special Education
2.6.5. Higher Education
2.7. Education of Minorities 8
2.8. Internally Displaced Persons and Refugees 9
2.9. Curriculum 9
2.10. Textbooks 9
2.11. Teaching Force 10
2.12. Teacher Training 10
2.13. Education Management 10
3. Education Reform and Restructuring 11
3.1-3.4 Reform process and priorities 11
3.5. Quality and Content of Education 11
3.5.1. Teacher Training
3.5.2. Curriculum
3.5.3. Textbooks and Learning Materials
3.5.4. Assessment
3.6. Higher Education 13
3.7. Ethnic Diversity 13
4. Immediate Needs in Education 14
4.2. Physical Plant 14
4.2.1. Repair and reconstruction of existing facilities
4.2.2. Construction of new facilities
4.2.3. School Furniture
4.2.4. Maintenance
4.2.5. Heating
4.2.6. Higher Education
4.3. School Supplies 16
4.3.1. Basic Materials
4.3.2. Food and Accommodation
4.3.3. Transportation
4.3.4. Equipment
4.3.5. Computers
4.3.6. Higher Education
4.4. Internally Displaced and Refugees 17
5. Donor Programs in Education 18

1
 5.1. Description of Donor Programs 18
5.1.1. European Commission
5.1.2. UNICEF
5.1.3. Open Society Institute
5.1.4. KulturKontakt
5.1.5. British Council
5.1.6. Catholic Relief Services
5.1.7. World University Service
5.1.8. Save the Children
5.2. Education Needs and Donor Activities (Table) 20
6. Conclusions 21
6.1. Reform Strategy Development and Implementation 21
6.2. Educational Facilities 22
6.3. Textbooks and Learning Materials 22
6.4. Opportunity for Development 22

TABLES

Table 1: Basic Data (numbers of pupils, teachers, schools) 5

Table 2: Types of Educational Institutions in Montenegro 8
Table 3: School Facilities: Enlargement and Repair Needs 14
Table 4: New School Construction Needs 15
Table 5: New School Furniture and Blackboards Needs 15
Table 6: Activities of Donors in Education 21

ANNEXES

1. Textbooks in Montenegro: Current Use, Immediate Needs, and Future Policy Options
2. Needs of Internally Displaced and Refugees – Provided by UNICEF
3. Material Needs of Schools – Quantified tables
4. School Construction, Reconstruction and Enlargement Needs Assessment Summary
________________________________________________________________________
Report Prepared by:
Heather Iliff, Institute for Educational Policy
Open Society Institute – Budapest, Tel: (361) 327 3862, Fax: (361) 327 3864
Email: [email protected]

EDUCATION IN MONTENEGRO
NEEDS ASSESSMENT

0. EXECUTIVE SUMMARY

0.1. This needs assessment was prepared by Open Society Institute, in cooperation with the
Ministry of Education and Science in Montenegro (MES). Significant contributions have
been made by UNICEF and WUS Austria, and comments and suggestions on the document
have been provided by several other donors.

0.2. Montenegro is a small republic, consisting of about 650,000 people, served by fewer than
300 schools and one University. The education system has suffered ten years of isolation,
lack of investment and general decline of infrastructure and quality. Major deficiencies exist
at the school and university levels in heating, facilities, and quality of teaching and learning.

2
0.3. The education system is structured similarly to other areas of the former Yugoslavia, with
compulsory education through 8th grade, and free education through secondary school. The
University of Montenegro is largely state funded, with one-third of students paying fees.
The budget for education is limited, and represents a large share of the overall government
budget. Teachers salaries are low but are paid on time, with some lag in payments of
pensions. The majority of the school population are Serbian-language speakers. Mother-
tongue instruction and textbooks are provided for the Albanian minority.

0.4. Internally displaced persons (IDPs) and refugees have placed a strain on the Montenegrin
education system. Donors have been active in this field, and the MES has provided adequate
policy frameworks to incorporate these children into mainstream schools. Roma IDPs and
refugees are in particular difficulty, and often drop-out or do not attend school at all.

0.5. Schools are overcrowded, operating on two or three shifts in many urban areas. University
faculties are in serious need of space, some operating with as little as 1m2 per student.
While some facilities are in relatively good condition, many are seriously dilapidated and in
urgent need of repair or reconstruction. Basic school materials are in short supply, and
supplemental learning materials are almost nonexistent. Textbooks are provided in adequate
numbers, but the quality and content are in need of serious improvement. The university
library is impoverished, with almost no access to international materials or journals.

0.6. The education system is in need of overall reform, in order to improve quality and
efficiency. The MES is open to reform, but requires technical assistance to carry it through.
There are no mechanisms for upgrading the skills of the teaching force, and the pre-service
teacher education college has not changed its curriculum in the last decade. The curriculum
is overpacked and outdated, and concentrates heavily on knowledge with little on skills and
attitudes. Textbooks are based on the old curriculum and have the added disadvantages of
complicated language, old stereotypes, and poor formats.

0.7. There is a great opportunity for educational change and renewal in Montenegro at the
moment. There is openness on the part of the MES to reform, and readiness for change on
the part of educators and parents. Donor attention is needed to assist the overall process of
educational reform, as well as to meet the immediate needs in the education system. This
report outlines the main areas of need and the present activities of the donors.

1. INTRODUCTION

1.1. This report aims to outline the current functioning of the education system in Montenegro, to
provide an overview of urgent needs to keep the system functioning over the next 12-18
months, and to point to key issues of long term reform and development of the sector. It was
prepared by OSI1 in cooperation with the Ministry of Education and Science (MES)

1
This needs assessment is based on reports of several consultants commissioned by OSI as well as information
provided by MOE. The educational data was painstakingly collected by Njeza Mrse and independently verified by
Neil Galbraith. The Needs Assessment draws heavily on the background report, “Current State of Education in
Montenegro: Non-Construction Needs Assessment and Preliminary Analysis.” The final report was written by
Heather Iliff, Institute for Educational Policy.

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 Montenegro. It also incorporates input from several donors active in Montenegro, with
significant contributions from WUS Austria and UNICEF. The purpose of the Needs
Assessment is to provide an objective view of the education needs in Montenegro to inform
the donor community in its consideration of aid to the sector.

1.2. Montenegro is a small, Mediterranean and continental republic, consisting of 618,000 people
(~645,000 including IDPs and refugees). The population is made up of Montenegrins
(62%), Muslims (15%), Serbs (9%), Albanians (7%), and Roma & others (9%)2. In addition,
there are 139,299 Montenegrins living in Serbia. Since 1990, Montenegro has faced
tremendous difficulties. GDP per capita was $3,000 in 1989, and fell to $1,650 by 1997.3
The country has been cut off from the international community economically, culturally and
socially. The unemployment rate is extremely high, reportedly 64% in May 1999 according
to government officials.4 Fears of a possible conflict in Montenegro exist, and there is an
increasing feeling of uncertainty among the population.

1.3. The education system has suffered ten years of isolation, lack of investment, and general
decline of infrastructure and quality. Nevertheless, the system is functioning well,
considering its limited resources. Schools operate for the entire academic year, albeit in
double and triple shifts in places. The government has demonstrated a significant
commitment to education, investing 30% of its overall budget, as compared with the OECD
average of 11.8%.5. The value on education is high, and a large portion of society has
received higher education (reportedly, 40% of families have one or both parents with higher
education).

1.4. Education plays a key role in promoting open society and democratic principles. The state
of education and education reform may be considered both indicators of democracy and
stability as well as a promoters of the same. The Ministry of Education in Montenegro is
committed to educational reform and improvement, and it is ready to form constructive
partnerships with the international community. Investment is needed to support the system
in the short term, as present levels of funding are not adequate to sustain it. The percentage
of government funding to education cannot be expected to increase beyond its present level,
and in all likelihood it will decrease to allow the government to invest in other crucial areas
such as health, justice and social welfare. While there may be some inefficiencies in the
system (as in any education system), the budget is already extremely tight, and the
government is forced to make difficult trade-offs with its very limited funds. Donor support
for immediate and long term needs in education is essential.

2. EDUCATION SYSTEM IN MONTENEGRO: Present Functioning, Data and

Structure

2
www.montenegro.org
3
Euro-Focus, June 20, 1999
4
Problems and Needs of the University of Montenegro, page 18, WUS Austria, February 2000
5
UK: 11%, Macedonia: 20%, Slovenia: 12%, and Austria: 10% Economist: Europe in Numbers 1999, Education at
a Glance OECD Indicators, 1998.

4
2.1. Education Finance: The budget for education in Montenegro in 1999 was approximately
120m DM (US$63m)6. In 2000, the total state budget is planned to be DM 394m, and 116
DM will be devoted to education. Salaries account for 80% of the annual budget, but actual
expenditure on salaries is closer to 88%. Other major categories of expenditure include
school heating, textbooks, cleaning supplies, meals and accommodation costs for
kindergartens and boarding schools, and transportation for children in rural areas. Currently,
not enough state funding is available for school materials, teacher training, equipment, or
other development needs.

6
The 1999 budget was planned and largely dispersed in dinars (salaries began to be paid in DM starting in
November, 1999). The figure represents the dinar value at the beginning of the year, and it is estimated that this was
reduced in real terms by 30% due to inflation.

5
2.2. Basic Data:

Level Pupils Teachers Schools Pupils per OECD

Teacher Average7
Pre-schools 12,040 1,111 19 10.8 17.6
Primary schools 76,963 4,815 166+293 16.0 18.3
459*
Secondary schools 30,568 2,443 44+1 12.5 13.7
45
University 10,219 651 15.7 15.7
TOTAL 129,790 8,369 523

Table 1: Schools, Teachers and Pupils in Montenegro

*There are 166 schools with 293 small rural branch schools

2.3. Legal Framework: The Ministry of Education and Science is responsible for all aspects of preschool, primary,
secondary and higher education. The most recent education legislation was passed in 1995. The education law
stipulates that schooling is compulsory for 8 years, with primary and secondary education being free of charge.
General elementary schools must be state run. However, elementary schools for art, adult education, pre-
school institutions or secondary schools can be established with state, joint and/or private ownership. The new
law on higher education is currently in preparation. Policies on new organization and governance in education
and new legislation in accordance with international best practice are under development.

2.4. The Ministry of Education and Science (MES) is divided into three sectors with 46 staff plus
the Inspectorate. General education (27 staff) covers pre-school, primary, secondary and
special education. Higher Education and Science (10 staff) covers the University of
Montenegro with its 19 faculties and colleges. Student services (6 staff) provide for the
dormitories, meals, and other student needs. Education in Albanian language (3 staff, one of
whom is a Deputy Minister) oversees Albanian-language schools, serving 3918 students. In
addition, an Inspectorate (90 staff) covers primary and secondary schools and reports to the
General Education sector of the Ministry.

2.5. MES Priorities for State Investment: The priorities for 2000-2001, as stated by the MES are
a) to improve overall teaching and learning conditions in terms of constructing new
buildings and reconstructing existing facilities, and b) to foster the education reform process
which comprises education legislation reform, human capacity building, curricula and
textbook innovation, quality system development, and improvement of education employee
living standard (MES, 1999).

2.6. Structure and Status of the System

2.6.1. Pre-School education provides nursery schools for children aged 1-3 and kindergartens for
children aged 3-6. It is estimated that 22% of the age cohort are enrolled in pre-school
public institutions, the vast majority have both working parents. The groups are

7
Education at a Glance: OECD Indicators, 1998

6
 overcrowded (up to 45 in a group) due to lack of space (average 3.4m2 per child). There
is a shortage of equipment and teaching materials in general. Kindergarten expenses for
orphans and disadvantaged children are covered by the Ministry of Labor and Social
Welfare

2.6.2. Primary education is compulsory for children aged 7-14 and it consists of two stages.
Grades I-IV are class teacher based, while grades V-VIII are subject teacher based. There
is a serious lack of space at primary schools (average classroom space is 2.18m2 and total
school space is 4.5m2 per pupil)8. Schools in urban areas have up to 35-40 pupils per
class, and schools operate on double and triple shifts.

2.6.3. Secondary education lasts three or four years, depending on the course of study. There are
three main types of secondary schools. Grammar schools or gymnasia offer four years of
general academic education which is completed by the final ‘matura’ exam. Some
gymnasia are specialized such as in mathematics or philology. Technical and art schools
offer four years of specialized education as well as an academic curriculum. Vocational
schools offer three years of practical education. The lack of space at secondary schools is
even more acute than at primary. The physical conditions of most vocational schools are
extremely poor, and lack the basic equipment needed to deliver the curriculum.

2.6.4. Special education, both primary and secondary, falls under joint jurisdiction of the MES
and Ministry of Labor and Social Welfare. There are 3 primary boarding schools for
special-needs children with 93 pupils. There are four secondary schools for special needs
children, also boarding schools, with 167 pupils. The MES estimates that there are about
7,000 special needs children that are not served by the school system. And, there is a need
for trained professionals in this area. About 5% of special needs children are integrated
into regular schools.

2.6.5. Higher Education: The University of Montenegro is the only tertiary institution in
Montenegro. The University is described as legally autonomous, but it is funded largely
from the state budget. About one-third of the students pay tuition fees. The faculties of
the University and its institutes are dispersed over five cities and towns in Montenegro.
The course of study is set by the faculties themselves. In line with proposals from the
University, the government makes the decision concerning the number of students for
admission each year. Presently, a new university law is in preparation and discussion.

AGE LEVEL TYPE SUBTYPES

(numb. of of of
institutions) institutions institutions
(number of students)
University of economics, law, philosophy, electrical engineering, mechanical
( 1 comprised of faculty engineering, metallurgy and technology, civil engineering, sciences and
19 units ) mathematics, maritime, of drama, of arts, medicine, for tourism and hotel
management;

8
In town schools, total school space per pupil is significantly lower than the average of the Republic, whild in village
schools it is much higher.

7
 19-23 ( 10,219 students ) academy of music;

college for physiotherapy;

institutes for foreign languages*, bio-technical, historical, of marine biology;

Secondary general;
School grammar with two or more departments’
( 44 ) school specialized – philology and mathematics

15-18 ( 30,568 pupils) civil engineering, mechanical engineering, maritime,

technical agricultural, forestry, medicine, economics etc.;

Vocational
school four year
catering, trading, communications etc;

three year

arts school arts, music, ballet;

Elementary
School Compulsory
7-14 ( 166 )
( 76,963 pupils ) Arts music, ballet;

Pre-school
( 19 ) Kindergarten,
1-6 (12, 040 children) nursery;
(Copyright by MES, 1998.)
*Institutes are scientific institutions, while the Institute for Foreign Languages provides teaching of foreign
languages as minor subjects at all faculties of the University.

Table 2: Types of Educational Institutions in Montenegro

2.7. Education of Minorities: Montenegrins, Serbs and Muslims, who consist of 85.5% of the
population, learn in the mainstream curricula of Serbian language, sharing a common
language. The Albanian minority comprises 6.5% of the population. There are 3918
Albanian students (or 3% of the total number of pupils in the republic) who study in
Albanian language. The rest of the Albanian students study in the Serbian language by
choice. Detailed information is not available on Roma children or other minorities in
Montenegro, except for the IDPs and refugees (see section 2.8.).

2.8. Internally Displaced Persons and Refugees9: There are a total of 5,184 primary school age
children (age 7 to 14) registered as IDPs from Kosovo, and about 5000 primary school age
children among refugees from Croatia and Bosnia Herzegovina. As of September, 1999, the
MES reported that 3,912 ID children from Kosovo enrolled in Montenegrin schools. Exact
figures for the refugee children from Croatia and Bosnia Herzegovina are not available, but
UNICEF reports that these children enrolled more smoothly into Montenegrin schools since
there was no language barrier. Many of the Roma minority children among IDPs, in spite of

9
Report on Primary Education for Children among Refugees and IDPs in Montenegro: Emergency Assistance
Provided to Primary Education in Autumn 1999. UNICEF Podgorica, February 2000.

8
 the efforts of the humanitarian organizations or the Montenegrin authorities, are not enrolled
in schools. The Roma minority among IDPs has had serious difficulty, and it is estimated
that the majority of the 1,200 primary school aged children not in school are Roma. Data on
secondary school and higher education enrollment is not available. (See Annex 2)

2.9. The Curriculum: The national curriculum is approved by the MES and is applied in all
elementary and secondary schools in Montenegro. Each subject has detailed class-based
programs with precise instructions on content and methods to be followed. Classes are held
in Serbian language or in Albanian language in certain regions (Ulcinj, Tuzi, Plav). There
are some schools where the curriculum is taught both in Serbian and in Albanian language.
The curriculum is reported to be overloaded with compulsory content, and not enough
emphasis is placed on understanding, skills and attitudes. In 1998, the MES began
redefining the content by reducing the amount of knowledge and ‘factology’ required. In
addition, Information Technology was introduced as a compulsory subject in first grade of
secondary school.

2.10. Textbooks: There are presently adequate quantities of most textbooks for most subjects available in schools.
Textbooks are purchased by the parents at an accessible price, representing 60% of the cost. The remaining
40% is subsidised by the Ministry of Education. Provision is made for children of poor families whereby books
are lent to students from the school library. Textbooks are provided in Serbian language and Albanian
language. All textbooks are produced to the old curricula, the books are of poor pedagogical quality, and are
becoming rapidly outdated. There is an over-dependence on supply of textbooks from Belgrade which is the
source of 70% of Montenegro’s requirement. The remaining 30% of textbooks have been adapted or specially
written for Montenegro requirements and publishing rights are owned by the MES. Further information and
options for donors are included in Annex 1, Textbooks in Montenegro: Current use, Immediate needs, and
Future policy options.

2.11. Teaching Force: Unlike the previous period, in the last 10 years a career in teaching is
perceived as unattractive and lacking respect in society. The average teacher’s salary in
Montenegro is 210 DM (from starting salary of 172 up to 260 DM). Monthly expenses for a
family of four have been calculated to be 478 DM for food and drink (43 items) while all
basic necessity expenses are estimated at a minimum 670 DM per month. According to the
Independent Union of Educators, about 50% of employees in education rent apartments,
paying an average of 150DM per month. Pensions are also low, and subject to delays in
payment of 2 or 3 months. Teachers are required to have 19-21 contact hours per week.10
The majority of the teaching force (70% of primary and 96% of secondary) have university
or college degrees. Twenty-nine percent of primary and 3.26% of secondary teachers have
completed only secondary school. However, some regions have a majority of under-
qualified teachers (i.e. percentage of teachers with secondary education only: Zabljak –
77%, Ulcinj 71%, Mojkovac and Pljevlja – 60%).

2.12. Teacher Training: There are no institutions dedicated to in-service teacher training in
Montenegro. However, in-service training is provided by the School Inpectorates on an
annual basis (usually in February). Pre-service teacher qualifications are obtained either at
the Teacher Faculty/Faculty of Philosophy in Niksic or at other Faculties at the University of

10
Contact hours for UK teachers is 25. However, these hours are alleviated by specialized teachers for art or
physical education allowing fewer contact hours during the day.

9
 Montenegro for subject-based teachers. There is no department for Pedagogy or Psychology
at University of Montenegro, nor is there a Pedagogic Institute or other institutions
responsible for pedagogic theory and practice. In addition, special education training has to
be obtained outside of Montenegro.

2.13. Education Management: The education system of Montenegro is highly centralized. The
MES appoints school boards and school headmasters for a four-year period. There are no
local education authorities or intermediate bodies, but there are local representatives in
school boards. The school Inspectorate (part of MES) has both a control and advisory
function is responsible for monitoring school management, curriculum, and the quality of
teaching at schools. Inspectors ensure that proper documentation is kept at the school level
on absentees of teachers and students, to ensure that the curriculum is being followed, and to
ensure that student records are in order. In addition, the Inspectorate organizes in-service
teacher training seminars.

3. EDUCATION REFORM AND RESTRUCTURING

3.1. While the education system of Montenegro faces many immediate challenges, the MES has
recognized that reform of the education system in Montenegro is essential in order to ensure
quality and efficiency of the system. The vision for education reform aims at the
democratization and modernization of the education system, leading to the active
participation of the young generation in the civil society and the economy. In accordance
with the government’s general political goals, the MES will support re-integration of
Montenegro into the international community, focusing on improving the quality of services,
promoting a child-centered approach in teaching and learning, and developing democratic
values among children and young people in a harmonious multi-ethnic society.

3.2. The MES has already initiated the reform process in the area of in-service teacher training,
introducing innovative teaching methodology, as well as some important changes in
curriculum. However, the reform process has not been easy, as the MES has faced
significant challenges over the past several years in integrating the IDPs and refugees into
the system, stabilizing the education budget and payment of teachers’ salaries, and collecting
the necessary data on needs in the system. In spite of such constraints, the reform process
needs to be undertaken in order to ensure the longer term development of the system. The
MES is working on the development of the education reform strategy in partnership with
OSI, UNICEF, and soon with the European Commission.

3.3. Reform Priorities: The MES is committed to developing a plan for educational reform that
will be developed in an consultative way, involving all key stakeholders in the process. The
priorities for a short term reform plan include: a) introducing quality in teaching and
learning, b) improving the physical learning conditions of classrooms and school facilities,
and c) developing consensus and understanding of reform priorities and methods. The
priorities for a long term plan include: a) education finance – maximizing use of available
resources, b) improving quality in teaching and learning, and c) exploring the possibility of

10
 decentralizing the supervisory functions and the administrative structure of the education
system.

3.4. Ministry of Education and Science: The MES has shown remarkable ability to respond to
urgent needs in the system and to maintain some sense of normalcy, despite major deficits of
school heating, supplies, maintenance, and learning materials. The top officials of the MES
have shown openness to reform, and have developed positive working relationships with
donors. Nevertheless, the majority of staff within the Ministry have not had any
opportunities for professional development, and thus continue running the system according
to the ways of the past. Capacity building within the MES is essential if it is to develop a
plan for long term reform in education and to guide the system through the next 5-10 years
of development.

3.5. Quality and Content of Education

3.5.1. Teacher Training: Pre-service teacher education in Montenegro has not been reformed or
restructured since the socialist self-management times. There is no system for in-service
training of teachers or administrators. Experts in pedagogy within Montenegro have not
had the opportunity to learn about new developments in their field, and generally lack
information and skills on new methods and approaches. Teaching practice taught at the
teacher-training faculties is quite conservative, promoting teacher-centered
methodologies, and has been rigidly followed for the past 15 years. Teachers receive solid
training in their subject areas, but a broader, modern and practice-focused pedagogical
education is needed. Teacher training efforts have been launched by international
organizations in preschool and primary education, introducing a child-centered, interactive
approach. Such training has been met with enthusiasm by teachers, although there has
been some difficulty in introducing activity methods due to the classroom conditions. The
MES has been very open to teaching innovations, but there is a need for developing
strategy and a systemic approach for upgrading the skills of the teaching force.

3.5.2. Curriculum: There is a centralized curriculum, approved by the MES, which operates in
all schools of the republic. Educational standards are embodied in the curriculum (no
separate statement of standards or targets). There is no provision for school-based
curriculum development or a clear percentage for optional course development. The
curriculum is generally regarded to be overloaded, outdated, and in some cases lacking
relevance. There is an over-emphasis on building knowledge, and not enough on
developing understanding, skills and attitudes. The MES sees the need for curriculum
modification particularly in preschool, primary and secondary education, in accordance
with a learner-centered approach. Beginning in 1998, the MES began to reduce the level
of ‘factology’ of the old curriculum, introduced new textbooks in foreign languages
(English and French course books are published in the respective countries) and
introduced earlier teaching of foreign languages (in grade III instead of IV). In secondary
and higher education, the MES aims to introduce the subject of information technology
and to strengthen student’s achievement level in foreign language training.

11
3.5.3. Textbooks and learning materials: Textbooks are a cause of frustration among parents,
teachers and students. Based on the over-packed curriculum, the textbooks have an over-
emphasis on memorization of facts, and do not promote broad understanding of concepts.
The language and content of many of the textbooks is considered to be inappropriate to
the age level of students. They are generally the only classroom resource available to
teachers, with little or no supplemental materials such as maps, reference books, or
readers. The new program of curriculum change in Montenegro will require an accelerated
textbook renewal program over the period 2001-2004, including development of textbook
evaluation systems, rules and regulations for new textbook competition format and
capacity building of MOE executives, authors, publishers, evaluators to use the new
procedures. See Annex, Textbooks in Montenegro: Current use, Immediate needs, and
Future policy options.

3.5.3. Assessment: Assessment of pupils at the classroom level focuses heavily on knowledge
of facts, based on the material covered in the official textbooks. Entrance examinations
are required for entrance to secondary school and to university. A school-leaving
examination is applied to all secondary school students. The assessment system is almost
exclusively fact and knowledge based, and rewards good memorization skills. There is a
lack of professionals with up-to-date skills in assessment. Any curriculum and textbook
reform effort would have to also include changing assessment practice, as well.

3.6. Higher Education: World University Service, Austria, conducted a needs assessment for the
University of Montenegro, focusing on priorities of professors and students. The
conclusions of this report reflect the University of Montenegro’s need develop in order to
curb the prevalent phenomenon of brain drain by providing decent tertiary education. To that
end, several new post-graduate programs are planned to be developed in cooperation with
foreign universities; investments into laboratories and libraries need to be increased, in
particular to enhance significantly the poor offer of literature; the University’s information
technology, widely obsolete, will need to be expanded and modernized. Additional resources
are needed to allow students and professors participate in international academic events and
to deepen the academics’ knowledge of foreign languages, helping to overcome the isolation
of the Montenegrin academic community. The second phase of the EC Obnova program
plans to work with the MES on developing a long term reform program for higher education
in Montenegro.

3.7. Ethnic Diversity: The MES has an open policy for fostering the ethnic diversity in the
education system. While most teaching is conducted in Serbian language, there is provision
for ethnic Albanian children to learn in Albanian language as a part of the official policy.
The number of teaching staff and schools for Albanian speakers is determined by the needs
and interests of the Albanian minoritiy. Most of the Albanian schools are small rural
schools in need of substantial rehabilitation of the facilities. Roma children generally have a
problem of low attendance and early drop-out. A large number of non-attendance is
recognized especially among Roma internally displaced children. UNICEF and other
international organizations now carry out a Non-Formal Education program to provide such
children with access to basic literacy and mathematics learning. The MES is cooperating in
NFE by providing school premises available for such activities. However, the current

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 education system does not include extra curricular activities to follow up the needs of Roma
IDP drop-outs and non-attendants. There are alternative tracks for drop-outs or adult
learners to attend both primary and secondary school.

4. IMMEDIATE NEEDS IN EDUCATION

4.1. While the education system in Montenegro is in need of reform and development,
investment in improving physical learning conditions and provision of textbooks and
learning materials are necessary to ensure the basic functioning of schools and to support
progress in the reform process. This section will cover the immediate needs in terms of
school buildings, maintenance, and learning materials.

4.2. Physical Plant

4.2.1. Repair and reconstruction of existing facilities: School facilities in Montenegro have
suffered 10-20 years of neglect and disrepair. The state of schools varies greatly from
urban to rural areas, and from region to region. Small rural schools are in the worst
condition, some lacking indoor toilets, running water or secure electrical installations.
(Many of these are in the Albanian-minority areas.) Reconstruction of roofs, anterior
protection, carpentry, sanitation, floors, heating and electricity are needed in 85 schools.
Roofs are a particular problem in most schools where flat roofs have begun to leak and
cause further structural damage. Detailed costing for civil works, sanitary works, electric,
and heating has been conducted by an independent consultant working in cooperation with
MES engineers. The needs have been prioritized for each school, focusing on ‘must be
done,’ ‘should be done’ and ‘can be done.’11 Where schools are currently unable to
sustain service despite triple shifts, addition of annexes or enlargement is recommended.
(See Annex 4).

Level (total number of schools) Enlargement/Annex Urgent Repair/

Needed Reconstruction Needed

Kindergarten (19) 4 11
Primary School (166 + 293) 18 68
Secondary School (45) 8 24
Other (additional facilities) 6 13
Total 36 116

Table 3: School Facilities: Enlargement and Repair Needs12

11
The detailed construction needs analysis (about 200 pages) may be obtained from Tunde Kovacs-Cerovic, OSI:
[email protected].
12
A report provided recently by UNICEF outlines donor activity or planned activity in 42 schools. Overlaps were
identified for 11 schools listed in the above table. Further details may be obtained from Tunde Kovacs-Cerovics

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4.2.2. Construction of new facilities: Demographic changes in Montenegro have put a large
strain on schools in urban areas. The population of Podgorica, for example, has grown
from 70,000 in 1980 to over 210,000 today. Schools are operating in double and triple
shifts, and class sizes are large (up to 35-40 pupils per class). Double-shifts create a strain
on school maintenance, school administration, the teaching force, parents and students.
However, the capital investment necessary to bring all schools to single shifts would be
considered a luxury in Montenegro under current conditions. New school buildings are
recommended only where existing schools operate on three overcrowded shifts or where
the existing school has been or will be demolished.

Level New Schools Needed

Kindergarten 1
Primary School 6
Secondary School 4
Other (sports facility) 1
Total 12

Table 4: New School Construction Needs

4.2.3. School Furniture: Furniture in most schools is in disrepair and inadequate supply. The
needs assessment in furniture is based on a school-by-school analysis, quantifying actual
needs in terms of missing or broken furniture, or furniture that has become unusable.

Level Desks Chairs Blackboards

Primary (56 schools) 5,742 10,944 678

Secondary (37 schools) 3,990 8,000 428

TOTAL (102 schools) 9,732 18,944 1,106

Table 5: New School Furniture and Blackboards Needed

4.2.4. Maintenance: School maintenance in Montenegro faces three sets of pressures: a) old,
dilapidated facilities require a higher level of maintenance, and interventions are more
costly, b) double and triple shifts put increased strain on school facilities, and c) lack of
resources for maintenance produces a downward spiral where one issue of neglect may
lead to greater and more serious problems. Increased resources for maintenance are

[email protected], and Yukie Mokuo of UNICEF, [email protected].

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 necessary to avoid significantly larger capital costs in the future. Yet, this area is often the
first to be cut, considering pressing needs to pay salaries, heating costs, and other
necessities.

4.2.5. Heating: Lack of heating is a major problem in schools, and winters in the mountainous
country are severe. School heating is provided in four ways in Montenegro: oil, coal,
wood, and electricity. Through provision from the state budget and local donations, 75%
of the wood needs were provided last year. However, only 7% of oil needs 23% of coal
needs, and 21% of electricity needs were provided. Approximately 2.3mDM is needed
annually to cover heating costs, Schools cope with this situation by using a minimal
amount of fuel to heat schools periodically, and students and teachers wear coats, hats and
gloves in class. When fuel runs out completely or weather is severe, schools are closed
periodically. This situation leads to disruption in learning, discomfort and illness, and is
especially worrying for young children.

4.2.6. Higher Education: The major problems with the physical plant concern building-
maintenance and lack of space. Without exception, the scarcity of space is keenly felt at
all faculties. The Maritime Faculty and the Faculty of Law, with about 1m2 per pupil, face
a dramatic need for expanded facilities. The three artistic faculties in Niksic are
particularly struck with a shortage of space, notwithstanding the bad state of maintenance
on their premises. The main and central university library is housed in a small space,
occupying only 80m2. Additional space is needed on all levels (55% more according to
the Dean’s assessment of the average needs): lecture and reading rooms, libraries and
administration. Lack of heating is a serious problem, as well as insufficient electrical
installations and leaking roofs.

4.3. School Supplies

4.3.1. Basic Materials: The MES and OSI conducted a survey of primary and secondary schools
to determine educational materials and equipment needs. For the most part, schools were
modest in their requests, recognizing the realities of a resource-deprived system. Major
deficiencies emerged in basic materials such as detergent, toilet soap and paper, cleaning
supplies (brooms, mops, buckets, vacuum cleaners) in pre-school, primary and secondary
schools. Student notebooks and pens are bought by parents and seem to be in adequate
supply, except for IDPs and refugees (see section 4.4). There are serious shortages of
chalk and A4 paper for tests and other learning materials. Other needed materials include
class register books, sponges, OHP pens, OHP sheets, computer paper, and technical
paper. These needs have been quantified by item and level, and are provided in Annex 3.
In addition to these basic needs, there is a serious shortage of supplemental learning
materials, and classrooms are generally impoverished. Materials and manipulatives such
as maps, geometric cubes, ABC visuals, resource books, sports equipment and other
materials are needed.

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4.3.2. Food and accommodation: Food is supplied to kindergartens, special education schools
and boarding schools. There are 19 kindergartens, 5 special schools, and 11 secondary
boarding schools with 1,050 pupils. The annual cost for food and accommodation is
approximately 3.4m DM. The state budget was able to allocate approximately 2mDM,
leaving a deficit of 1.4mDM.

4.3.3. Transportation: Public transportation does not function outside of the urban areas in
Montenegro. Bus transportation for children to attend rural schools is needed. Buses are
provided by the schools, government or donors in some cases. Often, by the time a bus is
donated to a school, it is already run down and even dangerous. For pre-school and
primary schools in rural areas, 13 mini-buses are urgently needed. Public transportation
passes for children in urban areas cost 12 DM per month. For many children, neither
parents nor the school can afford to cover this cost.

4.3.4. Equipment: Little or no funding has been provided for educational equipment in primary
and secondary schools over the past ten years. Facing economic isolation and the need to
quickly enter the information society, schools and parents place high priority on
equipment for foreign language learning (video, TV, cassette recorders) and computers.
Equipment requests from schools have been quantified and costed, and are included in the
annex. In addition to these items, science laboratories in secondary school are either non-
functioning or simply do not exist. Previous investment in laboratories was somewhat
lost due to the lack of integration of experimental methods into the curriculum and teacher
training. Provision of laboratory materials (and computers) should be provided with the
necessary training and curriculum considerations.

4.3.5. Computers: The Ministry has recently determined that Information Technology will be
introduced into the school curriculum. With the exception of the University of
Montenegro, there are few computers in use in the school system, although the
infrastructure does exist for increasing the number of internet users. The school system
would have to make a significant investment in the purchase of hardware (computers and
other equipment) and software and the training of teachers and other professionals to
introduce the curriculum. This is a very high priority area for parents as well as educators,
and is seen as essential to overcoming years of economic and technological isolation.

4.3.6. Higher Education: During the past decade, the University of Montenegro has gone
through a difficult phase. The political and economic isolation made it almost impossible
to supply the libraries with up-to-date literature, and the need for foreign scientific
periodicals is especially acute. The libraries themselves are badly equipped, and lack the
ability to network with other libraries. There is a lack of media equipment, and the
technical and linguistic departments lack adequate laboratory facilities.

4.4. Internally Displaced Persons and Refugees:13

4.4.1. According to MES policy, all internally displaced, primary school-aged children are
officially registered in Montenegrin schools, regardless of ethnicity, origin, or religious
13
UNICEF, ibid.

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 background. According to UNICEF, enrollment of children has been geographically
uneven, with 53% of ID children registered in 6 of the 21 municipalities, corresponding to
the areas accommodating a large number of IDPs. Children who attended school in the
parallel system in Kosovo are having particular difficulties due to language and
curriculum differences, as well as gaps in time spent in school due to the war. Roma IDPs
and refugees face language and cultural barriers, and have the highest levels of non-
attendance and drop-out of any others.

4.4.2. Internally displaced and refugee children require special assistance in a) provision of school materials or
school kits (school bag, notebook, pens, etc.), b) provision of textbooks, and c) language learning. Most of
these needs have been met by UNICEF, HELP/ECHO, Swiss Disaster Relief and Catholic Relief Services
through provision of kits and out of school programs. In addition to the needs of the children, the schools
have required assistance in handling the additional pupils. School furniture, school buses and firewood has
been provided by the Danish Refugee Council and UNICEF.

5. DONOR PROGRAMS IN EDUCATION

5.1. Donor Programs in Education

5.1.1. European Commission ‘Obnova’ Program: - Education Sector (Total Budget: 0.5m Euro) The main
objective of this component is to assist the Ministry of Education in reforming the existing education system
at elementary level (for pupils aged 7 to 15 years) while developing a more comprehensive master-plan for
future reforms in the higher and university sectors. This program will allow the Republic of Montenegro to
develop contacts with other European education institutions and to adopt European standards in the field of
education. This objective will be achieved through the secondment of senior sector experts for a period of
one year to the Montenegrin Ministry of Education. The feasibility of arranging study visits to Ministries of
Education in member states will be assessed.

5.1.2. UNICEF: (Total budget for education in 1999: USD 1 million / donor appeal in 2000 : USD 1.4 million)
UNICEF supports the MES in early childhood care and primary education, advocating the UN Convention
on the Rights of the Child. Key areas of UNICEF assistance are supporting the education reform process
and ensuring basic education to all children, including non-attendants and drop-outs. In-service training of
teachers in active learning methods has been implemented since 1996, aiming at the capacity building of
primary school teachers in a child-centred teaching methodology. In response to the IDP influx in 1999,
UNICEF provided school furniture, educational equipment, textbooks, children's school materials to primary
schools and internally displaced children from Kosovo. Teachers' training on creative problem solving
strategies has started in 10 model schools to promote non-violent communication skills in classrooms in the
post-war period. In addition, UNICEF facilitated the implementation of Non-Formal Education Programme
for internally displaced children who are out of school, with support from MES and NGOs . A large number
of internally displaced children out of school had access to basic education in NFE programme. The
beneficiaries were first ethnic Albanian children who were displaced in spring and later Roma children
displaced from Kosovo after the summer 1999. In year 2000, UNICEF plans to support the MES in the
assessment of reform process and children's learning achievement, expanding the teachers' training on active
learning methods, enhancing peace and tolerance education, and developing republican guidelines on
community based early childhood care.

5.1.3. Open Society Institute (Total Budget for Education in 1999: $500,000, Budget for 2000: $647,000): Pre-
school and primary school program aimed at developing individualized learning, parent involvement, and
interactive teaching methods. The program, Step by Step, established 2 model kindergartens and 8 model
primary schools. The program involves the Teaching Faculty from Niksi in order to improve its curriculum.

17
 The MES has committed to co-financing the program. The program is in its fifth year of operation in
Montenegro. In higher education, OSI supports student scholarships for study abroad, faculty exchange
programs, summer schools for young faculty, and sponsoring students at the Central European University.
OSI is also providing support to MES in needs assessment, and capacity building in developing its overall
reform strategy.

5.1.4. KulturKontakt: Countrywide seminar on "Education for Human Rights" in Kotor (Montenegro) for key
persons in the field of education (September 24 - 25, 1999). 32 Participants: MES, Historical Institutes of
Montenegro/Podgorica, Public Educational Institution in Podgorica, Faculty of Philosophy Niksic,
Representatives of pilot schools. Implemented in cooperation between MES, KulturKontakt, the Belgrade
Centre for Human Rights and the Centre for Democracy and Human Rights in Podgorica. Content: Elements
of the role of human rights in Education with specific emphasise on the actual situation in Montenegro.

5.1.5. British Council: In February 1999 a project on reform of foreign language education was proposed by BC
(submitted to EC Obnova Program). The long term aim is to organize in-service teacher training – in all
regions in MN. In the short term, BC plans to organize a month long professional training for 20 selected
counselors, professors and English teachers aiming to strengthen them in project writing skills, base-line
study and curriculum reform guidance. BC also launched a pilot project to introduce new foreign language
textbooks in Montenegro. Beside that it is planned to help organize a conference for teachers of foreign
languages as well as publishing the newsletter for promoting and fostering the implementation of the new
teaching methods into schools.

5.1.6. Catholic Relief Services: Parent School Partnership Program brings community members together to learn
and practice techniques of participation, consensus building and advocacy while implementing small
projects that will improve learning conditions in schools. Presently 3 parent councils have been established
(Podgorica, Tuzi and Petnjica) as mechanisms to provide their impact on schools. CRS provides capacity
building training and grants for parent councils small projects.

5.1.7. World University Service (WUS) Austria (budget per university-semester DEM 450.000) is an NGO dealing
with higher education and Human Rights. Present in Montenegro since 1998, it has - with the support of the
Austrian Federal Chancellery - mainly conducted two programmes aiming at infrastructural and academic
reconstruction of the University. Projects were supported with up to DEM 20.000 respectively DEM 5.000.
In addition to that, WUS has significantly helped the university to finance an efficient internet connection
and runs an internet centre with free access for all university members. Within its Academic Travel Support
programme, WUS also supports university members seeking to participate in international academic events.
It organizes a whole range of language and computer courses, which are extremely popular with both
students and the university-staff. In its new programme, WUS Austria offers to co-finance events organized
by university members, to implement innovative students ideas and to provide stipends for postgraduate and
doctoral students within their research-projects. Recently, WUS has initiated and co-finances a university
Centre for Human Rights. On the basis of activities ranging from summer schools to curriculum-building,
the centre will contribute to deepen and disseminate the awareness of fundamental rights and freedoms,
democracy and the rule of law among academics and the emerging civil society of Montenegro.

5.1.8. Save the Children (US0 In the area of education, SC (US) is providing recreational and after school facilities
in several areas in Montenegro. SCF (US) also provides transportation to children and teenagers to attend
the recreational centers. In addition, SCF (US) is also providing pre-school playrooms to approximately
1,000 children, including Roma, IDP, refugee and Montenegrin children. (About half of these are IDPs.)
SCF (US) is also organizing classes on health topics and distributing vitamins to preschoolers. In 2000,
Save the Children plans to develop Parent Associations which will oversee the management of the
playrooms. Further training of playroom leaders will be conducted, including children’s rights and working
with children with disabilities.

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5.2. Education Needs and Donor Activities (Table) – May not be complete or exhaustive.
Further information on donor programs is welcome.

Needs Active Donors

Educational Reform Strategy, Capacity Open Society Institute, UNICEF, EC

Building of Ministry Obnova
Teacher Education System
Standards, Curriculum and Assessment
Reform
Quality Assurance
Textbooks
Teaching Methods Open Society Institute, UNICEF, Save the
Children
Early Childhood Education Open Society Institute, Save the Children,
UNICEF
Foreign Languages British Council
Civics and Human Rights Education KulturKontakt, WUS
Higher Education Reform EC Obnova - planned
University / Faculty Support World University Service – Austria, OSI
School and University Libraries
Refugees and Internally Displaced UNICEF, Save the Children, Swiss
Disaster Relief
Education of Minorities Roma – UNICEF, Albanian - none
Educational Supplies and Equipment
Computers and Internet WUS – University level
School Reconstruction CRS, SCF US, SDR, UNICEF, COOPI,
UNHCR, HELP
School Furniture (provided for IDPs – see above)

Table 6: Activities of Donors in Education

6. CONCLUSIONS

6.1. Reform Strategy Development and Reform Implementation: The MES has identified ready
partners in OSI, UNICEF and EC in building its capacity to develop an overall vision and
strategy for education reform. This process will take place over the next 6-9 months, and
will include consultations with stakeholders as well as technical assistance to the MES. Far
greater donor involvement will be necessary to put this strategic vision into action at the
level of teacher education, textbook development, quality assurance mechanisms, school
improvement and community involvement, meeting the needs of minorities and

19
 disadvantaged pupils, addressing the issue of early drop-outs and non-attendants, and many
other areas.

6.2. Educational Facilities: The Montenegrin education system is facing serious challenges and
hardship. The extremely poor situation of many of the educational facilities needs urgent
attention. It is commendable that the Ministry has placed the process of reform as its top
priority. Nevertheless, donor support for improving the learning environment will be
essential in order to provide the necessary conditions for educators to meet basic needs of
pupils. Furthermore, without such support, it will be difficult for the MES to build
consensus for reform if parents, teachers and students are faced with freezing classrooms,
leaking ceilings, broken windows, non-functional blackboards, poor furniture, and
overcrowded classrooms.

6.3. Textbooks and Learning Materials: Active engagement of the donors will be needed to fund
the development of new textbooks in keeping with curricular change, as well as the capacity
building of the publishers, authors, the Ministry and other actors in order to engineer the
change of content and presentation. Foreign language textbooks from bilaterals, such as UK,
France, Italy and Germany will help in revitalizing modern language teaching. In addition to
an effort to renew textbooks, supplemental materials such as maps, reference materials, ABC
visual aids, and other items to enrich the classroom environment could make an important
difference to teachers and students.

6.4. Opportunity for Development: There is a great opportunity for educational change and
renewal in Montenegro at the moment. The government is open to working with donors,
and it is ready to take on the hard challenges that reform will bring. Educators, parents and
students have endured a difficult decade, and expectations are high that improvements are on
the way. The school network is small, comprising only about 600 school buildings. Thus,
well-coordinated interventions of the donor community could make a substantial impact on
all schools in Montenegro.

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