STUDY ON THE OBSTACLES TO EDUCATION IN MONTENEGRO Focus on Roma and Egyptian children
Study prepared by: Ipsos Strategic Marketing, Belgrade, Serbia Report prepared by: • Ana Delić • Milica Erić • Milena Lazić • Predrag Kurčubić
Expert editing: • Caroline Milena Sykora June, 2013
Study on the obstacles to education in Montenegro 1 Study prepared by: Ipsos Strategic Marketing, Belgrade, Serbia
© United Nations Children’s Fund (UNICEF) June 2013
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Photography: UNICEF Montenegro/Zoran Jovanović Maccak UNICEF Montenegro/Risto Božović
Photography on the cover: UNICEF Montenegro/Zoran Jovanović Maccak
Proofreading: Peter Stonelake
Translation: Ipsos Strategic Marketing, Belgrade, Serbia
Design & Prepress: Praxis Montenegro d.o.o.
Print: DPC d.o.o.
Circulation: 200 copies
2 CONTENT
FOREWORD ...... 5
ACRONYMS AND ABBREVIATIONS ...... 7
INTRODUCTION ...... 8
METHODOLOGY ...... 10
DETERMINANT ANALYSIS FRAMEWORK ...... 13
SUMMARY ...... 15 Enabling environment ...... 16 Supply ...... 19 Demand ...... 21 Quality ...... 25
DATA OVERVIEW OF PRIMARY EDUCATION COVERAGE...... 27 Data on Education of Children in Montenegro ...... 28 Out-of-School Children in Montenegro ...... 30 1. Roma and Egyptian Children ...... 30 2. Refugees and DPs ...... 32 3. Children with Disabilities ...... 33 4. Children Affected by Poverty ...... 35
ANALYSIS OF DETERMINANTS IN EDUCATION ...... 37 DESK STUDY ...... 38 Enabling Environment ...... 38 Social Norms ...... 38 1. Stigma and Discrimination Against Children from Vulnerable Social Groups ....38 Legislation and Policy on Education ...... 41 1. Legal and Regulatory Framework on Inclusive Education in Montenegro...... 42 2. Strategic Framework in the International Community ...... 44 3. National Strategies and Goals ...... 45 4. Local Strategic Plans ...... 45 Budget and Expenditures on Education in Montenegro ...... 47 1. Investment for Improvement of the Quality of Education ...... 47 2. Expenditure on Teaching Staff and Utilities ...... 47 3. Funding of Policies that Target Disadvantaged Children ...... 48 Management and Coordination ...... 49 1. Identifying and Addressing Issues of Early Dropping Out & Enforcement ...... 49 2. Identifying Children at Risk of Dropping Out and Taking Preventive Measures ...... 50
Study on the obstacles to education in Montenegro 3 EMPIRICAL STUDY...... 52 Supply ...... 52 Availability of Essential Commodities and Inputs...... 52 1. Proximity of Schools to Family Homes and Transportation ...... 52 Access to Adequately Staffed Services ...... 55 1. Insufficiently Available Preschool Education ...... 55 2. Importance of Using Secondary Language in Schools ...... 56 3. Limited Outreach and Child-Seeking Services by Education Systems ...... 58 Demand ...... 60 Housing and Financial Access ...... 60 1. Access to Adequate Housing Conditions, Water and Heat ...... 61 2. Inability to Pay School Costs ...... 65 3. Contributing to Family Income ...... 69 4. Household Responsibilities and Care for Other Family Members ...... 71 Cultural Practices and Beliefs ...... 72 1. Free Time...... 72 2. Friends ...... 72 Compromised Parental Support for Continuation of Education ...... 74 1. Knowledge about the Educational System ...... 74 2. Attitude Towards Importance of Education...... 74 Literacy of Parents ...... 82 Early Marriage ...... 83 1. Characteristics of Roma and Egyptian Households...... 83 2. Attitudes towards Marriage...... 84 Compromised Motivation for and Interest in Education among Young People ...... 87 Continuity of Use ...... 88 1. Children Outside of the System of Education ...... 88 Attendance at School ...... 91 Challenges with Birth Registration and Legal Identity Papers ...... 93 Child Health and Developmental Difficulties as an Obstacle to Enrolment and Attendance...... 93 Quality ...... 94 Evaluation of the Reform of the Education System in Montenegro (2010-2012), Implementation of Inclusive Education...... 96 Experiences of children with disabilities...... 96
CONCLUSIONS AND RECOMMENDATIONS ...... 99
ANNEXES ...... 115 Annex 1: Common Basic Principles on Roma Inclusion ...... 115 Annex 2: Examples of Good Practice...... 117
4 FOREWORD
Ensuring the basic human rights of Roma and Egyptian exclusion and other co-related Egyptian children is a major challenge for aspects of deprivation such as early marriage many European countries. Committed to the and inter-generational poverty. These EU integration process, Millennium determinants have been identified through Development Goals and the United Nations global and regional studies on similar forms of Convention on the Rights of the Child, the social exclusion and disparity in the education Government of Montenegro has pledged to sector. ensure the right of every child to access to quality education. Progress in education sector Montenegro has progressed in the inclusive reform has been highlighted in the recent education sphere in the last decade. For provisional closing of Chapter 26 on Education example, more and more Roma and Egyptian and Culture within the EU negotiation process. children are being enrolled in primary school. However, efforts to better integrate Roma and In 2011-12, the Ministry of Education and Egyptian children into Montenegro’s education Sports statistics reveal that 1,582 were system have been fraught with challenges. enrolled at the beginning of the school year, Rates of enrolment, attendance and primary compared to 536 ten years prior. school completion among these children remain low. According to the Census, however, only about half of Montenegro’s Roma and Egyptian The “Study on the Obstacles to Education in children are in primary school at any given Montenegro” provides a wide-ranging analysis time. Roma and Egyptian children who do of the impediments that often keep Roma and attend school often perform poorly and drop- Egyptian children out of school. We hope the out rates soar after the age of 11. Less than a study will enable more effective programming, third complete primary school and only 7% monitoring and evaluation initiatives so that complete secondary school, compared to 98% more of these children can get the help they and 86% respectively for the mainstream need. population.
No social problem is ever explained by a The study shows that there is no single single causal factor or determinant. This study explanation for high rates of dropping out, but is unique as it uses a framework of analysis rather multiple determinants that often interact that simultaneously reviews all of the key with each other. These include, amongst determinants that contribute to Roma and others: stigma and discrimination, poverty,
Study on the obstacles to education in Montenegro 5 housing and hygiene, cultural attitudes and successful in primary school and to better traditions of the community, low preschool integrate into the broader Montenegrin society. attendance rates, quality of education, and gaps in monitoring systems and slow Creating lasting change on a national scale implementation of legislation designed to requires concerted effort by multiple parties: improve their prospects. Sustainable schools, local governments, Roma and improvements in Roma and Egyptian Egyptian parents and their communities, and education outcomes can only be delivered by the country’s educational, social welfare and simultaneously addressing these multiple health sectors. The “Study on the Obstacles to obstacles. Education in Montenegro” received the robust support of the Roma and Egyptian community, Education has the power to break the the Ministry of Education and Sport, intergenerational cycle of Roma and Egyptian MONSTAT, the Red Cross and the civil society poverty and deprivation. Preschool education sector. Working together is essential if we are is proven to contribute to better primary and to make Montenegro a place where all children secondary school outcomes and acts as a are empowered to reach their full academic mechanism to reduce disparities in overall potential and enjoy their human rights. education performance during the life cycle of the child. Preschool participation improves Benjamin Perks Montenegrin language skills and prepares UNICEF Representative Roma and Egyptian children to be more to Montenegro
6 ACRONYMS AND ABBREVIATIONS
ECE – Early Childhood Education
EU – European Union
IPA – Instrument for Pre-Accession Assistance
LPA – Local Plans of Action
MONSTAT – Statistical Office of Montenegro
MoE – Ministry of Education
RAE – Roma, Ashkali and Egyptians
RE – Roma and Egyptians
SEN – Special Educational Needs
UN – United Nations
WHO – World Health Organisation
Photography: UNICEF Montenegro/Zoran Jovanović Maccak
Study on the obstacles to education in Montenegro 7 INTRODUCTION
Primary education in Montenegro is compulsory standards for social inclusion—including for all children aged from six to fifteen years, eliminating obstacles to Roma and Egyptian regardless of gender, race, religion, social childrenin accessing education.Specifically, background or any other personal characteristic. funding for Roma integration and equality has Although according to the latest Census been made available in the context of EU conducted in 2011, 95% of all children of school- enlargement through the Instrument for Pre- going age were attending school, in the Roma Accession Assistance. As a part of the IPA and Egyptian population, the attendance rate in funding scheme, the Commission’s Directorate- primary schools was drastically lower (51% and General for Enlargement continuously monitors 54% respectively). Unofficial estimates put the the development of anti-discrimination primary enrolment rate of Roma and Egyptian legislation, administrative actions,2 and the children at 25.2%, the completion rate of the first social and economic integration of Roma.3 cycle of compulsory education at 32% Moreover following the March 2011 European (compared to 98% for the general population) Parliament Resolution on the EU Roma and the corresponding rate for the second cycle strategy, the European Commission at 7% (compared to 86% of the general Employment, Social Affairs and Inclusion put population).1 The government has ratified the forward An EU Framework for National Roma UN Convention on the Rights of the Child, and Integration Strategies up to 2020, which is a Montenegro is committed to ensuring the right of part of the commission’s wider Europe 2020 every child to education. growth strategy. The European Council endorsed it in June 2011. Though the As a pre-accession country Montenegro aspires framework mostly pertains to the 27 EU to meet specific EU standards. The accession member countries, the commission has process includes alignment of policies, committed to reviewing and supporting the legislation, and national action plans with EU Roma integration strategies and action plans of accession countries4 including Montenegro.
1 MontenegroAfter the Crisis: Towards a Smaller and More Efficient Government, Public Expenditure and Institutional Review, Main Report, World Bank, October 2011 2 UNICEF, European Social Observatory. [2011] Preventing Social Exclusion through the Europe 2020 Strategy: Early Childhood Development and the Inclusion of Roma Families. pp. 15. 3 European Union. [2011] EU framework for national Roma strategies: Frequently asked questions.
The main aim of this study is to provide a The report consists of a section on comprehensive analysis of Roma and methodology, a description of the determinant Egyptian children and the obstacles to their analysis framework, and an executive inclusion in quality compulsory education. The summary. After these introductory sections study will analyze existing legislation and comes the desk analysis, and a section that policies in the area of education, education elaborates on the results of the empirical budget and expenditure, coordination study—whose components are explained in mechanisms between relevant institutions, the description of the methodology. A section availability of essential commodities for with conclusions and recommendations, and learning, infrastructure, cultural norms and an annex with examples of good practices beliefs, and quality of education and existing come after the empirical study.
Study on the obstacles to education in Montenegro 9 METHODOLOGY
The aim of the research is to enable better of primary school, such as: socio-economic understanding of the multiple factors which status, legal status of families with children who may contribute to Roma and Egyptian are not included in the primary education inclusion in primary education. This requires system; the values and attitudes of parents; and the “measurement” of the phenomena and the so forth. Specifically, the quantitative study provision of factors that can explain the aimed to identify the risk factors leading to non- processes behind non-enrolment or dropping enrolment or dropping out of primary school. In out, both a quantitative and qualitative analysis order to make the assessment of these factors were conducted. Besides that, the research possible two groups of households were was preceded by a desk analysis to provide compared in the survey. The two groups have a insight into the existing strategies, research similar socio-economic status, but they differ and programmes in education. The desk study according to one characteristic which is crucial also includes data from official institutions for this research—households with children who concerning coverage of children in education; are enrolled in and regularly attend primary examples of positive practices from other school; and households with children who are countries; and other relevant data. An not enrolled in primary school, or who have assessment of the main quantitative indicators dropped out of it. of education coverageis presented in the desk analysis. In a sense, the desk analysis Considering that it usually is not possible to consolidates what we already know about fully explain the mechanisms that affect Roma and Egyptian exclusion in Montenegro phenomena through the results of quantitative and primarily relates to polices and strategies studies, qualitative data was also supplied. that the education system is undertaking to Qualitative studies provide deeper insight into include Roma and Egyptian children. However issues. The survey also includes findings from there is an absence of data on how broader focus group discussions with parents of social, cultural, traditional and economic children who failed to enrol in primary school factors may also contribute to exclusion. A or dropped out of it, and with parents of a principle aim of this study is to strengthen similar socio-cultural and economic status knowledge on these broader issues. whose children are enrolled in primary school and regularly attend it. Therefore, a quantitative study was also used to assess a number of other indicators potentially Special attention was paid to the mechanisms associated with non-enrolment and dropping out by which the phenomenon of non-enrolment or
10 dropping out of primary school arises. These of it, as well as households with a similar mechanisms are analyzed through case cultural background and socio-economic studies concerning children who were not status in which the children regularly enrolled in primary school or dropped out of it. attend primary school For this purpose in-depth interviews were b. The sampling principle is the so-called conducted with people who were crucial for Snowball non-enrolment or dropping out of primary c. A total of 300 people were interviewed in school—the children, their parents or 300 households. Within the sample of guardians, teachers or class masters, school children of primary-school age, four psychologists or educationalists, and people subsamples were created: from the municipality in charge of primary i. Subsample of Roma and Egyptian education. Care was taken not only to include households with children who were not in the case studies scenarios in which the enrolled in primary school or dropped various factors and processes that resulted in out of it—a total of 100 households non-enrolment or dropping out of primary ii. Subsample of households of majority school, but also to present an example of population with children who were not positive practice. enrolled in primary school or dropped out of it—a total of 50 households Because of the focus on a relatively small part of iii. Subsample of Roma and Egyptian the population, the methodology of this research households with a similar cultural does not offer the possibility of describing the background and socio-economic population of all households with children who status as Roma and Egyptian were not enrolled in primary school or dropped households in which the child is not out of it. Regardless of the presence of various attending school, but where the regions, municipalities, types of settlement, children regularly attend primary households with different ethnicities and school—a total of 100 households different socio-economic and cultural contexts in iv. Subsample of households from the the sample, the sample still cannot claim to be majority population with a similar completely representative of all households, but cultural background and socio- care was taken that the size and structure of the economic status as the households sample allow reliable conclusions. of the majority population in which a child is not attending primary school, Within this study four smaller surveys were but where the children regularly conducted: attend primary school—a total of 50 households 1. Desk analysis – analysis of the existing d. The length of the questionnaire is circa 45 data, relevant studies and strategies minutes regarding the education of Roma and e. The survey was conducted in August 2012 Egyptian children 3. Discussion in focus groups with parents 2. “Face-to-face” survey – interviews with the of children of primary-school age—a total of household head or other household member four focus group discussions were realized: who is the most familiar with the a. With parents of Roma and Egyptian child’s/children’s education children whose children were not enrolled a. The sampling frame (or target population) in primary school or dropped out of it theoretically includes all households in b. With parents from the majority population Montenegro in which children were not whose children were not enrolled in enrolled in primary school or dropped out primary school or dropped out of it
Study on the obstacles to education in Montenegro 11 c. With parents from the Roma and Egyptian school and one example of positive practice populations with a similar cultural were elaborated and explained on the basis background and socio-economic status to of data obtained from in-depth interviews those parents whose children were not with key people involved in the process of enrolled in primary school or dropped out the child's education (4-5 in-depth interviews of it, but whose children regularly attend according to one scenario). primary school a. Podgorica (Konik settlement), Bijelo Polje d. With parents from the majority population and Nikšić; with a similar cultural background and b. In the period from 3-10 September 2012. socio-economic status to those parents whose children were not enrolled in A final word on methodology:During the primary school or dropped out of it, but process of identifying the parents from the whose children regularly attend primary comparator group of the majority population school whose children were not enrolled in primary school or dropped out of it and in conducting Focus groups with the Roma and Egyptians the field work, it was realized that most of them were realized in Podgorica on 3 September were parents of children with disabilities 2012, while focus groups with parents from the (CwD). Thus an additional section on major majority population were realized the next day issues faced by this group has been added in Bijelo Polje. towards the end of the study. Given the close linkage between inclusion of Roma and 4. Case studies – 6 key scenarios of non- Egyptian and CwD the situation of CwD enrolment or dropping out from primary appears throughout the study.
12 DETERMINANT ANALYSIS FRAMEWORK
Within the EU, studies concerned with mapping education. Governments throughout the EU the causes of low participation (including often have multi-pronged strategies to dropping out), poor academic performance and simultaneously address all of the barriers to low educational attainment amongst Roma and universal education. Egyptians point out that these outcomes cannot be understood as single events, but Shown in the table below are some of the rather as a process initiated by a whole range determinants that affect the education of Roma of many risk factors. Aligned with this notion, and Egyptians. As already mentioned, this this report is organized around a framework of framework is the basis on which this report is ten interlinked determinants developed by organized. Per the framework, the desk study UNICEF, which help to analyze and monitor section of this report primarily focuses on obstacles vulnerable children face in accessing determinants within the “Enabling essential services. The ten determinants are Environment” category of the framework. The grouped into four broad categories including: rest of the ten determinants,in the categories the enabling environment, supply, demand, and of “Supply”,“Demand” and “Quality” are mostly quality. In this report these determinants described in the empirical study section of this influence the provision and access to document.
Table 1 Determinants and factors of risk identified by regional and global studies
Determinants and factors of risk identified by regional and global studies
• Stigma and discrimination, particularly directed at: Roma and Egyptians Social Norms or other minority ethnic groups, refugees and displaced persons, and children with physical or intellectual disabilities
• The legal framework does not or only partially guarantees inclusive education Legislation/Policy • Not permeable enough system of education • Poorly designed social protection policies
• Insufficient investment for an improvement in the quality of education • Policies targeting disadvantaged children are unfunded or insufficiently Budget/Expenditure funded at both national and local levels • Expenditure on teaching staff represents more than 80% of the total annual expenditure with insufficient funding allocated to quality
Enabling environment • Insufficient investment for an improvement in the quality of education • Policies targeting disadvantaged children are unfunded or insufficiently Management/ funded at both national and local levels Coordination • Expenditure on teaching staff represents more than 80% of the total annual expenditure with insufficient funding allocated to quality
Study on the obstacles to education in Montenegro 13 Continuation of the table 1 Determinants and factors of risk identified by regional and global studies
Determinants and factors of risk identified by regional and global studies
• Rural areas and underdeveloped parts of towns—transportation and Availability of Essential large distances between home and school Commodities and • Shortage of infrastructure for early learning, particularly in rural areas Inputs • Schools do not have sufficient didactic materials and secondary language books to teach minority language children
• Insufficiently available preschool education • Shortage of qualified teachers and assistants Access to adequately • Lack of support for children who repeat a grade—lack of ‘catch-up’ staffed services programmes Enabling environment • Limited outreach and child-seeking services by education systems • Teachers are not trained in inclusive teaching practices
• Family poverty causing the inability to pay school costs • Schools do not provide free transportation to and from school • Poorly designed ‘social cash transfers’ for families living in extreme Financial Access poverty • Opportunity-cost of child labour for contributing to family income is high • Care for other family members and household responsibilities
• Dysfunctional family dynamics • Compromised parental support for continuation of education Cultural Practices and • Early marriage Demand Beliefs • Insufficient family communication about school • Compromised motivation and interest among young people for education
• Frequent absence from school, skipping classes or suspension Continuity of Use • Mobility of parents - frequent changing of place of residence • Challenges with birth registration and legal identity papers
• Low-quality preschool education • Poor quality in-school support for children with special education needs (SEN) Quality Education • Curricula are not responsive or flexible enough to respond to the needs of diverse learners Quality • Inclusive education practices are not sustained due to poor-quality support
14 SUMMARY
Photography: UNICEF Montenegro/Risto Božović Study on the obstacles to education in Montenegro 15 This study endeavours to shed light on, and Egyptian population since only half of the analyze the barriers Roma and Egyptian primary-school-age children from this children and children with disabilities face in population attend school. Additionally, more Montenegro in accessing quality education. It than 10% of children from the Roma and is hoped this paper will help national and local Egyptian population, which have the highest decision makers to continue policy reforms, percentage of primary school age children, are launch new inclusive education initiatives, and still not registered in the Birth Registry. Also, serve as a touchstone for effective 34% of stateless children and 16% of children implementation. who are in the process of acquiring citizenship do not attend school. Other vulnerable groups The report is organized around ten of children who are at high risk of dropping out determinants, or factors, affecting outcomes in are children with disabilities and poor children. education that any government seeking to The proportion of children who are below the promote inclusion may need to address. A poverty line is 10%.5 desk analysis presents some official statistics and looks at relevant legislation, policies, Numerous empirical studies conducted in budget framework, coordination and different European countries on absenteeism management. The empirical study conducted indicate that this is a complex, through surveys and focus groups presents multidimensional problem caused by several data on a number of other determinants in the risk factors. Throughout Europe stigma and categories of education supply, demand, and discrimination towards the Roma and quality. Lastly and most importantly are the Egyptian population and children with conclusions and recommendations section, disabilities is often cited as one of the main and an annex with examples of good obstacles to their education. Non-enrolment practices. and dropping out are contributed to by segregation of Roma and Egyptian children: segregation between schools, segregation ENABLING ENVIRONMENT within school and sometimes even in special schools. Often Roma and Egyptian children Determinants within the Enabling Environment, are caught in a vicious circle—schools do at the system and society level, can support or not support the language they use at home deter equal access to quality education. The and their skills in the main language of four determinants of the “Enabling education are poor, which can seriously Environment” category covered in this section impair their development and chances for a are: Social Norms, Legislation/Policy, quality education. Often a prejudicial Budget/Expenditure, and Management perception is created that Roma and Coordination. Egyptian children are thought of as intellectually inferior with schools and A tenth of the citizens of Montenegro are of teachers delivering a lower quality education primary school age and 95% of them are to these students due to reduced attending primary education. The attendance expectations of their academic abilities. rate is much lower among the Roma and Roma and Egyptian children are furthermore
5 Report ‘Child Poverty in Montenegro’, UNICEF, November 2011. (http://www.unicef.org/montenegro/media_19760.html)
16 often victims of abuse, physical and verbal characteristics of inclusive education. Roma insults within school environments with little and Egyptian national strategies and action done to curb such abuse. All of these factors plans also exist at national and local levels to act as barriers to educational enrolment, aid social integration, including integration in retention and success in school. education. Often however, resources and/or the capacity to implement legislation, policies Evidence from a series of nationally and actions plans are lacking. Moreover a representative surveys on social distance and comprehensive policy on inclusive education discrimination indicate that discriminatory has yet to be developed. attitudes and sentiments towards members of the Roma and Egyptian population exist in Low achievement of Roma and Egyptian Montenegro, as they do in most countries. children at primary school may be affected by Observing discrimination in access to attendance in preschool institutions, which, education, according to these surveys, Roma among other things, is extremely important for and Egyptian and people with disabilities overcoming cultural and linguistic barriers. Low represent the most vulnerable groups, with participation in these institutions reduces the 53% and 40% of citizens stating that Roma chances of Roma and Egyptian children to and Egyptian and people with disabilities master the official language before they start respectively do not experience the same primary school. treatment as the majority population with regards to access to education. Similarly, in According to the law in Montenegro two nationally representative Knowledge, institutions are in charge of the process of Attitudes and Practices surveys, stigma enrolment in primary school and regulating against children with disabilities in non-enrolment and non-attendance of primary Montenegro has been identified as one of the school: the state authority in charge of keeping main obstacles to their full inclusion into vital records of citizens and the educational education in society. institution.
The Government of Montenegro has Systems to identify Roma and Egyptian introduced a number of laws, national children at risk and children with strategies and local strategic plans in order disabilities need strengthening; precise data to create an inclusive system of education that and key information on them remain is equally responsive to all children. The two insufficient to develop effective education main directions of the strategies are: (i) initiatives, and measure their impact. In developing mechanisms for continuous particular there are no efficient information education of children and parents from the systems that would help identify Roma and Roma and Egyptian population and controlling Egyptian children who have problems in the quality of knowledge that these children learning the official language. Connected to gain and (ii) continuous education of children this, coordination among relevant sectors in and parents from the Roma and Egyptian order to address the multi-pronged challenges population, but also teachers and other school that Roma and Egyptian children face in personnel, about the importance and accessing education is mostly absent.
Study on the obstacles to education in Montenegro 17 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Monitoring prejudice and discrimination better flow of information and strengthen against Roma and Egyptian children and cooperation between crucial their families stakeholders. • Developing campaigns to foster • Legislation should be amended so that knowledge of the Roma and Egyptian children with disabilities can be more culture and positive attitudes towards readily identified and counted. children in Roma and Egyptian children Additionally amended laws, which as of and their families. 2010 encompass more comprehensively • Actively pursue the implementation of the needs of Roma and Egyptian anti-discrimination legislation and policy children and children with disabilities, and carry out standard diversity training should be fully implemented. among relevant stakeholders. • Change the structure of expenditures • Develop or strengthen effective and increase the proportion of financing complaint mechanisms, the capacities of directed towards quality-enhancing human rights liaisons and mechanisms measures including: early childhood for redress. development, higher education and • Raise political will by making decision lifelong learning. makers aware of the benefits of inclusive • Financing the expansion of free education for all, including its economic preschool should be stressed, benefits. Develop clearly articulated considering its importance in reducing objectives, goals and deadlines, and the educational and life-chances gaps conduct regular evaluations and between Roma and Egyptian and the monitoring of initiatives under actions majority population. plans. Implement some central oversight • Among other measures, inter-sectoral of local implementation. work should be strengthened to ensure • Mechanisms for complaints and redress that Roma and Egyptian children and of discrimination and human rights children with disabilities are receiving violations should be strengthened, coordinated holistic support. developed and paired with campaigns to • Design clear procedures and raise awareness of laws and how to use enforcement mechanisms that would these mechanisms. Capacity building of enable effective implementation of the those responsible for enforcing laws and provisions of the Law on Primary policies should also be conducted. Education relating to enrolment and • Strengthen data-collection mechanisms dropping out of school and sanctions to on vulnerable children who are at risk of follow if a child is not enrolled or drops dropping out or who are out-of-school out. children (children with disabilities, Roma • Increase the number of Roma mediators and Egyptian children, IDP/DP children). to help enforce children’s attendance at Make database accessible to all relevant school and decrease the risk of dropping state institutions in order to provide a out.
18 part because it helps to increase Montenegrin SUPPLY language skills and makes those children more ready to go to school. There is a In order to deliver quality education to all correlation between low preschool participation children certain essentials need to be supplied. and primary school attendance. Most of the Determinants within the “Supply” category of children encompassed by the study who do the Determinant Analysis Framework have a not attend primary school have never attended decisive impact on Roma and Egyptian kindergarten, while kindergarten participation education, and include everything from was much higher among pupils currently supplying safe facilities to hold classes in, to attending primary school, regardless of staffing these facilities with highly trained ethnicity. Access to preschools for Roma and teachers. Making sure that vulnerable children Egyptian children is affected by a number of have the same chances to access education barriers including: availability of preschools, and to do well as other less vulnerable children socio-economic situations and inability to pay requires that specific additional elements are fees; lack of awareness of the importance of supplied: these can range from free early education; proximity of preschools to transportation for those in remote areas to Roma and Egyptian households; lack of ensuring the availability of quiet study spaces. documentation and administrative difficulties in enrolment. Problems that Roma and Egyptian children often face in accessing schools is proximity. Additional measures to reduce drop-out rates Roma and Egyptian often live in housing that and ensure regular attendance requires is distant from schools. A large majority of coordination across sectors including Roma and Egyptian families cannot afford to education, child protection and social pay for safe transport to and from school, and welfare and the health sector. These according to parents’ statements free transport additional sectors need to be staffed with is often not available. personnel sensitive to the needs and situations of Roma and Egyptian children and Roma and Egyptian children and children with children with disabilities, and who will actively disabilities often have education needs above seek out families whose children are not in those of majority-population children. Staffing school. When children stop attending school schools with highly trained professionals, half of them do not officially drop out. This including ones who can accommodate information cannot be interpreted as an bilingual students and supplying communities indicator of potential return to school, since with quality preschools are especially 84% of the parents explicitly stated that their important to ensure access and positive child would not be back to school the following education outcomes for disadvantaged school year. In the highest percentage of children. Preschool attendance in particular is cases dropping out of school is not followed widely accepted as being important for school by any reaction from official institutions such success and a mechanism which reduces as schools, municipalities and Centres for disparities in education. For Roma and Social Work. When there was assistance, Egyptian children preschool institutions, Roma and Egyptian were assisted more particularly those with a mixed ethnic frequently by Roma and Egyptian NGOs, or composition, greatly facilitate later studies, in the Red Cross.
Study on the obstacles to education in Montenegro 19 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Free and safe transport for children Extra Montenegrin language classes in living in remote areas could be provided. primary school should be provided and • In particularly remote areas, until staffed. adequate transportation measures can • Strengthening the system and role of be put in place and especially in the Roma mediators to work with Roma and winter, temporary school and preschool Egyptian children whose mother tongue solutions could be considered, such as: is not the language of instruction. multi-grade or satellite primary schools; • Measures to strengthen the capacity of home preschools that combine raising social welfare centres and other relevant the awareness of the importance of actors, including schools, to follow up preschool and literacy of parents, with with students who drop out, or who are quality preschool activities for their not attending regularly, could be children. developed. • A priority for Montenegro could be the • Better monitoring and database systems expansion of free universal and need to be established, as do better mandatory preschool education for relationships with other relevant sector children ages 5-6 years old. The institutions in order to effectively track existing plans for preparatory classes absences, repeating of grades, and for this age group should consider dropping out. Information sharing on the making sure that Roma and Egyptian actions and methods employed by children are mixed with majority school NGOs working in this area can be children to boost their Montenegrin helpful. language skills. • Employing measures to help inform • Enrolment in preschool could be made Roma and Egyptian parents of the easier especially for parents who may importance of preschool and their be illiterate and who may be missing choices. Research has shown that documentation. Both preschool parents of Roma and Egyptian children enrolment fees and the enrolment are not sufficiently informed about their priority of favouring families with two preschool choices. Their children do not employed parents, should be waived. have to attend the local kindergarten for • Preschool and primary school staff and the Roma and Egyptian population, teachers could be trained in bilingual they can enrol their children in education to accommodate children ethnically mixed kindergartens located whose mother tongue is not Montengrin. elsewhere.
20 during the winter and, in comparison with the DEMAND majority population, Roma and Egyptians have more problems obtaining fuel for heating. One What Roma and Egyptian families and families of the biggest disadvantages is a lack of with children with disabilities are able and running water and bathrooms in Roma and willing to provide to facilitate their children’s Egyptian households. This factor prevents education are determinants within the Roma and Egyptian children from practicing “Demand” category of the Determinant routine hygiene, required for school Analysis. Their demand for education is attendance. determined by the financial situation of families, as well as for instance the value they Children covered by this study mainly live in place on it—they may not have enough multi-member households with poor socio- information to assess correctly the return on economic status. In all studied groups monthly investing in their child’s education. Other income is very low, and in 70% of cases it is factors also play a role and are explored in the no higher that €30 per household member per study. month. Nevertheless, households from the majority population are in a somewhat better Children from the majority population do not position. Low income results from enrol in school primarily due to what their exceptionally high unemployment of parents, parents perceive as health reasons or some which, interestingly enough, is somewhat form of disability. Roma and Egyptian higher in Roma and Egyptian households children remain outside of the system, both where children regularly attend school than in through non-enrolment and dropping out, households where children do not attend mainly due to what their parents perceive as school. This might be due to employed parents socio-economic reasons, with some part of needing children to attend to tasks at home tradition also playing a role. while they work, including possibly taking care of younger siblings, since they most likely The poor socio-economic status of the cannot pay for childcare. households covered by this survey is reflected in low income, lack of basic livelihood, but also As a result of low income these households poor housing conditions, which is the biggest have problems providing food and conditions visible difference between Roma and Egyptian for education. The majority of parents can households and households of families from afford only the cheapest food, and some are the majority population in the survey. The living able to provide just two meals a day (one-fifth quarters of Roma and Egyptian are generally of the households). In as many as 13% of the smaller and cramped, so that children share a households it often happens that children room with a number of other people. They complain of being hungry, and in 18% of them rarely have a suitable space for study. Almost it happens occasionally. Roma and Egyptians every household in the survey, regardless of whose children are not included in the ethnicity, has some sort of structural problem: educational system often claim that they do leaking roof, polluted air, noise, and a lack of not have enough money for children's clothes light. All these negative aspects are even more and textbooks, so their children do not have pronounced with Roma and Egyptians, them. However, this information must be particularly for Roma and Egyptian households interpreted with some reserve due to reported in which the children are not included in the cases of resale of the textbooks and school educational system. Besides this, in as many equipment which were received free of as one-third of the households it is very cold charge.
Study on the obstacles to education in Montenegro 21 When it comes to the time which the child Reasons for ambivalent attitudes toward spends at home, half of the children, regardless education among disadvantaged families often of household type, help the older household stem from poverty and the parents’ own low members to do the household chores during that educational attainment, as well as rational time. Helping with household work is more assessments of employment opportunities characteristic for Roma and Egyptian beyond schooling—which, in the case of Roma households with children who are not enrolled in and Egyptians, are quite dismal. school. According to the majority of parents, although the children take care of the household, Indeed the quantitative study confirmed that a they do not perform paid work. Children from significantly higher percentage of parents of both populations have frequent social children who do not go to school think that the relationships with their peers. Nevertheless, it is child will not be able to find a job afterwards. obvious that a relatively high percentage of Many of these parents are assessing Roma and Egyptian children have friends who discrimination against them in the labour do not attend primary school, which is market, and their diminished chances for particularly characteristic for Roma and Egyptian employment with or without an education. children who also do not attend school. Children Parents whose children go to school are more who attend primary school socialize to a higher likely to say that they know someone extent with children who also attend school. successful, who found work due to their education. Successful examples of individuals Between parents of children who go to school from within the Roma and Egyptian and those who do not, regardless of ethnicity, community, as well as the elimination of there is a difference in the level of importance discrimination, are important to raise the attributed to finishing school (at least valuation of education among them. primary), as well as the perceived usefulness of school knowledge as compared with non- Readiness of parents to help their children formally acquired knowledge. The importance finish their education is a very important attributed to education by parents whose children factor for children’s successful education. It is were attending school was higher than that noticeable that parents of children who go to attributed by parents whose children were not school are more ready to help their child finish attending. Discussion with Roma and Egyptian primary school, while parents of children who mothers showed that mothers whose children do not attend school are more inclined to feel were attending school, although they live in there is no way to help their child. The capacity exceptionally disadvantaged conditions, saw of parents to be able to help their children gain school as a way to a better life. On the other an education in part relies on the parents’ own hand, mothers whose children were not enrolled educational attainment. In comparison with the in school or dropped out of school attributed their majority population, Roma and Egyptian absence from education to their underprivileged parents are more often without a formal situation, although they feel that school is education (more than a half of mothers). In the important. For them school is not a ticket to a majority population a higher percentage of better life, because they believe “there is no work fathers have secondary education. The majority for Roma”. They also ascribed a higher level of of parents from the majority population are importance to non-formal education. The literate, and less than a half of Roma and responses about a lack of employment point to a Egyptians can read and write. The percentage larger context that should be taken into is even lower among Roma and Egyptian consideration when trying to understand Roma parents whose children do not attend school. and Egyptian parents’ valuation of education. Without the ability to read or write it becomes
22 impossible to help with their schoolwork, for knowledge of language as an obstacle to the instance. Add to this the hopelessness in education of Roma and Egyptians. It is mainly relation to employment opportunities even with parents that take decisions about non-enrolment an education, and the result is that many Roma or dropping out amongst Roma and Egyptians; and Egyptian parents are not fully motivated or while in the majority population this decision is able to help their children with their education. usually per a doctor's recommendation. The lack of documentation is particularly problematic This survey has confirmed previous findings that amongst Roma and Egyptian, and in particular one of the reasons for Roma and Egyptian girls among IDPs. When it comes to households from dropping out of school is early marriage and the majority population, almost all parents and the desire to protect their virginity. Roma and children have the necessary documents, which Egyptian parents are more inclined to see is not the case with Roma and Egyptians. A adolescence as an ideal age for marriage, and all higher percentage of Roma and Egyptian mothers expressed a fear that the girls would fall children who do not attend school do not have in love in school. Indeed data shows that the personal documents, in comparison with number of Roma and Egyptian children enrolled children who are enrolled in school. in school drops after reaching age 11, and especially among Roma and Egyptian girls. Significant predictors of dropping out are the However there were Roma and Egyptian mothers regularity of attendance and frequency of who hoped their daughters would not get married repeating a grade. Significantly higher early, and would finish school. This points a view percentages of children who have dropped out of marriage that is not entirely homogeneous from the system, regardless of ethnicity, were amongst Roma and Egyptian, and that with the absent from classes for more than one month. right interventions could possibly tip towards Regarding repeating classes, not only did supporting girls finishing their education. Roma and Egyptian children outside the system repeat grades more frequently, but so Other obstacles that contribute to Roma and did Roma and Egyptians attending school. Egyptian exclusion from the education is a lack of documents, fear that the child will be The health of children in and out of school is discriminated against on ethnic grounds or the also discussed, giving clues to the extent to child exceeding the age for starting school. which it affects regularity at school and to the Special attention should be paid to poor inclusiveness of schools.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Permanent housing solutions need to be preceded by intensive activities aimed at implemented for those families still living preparation of a successful transition of in camps. Study spaces for children children into integrated schools and whose housing situations are not neighbourhoods. conducive to studying should be provided. • Adequate water supply and heating also • All future steps aimed at disaggregation should be provided for those families of existing camps and integration of who do not have access to these Roma and Egyptians should be essentials.
Study on the obstacles to education in Montenegro 23 • Providing shared bathrooms in Roma children with their school work and raise and Egyptian settlements; provision of the capacity amongst Roma and free personal hygiene products. Egyptian parents to help their children. • Developing financial aid assistance • Adult literacy classes can be an option schemes to encourage school in communities where literacy among participation, and to eliminate financial Roma and Egyptian parents is low. hardship as a barrier. Conditional cash Second-chance schooling and adult transfers (CCTs) that are not punitive learning classes attached to could be a solution, if accompanied by employment opportunities, as proper supply-side measures (such as mentioned above, can help foster an raising schools’ capacity to appreciation for education. accommodate children with SEN) and • The education curriculum and the skills monitoring. taught in schools need to be better • Strengthen the ability of social welfare, aligned with the demands of the labour child protection and health services market. Connected to this, campaigns among other relevant actors to identify on the importance and benefits of and aid Roma and Egyptian families education could be organized, including falling though the gaps, and not be disseminating examples of Roma and receiving financial assistance, health or Egyptians who acquired education and other services they are eligible for. improved their situations. • Continue the distribution of free • Antidiscrimination campaigns should be textbooks and school supplies; consider launched to eliminate prejudice and subsidies for school supplies. foster better understanding between the • Measures to raise the level of Roma and Egyptian and majority employment amongst the Roma and populations. Egyptian population should be • Enhance cooperation with the media, developed. Well-conceived and and develop and conduct training accessible adult education classes, programmes for journalists focusing on connected to employment, which creating and fostering positive images of transfer skills needed in the current Roma and Egyptians. labour market, are an example. • Efforts to effectively enforce the legal • Work with local employers in connection age of marriage should be made, with employment programmes for Roma accompanied by active community and Egyptians, to start eliminating engagement, awareness raising and prejudice amongst the majority support to Roma and Egyptian population, to help increase communities in the area of women’s and employment chances for Roma and girls’ rights. This can also include Egyptians. workshops on family planning and sex • Schools should actively seek out the education classes. participation of Roma and Egyptian • Second-chance schooling should be parents, establish relationships with made available for young mothers. them and help inform them of the • Schools should be sensitized to the benefits of education. Develop issues around early marriage, and Roma workshops, after-school programmes and Egyptian sensitivities about the and other measures to both help virginity of their daughters.
24 • Programmes should be developed to • More in-depth investigation into the help Roma and Egyptian women have mechanisms by which Roma and more control over their reproduction; and Egyptian are not registered at birth, and to raise their awareness, confidence, issues of citizenship and Roma and independence and empowerment in Egyptian IDPs should be addressed regards to marriage, family and their and resolved in every camp and futures. community. • The capacity for social services and • Strengthened healthcare of Roma and schools to conduct outreach, to enrol Egyptian children should be developed children in school and to help them including: outreach by actors in the acquire documentation should be raised. health and child protection sectors in Municipalities and relevant services cooperation with schools; workshops on should also improve their databases on child health to raise awareness among Roma and Egyptian families and Roma and Egyptian parents of children, to help coordinate efforts preventable diseases and healthcare between social welfare and local options; increasing the number of Roma governments. This should include and Egyptian children with assigned information on IDPs and non- paediatricians sensitized to their specific Montenegrin citizens. needs.
a higher dissatisfaction with the attitude of QUALITY teachers, other pupils and parents towards their child. The children themselves gave All children should have equal access to similar accounts. The dissatisfaction was education, and that education should be of more noticeable among Roma and Egyptians the highest quality. Quality education for not attending school, and indicate that Roma Roma and Egyptian children and children and Egyptians who attend school are better with disabilities relies heavily on how accepted by peers and their parents. inclusive the environment, curriculum and Besides dissatisfaction with social teaching methods are, as well as whether or relationships, a higher percentage of the not a culture of tolerance and diversity is children not going to school expressed fostered. School infrastructure also determines dissatisfaction with education in general. quality– if a school is unsafe, ill-equipped, and They more frequently expressed that they not accommodating of disabilities it cannot be disliked going to school. assessed as meeting adequate standards of quality. The research presented in this In order to contextualize the survey results, a document was limited to questions asked of short overview of the Evaluation of the Reform parents and children, and the data is confined of the Education System in Montenegro (2010- to information on satisfaction with teaching 2012) was presented in the section that relates staff and relationships among students. to the quality of inclusive education. Recognizing that the legislation in the area of Compared with other parents, the parents of inclusive education is being comprehensively children who dropped out of school express harmonized with relevant European and
Study on the obstacles to education in Montenegro 25 international standards, the Evaluation to promote continuous training and education emphasizes that implementation, along with of teaching staff in schools to implement the cooperation between sectors at the inclusive principles in practice and adapt the national and local levels, remains a challenge. teaching methods to the individual needs of Also, the Evaluation calls for additional efforts children.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Conducting assessments of the quality of diversity in schools. of inclusive education with a focus on • Extracurricular activities that mix Roma Roma and Egyptian children. and Egyptians and children from the • Child-centred and bilingual teaching majority population, workshops, study methods and child-friendly concepts groups and similar can be organized to should be employed at the school level, aid academic achievement and build and teachers and staff should be understanding and trust among children trained in them. and parents. • Revisions to the curriculum should be • Roma mediators should be expanded considered in order to increase its and strengthened, increasing their relevance to diverse populations. numbers and capacity to effectively • Cooperation with associations of people work with more children and their with disabilities should be established families. by preschools and primary schools. • The system of Roma teaching • Based on assessment by an expert assistants should be expanded and team, schools should prepare individual strengthened, increasing their numbers educational programmes for children and capacity to effectively work with and monitor their progress. Close more children and their families. Their monitoring of children with SEN should role and standards of work should be be conducted by relevant school staff clearly defined through relevant by and in concert with social services laws, as well as educational and outside the school setting. Parental training programmes aimed at involvement should be actively sought professional development designed.6 out as well. • Both pre-service and in-service • School inclusive education teams diversity and conflict-resolution training should be strengthened to help develop of teachers, school staff and social inclusive education measures, promote service providers should be made understanding, tolerance and a culture standard.
6 The opinion of the Ombudsperson’s Office to the Ministry of Education with regards to Implementation of Inclusive Education in Primary Schools, November 2011: http://www.ombudsman.co.me/djeca/preporuke/15112011_MINISTARSTVO_PROSVJETE_I_SPORTA.doc
26 DATA OVERVIEW OF PRIMARY EDUCATION COVERAGE
Photography: UNICEF Montenegro/Risto Božović Study on the obstacles to education in Montenegro 27 The following chapter provides an overview of Office of Montenegro – MONSTAT. This data regarding coverage and dropping out of publication is based on the results of the 2011 children from primary education. To gain insight Census of the population, households and into both the current situation in the system of apartments. It updates and expands education in Montenegro, and into the position information on the situation of children in of Roma and Egyptian children within the Montenegro, and is meant to be used in system, two important types of data are developing national activities to accomplish highlighted. The first is data from the official better results for all children. resources (the Statistical Office of Montenegro- MONSTAT) on the number of Roma and According to the 2011 Census data, one out of Egyptian citizens on the territory of ten citizens of Montenegro is of primary school Montenegro, as well as the number of Roma age, and 95% of the children of this age are and Egyptian children of primary-school age. attending primary education (Table 4).7 The second is data on the coverage and dropping out of children from primary As can be observed, 5% of children in education, with a focus on data about the Montenegro were not attending compulsory participation and performance of Roma and education in 2011. Egyptian children. In the publication Children in Montenegro, DATA ON EDUCATION OF separate from the 2011 Census data, results of the 2003 Census on school attendance are CHILDREN IN MONTENEGRO published for the first time. presented below is data on primary school attendance for the One of the most relevant sources of data on children in Montenegro in 2003 and 2011, at compulsory education coverage in state level and in individual municipalities Montenegro is the publication Children in (Table 5). Red colour is used for municipality Montenegro, published by UNICEF data with a negative trend or increased Montenegro in cooperation with the Statistical dropping out.
Table 2 Census: total number of children of primary school age in Montenegro and primary education coverage
Children of primary school age School attendance - Primary education in the Republic of Montenegro
N % N %
72 637 11.7 68 835 95
7 School attendance is defined as regular attendance of any accredited educational institution or programme, public or private, for organized learning at any level of education. Information on school attendance relates in particular to the population of official school age (children of primary education age – 6-14 years)
28 Table 3 It is important to stress that certain caution is Compulsory education coverage by necessary when comparing 2003 and 2011 municipalities in the Republic of Montenegro: Census data, given that the reform of the 2003 and 2011 system of education was implemented in the School attendance – period between the two censuses, which Primary education included a gradual transfer from eight-year to Municipality nine-year primary school. So at the time of 2003. 2011. gathering the 2003 Census data, primary school lasted 8 years and primary-school-age children Žabljak 97% 97% were children aged 7-14 years old. In the 2011 Cetinje 95% 97% Census, primary school lasted nine years, and children started school at the age of six. Danilovgrad 93% 97% As can be noted, in 2011 the percentage of Kotor 96% 97% primary school age children who attended Ulcinj 92% 97% school increased from 94% to 95% relative to the previous census. Primary school Mojkovac 96% 97% attendance rates in Montenegro are highest in Žabljak, Cetinje, Danilovgrad, Kotor, Ulcinj and Pljevlja 96% 96% Mojkovac (97%). In four municipalities – Kolašin 94% 96% Žabljak, Tivat, Berane and Pljevlja – the school attendance rate is at the same level as in Plužine 95% 96% 2003. In Podgorica and Berane, the school attendance rate among children aged 6-17 is Herceg Novi 95% 96% lowest (93%). Budva 97% 96% An increase in the school attendance rate is Nikšić 97% 96% recorded in the majority of municipalities, while a decrease of 1% was registered in Budva, Bar 93% 95% Nikšić and Podgorica. When comparing 2003 Tivat 95% 95% and 2011 Census data, it should be taken into account that, according to the currently used BijeloPolje 92% 95% methodology, displaced persons from Kosovo were not included in the population of Šavnik 92% 94% Montenegro in 2003. Many of them are Andrijevica 90% 94% members of the Roma and Egyptian population, with a school attendance rate Plav 88% 94% significantly lower than in other groups. Inclusion of this part of the population among Rožaje 85% 94% the inhabitants of Montenegro, according to Podgorica 94% 93% the 2011 Census, resulted in a decreased school attendance rate when compared with Berane 93% 93% the 2003 Census data in the municipalities of Podgorica, Budva and Nikšić, that have the Total 93% 95% largest share of these population members.
Study on the obstacles to education in Montenegro 29 OUT-OF-SCHOOL CHILDREN The following overview of ‘out-of school’ children in Montenegro will, where available, IN MONTENEGRO rely on official data at the same time recognizing that there might be some issues Even though the primary focus of this study is relating to underreporting of certain population on Roma and Egyptian children, and barriers groups associated with it due to the and bottlenecks to their effective inclusion in methodology of data collection, the mainstream education, in this section we will characteristics of the given groups, etc. use the opportunity to present an overview of Bearing this in mind, analysis of data relating available evidence on ‘out-of-school’ children to children from the 2011 Census has indeed in Montenegro as a whole, particularly children for the first time shed some light on who the with disabilities and poor children who do not out-of-school children in the country are. attend.
Identifying and accurately estimating number 1. Roma and Egyptian Children of children who are out of school is particularly difficult given that majority of them belong to According to this data, coverage of Roma and hard-to-reach marginalized, hidden and Egyptian children with compulsory education vulnerable groups of population such as barely exceeds half of the primary-school-age Roma and Egyptian children, refugees and children (Figure 1). In the population of DPs, children with disabilities and poor Egyptian children, primary-school attendance children. is somewhat higher than in the population of
Figure 1 Primary school attendance of Roma and Egyptian children in 2011
Not attending Attending
54% 51%
95%
46% 49%
5%
Montenegro Egyptian Roma
30 Roma children, but the mentioned values are number of Roma and Egyptian children still significantly below the national level. included in compulsory education in the past decade. It is important to note that adequate estimation of relevant parameters of inclusion of Roma Montenegro has achieved significant results in and Egyptian children in primary education is increasing the number of Roma and Egyptian not entirely possible, since alternative data children enrolled in primary schools each year. shows that more than 10% of children from the However the degree of their educational Roma and Egyptian population, which has the inclusion is still not at a satisfactory level, since highest percentage of primary-school-age according to a Roma and Egyptian population children, are still not registered in the Birth database, there are 2,680 primary-school-age Registry.8 There is also no official or reliable children in the Roma and Egyptian population , enough data on the exact number of children while according to unofficial data, this number of primary-school age. Furthermore, due to the is significantly higher. Also, high drop-out rates high drop-out rate among Roma and Egyptian remain one of the most pressing problems for pupils, the attendance rate is a lot lower than the education of Roma and Egyptian children the enrolment rate, but again it is impossible in Montenegro. According to the World Bank, for it to be calculated due to scant data. only 32% of Roma and Egyptian children complete primary education compared to 98% Presented below is the available data on the of all children in Montenegro.9
Figure 2 Number of children from the Roma and Egyptian population enrolled in primary schools at the beginning of the school year
1582 1424 1337 1236 1263 1292 1169 1195 1006
826
536
2001-2 2002-3 2003-4 2004-5 2005-6 2006-7 2007-8 2008-9 2009-10 2010-11 2012-12
Source: Strategy for development of Primary Education 2012-2017, Ministry of Education
8 Report by the coalition NGO Roma Circle on the implementation of the policy of protection of the RAE population in Montenegro at state and local levels in 2008. 9 Montenegro After the Crisis: Towards a Smaller and More Efficient Government, Public Expenditure and Institutional Review, Main Report,World Bank, October 2011.
Study on the obstacles to education in Montenegro 31 2. Refugees and DPs not attend school and 15% of children who are citizens of a foreign country do not attend Refugees and displaced persons belong to school. The lowest percentage of children that some of the most vulnerable groups in society. do not attend school is among children with This segment of the population is often Montenegrin citizenship (4%). characterized by unresolved legal status and citizenship, which prevents their employment, In the context of this Study, it is important to exacerbates poverty, lowers accessibility to note that the majority of the refugees and DP basic social and health services, and education. population in Montenegro consists of Roma and Egyptians who fled to Montenegro after Census data from 2011 on education broken the outbreak of conflict in Kosovo in 1999. down by citizenship status of children shows Census data shows that over one-third of that 34% of stateless children do not attend Roma and around 45% of Egyptian children in school. Of the total number of children who are Montenegro are either stateless or are in the in the process of acquiring citizenship, 16% do process of acquiring citizenship.
Figure 3 Children aged 6-17 by school attendance and citizenship in%, 2011 Census
Do not attend school Attend school
66% 85% 84% 96%
34% 15% 16% 4% Montenegro Foreign countries In process of acquiring Stateless Montenegrin citizenship
32 Figure 4 Roma and Egyptian Children by Citizenship Status, in %
1% 1% No data 26% 32% Stateless 11% 12% 13% In the process of obtaining citizenship 25% A foreign country
49% Montenegrin 30%
Roma Egyptians
All things considered, educational deprivation, discrepancies and underreporting in when assessed by measuring the failure to estimates of child disability prevalence are: attend primary school (children from 6 to 15 stigmatization and social exclusion of years old), is very much a characteristic of the children with disabilities and their families, Roma and Egyptian population, particularly of vague and contradicting definitions of displaced Roma and Egyptians. Although disability, limited functioning of systems of primary education is mandatory, the school- early detection and diagnosis of child attendance rate is very low among the Roma disability, and a lack of knowledge on and Egyptian population. disability in general.
3. Children with disabilities Montenegro has no reliable data on disability prevalence among children, and estimates The problem of data unavailability becomes range from the very lowest figure in the even more serious when it comes to children Census (1.1% or 1,543 children) to a with disabilities and this is a problem faced suspected disability prevalence rate in the by almost all countries in transition— MICS3 (12% of the child population). The particularly those with very low rates of World Health Organization uses a global childhood disability recorded in the average estimate of 5.1% .See the table census. Factors contributing to significant below:
Study on the obstacles to education in Montenegro 33 Table 4 Data on disability among children in Montenegro
Child Disability Rate in the 2011 Census* 1 543 or 1.1%
MICS Montenegro 2005—suspected disability rate (2-9 years of age) 12.5%
Child disability benefit recipients (2011) 1 599
Special Education Needs (SEN) Children with Commissions’ referral (6-14 years, 1 109 2011/2012)
Children: 0-14 based upon 5.1% WHO national average estimate 6 500
Children: 6-14 (school-going age) 5.1% WHO national average estimate 4 056
Total: 2 162 Children aged 0-14 with some type of diagnosis from healthcare services (Institute for 0-5: 984 Public Health, 2009) 6-14: 1 178
Additionally, legislation in the area of education cultural obstacles). What is usually used as a recognizes children with disabilities as a sub- proxy indicator for children with disabilities in group of Children with Special Education the educational system is the number of Needs (SEN). The Article 4 of the Law on children who were assessed by the Education of Children with Special Education Commissions for Orientation of Children with Needs defines children with SEN as: SEN in Education. The figure below shows 1) children with disabilities (children with significant progress made in terms of the physical, intellectual, sensory and combined number of children with disabilities assessed disabilities); and 2) children with difficulties and by the commissions since 2009. However, disadvantages (children with behavioural because of the difficulties in assessing disorders, serious long-lasting illnesses, overall childhood disability prevalence it learning difficulties and other difficulties remains unclear how many of these caused by emotional, social, language and children are still out of school.
34 Figure 5 Number of SEN children with commissions’ decisions/referrals
1109
960
654
247
2009 2010 2011 2012-December
4. Children affected by poverty children and children of DPs and IDPs as particularly vulnerable. The most recent study on child poverty estimated that there are approximately 14 500 children in Evidence shows that child poverty has a strong Montenegro who live in poverty (10% of the total correlation with access to education. The child population). UNICEF’s Report ‘Child Poverty Report confirmed that children living in poor in Montenegro’ shows that children are households have no adequate space for particularly vulnerable and they are more affected studying and their parents struggle to provide by poverty than adults. Child poverty weakens them with very basic textbooks, school supplies equality and contributes to worse outcomes in and transport costs to school and back. Also, health, nutrition, education and general poor households in Montenegro are on average wellbeing.10 It strongly contributes to the 12 km away from the nearest primary school, marginalization and social exclusion of children. 20 km away from the nearest high school and 19 km away from the nearest kindergarten. The children most vulnerable to poverty and inequity are the under-fives, those who live in The MICS3 conducted in 2005 shows a the north of the country and in rural areas, significant gap in school attendance between those who live in single-parent households, children coming from the richest 20% of the and households with three or more children. population and children coming from the The Report also identifies Roma and Egyptian poorest 20%.
10 Report ‘Child Poverty in Montenegro’, UNICEF, November 2011. (http://www.unicef.org/montenegro/media_19760.html) Study on the obstacles to education in Montenegro 35 Figure 6 Primary school net attendance ratio by wealth index quintiles, Montenegro 2005
99,30% 99,40% 98,60% 97,80%
91,50%
Poorest Second Middle Fourth Richest
36 ANALYSIS OF DETERMINANTSIN EDUCATION
Photography: UNICEF Montenegro/Risto Božović Study on the obstacles to education in Montenegro 37 DESK STUDY
The desk study elaborates on determinants of barriers and bottlenecks under each equity in education, and those which fall within determinant, concerning equal access to the “Enabling Environment” category of the quality education for Roma and Egyptian Determinant Analysis Framework. Specific children in Montenegro, are analyzed. barriers and bottlenecks under each determinant are covered. Social Norms
Social norms and attitudes, including ENABLING ENVIRONMENT discrimination, can determine whether or not there is national attainment of equal education This part of the desk study analyzes relevant that is inclusive of diverse children. Children legislation, policies, strategies, investment and that belong to certain populations are more expenditure, and other factors that can likely to be deprived of education even though promote Roma and Egyptian education; and it is a fundamental human right. Some of the which are all a part of the “Enabling common factors relating to stigma and Environment” category within the Determinant prejudice that endanger children’s right to Analysis Framework. The determinants in this education are discussed below. Children who category can, at the system and society level, are the most exposed to stigma and support equal access to quality education. In discrimination usually belong to one of the other words, these determinants can set the following groups: children with physical or ground work for the fulfilment of education for intellectual disabilities; minority groups such as all, including Roma and Egyptian children. Roma or Egyptians; refugees or displaced They can also serve to hinder equal education. persons, as well as poor children. For example if national policies and legislation run counter to equal education it would be 1. Stigma and discrimination against children harder for inclusive education initiatives to be from vulnerable social groups created at the community level, or for Roma and Egyptian children to claim their right to Social exclusion of Roma and Egyptian education. The four determinants of the children severely endangers their access to “Enabling Environment” category covered in education, making these children invisible to this section are: Social Norms; the system and leading to high rates of non- Legislation/Policy; Budget/Expenditure; and enrolment in school. Studies conducted in Management Coordination. The specific South-East European countries point to the
38 presence of very extensive differences measures aimed at ensuring universal access regarding the rate of school attendance to quality education foresees the introduction between Roma and Egyptian and children from of programmes for prevention of segregation the majority population, particularly in Albania, of Roma and Egyptian children in schools. Bosnia and Herzegovina and Montenegro11, caused by a high social exclusion rate. Living separately from the majority population, the Roma and Egyptian populations are often Throughout South-East Europe, governments excluded from the main areas of society in acknowledge that non-enrolment and dropping Montenegro. Social exclusion and poor out are contributed to by segregation of Roma economic conditions together contribute to the and Egyptian children, which is closely linked to poor living conditions of RE in Montenegro and stigma and discrimination. Segregation is a risk potentially erode their distinctive ethnic and factor for the education of Roma and Egyptian cultural identity and tradition. The actual situation children which is manifested in three forms in in the RE population in Montenegro (particularly the system of education:1) segregation internally displaced RE) is very often distant from between schools (formal or actual): the majority the way the majority of the population live. of Roma and Egyptian pupils attend schools where Roma and Egyptian children make up As a minority group, Roma and Egyptian parents the majority and that are mainly located in the and children in Montenegro may perceive a vicinity of Roma and Egyptian settlements; 2) problem of achieving educational parity with the segregation within school (formal or actual): in majority group of the society. Minority groups case of heterogeneous schools, Roma and may perceive the education system to be Egyptian pupils are often secluded from other favouring the values of the majority group. They pupils by being gathered in special classes; may regard such education as subversive of and 3) segregation – special schools: Roma their own culture (religion, language, etc.) and Egyptian children are occasionally sent to special schools. In its report on Montenegro from 201212, the European Commission against Racism and In Montenegro, segregation in education is Intolerance (ECRI) recognizes that Roma and linked to residential segregation. The Roma Egyptian children are subjected to discrimination and Egyptian population in most cases lives in in access to education and in the school isolated settlements, often in refugee camps, environment, adding that there are negative where access to education is fairly limited. attitudes and widespread prejudice towards the Among the localities where segregation in Roma and Egyptian population, especially education has been observed are the Roma and Egyptian IDPs from Kosovo. municipalities of Berane and Podgorica. Nationally representative public opinion surveys The Government of Montenegro has measuring social distance based on ethnicity in recognized this in its Strategy for Development Montenegro were conducted in 2004 and of Primary Education 2012-2017. One of the 2007.13 At that time, the survey results have
11 Breaking the Cycle of Exclusion: ROMA CHILDREN IN SOUTH EAST EUROPE, UNICEF, 2007 http://www.unicef.rs/files/publikacije/Raskinuti%20lanac%20iskljucenosti-Romska%20deca%20u%20jugoistocnoj%20Evropi.pdf 12 ECRI Report on Montenegro, Feburary 2012, pp. 15, 20 13 Ethnic distance in Montenegro, Center for Democracy and Human Rights (CEDEM), 2004 and 2007 (http://www.cedem.me/sr/programi/istraivanja-javnog-mnjenja/ostala-istraivanja/viewdownload/38-ostala-istraivanja/203- etnika-distanca-u-crnoj-gori-maj-2007.html)
Study on the obstacles to education in Montenegro 39 shown distance toward the Roma and Egyptian 53% and 40% of citizens stating that Roma or community: more than 50% of citizens of Egyptians and people with disabilities Montenegro did not want to have members of respectively do not have the same treatment the Roma and Egyptian community as their as the majority population with regards to neighbours and 70% of citizens opposed having access to education. their child go to a class where a member of the Roma and Egyptian community is a teacher. The conclusions of some qualitative reports The distance becomes even more pronounced are similar. Focus groups conducted for the when it comes to personal relationships and Report on Child Poverty in Montenegro15 show social communication—for 55% of citizens it is that for poor Roma and Egyptian children not acceptable to be friends with members of unpleasant situations in school are common, the Roma and Egyptian community. As but parents associate them more with ethnic expected, distance towards the Roma and distance than with poverty. Another worrying Egyptian community is emphasized most when finding of the focus groups is that Roma and forming a family relationship with the Roma is Egyptian children do not receive assistance concerned: 77% of citizens would find it and protection from teachers when they report unacceptable to become a distant relative with bullying by their peers. a member of the Roma and Egyptian community through a marriage with a relative When it comes to children with disabilities in and more than 80% could not imagine being Montenegro, stigma has been identified as one married to a Roma or Egyptian or their child of the main obstacles to their full educational marrying a Roma or Egyptian. inclusion and inclusion in the life of local communities in general. As a response, in Findings of the survey conducted in 2011 on 2010 the Government of Montenegro and Discrimination of Minorities and Marginalised UNICEF jointly launched the “It’s About Ability” Social Groups14, which examined campaign with the aim of combating stigma discrimination in access to education, and creating positive images of children with employment, health protection, and justice, disabilities in public. show that on average members of the Roma and Egyptian community are the most Knowledge, Attitude and Practice (KAP) marginalized and discriminated against in surveys have been conducted periodically in Montenegro. Observing discrimination in order to assess the impacts of the campaign. access to education, according to this survey, The results since 2010 show significant Roma or Egyptian and people with disabilities improvements in the attitudes of the general represent the most vulnerable groups, with public towards children with disabilities.
14 Survey on Discrimination of Minorities and Marginalised Societal Groups, CEDEM, June 2011 (http://www.cedem.me/sr/programi/istraivanja-javnog-mnjenja/ostala-istraivanja/viewdownload/38-ostala-istraivanja/208- istraivanje-diskriminacije-manjinskih-naroda-i-marginalizovanih-drutevnih-grupa-jun-2011.html) 15 Report ‘Child Poverty in Montenegro’, UNICEF, November 2011 (http://www.unicef.org/montenegro/media_19760.html)
40 Figure 7 Impact of the ‘It’s About Ability’ campaign
August 2010 December 2012
90% 77% 74% 64% 67%
46%
36% 39%
% of citizens convinced that % of citizens who find it % of citizens who find it % of citizens who think that children with disabilities are unacceptable that a child unacceptable that a child children with disabilities are better off in special with a disability is going to with a disability is the best equally valuable members of institutions than with their the same class as their child friend of their child society families
Matched with the reform of the education obligations of the authorities. Ultimately, they system and the system of social and child determine in part whether quality education will protection, the campaign is yielding some be available to all equally. The legal foundation impressive results. However, additional efforts of education in Montenegro is reviewed in this are needed to accommodate the needs of next section, with a special focus on inclusive children with disabilities and integrate them education. Also covered is an overview of into regular schools. In December 2012, there relevant policy documents that refer to the were 1,109 children with disabilities assessed issue of inclusion and dropping out of primary by the Commissions for the Orientation of school, both in the international community Children with SEN into Education. According to and in Montenegro. WHO estimates as many as two-thirds of children with disabilities of primary-school age In order to create an inclusive system of are still out of schools. education that is equally responsive to all children, the Government of Montenegro is Legislation and Policy on Education acting in two directions primarily: (1) developing mechanisms for continuous education of Legislation and policies affect the form and children and parents from the Roma and quality of services; they are the basis on which Egyptian population and controlling the quality different sectors, including the education of knowledge that these children gain; and (2) sector, develop and organize their systems continuous education of teachers and other and programmes. They set the tone, stipulate school personnel about the importance and and describe goals, basic principles and the characteristics of inclusive education.
Study on the obstacles to education in Montenegro 41 1. Legal and Regulatory Framework on Adequate preparation for primary Inclusive Education in Montenegro school that takes place within preschool education can be an The Constitution of Montenegro, adopted in important preventive measure 2007, guarantees to all its citizens the right to against dropping out, and it is education under equal conditions, while therefore important to provide a primary education is stipulated as free-of- short overview of laws regulating charge and compulsory. For members of preschool education. minority peoples and minority ethnic groups, the Constitution stipulates the right to education in their mother tongue and alphabet in state institutions, as well as a curriculum issued to pupils in primary schools (and other that includes their history and culture. schools).
The General Law on Education (enacted in The Law on Preschool Education (enacted in 2002, most recent amendments in 2011) is the 2002, most recent amendments in 2010) has principal act governing the basics of the the basic goals of preschool education including: system of education. For the citizens of creating the conditions for life, development and Montenegro, this Law stipulates equality in education, developing social skills, learning to exercising their right to education, regardless respect diversity and group participation, of their nationality, race, sex, language, stimulating language development, developing religion, social origin or any other personal creative usage of speech for reading, writing, characteristic. and preparation for education.
The Law on Primary Education (enacted Given that preschool education is not 2002, most recent amendments in 2010) sets compulsory in Montenegro, it is of interest to as its goal the provision of primary education give a brief overview of the Rulebook on the for all citizens and upbringing for mutual Detailed Manner, Procedure and Criteria for tolerance, respecting diversities, cooperation the Enrolment of Children in a Preschool with others and respecting human rights and Institution. According to this rulebook, fundamental freedoms. Primary education is enrolment of children in preschool institutions compulsory for all children aged 6 to 15, it lasts is performed on the basis of a public call 9 years, and children who are to start school announced by the institution. The request for are those who turn six in that calendar year. enrolment of a child, together with the necessary documents, is submitted on a The Rulebook on the Form and Manner of stipulated form. In institutions where more Keeping Pedagogical Records and Content children want to be enrolled than it is possible of Public Documents in School from 2004 to accommodate, admission is based on the stipulates the form and manner of keeping criteria of employed parents (one or both), pedagogical records and content of public and single parent and families with two or more other documents managed by schools, or children of preschool age.
42 ways of performing activities in the domain of Enrolment of children without social and child protection to provide parental care and children whose protection to families, individuals, children at parents are entitled to family material risk, persons in need, and the socially allowance by the regulations on excluded. When realizing these rights, citizens social protection of children from the are equal, regardless of nationality, race, sex, most vulnerable groups of the language, religion, social background or other population is performed without personal characteristics. applying these criteria. The Law on Prohibition of Discrimination from 2010 forbids every form of discrimination The Law on Education of Children with on any basis16, including discrimination in the Special Educational Needs (enacted in 2004, sphere of education and professional training. amended in 2010) after adopted amendments, Considered as discrimination in the sphere of regulates not only the education of children education and professional training are the with physical, mental or sensory disorders, hindering or denying of enrolment in an behavioural disorders, severe chronic educational institution at all levels of diseases, emotional disorders, children with education, exclusion from this institution, combined problems and long-term sick hindering or denying the possibility of children, but also children that have difficulties attending classes and participating in other due to different social, language and cultural activities, categorization, abuse or otherwise backgrounds. This points to intensified unjustified discrimination or unequal treatment awareness of the problems of Roma and of children/pupils. Egyptian children and making efforts to solve these problems. The Law on Minority Rights and Freedoms (enacted in 2006, amended in 2007 and 2010) in accordance with the Constitution of Other laws in Montenegro relevant Montenegro, provides minority nations and to the position of Roma and other minority ethnic communities with Egyptian children in the system of protection of human rights and freedoms education are the Law on Social guaranteed to all citizens, as well as protection and Child Protection, as well as of specific minority rights and freedoms, laws and regulations in the domain including the right to education in their own of the protection of human rights. language. Teachers who have working knowledge of a given minority language The Law on Social and Child Protection perform educational work in regular schools in (enacted in 2005) stipulates the rights and that language.
16 Discrimination is defined as every unjustified, legal or physical, direct or indirect discrimination or unequal treatment, or non-treatment of a person or group of persons in respect to other persons, as well as exclusion, restriction or preference of any person in relation to other individuals, based on race, colour, nationality, social or ethnic origin, connection with any minority people and minority ethnic community, language, religion or belief, political or other opinion, sex, gender identity, sexual or other orientation, health, disability, age, material condition, marital or family status, membership of a group or assumed membership of a group, political party or other organization, or other personal characteristics.
Study on the obstacles to education in Montenegro 43 2. Strategic Framework in the International EC indicates a poor, socially or educationally Community non-stimulating background setting and belonging to minority groups, such as the Key international documents in the domain of Roma ethnic community. education on which the national strategy is founded are: Europe 2020: Strategy for Smart, The Millennium Development Goals of the Sustainable and Inclusive Growth; the United Nations19 envisage by the year 2015, Millennium Development Goals; and A World among other things, 100% inclusion of boys Fit for Children. and girls in primary education, as well as a reduction of the rate of illiteracy among its The European Union, within its basic strategic citizens older than 10 years to 1%. In the framework Europe 2020: Strategy for Smart, domain of primary education, particular Sustainable and Inclusive Growth17, has set emphasis is put on inclusion of all children education as one of the major topics, as a way from marginalized groups, especially Roma, to fight inequality and poverty. In the domain of Ashkali and Egyptian and children with education the high incidence of early dropping developmental problems, overcoming the out is pointed out, defined by the European problem of their early school leaving, as well Commission as a failure to complete as improving the quality of their education.20 compulsory school or secondary school, or the failure to obtain qualifications or a school The international document A World Fit for diploma.18 One of the strategic goals to be Children21, closely associated with the achieved by the year 2020 is reducing the Millennium Development Goals, sets the early drop-out rate to below 10%, which objective that each child has to have access to would improve the quality of education and quality primary education, which is compulsory reduce the risk of unemployment, poverty and and free of charge. social exclusion. Some of the envisaged activities aimed at The European Commission emphasizes that realizing these goals are the development and the reasons for leaving the educational implementation of special strategies that make system are highly individualized, but that education available to all children, promotion dropping out from school is also a social of innovative programmes that stimulate the phenomenon and, as such, can be school and community to actively search for determined by an abundance of factors and children who have dropped out from school their interaction. The predominant causes of and help them complete school, with the dropping out of the system differ according to participation of the government, community, country and region, and it is not possible to family and NGOs as partners in the process of define a unique ‘profile’ of a child that quits education, enabling more extensive school, or make a detailed list of factors accessibility of primary education to children resulting in dropping out. As important factors, from vulnerable groups.
17 Adopted at the EU Summit on June 17, 2010 18 EC, Reducing Early School Leaving, http://ec.europa.eu/education/school-education/doc/earlywp_en.pdf accessed on July 15, 2012, European Commission: [SEC(2010)] "Reducing Early School Leaving”. The accompanying document to the Proposal for a Council Recommendation on Policies to Reduce Early School Leaving, Brussels, 2010 29 Adopted at the Millennium Summitin New York in September 2000. 20 The mid-term report on the achievement of the Millenium Development Goals in Montenegro has been outlined in the section “Analysis of the Current Situation”. 21 Adopted in 2002 at the Special Session of the UN General Assembly devoted to children.
44 3. National Strategies and Goals activities at both the country and local levels. Foreseen measures and activities, among National strategies for the development of other things, include those aimed at the education, as well as the implemented establishment of a reliable database of Roma education policy and standards, are based on and Egyptian children for enhanced monitoring the documents of the United Nations and the of their enrolment in school and prevention of European Union. dropping out and increased coverage by preschool education, as well as expansion of In the national strategies and goals of services available for Roma and Egyptian Montenegro, the issue of overcoming children and their parents. Even though the problems in education that Roma and Egyptian government has shown a high level of children face, as well as the concrete issues of commitment in fulfilling its strategic intents, increasing inclusion and preventing the implementation of these measures and dropping out of these children from activities still remains a challenge. compulsory education are present. As the most relevant documents that fundamental Past attempts to support children from the policies and measures in the domain of Roma and Egyptian population who come from compulsory education are based on, we would poor families related primarily to additional like to single out the following strategies and financing aimed at meeting the needs of these strategic documents: children and providing support, such as • The Book of Changes (2001) distributing free textbooks, school supplies, • Strategy for the Development of Primary clothes and footwear. These measures are Education with Action Plan (2011) stipulated in the Strategy for the Improvement • Action Plan for the Implementation of the of the Position of the Roma, Ashkali and “Decade of Roma Inclusion 2005-2015'' in Egyptian Population in Montenegro (2008- Montenegro (2005) 2012) and the new Strategy for Development • Strategy for the Improvement of the of Primary Education with Action Plan (2012- Position of the Roma, Ashkali and 2017), as well as within several Local Action Egyptian Population in Montenegro (2007) Plans for Roma, Ashkali and Egyptian children – for the period 2008-2012 (Nikšić, Bar, Herceg Novi). • Strategy for the Improvement of the Position of Roma and Egyptians in 4. Local Strategic Plans Montenegro (2012) – for the period 2012- 2016 Strategic action plans at the local level provide insight into the focus of municipalities within As for coverage of children by compulsory Montenegro in terms of the Roma and education, these strategies and strategic Egyptian population and their position in the documents set very similar goals and system of education. Many municipalities in principles. The basic guiding principle is the Montenegro have local action plans for provision of education to all equally, regardless children, within which regulated activities are of sex, social or cultural origin, religion, aimed at improving the realization of the rights nationality, physical and mental constitution or of children in all spheres of life, increasing any other characteristic. Quality and available interest and the awareness of society about primary education for all children in the situation these children are in and their Montenegro is the key priority of the needs, as well as strengthening the capacity of mentioned strategic documents and it is a local communities in the segments engaged in foundation of the planned measures and upgrading children’s position.
Study on the obstacles to education in Montenegro 45 Local action plans (LPAs) for children were adopted in 2012 by the municipalities of Bijelo As one of the key goals of local Polje, Bar, Cetinje, Kotor and Rožaje, and strategies for children, singled out adoption of the LPA for Children in the is the provision of all children with Municipality of Ulcinj is expected in the first access to quality education and an quarter of 2013. These LPAs define the increase in primary education measures and priority activities to be realized coverage, with special focus on by the year 2016. The municipalities of children from vulnerable and Berane, Niksic and Tivat adopted their local marginalized groups, such as Roma action plans in 2007 and these documents are and Egyptian children, children with still in force. Among other areas, Local Action disabilities and children from Plans stipulate measures and activities aimed socially exposed families. at improving the position of children from the Roma and Egyptian population in the domain of education, but also protection and Apart from action plans for children, the promotion of the position of Roma and Municipalities of Tivat, Herceg Novi and Nikšić Egyptian children in general, as well as their also have action plans for the inclusion of the integration into the local community. Roma, Ashkali and Egyptian population as a particularly vulnerable group of citizens, and these plans are still in force. They define the
In order to increase inclusion of children from the Roma, Ashkali and Egyptian population in the system of compulsory education and prevent early school leaving, local strategies for inclusion of the Roma, Ashkali and Egyptian population stipulate numerous measures and activities aimed at the parents of Roma, Ashkali and Egyptian children, school personnel, characteristics of the curriculum and ways and forms of conveying it to children, but also the material and financial aspects of education. Accordingly, these strategies stipulate action in the direction of raising parents’ awareness of the importance of education for normal social development and a better life for children, increasing the degree of inclusiveness of schools and rooting out prejudice towards the Roma, Ashkali and Egyptian population, educating children and parents about the necessity of inclusion of children in the regular system of education, promoting cooperation between schools and parents, increasing the number of assistants from the Roma and Egyptian population etc. The documents also stipulate providing necessary material resources and conditions, such as transportation and food for children, school supplies and textbooks.
46 Budget and Expenditures on Education in resources. The reform agenda will have to Montenegro include the closing of small schools, increasing pupil-teacher ratios, making savings on energy The financing of, and expenditure on efficiency, and/or reducing the costs of education is also a determinant in enabling administration. children from vulnerable populations access to quality education. Montenegro faces difficult There is some scope for increasing class sizes choices in the twin challenges of improving the overall, even though Montenegro’s current quality of education and curtailing fiscal averages are close to international mean expenditures in this sector. The future key values. Class sizes vary considerably across challenge for the Montenegrin education countries. In Montenegro, the average class sector consists of balancing fiscal size in primary education is 22.0. sustainability considerations with increasing the quality of outcomes. Presented below are Teachers are a critical factor in improving the the information and main recommendations of quality of education. It is important to ensure the World Bank regarding budget and that both the number of teachers is appropriate expenditures on education.22 and there are opportunities for professional development. By international standards, the 1. Investment for Improvement of the Quality of proportion of the Montenegrin education Education budget for salary expenditures is high—which means, inversely, that the level of expenditure Over the past 5 years, Montenegro has on non-salary items is very low. invested considerable resources in primary education to improve the quality of learning.23 2. Expenditure on Teaching Staff and Utilities
Between 2006 and 2010, total education As a share of the education budget, expenditure increased by 50%, from €89.4 to Montenegro spends 17% on primary €134.8 million. The largest nominal increases education, as compared to the OECD average (year-on-year) occurring in 2007 (+30%) and of 20% and the EU19 average of 19%.24 2008 (+24%). Altogether, the increase in the education budget between 2006 and 2009 The most important driver of the large exceeded the increase in average living costs increases in primary and secondary education (+15%), reflecting sizable real increases. spending in 2007 and 2008 has been the rise Consolidation of education sector expenditures in teachers’ salaries and, to a lesser extent, in started in 2009 and continued into 2010, with spending on utilities. However, despite the both years showing a nominal tightening in increase, Montenegro’s spending on quality- spending. enhancing, non-salary items has remained low. In 2009, the proportion of the recurrent In order to improve the quality and efficiency of education budget used for gross salary costs education, Montenegro will face very difficult was 93% in primary education and 92% in choices to ensure that there are sufficient secondary education. In 2007, 11% of
22 Montenegro After the Crisis: Towards a Smaller and More Efficient Government. Public Expenditure and Institutional Review, Main Report, October, 2011. 23 The education reform was supported by the Education Reform Project and an associated US$5 million World Bank loan. 24 Per-student primary education expenditure as a percentage of per capita GDP; see OECD (2010a).
Study on the obstacles to education in Montenegro 47 recurrent spending in both primary and market, not only in case of the Roma and secondary education (including vocational Egyptian population, but in case of majority education and training) was on non-salary population as well. For example, the costs. In 2008, the figure was 9% (again for Employment Agency of Montenegro (2010) both primary and secondary education); found that the lack of trained labour in the however, almost half of these non-salary market represented the single most important expenditures were for utilities, rather than reason that employers had given for not being quality-promoting items like textbooks or other able to fill positions, and 61% of employees learning materials. In 2010, the proportion of who received training in the previous year non-salary expenditure is expected to be even were trained in basic skills and knowledge lower, at 6%. (basic computer literacy and other courses, and knowledge of English language. Little 3. Funding of Policies that Target attention is paid to upgrading labour market Disadvantaged Children skills.
Overall enrolment rates in primary and Montenegro will need to move beyond isolated secondary education are comparable to other reforms for different sub-sectors and develop a European and OECD countries. Almost all comprehensive lifelong learning system, children are, according to official statistics, including an expansion of provisions at the enrolled in primary education at the preschool and adult education level. First appropriate age, which places Montenegro steps in this direction have been undertaken favourably amongst higher-income countries.25 by the development of a Qualification Framework for Life-Long Learning, which will The situation of the Roma and Egyptian allow for more flexible learning paths and will minorities, however, is quite different. Data make the recognition of degrees and prior from the Employers Survey26 shows that a lack learning easier. of education is a major obstacle for labour market integration of Roma and Egyptians. In addition to cost considerations, Montenegro will need to change the structure of its To be able to make noticeable progress in education expenditures and significantly getting the remaining pupils into school will increase the proportion directed towards depend on ensuring that those Roma and quality-enhancing measures. Early childhood Egyptian children already enrolled attend development as well as higher education and school regularly and with a view to graduating. lifelong learning will play an important role for It is important to note that Montenegro suffers Montenegro’s future competitiveness and from a mismatch between acquired skills and further reform efforts will need to focus on knowledge and the needs of the labour these sub-sectors.
25 Montenegro After the Crisis: Towards a Smaller and More Efficient Government. Public Expenditure and Institutional Review, Main Report, October, 2011. 26 Employment Agency for Montenegro, 2010
48 Management and Coordination conditions of school enrolment). A child can start school before the age of 6, but also at a If measures and systems are not in place to later age if the child is not ready for school at monitor, manage and coordinate efforts around the age of 6. In both cases, the parents are the education, then it becomes difficult to ones who suggest this, but the decision is implement initiatives that may promote made by the authorized committee. education among Roma and Egyptians. Weaknesses and strengths in management The Law on Primary Education includes and coordination determine education precise information about enrolment in primary outcomes for vulnerable children. This final school and about sanctions to follow if a child section of the desk study describes the system is not enrolled in school. According to Article devised for regulating non-enrolment and non- 35, the state authority in charge of keeping attendance of primary school. Additionally vital records of citizens is obliged to deliver to described are measures designed to prevent the school a list of children of school age leaving the educational system early. residing in settlements in the school catchment area by the end of February every year. The 1. Identifying and Addressing Issues of Early school is required to file a complaint to the Dropping Out & Enforcement competent inspection against parents of a child who is not enrolled in school, or does not Reviewing the laws currently in force in meet the primaryschool obligation (Article 36). Montenegro, we find that two institutions are in The school must file this complaint within 15 charge of the process of enrolment in primary days after the enrolment deadline, or the day school and regulating non-enrolment and non- the child stopped fulfilling the primary attendance of primary school: the state education obligation. If the child is not enrolled authority in charge of keeping vital records of in school, or does not attend classes, the citizens, and the educational institution. parent is liable to a fine of a half to ten times the minimum wage in Montenegro (Article 81). According to the aforementioned Law on If a parent fails to enrol the child in school Primary Education, children who should be even after the sentence, or if the child does not enrolled in school are those who will turn six in attend school again, the sentence can be that calendar year (Article 31 regulating the repeated.
However, these legal provisions are rarely implemented in practice and enforcement mechanisms are insufficiently defined. Many of the children, who are out of school, have never been officially signed out of school and their parents are rarely contacted by the competent institutions or fined for not fulfilling their parental obligation. The Strategy for Development of Primary Education 2012-2017 recognizes that this is one of the problems that needs to be addressed through strengthening the coordination between the competent institutions. Primarily, by designing clear procedures and responsibilities so as to ensure that information on possible dropping-out could be received in a timely manner and schools, centres for social welfare and other competent institutions can react in line with the Law.
Study on the obstacles to education in Montenegro 49 2. Identifying Children at Risk of Dropping Out school and do not speak Montenegrin and Taking Preventive Measures language well, are faced with extensive barriers trying to master the curriculum. Insufficient knowledge of the official language is a significant barrier to the successful To date there have been no efficient education of Roma and Egyptian children and information systems developed in order to help at the same time a cause of segregation.27 It is identify Roma and Egyptian children who have often the case that children who donot speak problems in learning the official language, the official language to a sufficient extent may although all children go through preschool be categorized as children with minor assessment and screening. However, there developmental and intellectual problems, are some measures foreseen to alleviate the therefore may be directed to special problems of the language barrier for Roma and institutions. Those who are enrolled in primary Egyptian children.
One of the ways to overcome this problem is to introduce teaching personnel from the Roma and Egyptian population who will help these children freely engage in studying. Introduction of Roma mediators is a measure for promoting communication between the community and the school, and a significant form of effort invested in preventing dropping out by Roma and Egyptian children from compulsory education.28 Empirical data indicates that an insufficient number of teaching staff from the Roma and Egyptian population is one of the reasons for the dropping out by Roma and Egyptian children from compulsory education.29
The European Commission against Racism and Intolerance (ECRI) recommended and stimulated the programme of employing Roma assistants from the Roma or Egyptian population. The Ministry of Education and Sports, through the project “Reform of the System of Social and Child Protection: Improvement of Social Inclusion” (from January 2011 to halfway through 2013), plans to increase the number of Roma and Egyptian children in the system of education by employing a larger number of Roma assistants in primary schools.
In order to overcome the problem with the language barrier, classes of Roma language and culture in schools are planned, with a high percentage of Roma and Egyptian pupils involved at the state level. Additionally, in order to overcome the problem of segregation of Roma and Egyptian pupils, the instruments for testing children when starting school are being standardized, taking into account the specific socio-cultural context in which these children grow up. At the local level, measures are focused on the education of parents and children through the realization of different projects.
27 From integrative to inclusive education: keeping up with the needs, http://www.disabilityinfo.me/1/studija_obrazovanje.pdf 28 Monitoring report on the Decade of Roma inclusion 2005 -2015 for Montenegro, Decade Watch 2007 Update, http://www.romadecade.org/files/downloads/DecadeWatch/DecadeWatch%202007%20Update%20-%20Final%20%2830- 07-08%29.pdf 29 Mid-term report about the Millennium Developmental Goals in Montenegro, 2010 http://www.undp.org.me/home/mdg/2010/MDG%20report%202010%20MNE.pdf
50 Photography: UNICEF Montenegro/Zoran Jovanović Maccak
Study on the obstacles to education in Montenegro 51 EMPIRICAL STUDY
The following empirical study presents findings Availability of Essential Commodities and from the conducted survey, focus groups and Inputs in-depth interviews.The information gleaned from the surveys shed light on the Children included in this survey generally determinants that contribute to inequalities in live in inadequate housing conditions, education, and which fall within the “Supply”, especially children from the Roma and “Demand,” and “Quality” categories of the Egyptian population who do not attend Determinant Analysis Framework. Specific school. In many cases households live far barriers and bottlenecks under each away from schools, and children need daily determinant, in each category, are covered. escorting back and forth, which in most of the cases represents an obstacle to their regular attendance at schools and ultimately SUPPLY to their education.
In order to promote equality in education 1. Proximity of Schools to Family Homes and certain essentials need to be supplied to Transportation ensure that all children, including the most vulnerable and marginalized, have equal One of the obstacles that Roma and access to quality education. They include Egyptian children and other children who are everything from the provision of facilities in outside the system of education are faced which to hold classes, to the provision of well- with is the large distance from their trained teachers. These types of elements are household to school. Parents from both the determinants within the “Supply” category populations complained about this problem, of the Determinant Analysis Framework, and but quantitative data indicates that Roma they have a decisive impact on Roma and and Egyptians are in a somewhat worse Egyptian education. Some of these position, as they usually live in secluded determinants are analyzed in detail below settlements. A higher percentage of Roma within the context of examining the living and Egyptian households are distant from conditions of children who drop out, versus the schools, that is, in comparison with the living conditions of peers who stay in school. majority population a higher percentage of Additionally highlighted is an analysis of the Roma and Egyptian households live at a availability of schools and preschools, and how distance of 20 or more minutes’ walk from their availability affects attendance. school.
52 This obstacle is overcome by the long walk to fifth (22%) of parents report that the road to school or paid transport, but due to weather school is not safe, due to reasons such as conditions or a lack of money in some cases transport, that is, fast driving, the absence of this obstacle remains insurmountable. sidewalks, pedestrian crossings, bad roads, Members of the majority population whose as well as wild animals (particularly in winter). children are not included in the school system Children mainly go to school with their peers mentioned, in a significantly higher (friends or siblings), while one in ten children percentage, that it is extremely difficult to get go to school accompanied by an adult to primary school by walking. Roughly one- household member.
JOVANA – A GIRL WHO LIVES FAR AWAY FROM SCHOOL
Jovana is 8 years old, and she did not start Jovana, and she is quite uncertain school in time because the house in which regarding Jovana's adaptation to the she lived with her parents was at a distance school environment. of 60km from Nikšić and the closest primary school. At the moment she lives with her Jovana's teacher is familiar with her family grandparents in their house in Nikšić, where situation and she is very careful in her she moved in order to be able to attend communication with her. She has already school. Usually her grandfather takes her to arranged with the school educationalist to school. She rarely sees her parents, see Jovana from time to time. The teacher because they still live in the village of Ubli, also notices that Jovana is a very quiet and in which Jovana was also born. Jovana's withdrawn child, but very intelligent, and stay with her grandparents is just a quick-witted. Jovana goes to a mixed class, temporary solution. Her parents hope that with children from the Roma and Egyptian her father will manage to find a job, so that population who are also as withdrawn and the whole family will be able to move closer quiet as Jovana, so the teacher cannot give to the city. all her attention only to her, and she does not want to treat her differently from other Before Jovana moved in with her pupils because it would harm her grandparents and was enrolled in school in socialization. The school year has just Nikšić, her parents tried to enrol her in the begun, so the teacher cannot say anything village school 7 km from their house. with certainty, but she hopes that Jovana Namely, the idea was to organize teaching will quickly fit in with her peers and make for Jovana and another girl living in the friends with them. same village in their place of residence. Nevertheless, this did not happen, so According to the teacher, Jovana should Jovana did not have the opportunity to start not be sent back to Ubli again even if the school in her place of residence. school were opened in the village, because she will be used to a large number of According to her mother, Jovana is a very children, and if she went to school with just shy and withdrawn child. The mother one more child, she would feel cannot easily accept being separated from uncomfortable.
Study on the obstacles to education in Montenegro 53 Another example of a lack of transportation as a The Ministry of Education provides transportation barrier to education for Roma and Egyptian for Roma and Egyptian children to city schools children comes from an area where there is an only in Podgorica. In the remaining 20 ongoing attempt to desegregate. In Konik, the municipalities, transportation is either not provided study found that a segment of children were or it is provided on an occasional basis by local placed in schools from other settlements to authorities.Recognizing that the distance of Roma avoid segregation and Roma-and-Egyptian-only and Egyptian settlements from the nearest schools. However, to reach the mixed schools it educational institutions is an important obstacle to is necessary to pay for transportation, which the inclusion of Roma and Egyptian children in Roma and Egyptian parents cannot afford. mainstream education, some municipalities have Simultaneously, Roma and Egyptian parents managed to organize transportation of Roma and claim that starting from the beginning of the new Egyptian children to schools on a regular basis school year (2012/13), the free transportation (most notably the Municipality of Tivat). However, that had been available has been many municipalities are struggling to provide the discontinued.However, the information has been necessary budget for transportation, which is received from the Ministry of Education that highly dependent on donor support. This problem transportation continues to be provided for has been particularly emphasized by the Roma and Egyptian children in Podgorica. Municipalities of Pljevlja, Berane and Bar.30
THE ARIFI FAMILY– CHILDREN WHO DROPPED OUT OF SCHOOL THIS YEAR DUE TO NO TRANSPORTATION TO SCHOOL
The Arifi family has 6 members, the parents despite all the bad conditions, are very and their four children. The children are motivated and dedicated to the education between 5 and 10 years old, and three of of their children. This is evidenced by the them are of school age. The family lives in children themselves who speak a shack in the settlement of Konik in poor Montenegrin well, read and write, gladly go conditions, without access to running water. to school and are doing well there. The The mother takes care of the children, parents provide textbooks and neat while the father earns money by collecting clothes, so that all three children can go to raw materials, so their monthly income is primary school in Podgorica. It is a mixed very small and rather unreliable. Additional school situated far from the settlement, problems for the family include the health thus requiring transportation. This school condition of the youngest daughter. She year, this was actually the barrier that had an operation a year ago in Belgrade, temporarily interrupted the formal which was an additional burden on the education of the Arifi children. Namely, free family budget. However, the financial transportation was available till this school problem has been overcome with the help year, but since this practice was stopped, of NGOs and humanitarian organizations, and the parents cannot afford to pay travel and the girl is recovering successfully. This expenses, the children are not attending family is special because the parents, even classes for the time being.
30 Analysis of the inclusion of RAE children in the educational system of Montenegro within the Project ‘Basic Right to Education’, Save the Children and NGO Enfants Berane, December 2012 http://www.scribd.com/doc/121765890/Analiza-uklju%C4%8Divanja-djece-RAE-porijekla-u-obrazovni-sistem
54 Access to Adequately Staffed Services nationality, were not contacted by an institution when it was time for school, nor when their Children who are not currently included in the children dropped out of school. primary education system in most cases have never attended preschool, which indicates that 1. Insufficiently Available Preschool Education the preschool programme is an important element of education. Preschool attendance Preschool institution attendance is, at first and then elementary school attendance are sight, one of the visible differences between related to knowledge of the official language, children who attend school and those who do which is on the other hand determined not. A very high percentage of children who primarily by using the language in households. are currently out of the system of formal Thus in almost all Roma and Egyptian families education have never attended a in which children are not in school, kindergarten (84% of Roma and Egyptian communication takes place in the Romany or and 96% of children from the majority Albanian languages. On the other hand, there population), unlike 47% of Roma and are no bilingual classes for Roma and Egyptian children and 38% of children from Egyptian children, nor do they have enough the majority population who do attend school help in school enrolment. Parents of children now, and who were never included in the who do not attend school, regardless of their preschool programme.
Figure 8 Preschool attendance by groups of children
Yes No
53% 62% 84% 96%
47% 38% 16% 4% non-RE children not RE children not non-RE children RE children enrolled enrolled in school enrolled in school enrolled in school in school
Study on the obstacles to education in Montenegro 55 These significant differences indicate that the kindergarten (45%), according to their parents, preschool institution is one of the relevant links did so due to their poor financial situation. in the system of education. Mothers of Roma Other mentioned reasons are distance from the and Egyptian children who participated in the preschool facility, the child’s poor health, etc. focus groups also stressed that kindergarten is very important for their children, primarily for Children are usually enrolled in kindergarten at learning the language. The majority of Roma the age of 4 or 5 (27% at the age of 4, 35% at and Egyptians speak Albanian or Romany at the age of 5), and the total age range is 2 to 6 home, so language is one of the barriers their years of age. Consequently, children attended children face in the course of their education. this institution mainly for one (40%) or two Children who attend a kindergarten of a mixed years (27%). structure (children of different ethnicities) learn the language a lot more easily and master it 2. Importance of Using Secondary Language before they start school. Such kindergartens in Schools also provide children with better conditions in terms of activities, infrastructure and meals An important characteristic of the household is than kindergartens located in Roma and the language which is mainly spoken in the Egyptian settlements, intended for Roma and household, since Roma and Egyptian children Egyptian children only. Furthermore, parents who have the chance to learn the Montenegrin have to meet certain requirements that enable language at home find it somewhat easier to children to attend “regular” preschool overcome the language barrier which they face institutions, primarily in terms of hygiene; their when they enrol in primary school. In the children have to be bathed and tidy. Hygiene majority of Roma and Egyptian households the is, according to mothers who participated in language spoken in the household is Romany, the discussion, the main reason why parents which is particularly characteristic of Roma do not enrol their children in these and Egyptian households in which the children kindergartens, although they are entitled to do not attend primary school. Namely, Romany choose the preschool facility child is going to is spoken in 83% of such households, attend. However, it seems that there is a Albanian in 16%, while the official Montenegrin problem of a lack of information, since one language is spoken in just 1% of the section of the Roma and Egyptian mothers households. from Podgorica keep saying that their children can only be enrolled in the kindergarten in the When it comes to Roma and settlement, and yet that the conditions there Egyptian households in which are not adequate. children attend primary school, Romany is spoken somewhat less Inadequate conditions and a shortage of frequently (66%), while money are also confirmed as being the most Montenegrin is spoken in common reasons for non-attendance of approximately one in six kindergarten in the quantitative study, where households (16%). almost half of the children who did not attend
56 Figure 9 Language used in the household
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school 100%
90% 83%
66%
16% 18% 16% 10%
1% 0% 0% 0%
Montenegrin -Serbian -Bosnian Albanian Romany
Figure 10 Language used in the household: Roma and Egyptian population
RE children enrolled in school RE children not enrolled in school
83%
66%
16% 18% 16%
1%
Montenegrin -Serbian -Bosnian Albanian Romany
Study on the obstacles to education in Montenegro 57 The results from focus group discussions organization. According to parents, these are showed that Roma and Egyptian parents mainly Roma NGOs, schools or the Red perceive knowledge of the Montenegrin Cross, while other official institutions were not language as an important condition for school involved. attendance. Namely, the importance of the language spoken at home was accentuated by the mothers of children not enrolled at school, When children drop out of school, as well as the mothers of children enrolled at in half of the cases (48%) they are school. On the basis of parents’ emphasizing not officially withdrawn from of the importance of the language spoken at school, which was confirmed by home, it can be concluded that there are no parents whose children “just bilingual classes available in schools in stopped going to school and it was Montenegro. the end of their formal education”. However, this data cannot be “Children have problem with language. We observed as an indicator of a speak Albanian and Romany at home, so potential return to school, since children sometimes get mixed up.” 84% of parents (86% of Roma and Egyptian, 80% of majority “We did our best to speak Montenegrin population) stated explicitly that whenever we could, so that the child can learn their children would not return to it more easily, to prevent problems in school.” school the next school year.
These results suggest that the presence and use of minority languages in schools is of high After dropping out of school, there is no importance. In order to prevent problems for reaction by official institutions such as the children with an insufficient knowledge of the school, municipality, or Social Welfare Centre Montenegrin language, schools should engage in the majority of cases. As many as 93% of in more frequent use of books and didactic Roma and Egyptian parents and 83% of materials in the Romany language. other parents whose children dropped out of school claim not to have been contacted 3. Limited Outreach and Child-Seeking by anyone after their children dropped out Services by Education Systems of school. This finding is confirmed by case studies, since the interviewed parents were not Parents of children who are currently out of contacted by anyone when their children school were usually not assisted by any dropped out of school. However, we cannot relevant institution in the enrolment process. say that there is no reaction ever, at least However, it is obvious that the Roma and when the reaction of the school is concerned. Egyptian population is being worked with on The section below gives a description of the this matter, since a quarter of parents whose actions of institutions in the event of the children dropped out of school later on, were termination of primary education in Podgorica assisted with enrolment by some institution or (Roma and Egyptian settlement of Konik).
58 FUNCTIONING OF THE PRIMARY SCHOOL IN KONIK
The “Božidar Vuković Podgoričanin” Branch school in the settlement of Konik primary school is located in the settlement Vrela Ribnička, about 4km from downtown Teaching staff working with these classes are Podgorica. Educational work is conducted faced with certain problems when working in 59 classes, or 49 classes in the main with children. In their words, when Roma and building and 10 classes in the facility Egyptian children start school, they are not located in the camp “Konik 2”. According to capable of accepting the tasks and respondents in this research, the school responsibilities stipulated by the school director and school educationalist, classes system, so they often violate school discipline are organized in the same way in both and skip classes. On the other hand, in the facilities, they have the same personnel, majority of cases, teaching staff are not but the building located in the camp has no supported by parents, who do not consider sewerage and it is in a very bad condition. education important enough (they rarely go to During the past few months, it was the school to ask about their children’s connected to the water supply and its grades), thus are not trying to explain to their access area was rebuilt. children how important it is to do their school assignments. Significant problems are also The school in the main building is frequent absences (“I have 15 children in my attended by an equal number of Roma class today, and tomorrow again 15, but and Egyptian and children from the completely different children.”) which makes it majority population, but the majority of very difficult for children to master the school Roma and Egyptian children attend lower curriculum. According to teachers, children grades due to the high drop-out rate. It is have no problem with learning, but they very important that children are not quickly forget what they have learned, which segregated at the school located in the is a result of insufficient usage of that main building, but this problem does exist knowledge outside of school and insufficient in the branch school in the camp “Konik exercise at home (“We give children a test at 2”. This school is attended only by Roma the end of the first semester, and then again and Egyptian children who live in the at the beginning of the second, and their camp. accomplishment drops by 30%. We have to start each of the grades 1-4 by repeating the At school, in both of its buildings, the alphabet.”) official language of Montenegro is used. There is only one Roma assistant in the After completing four grades in the branch main school, while in the branch school school, children continue with their each grade has one Roma assistant. education in the main school building. Assistants are engaged by the Ministry of Teachers estimate which children are ready Education and Science and the to switch to another school and which are Pedagogical Centre. to repeat grade four.
Study on the obstacles to education in Montenegro 59 FUNCTIONING OF THE PRIMARY SCHOOL IN KONIK
Stipulated procedures in case of and outflow of children. Lists are delivered enrolment, non-enrolment and dropping to the school, and then the school sends out of school personal invitations to parents saying that their children should start school. If the According to respondents, the duty of the child is not enrolled in the first grade, or competent municipal authority is to make drops out, the parent is invited for an records of children old enough to be interview, so that everything is done to enrolled in elementary school, and deliver keep the child in the educational system. If this list to the school. Lists of school-age parents do not come to the school, the children are made by the place of abode, school should inform the judicial authorities taking into consideration the parents’ wish, about that. However, the school does not and they are completed by the Red Cross send a notice to the relevant institution and and NGOs that keep records of the inflow so no adequate sanctions can be applied.
running water. This lack inhibits adequate DEMAND hygiene necessary for school attendance.
In order for the provision of quality education In addition, these families live in poor financial to be successfully implemented and equally situations, especially the Roma and Egyptian available amongst the most disadvantaged families whose children do not attend school. and marginalized populations, families need to Monthly incomes per household member are very be able to provide the necessary conditions for low, and the unemployment rate is high among children to be able to attend, to be in stable parents. These conditions affect the lives of situations, and have capacities that foster children and their education: a significant number school attendance. These types of elements of families claim they are not able to provide are determinants with the “Demand” category children with three meals a day (approximately of the Determinant Analysis Framework. These 20% of families covered by this research);the factors, which have a decisive impact on majority cannot provide children with new clothes; Roma and Egyptian education, are analyzed in and Roma and Egyptians whose children are not the section below. in school have a particular problem with the purchase of textbooks and transport to school. Housing and Financial Access Another problem for Roma and Egyptians is that they are often not able to provide their children The families involved in this survey generally with clean clothes. However, despite the poor live in inadequate housing conditions. financial situation, child labour is not common, but Residential buildings are often in poor condition, again slightly more present among children who ill-equipped, and without sufficient space or drop out. On the other hand, children quite separate rooms for children. A significant commonly help with housework, especially the problem in the Roma and Egyptianpopulation, Roma and Egyptian children who are not in especially for families whose children do not school and children from the majority population attend school, is the lack of bathrooms with who are involved in the education system.
60 1. Access to Adequate Housing Conditions, or water, and we have no place to take a bath.” Water and Heat or they are accommodated in dilapidated shacks in which they do not have even the basic The poor financial situation and inadequate conditions for living. It is worth mentioning that living conditions are two factors that inhibit the situation in Konik worsened prior to the children’s wellbeing including their education. realization of the survey, when a fire left some However, inadequate housing conditions are a 150 families or 800 people homeless. These factor which makes a difference in the life of people were temporarily accommodated in tents the Roma and Egyptian and majority which were erected in the settlement. population of poor socio-economic status, and is the first topic that Roma and Egyptian people The quantitative study has confirmed the findings spontaneously mention during the interview or of focus group discussions about severe housing focus group discussions.This is in part a conditions. Although in the majority of cases reflection on the fact that the Roma and (83%) the Roma and Egyptians are the owners Egyptian communities, displaced during the of the units they live in, the conditions are worse conflict in Kosovo do not have more permanent in comparison with the rest of the population. If and adequate living accommodations.31 we consider the floor area of a house/flat, that is the average area per household member, it is Although both of these groups, the Roma and apparent that Roma and Egyptians often live in Egyptian and majority population of poor socio- smaller homes, which is particularly the case economic status, do not have adequate income among Roma and Egyptians whose children are and are short of food, clothes, footwear and not included in the education system (Figure 10). other important items, the majority population Logically, the same holds true for the number of that participated in the discussions are mainly separate rooms per household member in the satisfied with their housing conditions. In contrast housing unit: a significantly greater number of to them, the Roma and Egyptians, particularly household members per room are recorded in those from Konik often do not have a roof over Roma and Egyptian households in which the their heads: “We live in tents, without electricity children are outside the school system.
Figure 11 Average household area per household member
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school 54% 48% 46% 43%
29% 26% 27% 20% 17% 17% 16% 14% 12% 13% 12% 6%
More than 15m2 10.1-15 m2 6.1-10 m2 Up to 6 m2
31 ECRI Report on Montenegro (fourth monitoring cycle). (2012) ECRI SecretariatDirectorate General II – Democracy, Council of Europe. Strasbourg. pp 7-8, 16
Study on the obstacles to education in Montenegro 61 Although the vast majority of children covered by a half of the households face the problem of a this study, regardless of ethnicity, do not have leaking roof, heavy air pollution, one-third of their own room (over 90%), but share it with them have the problem of excessive noise, and other children (50%) or with both other children daylight is insufficient. All these negative and adult household members (40%), the Roma aspects are even more pronounced in the case and Egyptian children stand out by virtue of the of Roma and Egyptians, while poor equipment fact that, on average, they share the room with a in the household is particularly characteristic of number of other people. Just a quarter of the the Roma and Egyptian households in which children have a separate room in the household children are not included in the educational or a place where they can study and do system. A smaller percentage of these homework without being bothered, which is even households have a car, electrical appliances or less often the case with Roma and Egyptian savings (Figure 12). In compliance with the children who do not attend school (Figure 11). mentioned problems the result showing that two-thirds of the households from this survey The majority of the households covered by this (63%) evaluate their living conditions as survey face some functioning problems: almost unfavourable is quite expected.
Figure 12 Having a separate room where children can learn
34% 30% 28%
12%
non-RE children RE children enrolled non-RE children not RE children not enrolled in school in school enrolled in school enrolled in school
62 Figure 13 Household equipment
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
18% PC 24% 24% 11% 80% Washing machine 48% 80% 24% 78% Boiler 66% 82% 44% 98% Refrigerator 87% 94% 73% 96% Mobile phone 87% 100% 81% 98% TV 91% 96% 79%
An acute problem that directly impacts water that contributes to poor hygiene children’s wellbeing and schooling is the amongst some Roma and Egyptian children, issue of a lack of running water, and its and consequently their non-attendance at prevention of adequate hygiene. Mothers school. who participated in focus groups strongly stressed the fact that their children “cannot go to regular school because teachers request In Roma and Egyptian households them to be clean and tidy, and we do not have where children attend primary water”. school more children take a shower every day than in the The majority of children from the interviewed households where children do not households have well-developed habits attend school – 51% compared regarding personal hygiene (a total of 78% of with 36% of Roma and Egyptian children from the interviewed households children who do not attend school, regularly take a shower, while 53% regularly as well as children who regularly wash hands before meals or after the use of wash their hands – 60% vs. 39%. the toilet). As described below, it is the lack of
Study on the obstacles to education in Montenegro 63 Figure 14 Habits regarding personal hygiene: Roma and Egyptian population
Regularly take a shower Regularly wash hands
60%
51%
39% 36%
RE children enrolled in school RE children not enrolled in school
Indeed the findings of this study confirm that the problem of water is an obstacle to education, since just a half of Roma and Egyptian families whose children do not attend school have access to running water, while more than 80% of Roma and Egyptians whose children attend school and the majority population included in this survey have a bathroom.
Figure 15 Access to a bathroom with running water
Yes No
18% 19% 14%
51%
82% 81% 86%
49%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
64 Figure 16 Access to the bathroom with running water in Roma and Egyptian settlements
Yes No
15% 17%
43% 39%
85% 83%
57% 61%
Podgorica - Konik Podgorica - Vrela Bijelo Polje Nikšić - Budo Ribnička Tomović
If the water supply in Roma and Egyptian “How can he go to school? He doesn't have settlements where the survey was conducted clean clothes or warm shoes. We don't have is analyzed, regardless of whether children water to bathe him. Because of that they will from these households go to school or not, it is not receive him at school.“ obvious that the situation is the worst in the Nikšić settlement of Budo Tomović, where 57% During the winter heating also presents a of the interviewed households have access to problem. According to parents, in as many as a bathroom with running water and the one-third of the households it is very often cold Podgorica settlement of Konik, where this in winter, and in another quarter of the percentage is 61% (Figure 15). However, households it is occasionally cold. In when the households are additionally analyzed comparison with the majority population, a by school attendance and non-attendance of higher percentage of Roma and Egyptians children, same conclusion is arrived at again have a problem with obtaining heating fuel. that, even in the most vulnerable settlements, households with children attending school are 2. Inability to Pay School Costs in a better position. So 85% of families from Konik with children who go to school have Since in this survey the sample covers access to water supply and only 33% of their households with a similar socio-economic status, neighbours whose children do not attend the financial situation in the majority of them is classes, have it. mainly poor,without much variation. The monthly income per household member is small, and in It is very important that parents whose children 70% of cases it is up to €30 per household do not attend primary school see the absence member per month, which is €1 a day in the best of their children's personal hygiene habits, case, but often even less, since in as many as resulting from inadequate living conditions, as a 16% of cases there was no income in the big obstacle to education. In discussion with preceding month (Figure 16). Families from the mothers within focus groups we found that the majority population whose children do not go to absence of conditions to wash and dress the school are in a somewhat better situation, since child in clean clothes is one of the reasons why two-fifths of these households have a monthly mothers do not send their child to school. income of more than €50 per household member.
Study on the obstacles to education in Montenegro 65 Figure 17 Monthly income per HH member
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school 42%
28%29% 24% 24% 24% 21% 21% 21%22% 20% 19% 16% 14% 14%14% 15% 12% 10% 10%
Up to €15 No income More than €50 €15.01-30 €30.01-50
When the self-assessment of the financial that it is very bad (Figure 17). On the other situation is analyzed the data shows that Roma hand, only 17% of household representatives and Egyptians are in a somewhat worse evaluate their financial situation as good, of situation in comparison with the majority whom just 1% assess it as excellent. A higher population. When asked to evaluate their percentage of Roma and Egyptians whose financial situation, more than 80% of them children do not attend school express answer that it is bad, of whom almost 50% state dissatisfaction with their financial situation.
Figure 18 Estimation of financial situation of the household
Bad Good
9% 18% 19% 30%
91% 82% 81% 70%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
66 With such a small monthly income and Regardless of their ethnicity, parents who unfavourable assessment of their own participated in focus group discussions are financial situation, it is logical to expect that worried about their children’s nutrition and, the unemployment rate among the consequentially, their health. Most of them say interviewed parents is exceptionally high. they manage to provide only the cheapest Unemployment is particularly characteristic of products, and some donot even manage to parents from the majority population whose provide three meals a day. The interviews children are not enrolled in primary school illustrate these problems. Namely, in one-fifth (64%). Regarding the Roma and Egyptians, it of cases food is consumed only twice a day. is very important to note that the This applies to both adults and children (Figure unemployment of parents is higher in those 18). In as many as 13% of households it often households in which children go to school happens that children complain about being (59%) than in those households in which hungry, in 18% of them it happens sometimes, children do not go to school (45%). and in another 17% households,only rarely. So, in almost half of households (48%) it Some of the findings obtained in the interviews happens that children express their need for within case studies showed that some Roma and food when it is impossible to be satisfied. This Egyptian children whose parents must work, finding is also illustrated by the fact that it was especially male children, often assume the role of recorded in one in ten households that some household head. These children become of the household members went to bed hungry responsible for taking care of younger siblings, and several times during the past month because the family sees this as a reason to abandon school they could not afford to buy food. In another and spend time at home. 32% of households, this happened once or twice during the past month. In the situation “She can't go to school any more, she has to when children’s basic needs are not met, look after her sister who is sick, there is no one realization of hierarchically higher goals, such else to look after her when we are at work.” as the motive to study, is very uncertain.
Figure 19 Average number of meals per day: children
84% non-RE children enrolled in school 82% 82% RE children enrolled in school 69% non-RE children not enrolled in school RE children not enrolled in school
27%
18% 16% 16%
4% 0% 2% 0%
One meal Two meals Three or more meals
Study on the obstacles to education in Montenegro 67 The financial situation of the household, with Roma and Egyptian children, as well as logically, influences the possibility of providing social workers, tell us that the free textbooks and basic elements necessary for attending school, school supplies that children get at the beginning such as textbooks, clothes and snacks. That of school year are often sold, and children are this really is the case, could be heard from left without them. parents who participated in focus groups, but it was also confirmed by the quantitative study. In almost eight out of ten households (77%) parents say that they do not have enough “It costs €2-3 a day to buy notebooks, textbooks money to provide their children with adequate and snacks. My child says to me: “I don’t want clothes for school, which is again more to go because I have no money.” “And where common among Roma and Egyptian whose am I going to find the money, son?’” children do not attend school (in 87% of households). The situation is the same with So, in a half of households, due to the poor winter clothing: 78% of parents say that they financial situation, it is not possible to provide cannot afford winter clothes, while among textbooks for children (Figure 19), while in Roma and Egyptian parents whose children another third of them textbooks were provided by are not attending formal education, this is the someone else (organizations, ministries, etc.). case in nine out of ten households. However, Roma and Egyptian parents whose children are half of the parents, even with all the difficulties, not included in the system of formal education succeed in providing their children with clean are more likely to say that they have no financial clothes, while one-third mainly succeed, but resources for textbooks, therefore their children not always (Figure 20). In general, Roma and have no textbooks (in 70% of households). This Egyptian parents are less likely to provide data still needs to be observed in a somewhat clean clothes than majority-population broader context. Namely, teachers who work parents.
Figure 20 Do parents manage to provide textbooks?
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
70%
44% 44% 42% 40% 34% 26% 30% 26% 24%
14% 6%
Yes No, but someone else provided No, children do not have textbooks textbooks (NGO, ministries, etc.)
68 Figure 21 Clean clothes for school
non-RE children enrolled in school 76% 72% RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
49% 41% 38% 31% 28%
14% 13% 14% 14% 10%
Children mainly do not wear clean Children mainly wear clean Children always wear clean clothes (or never) clothes clothes
3. Contributing to Family Income that a very small number of children from the interviewed households perform paid work32 Within discussions in focus groups it was (in total, 8% of children regardless of the type spontaneously mentioned that children help of household in which they live). Namely, in their parents (mainly fathers) in collecting the households of the majority population, secondary raw materials or food leftovers child labour is somewhat more characteristic from garbage bins. However, in the of children who are not enrolled in school quantitative study the parents mainly did not (14%) in comparison with children who are report about the paid work of their children. (2%). When Roma and Egyptian households The reason for that can be found in the fact are concerned, there is no difference among that the mentioned activities actually do not children who attend school and those who belong to the category of paid work, although donot attend it (8% of Roma and Egyptian they do constitute work. It is important to note children performed paid work).
32 Data refers to the period of one week prior to the survey.
Study on the obstacles to education in Montenegro 69 FAMILY OF FATMIR K. IN WHICH ALMOST ALL CHILDREN GO TO SCHOOL, AND THE SON IS ABOUT TO COMPLETE SECONDARY SCHOOL
Fatmir K. is Egyptian and lives in the future, as well as of the consequences that Podgorica settlement Konik, in the building not completing school had on finding “The German House“ located in the vicinity employment. Ismet said that he was of the refugee camp of Konik. Fatmir and attending a 3-year secondary school, but his family have a solid financial situation, that he was not fully satisfied with that, and they live in a flat with running water and was thus planning to get additionally trained electricity. He has 3 sons and 2 daughters. as a hospitality technician, creating for Fatmir and his wife, as well as two of their himself more opportunities for employment. children – their son Ismet and daughter Azra were interviewed for the purpose of The parents’ attitude towards school this study. probably played a very significant role in this case. Fatmir and his wife think that All of Fatmir’s children went to a school is very important, that it creates kindergarten, and then they were enrolled opportunities for finding a good job, so they at Božidar Vuković Podgoričanin primary raised their children in that spirit. However, school. According to Fatmir and his wife, there is one girl in this family who dropped going to kindergarten is very important for out of primary school. Fatmir’s daughter the children, since they learn the Azra attended primary school till grade 6, Montenegrin language there and get and then she dropped out. In the girl’s prepared for school. Insufficient knowledge words, going to school was a pleasant of the official language can be a huge experience and she would like to continue. problem for children in primary school, so it As the reason for dropping out, the girl said is therefore very important that children go that she found mathematics very difficult, to a kindergarten. Also Fatmir and his wife and that she could not master it. The tried, ever since children were little, to interview with parents revealed another speak also Montenegrin besides Albanian, reason why Azra dropped out from school. so that children would start to understand Namely, the girl dropped out from school and use the official language on time. because her parents feared she might meet some boy and leave home to get Almost all children from this household married. There was no reaction from the have finished primary school or are still in responsible institutions in this case either – the process of finishing it. Fatmir’s eldest no one came for a visit or called the son is enrolled in the 3-year secondary parents, and no sanctions were Hospitality School. The boy is very much implemented for leaving compulsory aware of the importance of school for the education.
70 4. Household Responsibilities and Care for majority population who help their parents with Other Family Members household chores, those not attending school spend more time doing household chores than When it comes to doing household work, as children who have school obligations. many as a half of all children, regardless of household type, help their older household The fact that Roma and Egyptian children more members. Nevertheless, frequent help in doing frequently do household work can be brought into household chores is more characteristic of connection with frequency of parent's engagement Roma and Egyptian households in which with household activities. Namely, as many as one children do not attend school. in three Roma and Egyptian parents do not do any household work (36%), which is the case in 17% In Roma and Egyptian households a of households from the majority population. If we higher percentage of children who observe only Roma and Egyptian households, do not go to school help the adults there are no significant differences between Roma with household chores (61% vs. 47% and Egyptian parents whose children go to school of Roma and Egyptian children who and those whose children do not go to school, in attend school), but the time spent in the level of doing household work. doing household work is similar for children who help their parents. When it comes to the type of household work that children perform at home, a higher On the other hand, in the households of the percentage of Roma and Egyptian majority population, a higher percentage of children take care of younger children who go to school help with household children, their brothers and sisters chores (68%) in comparison with children who (50%), in comparison with children do not go to school (40%), which is the result of from the majority population (5% of poor health of the majority of children from the children who do not go to school and majority population who remained outside of the 26% of children who attend school). education system—among children from the
Figure 22 Frequency of children doing household chores
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
68%
61%
47% 40%
1 Study on the obstacles to education in Montenegro 71 Also, a higher percentage of Roma and Egyptian parents, compared to parents from the majority children in comparison with children from the population,more often give priority to non-formal majority population help in washing laundry, education, and have lower aspirations when it ironing, washing the dishes, cleaning the home comes to the desired level of education. or backyard (38% of Roma and Egyptian Compared to Roma and Egyptian children who children compared to 23% of children from the drop out, Roma and Egyptian children attending majority population). Within Roma and Egyptian school have a higher percentage of fathers who households, what distinguishes children who completed primary school. The data also attend school from those not attending school is revealed that those who do not go to school, helping the adults with cooking: while 30% of more often stated that they do not like to attend. Roma and Egyptian children who do not go to school cook meals, only 11% of Roma and 1. Free Time Egyptian children who go to school do that. Children rarely spend time alone (only 3% of Cultural Practices and Beliefs children spend their free time alone, regardless of the household type). Roma and The attitudes and beliefs and capacities of a Egyptian children mainly spend their time with population can have an effect on the education siblings, both those who attend school and of their children. Roma and Egyptian children those outside the system of education (73%). generally grow up in positive environments, they The situation is similar with children from the have well developed social networks, they spend majority population who attend school: roughly time with their peers, and mostly grow up in two-thirds of these children spend their free harmonious families. However Roma and time with their brothers and sisters (66%). Egyptian parents’ perception of education and its Children from the majority populationwho do connection to their children’s future, is dimmer. not attend primary school,to a considerably This outlook should be understood within a larger greater extent spend their free time with adult context. The reasons for ambivalent attitudes household members (48%), and somewhat toward education among disadvantaged families less frequently with brothers and sisters (36%). can be numerous and often stem from poverty and the parents’ own low educational attainment, Children usually spend their free time playing as well as rational assessments of employment and socializing (58%). Regarding the ways in opportunities beyond schooling. Indeed, Roma which children spend their free time there are and Egyptian parents are often without formal some differences between Roma and Egyptian education or employment. The link between and children from the majority population: a parents’ education levels, unemployment, and higher percentage of Roma and Egyptian child outcomes, including those in education children are taken for walks (24% against 10% have been well established. of children from the majority population), while a higher percentage of children from the The study found that parents whose children majority population spend their free time in attend school are more likely to consider it front of the TV (22% against 10% of Roma and important that their children finish school, and Egyptian children). that finishing will help them find a job. These parents were also more actively engaged in 2. Friends their children’s education. Parents whose children are not participating in education more The majority of children have friends with often stated that their children are not able to whom they socialize and spend their free time finish primary school. Roma and Egyptian (Figure 22).
72 Figure 23 Children who have friends and spend free time with them
non-RE children not enrolled in school 54%
non-RE children enrolled in school 74%
RE children not enrolled in school 84%
RE children enrolled in school 92%
As can be seen, spending free time with never enrolled at primary school because of friends is somewhat more characteristic of health problems or disabilities, which can be Roma and Egyptian children than of children one of the factors which affects a lower level of from the majority population, as well as for social relationships with peers. children who attend primary school in comparison with those who do not attend It is important to note that children who are school. It should be noted again that a high enrolled in primary school more frequently percentage of parents of children from the socialize with children who also go to school majority population say that their children have (Figure 23).
Figure 24 If friends of the child are enrolled in school
RE children not enrolled in school non-RE children not enrolled in school RE children enrolled in school non-RE children enrolled in school
100%
64% 57%
37% 37% 31% 26% 29% 14% 5% 0% 0%
All friends enrolled in school Some friends enrolled in school None of their friends enrolled in school
Study on the obstacles to education in Montenegro 73 Nevertheless, it can be noticed that there is a Conversations with Roma and Egyptian relatively high percentage of children whose parents shed light on such frequent socializing friends do not attend primary school, which is of their children with peers. Since the majority particularly characteristic of Roma and of Roma and Egyptian children do not have Egyptian children who do not go to school facilities at home to spend time with, such as either. As Figure 23 shows, attendance of toys, books, etc. the children, as they say, “run primary school is associated with socializing around the settlement the whole day long with with children who also go to school. For other children”. example, as much as one-third of the Roma and Egyptians who do not go to school (29%) Compromised Parental Support for only have friends who do not go to school, Continuation of Education while this is the case with only 5% of Roma and Egyptian children who attend school. 1. Knowledge about the Educational System Similarly, as many as two-thirds of Roma and Egyptian children (64%) who attend primary Parents are mainly aware of the age when school socialize with children who also go to children are supposed to start school. The school, while this is the case with only 14% of great majority of them (94%) claim to know Roma and Egyptian children who do not attend what age this is, but even with self-evaluation, school. it is obvious that Roma and Egyptians whose children do not go to school are less informed Particularly interesting is the fact that children than other parents (85% are aware). from the majority population who do not attend school have the highest percentage of non- When interpreting concrete responses to the school-attending friends (37%). However, it question about the right age for school, we has to be pointed out that most of these have to take into account the reform of children are children with intellectual or education that started being implemented in physical disabilities, who unfortunately have the school year 2005/2006. Starting from the little or no opportunities to socialize with their mentioned school year, with the introduction of school-going peers from the local community. one more grade, all children in Montenegro are included in the system of primary education in Almost all children socialize with their friends Montenegro at the age of six and not seven, every day, or at least several times a week. as it used to be. Given that this change is Roma and Egyptian children socialize with relatively new, particularly when compared other children to a somewhat greater extent with several decades of the practice of starting (80% of Roma and Egyptian children socialize school at the age of seven, we cannot interpret with their friends every day, against 50% of the answer “7 years” as completely wrong, children from the majority population, while although it formally is wrong now. Half of the 20% of Roma and Egyptian children socialize parents mention the age of 6 as the stipulated with their friends several times a week against age to start school, while the other half think 45% of children from the majority that it is the age of 7. population).Very similar results are obtained when we observe how often the child's friends 2. Attitude Towards Importance of Education come to the child's home – 48% of Roma and Egyptian children are visited at home by One of the basic conclusions reached during friends every day against 19% of children from focus group discussions and in-depth interviews the majority population. is that parents’ attitude towards school greatly influences their children’s level of education. As
74 KASTRID, A BOY WHO TAKES CARE OF HIS FAMILY AND HELPS HIS FATHER COLLECT FOOD
Kastrid is 14 years old. He lives in Konik studying or in contact with his teachers and (Podgorica) in a dilapidated cardboard class mates. house with his parents and five siblings. They have been in the same dwelling ever The boy and his parents blame their poor since they moved from Kosovo. Apart from financial situation for his dropping out and cramped space, the problem is their deny their role in the process. Formal domestic hygiene. In fact, they have no education was interrupted at the moment access to electricity and water, or toilet when his younger sister (the second eldest) facilities. was sent to hospital. The mother spent a lot of time with her, the father collected food Kastrid is the eldest child in the family. He fromtrash containers, so Kastrid had to watch attended primary school until grade 6. Then over his younger siblings. At the same time, he dropped out. He speaks Montenegrin while his mother was at home, he helped his rather poorly, but he translated this father collect food and raw materials. interview for his mother because she speaks only Albanian. In his and his In Kastrid’s case, similar to other children in mother’s opinion, he did quite well at the settlement, the school called the parents school and he can read and write. to come via the Roma mediator because he However, he repeated sixth grade. He had dropped out of school. The parents, just completed the first four grades at Božidar as the majority of their neighbours, did not Vuković branch school in Konik, when he respond. The school did not react again. And switched to subject teaching at the main the system stopped there. No other school. The main school is in the vicinity of institution was ever informed about this case. the settlement and it takes about 15 minutes there on foot, so transportation is Environmental factors and poor financial not a barrier. This transfer to the fifth grade situation affect this case to a great extent. was not a barrier, either in the educational The girl is still being medically treated, the or in the social aspect. He had no problems family lives a very hard life. mentioned above, this is a link that is widely impact their attitudes toward education. Without accepted. Correlations found in the study include finishing primary school parents also have a among others, the level of importance attributed harder time providing support to children, for to finishing primary education by parents instance in doing homework. connected to the school attendance of their children. A lower importance being attributed to It is worth mentioning that unemployment education, and parental engagement in their amongst Montenegrin youth is upwards of children’s education, can have many causes. 45.5%33 and that the same figure is much higher The level of educational attainment, and the for Roma and Egyptian youth, which may be one employment status of parents can potentially of the reasons for the low importance attributed to
33 The annual unemployment rate based on the Labour Force Survey, 2010 (MONSTAT).
Study on the obstacles to education in Montenegro 75 education by Roma and Egyptian parents. Other The significance attributed to the completion factors to consider are that most Roma and of at least primary school by parents can Egyptian families suffer intergenerational poverty. affect the participation of their children in They do not have examples to point to of formal education. Survey results confirm that individuals who have finished school and went on there is a difference between parents of to find gainful employment. In such a context a children who go to school and parents of lack of significance being attributed to education children who do not go to school, regarding can be understandable. During the study the their opinion on the importance of completing sense of hopelessness amongst some Roma and primary school—regardless of whether they Egyptian parents regarding education was are Roma and Egyptian or members of the expressed by Roma and Egyptian mothers whose majority population. In both cases, parents of children were not attending school: although they children who go to school are more likely to stated that “school is good for children”, they stress that it is important that their children named their financial situation as the reason for complete primary school – 97% of Roma and not attending classes. For this group of mothers, Egyptian parents and 100% of parents from school is no guarantee that their children will live the majority population, compared to 78% of better since “there is no work for Roma” anyhow. Roma and Egyptian parents and 72% of The following information should be considered parents from the majority population of within this context. children who do not go to school.
Figure 25 Parents’ evaluation of the extent to which it is important for children to finish school
Important Not important
3% 28% 22%
100% 97% 72% 78%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
76 The difference of attitude towards primary complete primary school tend to connect its school education between parents of children importance with other factors. For instance who attend school, and parents of children expressing that there is not much use for it who do not attend school,is more obvious (more than 50%), and in the case of girls’ when looking at just the responses to the education, that women should stay at home. statement: 'it is very important that the child completes primary school'. A little over a third Parents from different populations have of Roma and Egyptian parents (36%), and differing views on the usefulness of knowledge somewhat less than 60% of the majority- obtained during primary school, as well as on population parents whose children do not go to the importance of formal education over school, believe that it is very important that informal. An extremely low percentage of their children complete primary school. On the parents deny any usefulness of formal school other hand, parents whose children go to knowledge (4%). But the estimated amount of school are a lot more likely to think that it is useful knowledge varies (Figure 25). That very important that their children complete many useful things are learnt during primary primary school – 82% of Roma and Egyptian school is a belief shared by majority-population and 92% of majority-population parents. parents whose children participate in education (84%). A significantly lower Of the parents who think that it is important percentage of parents from the other three that their children complete primary school, groups share their attitude. There is also a 39% believe it will make it easier to find difference within the Roma and Egyptian employment, 18% believe it will afford their population. Roma and Egyptian parents of children a better future or easier life, 14% children who go to school seem to have a believe their children will be literate or learn more positive attitude towards the usefulness something, and 10% simply believe school is of primary education (68% of responses: “a lot important, or do not havea precise opinion as is learnt”), than those whose children dropped to why they think it is important. Parents who out or were never enrolled in the system (44% do not think it is important that their children of responses: “a lot is learnt”).
Figure 26 Usefulness of formal school knowledge
non-RE children enrolled in school RE children enrolled in school 84% non-RE children not enrolled in school 68% RE children not enrolled in school 56% 50% 44%
32% 24% 16% 12% 6% 0% 0%
No, almost nothing Yes, some things or not much Yes, a lot of things
Study on the obstacles to education in Montenegro 77 A similar situation was observed when secondary school completion will somewhat comparing the importance of formal and increase chances of employment. Of Roma informal education. Roma and Egyptian and Egyptian parents whose children do not parents are more likely to consider informal attend school, only 27% believe that their education more important: 43% of them believe children would find a job upon completing the that informal education is a lot more important process of education. Parents from the for children, while only 18% of parents from the majority population whose children do not go majority population agree with this statement. to school are a lot more pessimistic on this Again there are differences within the Roma issue. Upwards of 42% do not think that formal and Egyptian population. Roma and Egyptian education would facilitate finding a job in any parents of children who are not encompassed way and only 12% think that if in fact they did by formal education are more likely to place complete their education they would find work more importance on informal education. afterwards. However the fact that the majority of their children have some disability should be Parents who consider formal education more taken into consideration. Given the current important than informal education are more circumstances, this diminishes this group of likely to perceive the completion of primary children’s employability. school as a factor that facilitates employment. The linkage of education with greater chances It is interesting to notice that as many as 36% of of employment is greater among parents Roma and Egyptian parents whose children go whose children are attending school. A third of to school believe that their children’s chances of Roma and Egyptian parents with children in finding a job upon completion of education are school and 44% of parents from the majority high. This result is not unexpected. If parents do population with children in school think that not believe that their children will find completing secondary school will increase employment, they will not invest in their employability to a great extent. Another 40% of education—an attitude, which they possibly Roma and Egyptian parents with children in transfer to their children. It is therefore very school and 14% of parents from the majority important to build confidence among all parents population with children in school, believe that and children that completing the process of
Figure 27 Estimated chances of finding employment after finishing school
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
62%
44% 44%
36% 36% 36% 30% 29% 28% 27%
12% 12%
Medium Low High
78 formal education increases chances of finding a them a job. Parents from the majority population job. This should have positive effect on believe that due to their children’s illnesses or children’s motivation to start school and reach disabilities, which are the most common certain level of education. Related to this the reasons for their dropping out, finding a job will study results indicate that role models are not be easy or will be impossible. The economic important in forming attitudes toward education. crisis and unemployment in the labour market Parents of children who go to school were more also compounds these perceptions. However likely to say that they know someone those who expressed their belief that their successful, who owed their employment and children will find a job, based their belief on the better life, to having completed formal education idea that it is easier to find work if you have a (78% of the majority population, 55% of Roma formal education. and Egyptians). As mentioned at the beginning of this section, examples of successful Parents of children who do not go to school are businesspeople from these communities, who more likely to believe that their children are not completed some formal education, have a capable of completing primary school, than positive effect on parents’ attitude towards parents of children who do go to school. The education, and indirectly on their children’s survey shows that 41% of Roma and Egyptian education. However, only one-third of Roma sand 58% of the majority population whose and Egyptians whose children do not go to children currently do not go to school believe school are aware of such positive examples. that their children cannot complete primary school. This may point to a need for more Parents explain their attitudes towards inclusive school environments and additional education in different ways. A strong barrier to educational support for these children. On the building trust in education as a vehicle toward other hand a majority of parents of children future employment amongst Roma and who go to school strongly believe that their Egyptian are the widespread stereotypes about children will successfully complete their primary them. It is in fact difficult for Roma and Egyptian education – 87% of Roma and Egyptian and to find employment, since no one wants to give 96% of majority-population parents.
Figure 28 Estimated capabilities of finishing school
Capable Not capable
4% 13%
41% 59%
96% 87%
59% 42%
non-RE children not RE children not RE children non-RE children enrolled in school enrolled in school enrolled in school enrolled in school
Study on the obstacles to education in Montenegro 79 Asked in a different way, in terms of how likely financial burden associated with attending they think it is that their child will complete school, and which would make schools more primary school, 44% of Roma and Egyptian inclusive of and relevant to both Roma and parents whose children are not attending school, Egyptian children and children with disabilities. and 52% of non-Roma parents whose children are not attending school believe that the The educational aspirations that parents whose chances are very low, almost non-existent. children attend school have for their children are Unlike them, parents of children who are going logically higher than the aspirations of parents to school were more optimistic, with 85% of whose children do not attend school. Roma and Egyptian and 98% of parents from Furthermore, indications are that majority- the majority population believing that their population parents, regardless of whether their children will complete primary school. children go to school or not, have higher Indications are that the optimism of the majority aspirations than the parents of Roma and population parents is stronger than the optimism Egyptian children. While 14% and 43% of Roma and Egyptian parents, with 70% of respectively of Roma and Egyptian parents parents from the majority population being sure whose children who do not attend school would that their children will complete primary school, be satisfied with the completion of four grades, compared to 48% of Roma and Egyptian or nine grades of primary school, parents from parents. The pessimism of majority-population the majority population whose children do not go parents whose children are not attending school to school aspire to somewhat higher levels of can be attributed to the fact that their children education. Only 8% would be satisfied with four have disability. Roma and Egyptian parents or nine grades of primary school, while almost whose children do not go to school gave two 40% think that their children should complete reasons for not believing their children would three- or four-year secondary school. Another complete primary school: the first was that their 20% of these same parents aim for a university children are not interested in school, and the level education for their children. The second was that the family financial situation is conclusions are similar when comparing parents prohibitive. Again this may point to the need for of Roma and Egyptian and children from the measures that would alleviate some of the majority population who attend school. Majority-
Figure 29 Aspirations of parents (preferred level of education of their children)
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
48% 44% 43% 42% 40%
32% 29% 25%
18% 14% 8% 8% 9% 6% 0% 0%
4 grades of primary school Primary school High school University
80 population parents have higher expectations of do not go to school believe that it is much better their children regarding education. Upwards of for children to be devoted to schoolwork. This one-third of Roma and Egyptian parents whose difference may be a reflection in some cases of children go to school would be satisfied if their financial hardship. For instance in households children completed primary school, as opposed were both parents have to work, Roma and to only 6% of majority-population parents. As Egyptian children may have to help with expected, compared to Roma and Egyptian housework or take care of siblings. parents (25%) a higher percentage (48%) of majority-population parents whose children go to Parental engagement with a child’s education is school plan on their children completing a very important factor in improving academic university studies. achievement. Parents of children who go to school are more engaged with their children’s Furthermore, most parents from the majority education and, in their words, do everything they population believe that it is much more important can to make sure their children complete for a child to devote himself or herself to school primary school (52% of Roma and Egyptian tasks, rather than to household chores or work. sand 78% of the majority population), compared The rest of the parents from the majority with the parents of children who do not go to population mainly agreed with this attitude, but school (33% of Roma and Egyptians, 34% of to a lesser extent (it is somewhat better to be the majority population). Additionally, parents devoted to school tasks). Amongst Roma and with children going to school are more likely to Egyptian parents 80% of those whose children say that they try to provide adequate financial go to school and 44% of those whose children conditions (Figure 29). Parents of children who
Figure 30 Parents’ willingness to be engaged in order to help their children complete school
RE children not enrolled in school
non-RE children not enrolled in school
RE children enrolled in school
non-RE children enrolled in school
33% 34% Everything we can 52% 78% 7% 2% Help in learning, doing homework 15% 6% 6% 0% To provide financial and other support 15% 6% 14% 2% They are trying, but they cannot do much 4% 2% 15% 24% There is no way to help 7% 0% 12% 12% Other 7% 0%
Study on the obstacles to education in Montenegro 81 do not go to school are more likely to believe Egyptian households parents often have no that their children cannot be helped in any way formal education. Within Roma and Egyptian (15% of Roma and Egyptians and 24% of the households the education of the father seems majority population), and say that they try, but strongly correlated with a child's attendance at cannot contribute much to their children’s school: fathers of children who are not enrolled performance at school (14% of Roma and in school also have not finished school. Egyptians and 2% of the majority population). Low levels or in some case no educational attainment affects the capacity of parents to help As many as a half of Roma and their children with their education, and obviously Egyptian fathers whose children adequately financing of a child’s education is do not attend school do not have directly dependent on the financial situation of any formal education (52%), while the family. Interventions that raise the capacity among Roma and Egyptians of uneducated parents, and which help with the whose children attend school a costs of education should be considered. significantly lower percentage of fathers are without formal Literacy of Parents education – approximately one in three fathers (31%). Just 11% of As mentioned in the section above, the degree Roma and Egyptian fathers whose of engagement parents have with a child children do not go to school have regarding their education, in part, has to do finished primary school (Figure with the education level of the parents. And the 30). Among Roma and Egyptian more engagement there is, the more likely it is fathers whose children attend that the child will stay in school and will do school a significantly higher well. A key determinant is the literacy of percentage have finished primary parents, and this section deals with this factor school (27%). in particular. In the group of Roma and
Figure 31 Education of the father: Roma and Egyptian population
RE children enrolled in school RE children not enrolled in school
52%
31% 27%
11%
No formal education Finished primary school
82 In majority-population households the percentage script, versus 42% of Roma and Egyptian of fathers with no formal education is negligible parents with children not attending school. (just 2%). Furthermore a higher percentage of fathers from majority-population households have Early Marriage secondary education compared with fathers from Roma and Egyptian households. Of fathers from 1. Characteristics of Roma and Egyptian the majority population, 34% have finished 3-year Households vocational school, in contrast to just 1% of Roma and Egyptian fathers; additionally 15% of fathers The children covered by this survey mainly live from the majority population finished 4-year in households with several household members vocational school, compared to 2% of Roma and (5.7 on average). In Roma and Egyptian Egyptian fathers. households the number of household members is generally larger: 5.9 in households where The education attainment of Roma and children go to school, and 6.2 in ones in which Egyptian mothers is worse than that of the the children are not included in the system of fathers. More than a half of mothers from education. Majority-population households, Roma and Egyptian households have no whose children attend school have 4.9 formal education—63% of mothers whose household members on average, while the children do not go to school and 55% of number of household members averages 5.2 in mothers whose children go to school34). Just ones with children not attending school. 9% of Roma and Egyptian mothers have finished primary school, versus 36% of mothers Parents from the Roma and Egyptian population from the majority population. There are almost are somewhat younger than parents from the no mothers from Roma and Egyptian majority population. For example Roma and households who finished secondary school. Egyptian fathers are mainly aged between the ages of 31 and 40, while fathers from the No connection could be made between the majority population are between 41 and 50 literacy of parents in majority households and years old. In Roma and Egyptian households school attendance, but the picture is quite 32% of mothers are below 30 years of age, different in Roma and Egyptian households. In versus 17% in majority- population households. households of the majority population, Among the majority population 46% get married regardless of a child's school attendance, at church or in a registry office; 16% of Roma almost everyparent interviewed could read and and Egyptians marry this way. write in Cyrillic (98%), as well as in Latin (99%) script. Of majority-population fathers, 81% of them could read and write in Cyrillic and 83% Marriage at an earlier age happens could do the same in Latin script. In contrast, more frequently amongst Roma approximately every second parent from Roma and Egyptians. For example, 20% and Egyptian households with children of mothers from Roma and attending primary school could read and write Egyptian households got married in Cyrillic (46%). Of Roma and Egyptian at 15 years of age, versus 1% from parents whose children are not attending the majority population; while 30% school, the percentage that can read and write of Roma and Egyptian fathers got in Cyrillic drops to 31%. Approximately half married between the ages of 16 (51%) of Roma and Egyptian parents with and 18, compared to 5% of fathers children in school could read and write in Latin from the majority population.
34 This difference is not statistically significant Study on the obstacles to education in Montenegro 83 The entire sample showed that parents have Montenegro] compared to […] national their first child between the ages of 19 and 25 average[s], teenage pregnancies are to a large (49%). In Roma and Egyptian households 28% extent a majority-society concern.”36 Better of parents have their first child between 16 and provision of sex education classes and 18 years of age, this is the case in 8% of workshops within communities could benefit all majority-population households. Among the populations. Nevertheless “strict demands majority population 44% of parents have their regarding virginity”37 among some Roma and first children at the age of 25+ years; this is the Egyptians, can lead to pressure to marry early case with 11% of Roma and Egyptian and this has been correlated to higher drop-out households. The age at which Roma and rates among Roma and Egyptian girls.39 Drop- Egyptian parents have their first child does not out data shows that the number of Roma and differ significantly between households where Egyptian children enrolled in school drops after children do and do not go to school. reaching age 11, especially among Roma and Egyptian girls. All the interviewed Roma and 2. Attitudes towards Marriage Egyptian mothers (either in focus groups or in case studies), regardless of whether their In some Roma and Egyptian communities children go to school or not, mentioned early marriage is more prevalent, as are spontaneously how they “fear that their virginity testing, teenage pregnancies and daughters will fall in love and be tricked”.The resulting higher drop-out rates among Roma majority of them believe that the right age to and Egyptian girls in school.But studies in start a family is between 15 and 17 years of other SEE countries have also shown that an age. In discussions some Roma and Egyptian exacerbating factor can be “[…] prejudices mothers also indicated that what worries them held by [some] teachers relating to early is the potential for their daughters to lose their marriages and teenage pregnancies [resulting virginity before marriage. However, there were in] lower expectations of Roma and Egyptian also Roma and Egyptian mothers who hoped girls [including] expecting that they will drop their daughters would not get married in their out of school early.”35 Moreover it is also teens, and would finish school. The different “important to note that although early future that these particular Roma and Egyptian marriages are statistically higher in some mothers envisioned for their daughters is why Roma and Egyptian communities, [including in they enrolled them in school.
35 Ravnbøl, Camilla Ida. [2011] Women, Motherhood, Early Childhood Development: Exploring the question of how poor Roma women’s status and situation influences children’s survival, growth and development. UNICEF. pp. 59. 36 Ravnbøl, Camilla Ida. [2011] Women, Motherhood, Early Childhood Development: Exploring the question of how poor Roma women’s status and situation influences children’s survival, growth and development. UNICEF. pp. 44. 37 European Roma Rights Center (2006) Forced Arranged Marriage of Minors Among Traditional Romani Communities in Europe. ERRC, Budapest. pp.3-4.
84 MERSIDA AND ELMA, GIRLS KEPT VIRGINS FOR MARRIAGE
Mersida is 15 years old, and her sister school representatives know that Elma is a year younger. They live in a five- something like this had happened. member family with their single mother. They lost all their property to the fire in Later on, the interview with the mother Konik. Their temporary accommodation is revealed the real reason for dropping out. in a tent. They live from collecting Her mother is afraid that her daughters secondary raw materials. They are waiting might fall in love and be “used”, which for a container home to live in. would prevent them from getting married. When asked directly if they fear a Mersida, in her mother’s words, completed kidnapping of the bride, the mother said four grades in Konik. She started her fifth that if a man took her as his bride it would grade in another school, Božidar Vuković, not be a problem, “but if he uses her and but she left a few days after starting and leaves her on my doorstep, what am I to do never came back. Her mother explained with her?” The two younger children (a girl that one boy stripped naked in front of of 8 and a boy of 6) go to primary school, Mersida in school one day. The girl got so but their mother is not sure that they will scared by that act that she refused to go to complete it. In her words “they will go if school ever again. Next year, when her they want to”, but she also said that their younger sister was to start that same financial situation was very bad, even school, she was scared to go there without worse than before the fire. her sister. The girl is very shy and she did not want to answer the questions during The chain of reaction was the same in this the interview. Her mother stated that she case as well. The mediator called the did not react to that situation and she did mother to come to school, but she never not report the case to anyone. None of the did.
Quantitative study data confirms a difference school and 46% of Roma and Egyptian whose between the Roma and Egyptian and the children do go to school, believe that the ideal majority populations’ views on the appropriate age for girls to get married is under 18 years of age for marriage. Roma and Egyptian parents age (Figure 31). In the case of Roma and were more likely to perceive adolescence as an Egyptian boys though, it is somewhat different, ideal age for marriage, whereas the majority 36% of Roma and Egyptian parents whose population hardly at all mentioned any age children do not go to school and 27% of those under 18. What parents in Montenegro have in whose children do go to school, believe that the common, regardless of ethnicity, is a belief that teenage years are an appropriate time to get girls should get married at a younger age than married (Figure 32). Among the majority boys. It is also relevant to note that there are population, less than 10% consider marriage no significant differences on views on marriage under the age of 18 ideal. Another in terms of whether or not the children of a characteristic shared by parents regardless of family are attending school. So 47% of Roma ethnicity, is a belief that the ideal time for and Egyptians whose children do not go to marriage is under 26 years of age. Only
Study on the obstacles to education in Montenegro 85 Figure 32 Ideal age for marriage for females
non-RE children enrolled in school 82% 82% RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
48% 46% 44% 43%
12% 6% 6% 8% 0% 4% 2% 0% 2% 2%
Up to 15 years 16-18 years Older than 25 19-25 years
Figure 33 Ideal age for marriage for males
non-RE children enrolled in school 70% 64% RE children enrolled in school 61% non-RE children not enrolled in school 58% RE children not enrolled in school
32% 29% 25% 18%
7% 6% 8% 0% 4% 3% 2% 0%
Up to 15 years 16-18 years Older than 25 19-25 years majority-population parents whose children go under 18 (71% of those whose children do not to school are more likely to think boys (32%) go to school and 60% of those whose children should get married after they turn 25. do go to school). Parents of other ethnicities mostly would not support marriage under the In summary, the study shows that the majority age of 18 (78% of those whose children do not of Roma and Egyptian parents would support go to school and 69% of those whose children a child’s decision to enter marriage at an age do go to school).
86 Figure 34 Supporting children in early marriage
non-RE children enrolled in school RE children enrolled in school non-RE children not enrolled in school RE children not enrolled in school
78% 71% 68% 60%
39%
26% 27%
16%
Would support Would not support
Compromised Motivation for and Interest in attending school have a positive opinion of it Education among Young People versus ones not attending, as stated above, 98% versus 59% respectively. A special note The degree to which a child likes or dislikes should be given to the fact that half of the school most probably influences their children who dropped out of the educational chances of dropping out, and it is no surprise system, either of Roma and Egyptian or any that children who stay in education like to go other ethnicity, would like to return to school. to school to a greater extent. Parents’ The reasons for children disliking school can evaluation of the extent to which their be numerous and varied, and certainly the children like to go to school matches their quality, as covered below, including specific evaluation of their children’s opinion of components of the education setting and school. So 97% of parents whose children go methods, such as a relevant curriculum and to school and 98% of their children “like, or friendly school environments, should be like very much going to school”. A similar scrutinized. evaluation is a lot less common among children who dropped out of school—a Unfortunately this research did not allow positive evaluation by 55% of the parents further exploration of the reasons that have and 59% of the children in this group. As is driven certain children and parents to form obvious, more Roma and Egyptian children their opinions.
Study on the obstacles to education in Montenegro 87 Figure 35 Parents’ evaluation of the extent to which their children like to go to school
Like Do not like
2% 3%
39% 47%
98% 97%
61% 53%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
Half of the children who dropped out of the to whether or not schools are inclusive and educational system, either of Roma and meeting the needs of children with disabilities Egyptian or any other ethnicity, would like to and Roma and Egyptian children. return to school. 1. Children outside of the system of education Continuity of Use Children who do not complete compulsory Roma and Egyptian children and other primary education can be split into those who vulnerable children are not only at risk of have never entered the system, and those who dropping out of school, but also often attend dropped out of the system. This study school irregularly or repeat grades, due to a encompasses 150 children who are outside of variety of factors. The ability to attend regularly the education system, of whom 46% dropped and continuously, of course, determines out of school, while the rest were never outcomes in education. The majority of children enrolled. from the majority population not participating in the education system have not enrolled in Amongst the majority population, it is somewhat primary school largely for health reasons. Non- more likely that formal education was not started enrolment and dropping out among Roma and at all (64%) than amongst the Roma and Egyptian students is mostly attributable to their Egyptian population (49%). There are divergent poor financial situations. The study found that reasons for non-enrolment and dropping out children who had dropped out of school were not between the two populations (Figure 35). attending classes regularly beforehand. They Specifically regarding enrolment, children from also often repeated grades. A lack of identity the majority population do not enter school documents and birth certificates amongst a primarily due to severe health conditions, significant percentage of the Roma and Egyptian disability and/or developmental problems (78% population is also a factor contributing to their of children from the majority population who non-enrolment and dropping out. Also covered is were not enrolled in school). This decision is data on the health of children in and out of more likely to be made by a doctor (53%), than school. Both sets of data can give some clues as by parents (31%).
88 Figure 36 Main reason for non-enrolment in school
non-RE children not enrolled in school RE children not enrolled in school 78%
63%
12% 13% 12% 10% 6% 6% 0% 3% 3% 0%
Child did not want to Lack of personal Poor financial Other Distance from Health problems of a go to school documents situation school/no organized child/disability transport
As cited by 63% of Roma and Egyptian parents out amongst Roma and Egyptian children (in whose children were not registered in school, 29% of cases the reason for dropping out – Fig- poor financial situations and money shortages ure 36). According to 31% of Roma and Egyptian were the predominant reasons for non-enrol- parents, formal education was also interrupted ment. These are the same reasons for dropping because the child did not want to go to school.
Figure 37 Main reason for dropping out
Poor conditions in school 0% 6% non-RE children not enrolled in school RE children not enrolled in school Language barrier 0% 8%
Other 6% 2%
Discrimination 6% 6%
Change of place of residence 6% 8%
Do not know/refused to answer 11% 0%
Seasonal work/child labour 11% 0%
Distance from school/no organized transport 11% 2%
Child did not want to go to school 11% 31%
Health problems of a child/disability 22% 12%
Poor financial situation 33% 29%
Study on the obstacles to education in Montenegro 89 Among both Roma and Egyptian and determinant negatively effecting school majority-population children, other reasons enrolment and dropping out amongst Roma such as distance from school, poor and Egyptians. Shortages of money for knowledge of language, changing place of school expenses was cited by 74% of Roma residence are rarely crucial factors for non- and Egyptian parents as a reason for non- enrolment or dropping out (less than 10% of attendance at school, and 61% cited cases). However, when parents list all the shortages of adequate clothing. The majority reasons why their children dropped out of the population singled out disability (54%) and system of education, the picture becomes developmental problems (58%) as the main somewhat more complex. Namely, it is often reasons for non-attendance. Additionally, a combination of factors that negatively affect other barriers to enrolment and continuous the final outcome. As mentioned, a poor attendance in school mentioned by Roma economic situation was cited as a major and Egyptian were: the absence of
Figure 38 All reasons for dropping out
The family had to move because of seasonal work 0% 5% RE children not enrolled in school The family went abroad 0% non-RE children not enrolled in school 7% The family came from abroad and could not get the child 0% enrolled in school 7% The child is not capable of attending school 0% 13% The child is too old to go to school 0% 14% There is no one to watch over child 2% 1% The way to school is not safe 2% 4% The child is not capable of attending school, has a disability 2% 11% The child is not capable of attending school, behavioural 2% problems 20% The child does not know the language used at school 4% 11% The child has to watch over younger brothers and sisters or 4% older family members and help with house chores 16% Children will not learn important things in school 6% 12% There is no one to take the child to school 8% 9% Transportation to school cannot be provided 8% 11% The child has to earn money for the family 8% 11% The child would be treated badly because of ethnicity 10% 61% We do not know where or how to register the child for school 12% 14% Other children from our settlement do not go to school 12% 31% The child has no necessary documents 14% 7% We have family problems 18% 11% The child had bad grades at school 18% 74% The child does not want to go to school 28% 27% The child has no adequate clothes 54% 8% 58% We cannot afford the expenses of schooling (snack, books...) 6%
90 documents; fears that their child would be language (85% of Roma and Egyptians and discriminated against on the basis of 78% of the majority population). ethnicity;there being no one to watch over the child; and the child being too old for Attendance at School school (Figure 37). Barriers to education common to both populations are poor All children covered by the survey who were or performance at school (27% of Roma and are in the education system, share similar Egyptians, 28% of the majority population), experiences regarding the number of schools and a lack of will on the part of their children they attended. It is usually only one school to go to school (31% of Roma and Egyptian, (93%). However there are significant 12% of majority population). It is very differences between children who dropped out important to note also that 14% of Roma and of school and those still attending, regarding Egyptian parents cited the fact that they are regular attendance and the frequency of grade not informed enough about where and how to repetition. One-third of Roma and Egyptian enrol their children in school. children and one-fifth of majority-population children who dropped out of school, did not Although language differences were mostly not attend classes regularly before leaving school mentioned as a barrier to participation in (Figure 38). Percentages among children education, results still indicate that there are attending school are 3% and 0% for Roma and disparities between the language of instruction Egyptian children and majority-population and the mother tongue of some children. This children respectively. The reasons for factor can be considered a potential obstacle absences among Roma and Egyptian children, in the process of education. While the vast as described by parents whose children are majority of children who currently go to school not in school, are the same as the reasons for (97% of Roma and Egyptiansand 92% of the leaving school: children refusing to go to majority population) speak Montenegrin, a school (39%) and financial hardship (22%). lower percentage of children who dropped out However one in ten respondents cited poor from the system of education know the knowledge of the language or health problems.
Figure 39 Regularity of school attendance
Regularly Irregularly
3% 22% 35%
100% 97% 78% 65%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
Study on the obstacles to education in Montenegro 91 Figure 40 Repeating grades
Never repeated grade Repeated grade
2% 17% 22% 22%
98% 83% 78% 78%
non-RE children RE children non-RE children not RE children not enrolled in school enrolled in school enrolled in school enrolled in school
Recorded differences in reasons for grade repetition are somewhat more complex, with Given that the data indicates more some barriers being ones that Roma and frequent occurrences of irregular Egyptians are more likely to face, compared to school attendance and grade the general population. For instance, not only repetition among children outside did Roma and Egyptian children and children the education system, they can be from the majority population who dropped out considered significant predictors of school repeat a grade (22% in both groups), of potential dropping out, but 17% of Roma and Egyptian children especially in the case of Roma and currently attending school also did. This almost Egyptian children. Mitigating both never happens among majority-population should be a focus when creating children going to school (Figure 39). According programmes and social policies. to Roma and Egyptian parents, their children accomplished insufficient success because of a shortage of money, as well as some citing that their children “don’t like school and they don’t learn”.For Roma and Egyptian children who are attending school, the other important reason for repeating a grade are the health problems they are facing.
92 Challenges with Birth Registration and school are without personal documents, Legal Identity Papers compared to Roma and Egyptian children in school. Of Roma and Egyptian children not In order to help ensure enrolment it is important going to school 22% do not have a birth to consider whether parents and children have certificate, in contrast to 10% of Roma and personal documents—a lack of them can be a Egyptian children going to school. serious formal obstacle to the enrolment of children in school. Survey results have There are differing reasons for not registering confirmed this hypothesis. In majority- children at birth between the Roma and population households almost all fathers and Egyptian populations whose children go to mothers have birth certificates and personal ID school, and those that do not. According to cards. This is not the case with Roma and interviewed parents, in the case of Roma and Egyptians, though there are some variations Egyptian children not attending school, the between the Roma and Egyptian communities. dominant reason for not registering a child at birth is the lack of free time of the parents to 21% of Roma and Egyptian fathers register their children. In case of children who whose children do not attend school are in school, the main reason mentioned is the do not have birth certificates, versus parents’ own lack of necessary documents in 9% of Roma and Egyptian fathers order to be able to register the child. whose children do attend school. Furthermore, 24% of Roma and Possibly connected to the issue of a lack of Egyptian fathers whose children do personal documents, the numbers of Roma not go to school do not have and Egyptian children enrolled and not enrolled personal ID cards, compared to 6% in school also differ according to their country of fathers whose children do go to of birth. One-third of Roma and Egyptian school. The situation is very similar children who do not go to school were born in among Roma and Egyptian mothers: Kosovo (internally displaced persons), and only 20% of Roma and Egyptian mothers 14% of Roma and Egyptian children who whose children do not go to school attend school are from Kosovo. Although the do not have birth certificates, versus majority of children are in fact registered in the 9% of mothers whose children do go municipality of current residence (in total 94% to school, while 31% do not have of children), it is important to note that among personal ID cards, which is the case the Roma and Egyptian children who do not with 14% of mothers whose children attend school a lower percentage of them are go to school registered (88%) in comparison with children who do go to school (97%).
A lower percentage of Roma and Egyptian Child Health and Developmental Difficulties children have personal documents as compared as an Obstacle to Enrolment and Attendance to children from the majority population. They are also less frequently registered at birth, thus The majority of parents evaluate their child's more often lack birth certificates. Of Roma and health as good (84%). It is important that in Egyptian children not attending school 18% households of the majority population where were not recorded in the birth register; 5% of children do not attend school, more than a half Roma and Egyptian children going to school of parents (54%) think that their child's health were not. Additionally a higher percentage of is poor, while in the remaining types of Roma and Egyptian children not attending households almost all parents (93%) evaluate
Study on the obstacles to education in Montenegro 93 their child's health as good. Such pronounced SEN, and of environments and curricula that difference in the assessment of the child's are child-friendly and supportive of diversity. health indicates that in the majority population, the child's poor health is one of the important factors of non-enrolment or dropping out of QUALITY school, which was confirmed by the data obtained from discussion in focus groups with The determinants that fall under the category of parents and case studies. quality have a decisive impact on the educational outcomes of vulnerable and Among children from the majority marginalized children. Not only should all population who do not attend children have equal access to education, but school, in a significantly higher they should have equal access to quality percentage of cases some sort of education. In order to level out disadvantage serious health problem or disability and to foster inclusion, schools and classrooms was diagnosed (only 38% of should meet standards in at least each of the children are healthy, while 22% following areas: Teaching quality and methods have disability, 18% have cerebral should be of the highest quality, inclusive, child- palsy, 12% have epileptic seizures, centred, and adjustable to meet the individual and 10% have speech/hearing needs and skills of each child including SEN problems). In the other types of children; accommodations should be made for households, the majority of children whose mother tongue is not the children are healthy or do not have language of instruction; school infrastructure a disability (above 80%). The out-of- needs to be safe and adequate and supplied school status of children with the with all essential materials and equipment described problems may indicate a including for disabled children; curricula should lack of adequate inclusive schools be multicultural and relevant to Roma and and classrooms that could Egyptian children as well as to other minorities; accommodate them, and possibly schools should be child-friendly environments limited outreach and child-seeking and actively work against prejudice and services to encourage their hostility, and toward tolerance and the attendance at school. embracing of diversity. Without these and other factors Roma and Egyptian children as well as other marginalized children will not be Although the health of children in Roma and meaningfully included in schools. Egyptian households is generally assessed as good, it is worth mentioning that in the case of Since the research presented in this document Roma and Egyptian children who attend was limited to questions asked to parents and school, their health is somewhat more children, what follows is data on their frequently assessed as excellent (82%) than in satisfaction with teaching staff and with the the case of Roma and Egyptian children who relationships among students.The findings of do not attend school (69%). the survey will be then complemented by the main conclusions of the Evaluation of the This data may point to both a lack of inclusive Reform of the Education System in accommodations in schools for children with Montenegro 2010-2012.
94 Parent and Child Satisfaction with Teachers Children’s testimonies of social relationships at and Peer Relationships school are very similar to their parents’. 95% of children going to school, regardless of In general children going to school and their ethnicity, are satisfied with the treatment by parents had more positive evaluations of teachers their peers and teachers. However children and relationships among students, compared to who used to be in the system have somewhat children out of school and their parents. more negative testimonies.
The data from this study indicates that the More than two-thirds of the parents of children who have left school are children in the survey had a more likely to be dissatisfied with the attitude of positive rating of the way they are the relevant actors involved in the provision of treated by their classmates and education to their children than the parents of teachers. Those who were not children in school. These same parents are more satisfied with the relationships likely to be displeased with the work of teachers, they have with their peers, and unlike parents whose children are in school, reported problems with physical are less likely to express satisfaction with the and verbal abuse. In addition to way their children are treated by classmates and these problems, one-fifth of the their parents. A large majority of parents of children in the survey reported children who go to school (91%) evaluated the having been faced with other work of teachers positively, as opposed to 71% issues in the course of their of parents whose children are not in school. education, usually financial hardship, fights, a lack of interest There are noticeable differences in school and living too far away between children going and not from school going to school, regarding social relationships especially amongst Roma and Egyptians. Roma and Evaluation of the Reform of the Education 38 Egyptian children who go to school System in Montenegro (2010-2012) , are better accepted by their peers, Implementation of Inclusive Education as well as by their peers’ parents. Almost all Roma and Egyptian In order to complement the survey results parents of children who go to analyzed in this document, the opportunity will school are satisfied with the way be used to briefly present the main findings of their children are treated by their the recent Evaluation of the Reform of the peers (96%), compared to 71% of Education System in Montenegro (2010-2012) parents whose children do not go to focusing on implementation and the quality of school. The attitude of classmates’ inclusive education in general: parents is evaluated positively by • Legislative framework in the area of 95% of Roma and Egyptian parents inclusive education is comprehensive, whose children go to school, and innovative and in continuous process of 82% of Roma parents whose alignment with relevant European and children do not go to school. international standards and norms;
38 Evaluation of the Reform of the Education System in Montenegro (2010-2012), Instituteof the Open Society Foundation, NGO Pedagogical Centre, with the support of the Ministry of Education, Bureau of Education and Bureau for Textbooks and Teaching Materials, December 2012
Study on the obstacles to education in Montenegro 95 • Remaining challenges relate to the • The participatory approach to development implementation of relevant laws and of Individual Educational Plans needs to be strategies and strengthening of the improved both with regards to participation cooperation between sectors at the of parents, as well as among teachers national and local levels; involved in the education process; • There is a need to enhance operational • Individual Educational Plans remain a procedures and make them more effective, formal document, rather than a functional defining clear roles, responsibilities, document aimed at improving the quality of coordination mechanisms and information educational work with the child for whom it flow between all stakeholders in the was developed. education process; • Opportunities for training and education of The general impression is that Montenegro has teaching staff in the areas of inclusive made significant progress in the implementation education should be expanded and made of inclusive education in the country, especially continuous. in terms of setting the legislative and institutional framework for the reform. The Ministry of Recognizing the important role of the Ministry of Education and all relevant stakeholders remain Education in driving forward the reform process committed to continue working on improving the and implementation of inclusive education in quality of inclusive education. Montenegro, the Evaluation points out that the number of children with special education needs EXPERIENCES OF (primarily children with disabilities and Roma and Egyptian children) enrolled in schools is CHILDREN WITH increasing each year. However, several specific DISABILITIES concerns have been brought up with regards to the quality of inclusive education: • Insufficient training of teachers to work with Because the results of the study indicate that, in children with Special Education Needs (SEN); the majority population, children with disabilities • Lack of properly trained teaching are mainly the ones staying out of the formal assistants for SEN children; education system, this group of children will be • Criteria for assessments of learning paid special attention to in this section. outcomes of children with SEN not According to the study requirements, majority- uniformly implemented and sometimes population households with at least one child not only formal, thus not contributing to the going to school were interviewed. It turned out personal development of the child; that as many as 27 of the total of 50 interviewed • Teaching staff have insufficient expertise children have some disability, and here the and training for development of Individual results of analysis of data obtained from these Educational Plans, especially with 27 children and their parents will be presented. regards to: definition of short-term and long-term educational goals and tasks; The difficulties that these children mainly suffer means for evaluating children’s progress in from are cerebral palsy (33%), epilepsy (11%) or achieving academic goals; differentiation some non-classified problem. Talking to parents of teaching processes suitable for the during focus group discussions, the impression needs of the child; creation of a holistic was that children who had a severe disability approach in the educational process; and stayed outside of the system. These are the establishment of adequate inter- children with mobility impairments (they cannot personal communication in the classroom; sit, but they spend most of the time lying in bed)
96 Photography: UNICEF Montenegro/Risto Božović that physically disable them from staying in these children’s parents evaluate their housing school and attending classes, and children with conditions as unfavourable. Almost half of them developmental problems, such as speech cannot always provide heating fuel during the impairment or lack of memory, which is winter, while problems such as dampness, according to their parents preventing them from noise and pollution occur in one in four or one attending classes. in five households.
Children with disabilities who are included The general financial situation is perceived as in this study live in less adverse financial bad by 63% of families. The average income conditions in comparison with the other per household member is more than €50 in children encompassed by the study. Their half of the cases, but a certain part of the need housing facilities are mainly spacious enough for money is cannot be satisfied. There is (85% of households have more than 10 m2 per mainly no problem with the acquisition of food, member, and a half have more than 0.4 m2 of since two meals a day is a minimum, while in separate space per member), they all have a more than 80% of these households children bathroom with running water and essential eat three or more times a day. However, some appliances, such as a water heater, refrigerator, things that children need cannot be washing machine and TV. However, 55% of provided. So half of these families cannot
Study on the obstacles to education in Montenegro 97 afford textbooks, while 60% cannot afford to only a quarter play and 4% go for a walk. Quite buy clothes (either summer or winter), expectedly, these children do not help with although the vast majority of them keep their chores. Focus group participants who are children’s clothes clean always. parents say that taking care of a child with a disability is a daily struggle, requiring all-day Focus group participants indicate that their active engagement. They often do financial situation as parents of children with physiotherapy themselves; they do the disabilities is further aggravated by the fact exercises and try to teach children everything that these children, due to their specific they can. It is a slow and long process, very condition, have a special diet and are taking often with the pattern “one step forwards, two medications. Additional expenses are also steps back”, but even the slightest progress medical aids (wheelchairs and the like), as well brings the greatest satisfaction. as transportation to the nearest health facility that they have to pay for unless they have a car, Only one out of the 27 children attended a which many of them do not. The state covers a kindergarten, while two were enrolled in part of the costs, but in the situation where secondary school, but they did not insurance covers a substitute medication, complete it due to their disability. The parents invest additional money and effort to decision not to enrol the child in school, even find the prescription drugs that their child needs where the parents were well informed about (a substitute does not have the same effect as the time of enrolment, was usually made on the prescribed medication does). the basis of expert medical assessment. What is important is that, in the case of these The families we are talking about had their first children, there is no reason other than child as adult citizens. Almost all of them think perceptions about disability that is affecting that they devote enough time to their up their enrolment in school (finance, child labour, bringing. The majority of parents of both sexes etc.) and that parents express a very positive (more than 60%) had completed secondary attitude towards education and its relevance. school, and even those with lower education The majority of parents agree that important are literate. However, almost 60% of mothers things are learnt in school and disagree with and fathers are unemployed, and another third the statement that the school of life is more of mothers are housewives. important than formal education.
When focus group participants who were These parents say that their other children do parents talked about the everyday routine of go to school, either primary or secondary, and their children with disabilities, the impression that parents pay attention to their education. was created that, due to their condition, Accordingly, parents are mainly willing to do these children are almost exclusively at everything so that their children with home with their closest family. This data disabilities can get formal education, but was confirmed by the quantitative study as the majority agree that nothing can be done well. The results are the following: children or that they do not know what might help with disabilities spend most of their time with them. Almost all 27 parents believe that their adult household members (67%) or with their children cannot complete formal education due brothers and sisters, while only one-third have to their health condition and that they will not, peers to socialize with. They spend their time and that even if they completed it, they would mainly at home, watching TV (19%), lying not have any opportunity for employment down (15%) or simply “indoors” (11%), while because they were not capable of working.
98 CONCLUSIONS AND RECOMMENDATIONS
Photography: UNICEF Montenegro/Risto Božović Study on the obstacles to education in Montenegro 99 are furthermore often victims of abuse, physical ENABLING ENVIRONMENT and verbal insults within school environments with little done to curb such abuse. Social Norms Through a series of nationally representative Discrimination against children from vulnerable Knowledge, Attitudes and Practices surveys, social groups and children with disabilities the stigma attached to children with disabilities in Montenegro has been identified as one of All countries battle with managing diversity and the main obstacles to their full inclusion in integrating minorities and children with education in the society. disabilities into education. Discrimination against Roma and Egyptian children as well as As mentioned earlier, nationally representative prejudices against children with disabilities public opinion surveys measuring social continues to be a pervasive problem in many distance based on ethnicity in Montenegro were European countries. Both have very conducted in 2004 and 2007.39 The survey detrimental effects on the meaningful inclusion results have shown significant distance toward of Roma and Egyptian children and children the Roma and Egyptian community. Also, with disabilities in education. findings of the survey conducted in 2011 on the Discrimination of Minorities and Marginalised In several European countries, Roma and Societal Groups40, which examined Egyptian children are often thought of as discrimination in access to education, intellectually inferior, with schools and teachers employment, health protection and justice show delivering a lower quality education to these that on average members of the Roma and students due to reduced expectations of their Egyptian community are the most marginalized academic abilities. Roma and Egyptian children and discriminated against in Montenegro.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• As a response to the stigma attached to also be launched to deal with prejudice children with disabilities in 2010 the and discrimination against Roma and Government of Montenegro and UNICEF Egyptian children and their families. Such jointly launched the "It's About Ability" a campaign would also support the campaign with the aim of combating the government’s efforts to disaggregate stigma and creating positive images of existing Roma and Egyptian camps and children with disabilities in public. This prepare successful integration into campaign was successful and should be society (more in Supply-side continued. A similar campaign should recommendations).
39 Ethnic distance in Montenegro, Centre for Democracy and Human Rights (CEDEM), 2004 and 2007 (http://www.cedem.me/sr/programi/istraivanja-javnog-mnjenja/ostala-istraivanja/viewdownload/38-ostala-istraivanja/203- etnika-distanca-u-crnoj-gori-maj-2007.html) 40 Survey on Discrimination of Minorities and Marginalised Societal Groups, CEDEM, June 2011 (http://www.cedem.me/sr/programi/istraivanja-javnog-mnjenja/ostala-istraivanja/viewdownload/38-ostala-istraivanja/208- istraivanje-diskriminacije-manjinskih-naroda-i-marginalizovanih-drutevnih-grupa-jun-2011.html)
100 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• The government should actively pursue the redress—and ensuring that all potential implementation of anti-discrimination beneficiaries are well informed of them. legislation and policy. Including developing Diversity training of officials and service or strengthening effective complaint delivery personnel, in all relevant sectors, mechanisms, the capacities of human as well as in local governments in general, rights liaisons, and mechanisms for should be standard.
Legislation and Policy on Education the quality of education for Roma and Egyptian children and children with Though Montenegro has legislation that disabilities are not covered in education prohibits discrimination, and in fact has policy, including: teaching methods; Roma-inclusion strategies and action plans, language of instruction; school setting— including at the local level, implementation including safe adequate infrastructure; a could be further accelerated.41 Moreover curriculum which is mono-cultural and non- policy on inclusive education is mostly inclusive; prejudice and animosity as missing and key areas that would improve described above.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• The political will to implement strategies, laws and how to use mechanisms. Capacity action plans, legislation and policies has to building of those responsible for enforcing be raised. Awareness of the benefits, laws and policies should also be conducted. including economic, of social inclusion • Existing policies, strategies and action should be raised among decision makers. plans on inclusive education should be Clearly articulated objectives, goals and adequately budgeted to ensure their full deadlines and requisite regular evaluations implementation. and monitoring of initiatives under actions • Legislation should be amended so that plans, are necessary for implementation. The children with disabilities can be more central government should help set the tone readily identified and counted—this for local implementation—some oversight includes their explicit inclusion and and monitoring, as well as mechanisms that definition within legislation and policies. would encourage local buy-in. Additionally amended laws which as of • Mechanisms for complaints and redress of 2010 encompass more comprehensively discrimination and human rights violations the needs of Roma and Egyptian children should be strengthened, developed, and and children with disabilities should be fully paired with campaigns to raise awareness of implemented.
41 Roma Education Fund. (2009) Advancing Education of Roma in Montenegro 2009 Country Assessment and the Roma Education Fund’s Strategic Directions. Budapest. pp. 14-15. Study on the obstacles to education in Montenegro 101 Budget and Expenditures on improved. Compared to expenditures on Education in Montenegro salaries, the financing of education per student is low, as is expenditure on other The level of education financing as well as non-salary items which are important to the method of distribution can be ensuring quality inclusive education. The discriminatory and exclusionary. Certain proportion directed towards quality- aspects of budgeting and expenditures in enhancing measures is, simply stated, Montenegro in fact do not promote inclusive inadequate, as is the funding of policies that education of Roma and Egyptian and target disadvantaged children and which children with disabilities, and should be would enhance social inclusion.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• There is a need to change the structure • Financing the expansion of free of expenditures and significantly increase preschool should be stressed, the proportion directed towards quality- considering its importance in reducing enhancing measures including early education and life-chance gaps between childhood development, higher education Roma and Egyptian and the majority and lifelong learning. In the end these will population. all play an important role in Montenegro’s • Studies and research to test different future competitiveness. models of investing in Early Childhood • Money should be directed toward both Education (ECE) and primary the supply and demand sides of education in view of expanding the education, “investment in education coverage and inclusiveness and infrastructure to overcome disadvantage improving the quality of education and financial incentives to increase should be conducted. enrolment and retention”.42
42 UNICEF, 2011, The Right of Roma Children to Education: Position Paper. Geneva: UNICEF Regional Office for Central and Eastern Europe and the Commonwealth of Independent States (CEECIS). pp. 21.
102 Management and Coordination repeating grades, who do not know the language of instruction, and who are not Weaknesses and strengths in management attending school regularly are missing. Other and coordination of education in general and information on their health, wellbeing and of initiatives to aid inclusive education in their family’s wellbeing is missing as well. It is particular, determine education outcomes for essential that better systems for monitoring vulnerable children. A key to effective are created, with baseline data on both Roma management is having precise data and and Egyptian children and children with monitoring and evaluation systems. These disabilities. Contributing to the lack of data is elements are all undeveloped in Montenegro weak coordination among sectors and in regards to Roma and Egyptian children relevant institutions to identify children at and children with disabilities and their risk, and which could gather data. education. In particular there is a lack of Concomitantly, coordination around holistic information on Roma and Egyptian children targeted measures that could prevent including those who are DPs/IDPs. Without dropping out and poor outcomes amongst precise statistics it is impossible to move Roma and Egyptian children and children forward with policies and programmes with disabilities is also not strong. Meaningful intended to improve education for vulnerable inclusion of Roma and Egyptian children and children, confident that they are having their children with disabilities in education require intended impact. Census and key information coordinated and multi-pronged strategies, on Roma and Egyptian children without that are monitored and evaluated for the documents, who are not in school, who are effectiveness and impact.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Establish better monitoring and data- databases should be accessible by all collection mechanisms on vulnerable relevant state institutions in order to children who are at risk of dropping out or provide a better flow of information and are out-of-school children (children with strengthen cooperation between crucial disabilities, Roma and Egyptian children, stakeholders. and IDP/DP children). Established
Study on the obstacles to education in Montenegro 103 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• There needs to be better coordination in which as of 2010 encompass more providing support to Roma and Egyptian comprehensively the needs of Roma and children and children with disabilities in Egyptian children and children with accessing and benefitting fully from disabilities, should be fully implemented. quality education, including preschool. • Some central oversight over local efforts Among other measures inter-sectoral to implement Roma action plans and work should be strengthened. This can policies is recommended. be done through the expansion of inter- • Design clear procedures and sectoral commissions. Though the enforcement mechanisms that would Strategy for Improving the Position of the enable effective implementation of the Roma, Ashkali and Egyptian Population provisions of the Law on Primary in Montenegro in 2008-2012 had an Education relating to enrolment and inter-sectoral commission, it was weakly dropping out from school and sanctions implemented.43 If strengthened, these to follow if a child is not enrolled or drops kinds of mechanisms could help ensure out. A clear chain of responsibilities that Roma and Egyptian children and should be developed so that every children with disabilities are receiving the institution involved in the process of education support they need, especially enrolment and prevention of dropping out holistic measures targeted at their has a thorough understanding of what specific situations. Particularly when it the actions to follow are (the state comes to children with disabilities, it is authority in charge of vital statistics, necessary to further work on: awareness schools, centres for social welfare, raising of the health sector professionals courts). These institutions should be held on the importance of multi-sectoral accountable in cases where procedures cooperation and approach, strengthening are not observed. of the early diagnosis and intervention • Roma Teaching Assistants (mediators) systems, intensifying direct work with could play an important role in outreach children with disabilities and psycho- activities to parents and in identifying social support to their families, as well as children who are out of school and at risk improving accessibility to crucial of dropping out. Their engagement would information on the available services improve cooperation and coordination offered by education, social and child between relevant stakeholders, including protection, and health sector. schools, and centres for social welfare, • As mentioned above, legislation should NGOs, parents and children. Increasing be amended so that children with the number of Roma teaching assistants disabilities can be more readily identified could be one of the priorities in future and counted, which includes their explicit efforts to enforce children’s attendance at inclusion and definition within legislation school and decrease the risk of dropping and policies. Additionally amended laws, out.
43 Roma Education Fund. (2009) Advancing Education of Roma in Montenegro 2009 Country Assessment and the Roma Education Fund’s Strategic Directions. Budapest. pp. 15. 104 Photography: UNICEF Montenegro/Risto Božović
schools to their family homes. Many Roma and SUPPLY Egyptian children live too far away from schools to make the trip safely on foot. Transportation and proximity of schools Because their families also often contend with severe economic hardship, paying for The large distance of some schools from transport is often not an option. Transportation family homes, and the lack of transportation to should be available to all school-age children education facilities exacerbates the ability for regardless of age, disability, gender, ethnicity Roma and Egyptian children and children with or other factors. The following suggestions disabilities to participate in education. should be considered to eliminate proximity Especially amongst Roma and Egyptian an and a lack of transportation as a barrier to obstacle to attending school is the proximity of accessing education.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• When restructuring education financing, winter, other solutions should be as mentioned above, the government considered. Multi-grade or satellite and municipalities should explore schools could be set up temporarily. investment in free and safe transport for However they should be established with children living in remote areas. strict stipulations on the length of time • In particularly remote regions, until they would be used, and with adequate transportation measures can concomitant actions taken for permanent be put in place and especially in the solutions that do not segregate children.
Study on the obstacles to education in Montenegro 105 Community infrastructure Montenegro, as is the lack of accommodation in schools for Roma and Egyptian children Access to Quality Preschool and whose mother tongue is not Montenegrin. Adequately Staffed Services Without improving access to quality ECE services for Roma and Egyptian children and The supply of quality education requires that children with disabilities their chances to teachers and service providers be expertly successfully transition into mainstream school trained, especially in methods that are and reach their fullest potential in education is effective with marginalized and substantially lowered. Additionally actions by disadvantaged populations. The lack of the government institutions to identify and access to preschool education particularly for address instances of dropping out are not Roma and Egyptian children is a major barrier adequate, and when they are done, they are to completing compulsory education in carried out by NGOs.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• A priority for Montenegro should be the • Enrolment in preschool should be made expansion of free universal and easier especially for parents who may be mandatory preschool education for illiterate and who may be missing children aged 5-6. Language preparation, documentation. Both preschool where relevant, should be an integral part enrolment fees and the enrolment priority of the preschool curriculum. The existing of favouring families with two employed plans for preparatory classes for this age parents, should be waived. group, should consider making sure that • Preschool and primary school staff and Roma and Egyptian children are mixed teachers should be trained in bilingual with majority-population schoolchildren to education in order to accommodate those boost their Montenegrin language skills. children whose mother tongue is not • For communities that may be remote Montenegrin. Extra Montenegrin and/or where illiteracy among parents is language classes should be provided especially high, alternative preschool and staffed, to help Roma and Egyptian solutions can also be considered, but children in primary education who may again not as a replacement for more need to catch up on the language of permanent measures. An example could instruction. be organizing home preschools that • Strengthening the system and role of combine raising the awareness of the Roma teaching assistants to work with importance of preschool and literacy of Roma and Egyptian children whose parents, with quality preschool activities mother tongue is not the language of for their children. instruction.
106 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Measures to strengthen the capacity of NGOs by state or municipal officials social welfare centres and other and institutions. Attached to this, relevant actors, including schools, to provisions for second-chance schooling follow up with students who drop out, or would help re-integrate Roma and who are not attending regularly, should Egyptian children who drop out of be developed. Better monitoring and school. database systems need to be • Employ measures to help inform Roma established, as do better relationships and Egyptian parents of the importance with other relevant sector institutions in of preschool and their choices. Research order to effectively track absences, has shown that parents of Roma and grade repetition and dropping out. Egyptian children are not sufficiently Information sharing on actions and informed on their preschool choices. methods employed by NGOs working in Their children do not have to attend the this area can be helpful. However every local kindergarten for the Roma and effort should be made to take over the Egyptian population, they can enrol their assisting of families with school children in ethnically mixed kindergartens enrolment and dropping out, from located elsewhere.
Demand for children to study in. All of these factors inhibit participation in the school system and Housing contribute to poor education outcomes among Roma and Egyptian children and children with Both Roma and Egyptians and the majority disabilities whose families are challenged with population of low socio-economic status lack financial hardship. Especially hard hit are many adequate clothing, footwear and the means to Roma and Egyptian children whose families pay for essential school materials. Beyond were displaced during the conflict in Kosovo these essentials, inadequate housing especially and who are still living in camps. The for the Roma and Egyptian population is a government should address the living situation particularly insidious obstacle. Poor housing of these families and institute measures that will conditions include, in some cases, a lack of supply them with basic adequate housing, running water, heating in the winter and rooms infrastructure and safe environments.
Study on the obstacles to education in Montenegro 107 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Disaggregation of existing camps should neighbourhoods. These efforts should go remain a priority for the government. hand in hand with an intensive C4D Permanent housing solutions need to be campaign, which would enable inter- implemented for those families still living cultural communication work to prevent in camps. In the meantime, municipalities the new neighbourhood from becoming a and schools can assist with arranging ghetto. appropriate spaces to do homework in. • Adequate water supply and heating also Study spaces for children, whose housing should be provided to those families who situations are not conducive to studying, do not have access to these essentials. should be provided through schools. Other measures include: providing • All future steps aimed at disaggregation shared bathrooms in Roma and Egyptian of existing camps and integration of settlements where children can take Roma and Egyptian should be preceded showers on a daily basis; provision of by intensive activities aimed at free personal hygiene products to preparation of a successful transition of households facing difficult financial children into integrated schools and situations.
Financial hardship participating successfully in education. Results of this study undoubtedly indicate that, based Poor financial conditions are one of the most on all these criteria, Roma and Egyptian common reasons for dropping out among Roma children, and especially those who do not go to and Egyptian children. Without the means to school, are in a worse position than their peers provide textbooks, school supplies, clothes, from the majority population. Gaps in social adequate housing and healthcare, as well as in assistance should be addressed in making sure many cases three meals a day, Roma and especially Roma and Egyptian families have Egyptian families and their children are at a enough financial means to send their children to severe disadvantage in accessing and school.
108 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Various financial aid assistance schemes financial assistance or health services can be explored to encourage school that they are eligible for. Social welfare, participation, and to eliminate financial child protection and health services hardship as a barrier. Conditional cash among other relevant actors should be transfers (CCTs) that are not punitive strengthened in their capacity to have been promising. These are cash actively seek out and identify at-risk transfers distributed with school children and their families, and provide enrolment and regular attendance, and them with assistance, sensitive to their do not affect negatively any other social situations. assistance if these criteria are not met. • Other measure include: the They could be considered as a way to continuation of distributing free help especially Roma and Egyptian textbooks and school supplies with families buy the essentials for school greater monitoring to ward off abuse; attendance. But they should be explored subsidies for school supplies. cautiously. Adequate supply-side • Measures to raise the level of employment measures need to be in place, and their amongst the Roma and Egyptian use should be closely monitored. In some population can help families finance their cases Roma and Egyptian families had children’s education. Well-conceived adult been receiving CCTs without school education classes, connected to attendance. As Roma and Egyptian employment, that are accessible to Roma children often require additional attention and Egyptian parents and which transfer at school, in some places where CCTs skills needed in the current labour market, were piloted, officials were happy to mark are an example. These kinds of measures absent Roma and Egyptian children as should be developed with the particular attending, and allowing transfers to go to situation of the Roma and Egyptians in families.44 Better conceptualization and mind, and with their participation. For implementation of CCTs is necessary, instance Roma and Egyptian mothers including thorough monitoring and may not always be available to attend evaluation, to ensure that if CCTs are classes due to child-caring duties. In this used they are in fact helping Roma and case childcare accommodations in Egyptian children to receive a quality tandem with the provision of adult learning education. In tandem with CCTs, schools classes would be appropriate. need to be given the right training and • Work with local employers in connection support to address the SEN of Roma and with employment programmes for Roma Egyptian children. and Egyptian, to start eliminating prejudice • Increase identification of Roma and amongst the majority population and to Egyptian families who are falling though help increase employment chances for the gaps, and may not be receiving the Roma and Egyptians.
44 UNICEF, 2011, The Right of Roma Children to Education: Position Paper. Geneva: UNICEF Regional Office for Central and Eastern Europe and the Commonwealth of Independent States (CEECIS).
Study on the obstacles to education in Montenegro 109 Compromised Parental Support for homework, for instance; and a transference of Continuation of Education a hopeless attitude regarding the potential for education to increase life chances and Parental support is integral to children’s employment. A significant part of the retention and success in school. Roma and hopelessness is the feeling that their children Egyptian parents for a variety of reasons do would be discriminated against in the not always have the capacity to properly employment sector regardless of whether they support their children’s education. Low levels have an education. Roma and Egyptian of employment, low literacy rates as well as parents, especially those whose children are low educational attainment contributes to both not attending school, were often not aware of a technical inability on the part of Roma and the importance of basic education and the Egyptian parents to help children with benefits of it.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Better and closer relationships between measure to help foster an appreciation schools and Roma and Egyptian parents for education. should be established, with schools • The relevance of formal education sensitized to the capacities and situations should be enhanced. The education of Roma and Egyptian parents and their curriculum and the skills taught in families. Schools should actively seek out schools need to be better aligned with the participation of Roma and Egyptian the demands of the labour market. parents, and help inform them of the Connected to this campaigns on the benefits of education. Work with parents importance and benefits of education and children after school can be could be organized, including organized, to encourage investment in disseminating examples of Roma and education by Roma and Egyptian, and to Egyptians who acquired education and both help children with their school work improved their situations. and raise the capacity amongst Roma • Measures such as antidiscrimination and Egyptian parents to help their campaigns can be launched to help start children. to eliminate prejudice and foster better • The organization of literacy classes can understanding between the Roma and be an option in communities where Egyptian and majority populations. literacy among Roma and Egyptian • Enhance cooperation with media and parents is low. As mentioned above, develop and conduct training second-chance schooling and adult programmes for journalists focusing on learning classes attached to employment creating and fostering positive images of opportunities should be considered as a Roma and Egyptians.
110 Early Marriage drop-out rates among Roma and Egyptians after age 11 especially among girls. Views on Marriage amongst Roma and Egyptians the age of marriage and demands regarding happens at a somewhat earlier age on virginity within some Roma and Egyptian average in Montenegro than among the communities may be contributing factors. A majority population. The survey revealed that number of measures should be considered to views on the ideal age of marriage were lower overcome gender-based dimensions to amongst Roma and Egyptians than the exclusion from education. majority population. Data also showed higher
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Efforts to effectively enforce the legal age community, based on the type of of marriage should be made. However community liaison policing practices that this should be accompanied by active happen in some EU member states. measures, community engagement, • Second-chance schooling should be awareness raising and support to Roma made available for young mothers. and Egyptian communities around • Schools should be sensitized to the women’s and girls’ rights, and the issues around early marriage, and Roma benefits of all children staying in school. and Egyptian sensitivities around the This can also include workshops on virginity of their daughters. family planning and sex education • Programmes should be developed to classes. help Roma and Egyptian women have • Enforcement and prevention work on more control over their reproduction; and early marriage and other criminal and to raise their awareness, confidence, abusive practices towards children may independence and empowerment in require special training and protocols for regards to marriage, family and their liaising with the Roma and Egyptian futures.
Study on the obstacles to education in Montenegro 111 Challenges with Birth Registration and enrolment in education amongst Roma and Legal Identity Papers Egyptian, especially among Roma, Ashkali and Egyptian populations who are IDPs. Without A lack of official documents, ID papers, and this documentation enrolment in preschools birth certificates are a significant barrier to and schools is not possible.
Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Outreach by social services to enrol and non-Montenegrin citizens. children in school, acquire all necessary • More in-depth investigation into the documents, make Roma and Egyptian mechanisms by which Roma and communities aware of the importance of Egyptians are not registered at birth. birth registration, and inform them that This may for instance include: a lack of documents for children are not health insurance, a low rate of hospital necessary for enrolment in primary births, illiteracy and unnecessary school. Connected to this outreach, complexity in birth registration and municipalities and relevant services acquisition of missing documents, fear should improve their databases to on the part of Roma and Egyptian include all vulnerable and Roma and parents of repercussions if they Egyptian families and children, to better themselves do not have documentation. coordinate assistance with Social • Issues of citizenship and Roma and Welfare Centres and local governments. Egyptian IDPs should be addressed and This should include information on IDPs resolved in every camp and community.
Child Health and Developmental Difficulties as inclusivity. an Obstacle to Enrolment and Attendance In general, Roma and Egyptian parents assess The study also shows that children assessed their children’s health as good, and it is by parents as having poor health, including important to mention that in the case of Roma those with disabilities, were mostly likely to and Egyptian children who attend school, their be out of the school system. Both indicate health is somewhat more frequently assessed that schools may need to increase supports as excellent (82%) than in the case of Roma for Roma and Egyptian children and children and Egyptian children who do not attend with disabilities, especially in regard to school (69%).
112 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Strengthening the role and develop be developed including: strengthening capacities of local inter-sectoral outreach by actors in the health and commissions for orientation of children child protection sectors in cooperation with special education needs in with schools; workshops on child health education to provide support to parents to raise awareness among Roma and of both Roma and Egyptian children and Egyptian parents of preventable children with disabilities in determining diseases and healthcare options; the best option for a child in a increasing the number of Roma and participatory manner. Egyptian children with assigned • Measures to assess and raise the health paediatricians sensitized to their specific of Roma and Egyptian children should needs.
Quality additional efforts are needed to promote continuous training and education of teaching Equal access to education is not enough; all staff and assistants in schools to implement children should have equal access to quality inclusive principles in practice and adapt the education. A quality education is one in which teaching methods to the individual needs of all children are effectively encouraged to reach the children. their highest potential, and one which provides children with safe, inclusive environments, and Though the survey did not include teaching relevant curricula. staff and other school actors directly, questions posed to Roma and Egyptian parents and The findings of the recent Evaluation of the parents with children with disabilities on the Reform of the Education System in health of children in and out of the school Montenegro (2010-2012) focusing on the system, and their satisfaction with teachers implementation and the quality of inclusive and peers, hints at the quality within education. education in general point out some of the Children out of school and their parents were positive aspects, but also the main shortfalls of less satisfied with teacher and peer the reform process. Recognizing that the relationships at school. Additionally more legislation in the area of inclusive education is children assessed as having poor health, comprehensive, innovative and in a continuous including those with disabilities, were mostly process of alignment with relevant European likely out of the school system due to their and international standards, the Evaluation health issues. Both indicate that schools may emphasizes that implementation, along with need to increase the quality of the education cooperation between sectors at national and they are providing, especially in regard to local levels remain a challenge. Also, inclusivity.
Study on the obstacles to education in Montenegro 113 Recommendations for systemic and multi-sectoral addressing of identified obstacles include:
• Assessments of school quality should be Egyptian and majority-population conducted. Child-centred and bilingual communities, school staff, teachers and teaching methods and child-friendly children. The teams can help develop concepts should be employed at the inclusive education measures, promote school level, and teachers and staff understanding, tolerance and a culture should be trained in them. Revisions to of diversity in schools. Mixed the curriculum to make it more relevant to workshops, study groups and after- diverse populations should be school activities should be organized to conducted. help with academic achievement, build • Preschools and schools should establish understanding and relationships among cooperation with associations of people Roma and Egyptian children and with disabilities. These associations have children from the majority population detailed knowledge of their issues, which and their parents; and to help develop could help preschools and schools or local the language skills of Roma and governments to find and communicate Egyptian children who do not speak with children and their parents. Montenegrin. • Based on the preliminary assessment by • To improve the overall quality of an expert team, schools should prepare education for Roma and Egyptian individual educational programmes for children the system of Roma teaching children and monitor their progress. assistants should be expanded and Children with SEN should be monitored strengthened, increasing their numbers closely with the cooperation of all and capacity to effectively work with relevant school staff, and with services, more children and their families. Their sectors and institutions outside the role and standards of work should be school setting. Parental involvement clearly defined through relevant bylaws, should be actively sought out as well. as well as designing educational and This can also include the involvement of training programmes aimed at the abovementioned inter-sectoral professional development.45 inclusion commissions if they are • Both pre-service and in-service diversity developed. and conflict-resolution training of • Formation of school inclusive education teachers, school staff and social service teams, including members of Roma and providers should be made standard.
45 Opinion of the Ombudsperson’s Office to the Ministry of Education with regards to Implementation of Inclusive Education in Primary schools, November 2011: http://www.ombudsman.co.me/djeca/preporuke/15112011_MINISTARSTVO_PROSVJETE_I_SPORTA.doc
114 ANNEXES
ANNEX 1: COMMON BASIC Therefore, the issue of addressing the problems which affect Roma people is increasingly PRINCIPLES ON ROMA recognized as being extremely urgent in both INCLUSION ethical and practical terms. The European Union recognizes that there is a need for more active and effective policies concerning Roma inclusion. European Council Conclusions on The practical delivery of these policies rests above Inclusion of the Roma 2947th all with the Member States and, in particular, with EMPLOYMENT, SOCIAL POLICY, HEALTH regions and municipalities. Although the numbers AND CONSUMER AFFAIRS Council and socio-economic conditions of the Roma in meeting Luxembourg, 8 June 200946 individual Member States vary greatly, there are several common denominators. Moreover, Common Basic Principles on Roma experience from several Member States shows Inclusion—as discussed at the 1st meeting that there are general policy approaches which of the Integrated European Platform for have proved to be useful and can thus be Roma Inclusion, April 2009. recommended to others.
Roma people are disproportionately affected by Principle No. 1: Constructive, pragmatic social exclusion, prejudice and discrimination. and non-discriminatory Roma communities have been part of European policies societies for centuries, often marginalized and sometimes persecuted. Over the last two decades, Policies aimed at the inclusion of Roma people it is apparent that the socio-economic situation of respect and realize the core values of the many Roma people has stagnated or even European Union, which include human rights deteriorated in a number of EU Member States. and dignity, non-discrimination and equality of Many Roma people experience unemployment, opportunity as well as economic development. low income, reduced life expectancy and poor Roma inclusion policies are integrated with quality of life. This represents a human tragedy for mainstream policies, particularly in the fields of the individuals concerned as well as an immense education, employment, social affairs, housing, loss for society as a whole. Moreover, far-reaching health and security. The aim of these policies is exclusion entails social instability and represents a to provide the Roma with effective access to problem in economic terms. equal opportunities in Member States’ societies.
46 http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/en/lsa/108377.pdf
Study on the obstacles to education in Montenegro 115 Principle No. 2: Explicit but not exclusive Principle No. 6: Transfer of evidence-based targeting policies
Explicit but not exclusive targeting of Roma is It is essential that Member States learn from their essential for inclusion-policy initiatives. It own experiences of developing Roma inclusion implies focusing on Roma people as a target initiatives and share their experiences with other group but not to the exclusion of other people Member States. It is recognized that the who share similar socio-economic development, implementation and monitoring of circumstances. This approach does not Roma inclusion policies requires a good base of separate Roma-focused interventions from regularly collected socio-economic data. Where broader policy initiatives. In addition, where relevant, the examples and experiences of social relevant, consideration must be given to the inclusion policies concerning other vulnerable likely impact of broader policies and groups, both from inside and from outside the decisions on the social inclusion of Roma EU, are also taken into account. people. Principle No. 7: Use of Community Principle No. 3: Intercultural approach instruments
There is a need for an intercultural approach In the development and implementation of their which involves Roma people together with policies aiming at Roma inclusion, it is crucial people from different ethnic backgrounds. that the Member States make full use of Essential for effective communication and Community instruments, including legal policy, intercultural learning and skills deserve instruments (Race Equality Directive, Framework to be promoted alongside combating Decision on Racism and Xenophobia), financial prejudices and stereotypes. instruments (European Social Fund, European Regional Development Fund, European Principle No. 4: Aiming for the mainstream Agricultural Fund for Rural Development, Instrument for Pre-Accession) and coordination All inclusion policies aim to insert Roma in the instruments (Open Methods of Coordination). mainstream of society (mainstream Member States must ensure that use of financial educational institutions, mainstream jobs, and instruments accords with these Common Basic mainstream housing). Where partially or Principles, and make use of the expertise within entirely segregated education or housing still the European Commission, in respect of the exist, Roma inclusion policies must aim to evaluation of policies and projects. Peer review overcome this legacy. The development of and the transfer of good practices are also artificial and separate "Roma" labour markets facilitated on the expert level by EURoma is to be avoided. (European Network on Social Inclusion and Roma under the Structural Funds). Principle No. 5: Awareness of the gender dimension Principle No. 8: Involvement of regional and local authorities Roma inclusion policy initiatives need to take account of the needs and circumstances of Member States need to design, develop, Roma women. They address issues such as implement and evaluate Roma inclusion policy multiple discrimination and problems of access initiatives in close cooperation with regional and to health care and child support, but also local authorities. These authorities play a key domestic violence and exploitation. role in the practical implementation of policies.
116 Principle No. 9: Involvement of civil society be preventive, interventional and compensatory. This section brings examples of Member States also need to design, develop, good practice in the European union from the implement and evaluate Roma inclusion policy study reducing early school leaving, 2010.47 initiatives in close cooperation with civil society actors such as non-governmental organizations, Prevention social partners and academics/researchers. The involvement of civil society is recognized as vital Preventive measures include systemic both for the mobilization of expertise and the measures, such as the extension of the duration dissemination of knowledge required to develop of compulsory education and development of public debate and accountability throughout the the system for keeping records of children, policy process. which enables easier monitoring and providing continuous support to children at risk; then Principle No. 10: Active participation of the programmes of early growth and development, Roma desegregation measures, more extensive support for professional development of The effectiveness of policies is enhanced with the teachers, increasing availability and promoting involvement of Roma people at every stage of the learning infrastructure in remote areas. process. Roma involvement must take place at both national and European levels through the Systemic measures input of expertise from Roma experts and civil servants, as well as by consultation with a range Based on surveys that indicate that extending of Roma stakeholders in the design, the duration of compulsory education results in implementation and evaluation of policy initiatives. a reduction in the number of children who leave It is of vital importance that inclusion policies are school early48, one of the systemic measures based on openness and transparency and tackle implemented in a large number of countries difficult or taboo subjects in an appropriate and is the extending of the duration of effective manner. Support for the full participation compulsory education (Holland, Hungary, of Roma people in public life, stimulation of their Poland, Italy). This measure was implemented active citizenship and development of their human in Montenegro as well, through establishing a resources are also essential. compulsory preparatory preschool programme, thus extending the duration of compulsory ANNEX 2: EXAMPLES OF education from eight to nine years. GOOD PRACTICE Extending the duration of compulsory education in Poland. In the past decade, The problem of dropping out is characteristic Poland has been gradually extending the of many EU countries. The European union duration of compulsory education. In 1999, has found, based on data and surveys, that compulsory education was extended from 14 to efficient strategies for reduction of early school 16 years of age. The compulsory zero grade leaving, apart from educational policy, also was introduced, with the aim of preparing need to include social protection policy and children for primary school, reducing the policy for the young, while measures need to primary school age from 7 to 6 years. According
47 http://ec.europa.eu/education/school-education/doc/earlywp_en.pdf 48 GHK Consulting Ltd (2005) Study on Access to Education and Training, Basic Skills and Early School Leavers; Oreopoulos (2009) "Would More Compulsory Schooling Help Disadvantaged Youth?" in Gruber (ed, 2009) – The Problems of Disadvantaged Youth, NBER
Study on the obstacles to education in Montenegro 117 to the Law adopted in 2009, children are support to pupils with poor performance or included in compulsory preschool education at pupils who are at risk of leaving school. the age of 5, while they are included in compulsory primary education at the age of 6. Early growth and development programmes
Extending of the duration of compulsory Good quality of education in early childhood is education in Italy. In 2007, Italian compulsory considered to be the foundation for establishing education was extended from 8 to 10 years (till the needs and capacities for future studying and the age of 16), and the obligation and duty to the foundation for adopting skills necessary for attend secondary education, secondary school or further education, thus being an important vocational school, lasting at least 3 years, was preventive measure for “children at risk” that established till the age of 18. Before that, improves their physical condition, social and compulsory education lasted till the age of 14, and emotional development, development of further education was not mandatory. The reform language skills and cognitive abilities. was implemented together with an expansion and Education and upbringing in early childhood diversification of the initial vocational education by provide children from socially underdeveloped introducing new crafts and profiles. settings with a better start in compulsory education.49 Therefore developed countries One of the significant preventive measures is direct their programmes most to preschool age, the introduction of an efficient system for taking into account benefits of investing in early keeping records of pupils, that stores growth and development of children for their relevant information about every pupil, future life and for the society as a whole. including adaptation and adequate implementation of pedagogical interventions Quality preschool education in Sweden. for pupils who are under greater risk of Preschool education in Sweden is a useful and dropping out of the system of education. significant preparation for life-long learning and education, and fostering social cohesion. It is School number (Holland). With the introduction based on extensive investing with adequate of this system of registration of pupils, there are planning and stress on preparation for transfer complete and very reliable records of the drop- to primary school, as well as on adapted out rate on national, regional, city and school activities and organization of preschool levels. Data on dropping out is associated with education. Particular attention is dedicated to relevant socio-economic and demographic data integration into the system of education and to at the levels of the region, city and county, thus qualifications of personnel, as well as to social creating an abundance of information that plays competences and ways of accessing language a major role in the implementation and adjusting development among child immigrants. of strategies. Also in other EU countries, projects are often Unique pupil number (England). Since 1997, directed at the youngest population. So, in France every pupil in England has a unique registration and Holland, children who are at risk have the number, which in an anonymous format priority when enrolling in early growth and contains information about the pupil and his or development programmes at the ages of 2-5. In her performance at school. With this data, Hungary, children from vulnerable categories pedagogical interventions can be adequately (usually defined through the status of parents and directed and adjusted, especially in providing their level of education) have to have a place in
49 EC, Reducing early school leaving, 2010.
118 kindergarten and priority with enrolment. All Intervention kindergartens have to have up to a quarter of places reserved for children from marginal groups. Interventions at school level
Policy of segregation Pupils leave school the least if they attend a school that is an inspiring place to study for all In Hungary are there many citizens of Roma pupils. These are schools where active learning nationality with worrying education indicators. methods and practical teaching are used, and Many Roma pupils attend segregated schools where democracy is fostered in everyday or segregated classes within schools. In order activities. EU promotes the concept of a to resolve this issue, the government, together Learning Community. Schools that aspire to with the Hungarian Institute for Pedagogical “learning communities” agree about a common Research and Development and the Roma vision, essential values and goals of school Educational Fund, promotes the development development. This shared vision of teachers, of integrated education, through providing parents and other interested parties increases grant programmes and technical support. dedication and supports the development of Schools that used these assistance curricula at the school level, organization of programmes were obliged to provide socio- teaching and learning and evaluation. economic balance in the population of pupils. Learning communities (Spain). The goal of Desegregation in schools in Bulgaria. Roma the initiative is to ensure success for all, by organizations in 9 towns, as well as one regular including all key actors. Learning communities school in Blagoevgrad, started the action of focus on pedagogical innovations, for example desegregation. About 3,500 of Roma children dialogue learning or pedagogy aimed at from schools attended by Roma only were promoting learning and open exchange and transferred to regular schools, according to the solidarity between pupils and school strategic model from the year 2000. This model personnel. Pupils, teachers, school includes motivational campaigns among parents management, parents, interested community of Roma children with the aim of inclusion of participants and representatives of the children in regular schools located outside of authorities in the sphere of education are Roma settlements, planned inclusion of Roma involved in defining and creating school children in regular schools in order to avoid projects and they actively participate in the repeated segregation in the new school, providing process of learning from one another. In Spain, academic support to Roma children who need to more than 100 centres conduct projects based catch up with their peers, extracurricular activities on the concept of “learning communities”. that involve Roma and non-Roma pupils and Implementation of this initiative encompasses transportation of Roma children by school bus to several phases. The first step is thinking and their new school. Evaluation indicates that the an open exchange of ideas about motivation performance of Roma children integrated into for changes. In order to be continued, the classes has improved significantly when project has to be approved by a majority of compared with the performance of their peers relevant actors (teachers, directors, family and who attend segregated schools, while the administration). Once a school decides to performance of non-Roma children remained promote a concept, all interested parties have stable. Socialization of Roma children with their to decide what they want to fix, in both an non-Roma peers at school age is highly important academic and non-academic sense. A for their social inclusion. combined steering board, in which all relevant
Study on the obstacles to education in Montenegro 119 stakeholders are present, monitors the encompasses 4 components aimed at reducing conducting of various phases of the differences in the accomplishments of pupils transformation of the school into a learning living in urban and in rural areas: firstly, a school community. model of professional development of teachers based on open distance learning and supported Networking with out-of-school actors by a developed network of teacher mentorship, matching the needs of remote communities; Programme of completing school secondly, investing in school infrastructure and (Ireland).50 This measure favours local and teaching aids in order to make the school setting inter-sectoral approaches, based on in remote areas more pleasant; thirdly, grant development of local strategies. Schools are programmes for schools and communities grouped into clusters of secondary and aimed at improving both schools and primary schools. Each cluster has a local communities, building local capacities for project steering board made of directors, voluntary management, supporting school development agencies, agencies stipulated by law, including programmes and establishing local educational district development boards, local action teams councils; and fourthly, establishing the National for prevention of substance abuse, partners in Database of Education for monitoring school specific areas (local organizations engaged in performance as one of the essential conditions social inclusion), a local programme for creating evidence-based policies. The project coordinator, parents, interested community was a great success in terms of increasing the members and other agencies, and local rate of transition to secondary school and partnerships focused on social inclusion, etc. reducing differences in performance between The board develops and supervises schools located in urban and rural areas. implementation of the integrated plan for preventing early school leaving. Increasing participation of parents
Clusters of schools get extra resources to Strengthening links between home and organize activities such as continuous academic school community (Ireland).52 This initiative and non-academic support to pupils. In order to is aimed at establishing cooperation between avoid the sense of bigotry or stigmatization due parents and teachers in order to promote the to singling some pupils out for specific support children’s learning process, particularly activities, the majority of activities target the targeting socio-economically deprived families whole class or the whole school. or those coming from a socio-economically deprived setting. In order to go beyond Project of rural education (Romania).51 The parents’ negative experiences with school, this project of rural education is a national-level initiative is trying to regain confidence by project aimed at increasing the quality of recognizing parents as a part of school (for education in rural areas, increasing the rate of example providing parent rooms), courses are pupils who complete compulsory education and offered for adults, parents participate in facilitating transition to secondary school or teaching mathematics and reading to children university. This large-scale intervention in primary school, and parents of children with
50 Report on prevention of early school leaving in Ireland, Prevention and compensatory measures for reduction of early school leaving, http://www.kslll.net/PeerLearningActivities/PlaDetails.cfm?id=22 taken from: http://ec.europa.eu/education/school-education/doc/earlywp_en.pdf 51 http://ec.europa.eu/education/school-education/doc/earlywp_en.pdf 52 http://ec.europa.eu/education/school-education/doc/earlywp_en.pdf
120 disabilities also participate and help their spent in SAS centres is not acknowledged as children in class. In this way, parents gain a year of schooling. Pupils are to start school knowledge and understanding of the process again from where they stopped. The idea of learning and can provide greater support for behind this approach is to avoid stigmatization their children at home. Another key function of – labelling associated with continued the programme is the “coordinator between schooling – repeating a grade. The key goal is home and school”, with the role of a mediator to bring children back to regular school: and contact person. The coordinator visits academic education should take place at families on a regular basis and can intervene, school. especially in situations of crisis, when the child is absent from school or in cases of Belvárosi Tanoda Alapitvány Foundation inadequate behaviour. (Hungary). The Hungarian Belvárosi Tanoda secondary school is a part of the network of Measures focused on pupils Tanoda centres focused on providing additional support for children from Support and mentorship underprivileged settings. Belvárosi Tanoda is a second-chance school for those pupils who Care teams and advisory teams (Holland). have dropped out of secondary school. It is These teams gather professionals who early – in focused on learning adapted to pupils, their a timely manner – identify risks and take adequate personalities and abilities, helping pupils measures for the prevention of dropping out. They complete their education and get a degree. have direct contact with youth services, social The school does not offer many classes workers, police and judicial authorities and they throughout the year, but organizes smaller organize necessary assistance in order to prevent groups for some subjects. When necessary dropping out among the young. They try to make and possible, also one-on-one teaching is monitoring/mentorship available whenever used and every pupil can address teachers, necessary. not only when it comes to learning, but also in other aspects of life. The pupil signs a contract Support to return to regular education containing personal goals for the upcoming school year and learns based on his or her SAS collection-transitional centres own plan. (Belgium). SAS is a school programme of inclusion of Roma, Ashkali and Egyptian Buildings that do not look like classic school children aged 13 to 17, who have left school. buildings provide a family atmosphere and Some SAS centres act through more direct create the feeling of security and acceptable cooperation with schools, or even work in environment for the young. Premises are used schools, while other work independently from in a flexible way, including resting, cultural or schools, but with pupils and their parents. The sports activities and personal and group key principle is to offer a paid period of one discussions. One of the key goals is to create year at the longest, so that pupils can study rich social setting with different opportunities other activity areas (for example, activities for studying social roles and for developing associated with art), gaining different self-confidence. In 2007, this school had 100 experiences, which can boost children’s self- permanent and 35 occasional pupils in general confidence and enable them to face school secondary education, 18 permanently challenges more easily. Although pupils are employed and 13 occasionally employed not registered as having left school, the period teachers and 6 additional staff members.
Study on the obstacles to education in Montenegro 121 Financial support language, especially for those whose mother tongue is not the language used for Measures of fighting early dropping out need teaching (with the possibility of including to take into account the financial difficulties also people whose mother tongue is the that result in many young people leaving one used for teaching). It is particularly school early. Some Nordic countries include important that these programmes be in their "civil rights" also financial conducted within programmes of early compensation for education. Financial stimuli growth and development (or even earlier, at can also be conditioned by regular class 3 to 6 years of age). attendance. • Training teachers and other personnel in the regular school system regarding Compensatory programmes sensitivity to problems of children with special needs, as well as children from Second chance marginal groups. Adapting the curriculum and developing skills among teaching While prevention of dropping out is a far better personnel for working with these solution, second chance is an important option children. that offers the essential opportunity to continue • Early inclusion of parents in the process of education and training for those who have education of children, programmes related dropped out of the regular system early. to education and support for the entire However, those who have left school early are family, training sessions aimed at often faced with barriers regarding continuation of supporting education participants learning; many of their difficulties are associated (teachers, psychologists). As frequent as with past bad experiences at school and a lack of possible meetings with parents who are confidence in their own ability to learn. rarely involved in community activities and education of children. Some other efficient measures implemented in • Working hours of educational institutions case of marginal and groups at risk in the adjusted to the working hours of majority of European countries are: parents. • Special programmes for mastering the
122 Photography: UNICEF Montenegro/Risto Božović
Study on the obstacles to education in Montenegro 123 CIP – Каталогизација у публикацији Национална библиотека Црне Горе
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