Strategy for Early and Preschool Education in Montenegro (2016–2020)

UNICEF Montenegro Ministry of Education of Montenegro

STRATEGY FOR EARLY AND PRESCHOOL EDUCATION IN MONTENEGRO (2016–2020)

Podgorica, February 2016 Publisher: UNICEF Montenegro Ministry of Education of Montenegro

Photos: UNICEF Montenegro/Duško Miljanić

Design & Prepress: IMPULS studio

Print: IMPULS studio

Print run: 600 pcs

Podgorica, 2016 Table of Contents:

Acronyms...... 6

The Strategy Drafting Process...... 7

Foreword...... 8

Introduction...... 9

Background...... 11

Situation Analysis: Achievements, Critical Review, and Response to PSE Challenges...... 13

Further Development Directions for Early and Preschool Education...... 20

Goals of the Strategy for Early and Preschool Education...... 22

Priority Tasks for the Strategy for Early and Preschool Education...... 24

Activities and Methodologies for the Strategy Implementation...... 25

Conclusion...... 31

The Action Plan accompanying the Strategy for Early and Preschool Education in Montenegro (2016–2020)...... 32 Acronyms

EU – European Union

IDEP – Individual Development and Education Programmes

IS – Interactive Services

LIP – Local Implementation Plan

LG – Local Governments

MICS – Multiple Indicator Cluster Survey

MoEd – Ministry of Education

MLSW – Ministry of Labour and Social Welfare

MoH – Ministry of Health

NGO – Non-governmental organisation

OECD – Organisation for Economic Cooperation and Development

PI PS – Public Institution Primary School

PISA – Programme for International Student Assessment

SEN – Special Educational Needs

PPP – Preschool Preparatory Programme

PI – Preschool Institution

PSE – Preschool Education

EPES – Early and Preschool Education Strategy for Montenegro 2010-2015

UNICEF – United Nations Children’s Fund

BES – Bureau for Educational Services

BTTA – Bureau for Textbooks and Teaching Aids

NOTE: In the present paper, the terms used in the masculine gender when referring to natural persons imply the same terms in the feminine gender. The Strategy Drafting Process

The Strategy for Early and Childhood The 2016–2020 Strategy has also been a Education (2016–2020) has been developed matter of public discussion involving the through a participatory process including representatives of the education sector the relevant public sector and civil society (preschool, primary and higher education), stakeholders. It is underpinned by mapping healthcare and welfare institutions, other out of pertinent policies and practices, i.e. line ministries, local self-governments, a review of various inputs including primary donor community, non-governmental and secondary legislation, strategies, organisations (NGOs), etc. reports, studies and other relevant materials. The drafting of Montenegro’s Strategy for Moreover, an overview of key international Early and Childhood Education 2016– documents, standards and guidelines 2020 has been supported by UNICEF has been made, while focus groups Montenegro. and questionnaires have been used to examine present needs and the status of implementation of the recommendations given in the previous Strategy for Early and Childhood Education (2010–2015).

Strategy for Early and Preschool Education in Montenegro (2016–2020) 7 Foreword

Preschool programmes should provide children with a range of play-based activities to learn, practice and demonstrate knowledge and skills in all areas of development and learning. Effective early- learning programmes should prepare the youngest to participate as active members of society in the future. This will, at the same time, reinforce the confidence of parents that their children are being provided with good quality care in a stimulating and safe environment.

The pre-service training and continuous professional development need to be complementary and matching processes in order to develop competent staff able to respond to children’s needs. Both the support to preschool staff and monitoring of the quality of service delivery need to be The Strategy for Early and Preschool carried out in continuity. Strong partnerships Education in Montenegro 2016–2020 with communities, businesses, universities is a major document that will enable all and other organisations are needed to support preschool children. At the same preschool-age children in Montenegro to time, the citizens of Montenegro are to be included in the education process in the be informed regularly of the values and best way possible. The goals, tasks and importance of early childhood education, activities set forth in the Strategy are founded and encouraged to participate in making on the universal values and principles of progress in the process. equal opportunities, flexibility, progression, effectiveness and sustainability, whose We will continue working on providing validity is proven by both research and the infrastructure needed to improve practice. the coverage and quality of services for families and young children. The Ministry The present policy document identifies of Education believes that the Strategy challenges, methodologies, ways and for Early and Preschool Education 2016– means, and the sequence of planned 2020 will be a valuable resource for all stakeholders, whether children, parents, measures and activities to be carried out educators, theoreticians, researchers, over a specified period of time with the decision-makers, community members assistance of stakeholders. We believe that or non-governmental organisations, in accessibility, quality and sustainability of designing, planning, implementing and preschool education services needs to be monitoring actions in this reform area. provided by ensuring an inclusive, safe and enabling environment for early childhood Predrag Bošković, M.A. development and learning. Minister of Education

8 Introduction

Preschool age is crucial for the overall Strategy, the Study on Investing in Early development of child’s abilities. Evidence Childhood Education in Montenegro, and the provided by neuroscience proves that additional Situation Analysis of Preschool neurological development is most intensive Institutions Regarding their Infrastructural in children up to five years of age, indicating Capacities, Coverage and Teaching Staff. the significance of investing in and stimulating learning in young children. The guiding principle of the Strategy for Early and Preschool Education 2016–2020 Apart from being critical for a child to grow, is to make sure that all children from birth flourish and build character, many empirical until school age have their developmental studies show also substantial positive needs met through services with adequate social and economic impacts of preschool programming and infrastructure, run by education to society at large. competent professionals and staff, with active involvement of communities and The Nobel laureate in economics, James parents. Heckman, shows the age-dependent profitability of investing in education. The The Strategy goals are: return on each dollar invested would be largest for children under 3, followed by 1. Universal preschool coverage of all preschool-age children, then schoolchildren. children aged 3 to school age in line The least return is seen with investments into with international standards; post-formal education. Hence, investing in 2. Improve the quality of preschool early education has a much greater impact education; and than any subsequent investment during a 3. Introduce innovative, optimal and lifetime. sustainable funding models. The analysis of the 2009 PISA test results The principles underpinning the Strategy in 34 OECD countries showed link between are: preschool attendance and subsequent school attainment. Fifteen-year-olds who Experience-based and high quality attended preschool longer than a year on services average performed better in reading literacy Integration, individualisation and than those with no preschool education. The accessibility of services difference was 54 points, which corresponds Participation and shared responsibility to 18 months of formal education. Moreover, such linkage is more pronounced: 1) when Innovation and sustainability preschools cover a wider portion of the Furthermore, the Strategy for Early and student population; 2) when PSE lasts Preschool Education is aligned with relevant longer; 3) with lower student-to-teacher European and international standards, ratios; and 4) with a higher level of monetary while including the most recent, evidence- investment per child before starting school. based scientific findings and best practices The Strategy for Early and Preschool in early childhood education. The emphasis Education 2016–2020 sets the goals and on the importance of stimulation for early directions for preschool education based development is clearly visible in Europe on a review of the previous 2010–2015 2020, which identifies early learning as

Strategy for Early and Preschool Education in Montenegro (2016–2020) 9 one of its priorities. One of the goals set Education Strategy). The enrolment rate is by the Europe 2020 Strategy is that 95% 53% for children aged 3–6, and the average of children aged 3 up to compulsory school attendance rate is 40%. The Government age should be covered by early childhood of Montenegro has recognised that these education. figures represent a lost opportunity and have committed to meeting the objective of At the same time, the Strategy focuses on increasing the coverage of 3–6 year-olds in equality, in line with the objectives set at the line with European standards. summit held in Barcelona in 2002. These so-called Barcelona Objectives are a set of Additionally, there has been a major shift in priorities developed by the European Union the awareness of the need for Montenegrin in 2002 with the aim of providing accessible children to be prepared for future learning, quality childcare to at least 90% of children. personal and academic development. The accompanying objectives include the “availability of high quality, affordable Providing universal access to quality childcare facilities for young children from preschool education has been identified by birth to compulsory school age”. Hence, the Council of the EU as one of the most early learning must be available to children effective policies that a nation can adopt to from all groups in Montenegrin society, prevent students from leaving school early. regardless of region, ethnicity, financial circumstances, or physical and cognitive abilities. Over the past decade, Montenegro has made substantial strides in improving its rate of preschool attendance (rising from 26% to 40%, which has resulting in meeting the goal set by the previous Early and Preschool

10 Background

In 2010, the Government of Montenegro the Ministry of Education, in partnership adopted the Early and Preschool Education with UNICEF Montenegro, commissioned Strategy in Montenegro 2010–2015, a Study on Investing in Early Childhood developed by the Ministry of Education Education in Montenegro. The Study was to with support from UNICEF Montenegro. examine the state of play regarding coverage Its overarching goal was to put in place all of children, infrastructural capacities and the the assumptions for early and preschool teaching staff in preschool institutions, and education to provide accessible, high quality, to offer preschool education funding model comprehensive, culturally appropriate, for Montenegro with a view to increasing inclusive services for all children in coverage by ECE services. It had three Montenegro, from birth until compulsory main tasks: school age, particularly focusing on the Develop funding scenarios to ensure most vulnerable children. universal coverage by preschool Given the importance of investing in early and education (a year before compulsory childhood education for individual and long- school age) and a scenario for gradual term social and economic development, increase in preschool coverage to all

Strategy for Early and Preschool Education in Montenegro (2016–2020) 11 children aged 3 to 6, towards reaching per group, limited space for educational universal coverage. The focus is on the work following the curricula, the existence most vulnerable children; of plans envisaging the construction of Give recommendations for funding preschools, and the property relations models for preschool services to include indicated the need to build preschools in all children/families; and Podgorica in the neighbourhoods of Stari Aerodrom, Blok VI, Zagorič, then in the Give recommendations for optimising Borough of Tuzi, and the municipalities of the use of existing preschool resources Bar, Pljevlja and Ulcinj. The implementation within the available/planned budget. of the Strategy for Early and Preschool Education will go in parallel with the above An additional systemic breakthrough in this mentioned construction works. area was provided through the Situation Analysis of Preschool Institutions regarding The Ministry of Education has decided to use Infrastructure Capacities, Coverage and the above findings, the available examples Teaching Staff. of good practices, and to focus the 2016– 2020 Strategy on expanding preschool Based on both the Study and the Situation coverage, improving the quality and diversity Analyses, and aiming towards universal of services offered to children and families preschool coverage, it is recommended (focusing on the most vulnerable ones), to introduce a free-of-charge preschool by reinforcing inter-sectoral collaboration preparation programme lasting three hours involving the education, welfare and health a day. All children in the programme would sectors. Integrated services may lead to receive a free meal. greater cost-effectiveness and increased Furthermore, the Ministry of Education, interactions among different childcare in partnership with UNICEF Montenegro, service providers. carried out the Preschool for All campaign Hence, the Strategy for Early and Preschool in the northern municipalities of Andrijevica, Education 2016–2020 is a document Berane, Bijelo Polje, Plav and Rožaje aimed that highlights the key areas, tasks and at raising the awareness of parents and activities, suggesting concurrent delivery communities in the North of Montenegro and combining services and activities, to increase coverage by early learning and with a focus on making them actionable preschool education services. and measurable for short- and long-term implementation. The activities take note of Through a credit arrangement with the and acknowledge the regional, local and Council of Europe Development Bank, specific needs of children, profiled on the the Government of Montenegro launched basis of strategic directions. The activities the construction of preschool facilities in are designed to be measurable and Pljevlja, Ulcinj, Bar and Podgorica (including attainable, results-based and time-bound. the Borough of Tuzi). The following data was used to set the priorities: the 2011 Population Census, the demographic analysis, the number of preschools by region and by municipality, the number of children in preschools, the number of educational units, the number of age groups and the average number of children per group. The average number of children

12 Situation Analysis: Achievements, Critical Review and Response to PSE Challenges

Preschool education covers children up with 31 educational units. Privately owned to their enrolment in primary school at six PSIs (14 PSIs licensed by the MoEd) exist years of age. Children under 3 are enrolled only in a few urban areas and cover a small in nurseries, while children aged 3 to 6 number of children (maximum 3% of the are entered in kindergarten classes in total number of children attending PSIs)1. accordance with their age group. They deliver publicly recognised curricula. In Montenegro, preschool education is The total number of children in preschool delivered in preschool institutions, which institutions during the 2014/2015 academic may be public or privately owned. For the year was 15,955 (in 2010/2011 a total of 2014/2015 academic year, Montenegro 13,176 children; in 2011/2012 a total of had 21 public preschool institutions with 14,329 children; in 2012/2013 – 14,592 a network of 103 educational units, with children, while in 2013/14 a total of 15,068 children split into 515 age-determined children). groups. The northern region has 10 PSIs with 25 educational units; the central region has five PSIs with 47 educational units; 1 Study on Investing in Early Childhood Education in the southern/coastal region has six PSIs Montenegro

Strategy for Early and Preschool Education in Montenegro (2016–2020) 13 Table 1. Coverage, number of preschools, educational units, age groups during the academic year 2014/2015

No. of No. of No. of Municipality Preschool Institution educational age children units groups Andrijevica JPU “Bajo Jojić” 29 1 3 Bar JPU “Vukosava Ivanović−Mašanović” 843 8 27 Berane JPU “Radmila Nedić” 421 3 18 Bijelo Polje JPU “Dušo Basekić” 781 10 34 Budva JPU “Ljubica V. Jovanović − Maše” 841 4 29 Cetinje JPU “Zagorka Ivanović” 541 2 19 Danilovgrad JPU “Irena Radović” 397 4 12 Herceg Novi JPU “Naša radost” 994 5 28 Kolašin JPU “Sestre Radović” 149 1 6 Kotor JPU “Radost” 755 7 30 Mojkovac JPU “Jevrosima Rabrenović − Jevra” 140 1 5 Nikšić JPU “Dragan Kovačević” 1,519 21 65 Plav JPU “Dječiji vrtić” 223 3 8 Pljevlja JPU “Eko bajka” 414 3 17 Plužine JU Obrazovni centar − Plužine 37 1 2 Podgorica JPU “Ljubica Popović” 3,259 9 84 JPU “Đina Vrbica” 3,488 11 87 Rožaje JPU “Boško Buha” 171 1 7 Tivat JPU “Bambi” 605 3 20 Ulcinj JPU “Solidarnost” 330 4 13 Šavnik JU Obrazovni centar 18 1 1 TOTAL 15,955 103 515

The majority of children attend full-day northern region (27%). The main reasons programmes (more than 98% in nurseries are the low population density and the and 88% in kindergartens), while fewer distance from the nearest facility, coupled than 2% of nursery schoolchildren and 11% with the fact that these same municipalities of kindergarten children attend the half- are under-developed, with higher poverty day programmes. However, there are great and unemployment rates compared to disparities in access to and the enrolment the rest of Montenegro. Some additional in preschool services across several factors may include a lack of information segments of Montenegrin society. For on the importance of early learning, then example, the coverage of children with PSE life patterns in multigenerational families, varies from quite high (88%) in the central where while parents work and grandparents and the southern regions, to very low in the take care of preschool children.

14 The average class sizes in public preschool institutions also vary greatly depending on the region. For instance, there are 39 children per group on average in the Ljubica Popovic School in Podgorica compared to an average of 10 per group in Andrijevica. While many PSE institutions in the southern region of Montenegro frequently work above their capacity, northern facilities remain underused. The lack of space for children prevents access and quality services from being extended in the South, while geographical distance and an inability to penetrate into rural communities hamper efforts in the North. There is a serious gap in PSE attendance rates between children from rural and urban areas. Attendance stands at 19% in rural areas compared to 55% in urban centres. Innovative preschool services have already been recognised as a possible response to the needs of the northern region, with good practice examples of interactive services found in Danilovgrad, Berane and Rožaje, which may be replicated in other low-coverage areas to draw children from rural settlements that gravitate towards these centres. Finally, the attendance rates for Roma and Egyptian children in Montenegro is twice as low as the rate for ethnic Montenegrin children, standing at 20%.

During the 2014/2015 academic year, Children About to Enrol in Primary School, preschool institutions in Montenegro The Care and Education Programme for employed 1,870 staff. Preschool staff Children under 3 Years, and the Programme includes teaching staff (those responsible for Preschools (age groups 3 to 6). for direct interactions with children), professional services (professionals of The Analysis of the Pre-school Sector various profiles such as psychologists, identifies nearly 80% of the total preschool pedagogical experts, speech therapists, education costs as being covered by the rehabilitation and education experts, central budget, while fees paid by parents nutritionists, etc.) and administrative make up the remainder of the costs. Parents and support staff (cleaning, nutrition and are obliged to pay 40 euros a month for the security). In nurseries, a nurse and a full-day programme, and 20 euros a month preschool teacher work in tandem. Two for the half-day programme on average. preschool teachers work in tandem per age The funds collected as fees from parents group of children aged 3 to 6, and health- are earmarked and used for providing care is provided by one nurse for several meals for preschool children. The Study on age groups. In institutions that meet the Investment in ECE in Montenegro revealed requirements for additional staff, teachers low collection rates for these fees. and nurses are assisted by professionals of The total PSE budget in 2014 represented other profiles. 0.38% of Montenegro’s GDP. This is lower

2 than the average in OECD countries, where The Bureau for Educational Services (BES) 3 drafted and the National Education Council it amounted to 0.58% of GDP in 2010. endorsed the following programmes: Brief Out of the total allocation, some 80% Programme for Preschools – Working with goes for the salaries and other income of

3 http://www.educationcounts.govt.nz/indicators/data/resource/ 2 In 2011 public-expenditure-on-early-childhood-education-ece#table6

Strategy for Early and Preschool Education in Montenegro (2016–2020) 15 staff, and the rest for routine maintenance, the reconstruction and extension works pedagogical materials, other services and on the kindergarten and nursery building capital expenditures. in Voja Lješnjaka St. in Bijelo Polje, were completed. In September 2013, in Nikšić In spring 2015, UNICEF and the Ministry of (the neighbourhood of Ozrinići) the new Education launched the Preschool for All prefabricated building of the PSI Dragan public awareness campaign to promote early Kovačević was opened. In January 2015, childhood education in the five municipalities the reconstruction and extension works of the northern region with lowest enrolment on the kindergarten and nursery building rates. The campaign was preceded by in Lenka Jurišević St. in Bijelo Polje, were an initial survey which revealed that two completed. thirds of parents believe that preschool educational institutions are the best form It has already been noted that preschools of childcare. Yet, one in four parents still are being built in Pljevlja, Ulcinj, Bar, and in believe that grandparents provide the best Podgorica, in the neighbourhoods of Stari quality of care. This attitude needs to be Aerodrom, Blok VI and Zagorič, and in the taken into account when attracting parents Borough of Tuzi. to additional preschool programmes beyond In parallel, the development of inclusive the core free programme and collecting fees education is one of the stated education from them. reform priorities. The Inclusive Education The Action Plans for five municipalities Strategy 2014–2018, among other things, (Andrijevica, Bar, Danilovgrad, Podgorica focuses on early detection, intervention, and Rožaje) are being drafted to estimate learning, development, and psycho-social costs and propose the human and support for children and their families. infrastructural resources needed for In particular, it highlights a timely and different scenarios of increasing PSE harmonised response adapted to a child’s coverage (innovative options for using the features and needs, coordination among space for the core programme, the space service providers, and ongoing sharing of to be used for three-hour programmes, the information between and within sectors. space for interactive services, etc.). The need for continuous professional development and pertinent support for staff During the implementation period of the has been recognised. Given that preschool previous Strategy for Early and Preschool attendance favours early learning, children Education, a new kindergarten and nursery with special educational needs (SEN) are was opened in Blok V in Podgorica, in April included in preschools under preferential 2008. In September 2008, an educational terms (free of charge)4. Specialised unit of the PSI Eko bajka from Pljevlja was institutions have been transformed into opened in Žabljak. The new educational Resource Centres, and their experts are unit of the PSI Ljubica V. Jovanović-Maše engaged to support regular schooling of in Budva started operating in 2010. In 2010 children with SEN. The Resource Centre in Nikšić (the neighbourhood of Kličevo) the Podgorica provides early support for prefabricated building of the PSI Dragan children with physical, combined and sight Kovačević was opened. The new central impairments, then training of staff following building of the PSI Bambi was opened in modern programmes and approaches to Tivat in September 2013. In September early intervention. The Resource Centre 1 2013, a new educational unit of the PSI Jun provides early intervention services, Đina Vrbica was opened in Golubovci, a borough of Podgorica. In September 2013, 4 Based on referral decisions.

16 support for children with intellectual Herceg Novi, Ulcinj, Bar and Bijelo Polje. disabilities and autism, and assistance This involves interactions with families, and training for staff. The Resource the Roma and Egyptian communities, Centre Kotor is a place where parents with local self-governments, local Red Cross children with hearing impairments go for organisations, Centres for Social Work and early intervention, especially after cochlear the schools in which children are to enrol. implantation surgery, and which provides The BES provides training and supports rehabilitation services: audiologic and the engagement of Roma and Egyptian speech therapies; hearing examinations mediators. Efforts need to be invested for and assessment, to evaluate indications for surgical treatments. them to be integrated through continued regular activities, i.e. to be at least included Roma and Egyptian children are yet in the free three-hour programmes. another vulnerable group of children. For them, failure to attend preschool can Children without parental care placed in make the barriers to linguistic and cultural institutions also need to be more intensively participation in primary school even greater. integrated into regular peer activities. The principle of integration is prevailing in the education system for Roma and Egyptian Overall, there is room for an improvement children, i.e. support for early childhood of the capacity of ECE systems and service development. Apart from regular activities, providers, particularly as regards vulnerable for the fourth year in a row, there are in children in Montenegro. The Strategic place preparatory preschools in eight public Assessment of the Situation of Children and PSI in Podgorica, Nikšić, Berane, Tivat, Families in Montenegro states:

“Despite the presence of children’s rights frameworks, the major blockages to realising the children’s rights identified by most assessments and key informants seem to be poor implementation, enforcement and following through of laws and policies at the local level, partly because of inadequate resourcing, but also due to the absence of appropriate frameworks of cooperation, coordination and communication between duty-bearers at local and central level; limited professional capacity; indifferent public attitudes; and a civil society either not empowered or not active enough in this field. Another area for improvement is the capacity to produce and use child-focused data and statistics.”5

A number of recent studies on early learning programmes that last three hours a day. To and preschool education in Montenegro ensure equity and universal coverage, the have identified the advantages and programme has to be free (with one meal disadvantages of the current approaches, provided) to be particularly accessible to and the opportunities for change, as well as vulnerable children. While implementing the options for financing new programmes. the Strategy, the most practical, justified One of the proposed solutions for and efficient model needs to be chosen. preschool education coverage involves It should be borne in mind that there are the introduction of preschool preparatory possible regional disparities and greater costs incurred in remote and inaccessible

5 Strategic Assessment of the Situation of Children and places than in areas with higher population Families in Montenegro. density and higher income among the target

Strategy for Early and Preschool Education in Montenegro (2016–2020) 17 populations. The possibility of organising of Internally Displaced Residents of the the three-hour programme into shifts in Konik Camp in Montenegro – IPA 2011, afternoons, using the rooms of regional the KHAM6 toy library was organised for school buildings or other spaces adapted children and parents in Roma and Egyptian for this purpose, could be considered. communities offering opportunities to This enables the expansion of coverage develop their own skills and understand the without any substantial investments in new developmental role of play. In addition, the infrastructure. NGO Parent Association was granted by the Ministry of Defence use for five years, free The interactive services model has already of charge, of the space needed for the toy been tested and could constitute part library (parents/members rent free of charge of the strategy to expand coverage and certain didactic materials for a specified provide high quality services which may period of time). Such experiences may be help raise awareness of the importance of helpful and inspiring for PSI themselves to early childhood development and preschool expand their services in this direction. education. To that effect, attention should be given to the availability of staff and the Following the development of the five so-called “travelling kindergarten” model municipal Action Plans already mentioned, should be considered. which will indicate the needed capacities and staff with cost estimates for preschool Within the framework of the programme of Support to Integration and Voluntary Return 6 The word means “sun” in the Romani language.

18 education (including the three-hour addition, better collection of the fee payable programme), these need to be piloted, by parents is needed, to reach at least 80% applied and replicated in all PSIs. (at the pre school institution level). Current and future professionals, with With reference to the explicit evidence in the proper competencies, confidence favour of the overall development, social, and commitment to practically apply financial and economic effects of investing such knowledge, are vital for further in early childhood education, the increase developments in this field. The PSIs (public of preschool will be a challenge. and private alike) must be encouraged Another imperative is to continue raising the to show initiative and autonomy, stronger awareness of parents and the professional teamwork, the habit of producing and using public regarding social inclusion. The self-assessments (to assess the needs and pertinent measures must respond to the improve the work of the given institution). The needs of Roma and Egyptian children with a cooperation and support at the institution view to their integration, preparation for better level needs to be strengthened, and the school attainment and social participation. possibility of hiring more professionals of Well-concerted actions are needed in various profiles (psychologists, pedagogical order to carry out deinstitutionalisation and experts, special educators and therapists include these children in regular, integrated and other staff) improved. Accordingly, peer activities. meaningful, targeted, thematic and needs assessment-based training of staff is Finally, the measures envisaged by needed, redefining the normative standards the present Strategy need to be made for their engagement (by taking into account compatible with the ones in the Inclusive the relevance of support in early childhood). Education Strategy, particularly as regards better cooperation among different sectors The need to improve the way data responsible for childcare, focusing on those is collected and used has also been dealing with early interventions, health care, recognised, concerning all children, but psycho-social support and family services. particularly vulnerable ones. This should be a meaningful and well-coordinated process which clearly sets the roles, responsibilities, powers and resources of relevant actors at different levels (horizontally and vertically). Another challenge is reflected in the fact that the central budget does not provide appropriations for periodic maintenance and repairs of the existing buildings, hence new funding models should be developed for these purposes. The Preschool Education Law is in need of amendment to envisage a fee of a certain percentage payable by parents to cater for the costs of core programmes (both half- and full-day ones) to replace the current model in which parents cover only the costs of the meals provided to their children. In

Strategy for Early and Preschool Education in Montenegro (2016–2020) 19 Further Development Directions for Early and Preschool Education

The guiding principle of the Strategy stresses the importance of high quality for Early and Preschool Education in early intervention services and responses Montenegro (2016–2020) is to make sure through individualised approaches and that all children from birth until school differentiated services, methodological age have their developmental needs strategies to address each child’s unique met through services, with adequate needs. Relevant indicators are set in order programmes and infrastructure run by to monitor the pace of implementation and competent professionals and staff, with plan further developments in the early and the active involvement of communities and preschool education sector. parents. The Strategy indicates the need for systemic The Strategy will also: alignment of policies and legislation, for reforming and restructuring some areas 1. Improve, extend, monitor and measure towards integrating the supply of services that the scope, intensity and quality of start at childbirth. To that end, empowering services and service providers, and professionals to support early identification, review and ensure the observance of intervention and learning processes will pedagogical norms and standards; be paramount. Implementation needs to 2. Using innovative approaches, expand be monitored and mutual consistency and the interactive services model and, sharing of information ensured. book and toy libraries, apply the three- hour preschool preparatory programme, Accordingly, the Strategy for Early and and expand the offer of specialised Preschool Education in Montenegro is programmes; improve public–private premised on the following principles: partnerships responsiveness to regional and institutional specificities; Experience-based and high 3. Focus on increasing access, equity and quality services the preparedness of children for primary school; Programming and services will be based 4. Advocate integrated, culturally sensitive on research and best practices. They will and individually responsive play-based reflect the importance of developmentally activities; appropriate activities and play-based 5. Be focused on raising the awareness of learning for young children. parents, experts and the general public The openness of staff to lifelong learning of the importance of early learning and the readiness to improve practices to be and the participation of civil society in better able to develop children’s potentials education processes. will be encouraged. Didactic aids, materials 6. Propose the drafting of efficient and sus- and resources will be developed to support tainable funding models for preschool best practices. education. The quality of educational work (both public The Strategy for Early and Preschool and private PSIs) will be monitored and Education in Montenegro 2016–2020 evaluated.

20 Integration, individualisation and levels of early childhood education services availability of services are aligned with the strategic vision. All citizens of Montenegro have a right All children in Montenegro deserve the best to participate in and be informed of the possible start in life. Therefore, the support significance, values, importance, and and services will be integrated, coordinated, progress in early and preschool education. child-centred, family-focused and available Leadership will be accompanied by the to all. Cooperation within and among sectors sense of shared responsibility among all will be improved, upgraded and streamlined actors and other stakeholders. to ensure that children flourish in all areas and according to their individual needs and Innovation and sustainability abilities. In order to achieve an integrated approach, support and services will Innovative models will be explored, including constitute part of a single system managed alternative programmes for preschool, in a coordinated manner working towards home-based learning, interactive services, a common goal and sharing information, new technologically integrated practices tasks and responsibilities. and other alternatives to address the needs of rural areas. The options will be The three-hour preschool preparatory considered to provide appropriate spaces programme will complement, not replace (new, alternative and improved) for children the primary programme and will be available and families. The facilities need to be made to meet the needs of all children and accessible, inviting, safe and creative, with families. The programmes will reflect the new materials, equipment, books, toys and understanding and respect of vulnerable didactic aids (structured and non-structured) children, particularly children with SEN, including specialised equipment and aids RE children, children under the care of for children with disabilities. the state, and rural children. Better early identification and intervention programmes Public funding, restructuring, better col- must be made available for all children and lection of fees and project-based activities families. Full integration of RE children will (grants, donations) will be the main sources be pursued, and special attention will be of revenues. devoted to children and families in remote Cost sharing is an important factor in rural areas to ensure equity of access. sustainability, provided that everyone has a shared responsibility for the strategy Participation and shared to flourish and produce lasting results. responsibility Sustainability will demand commitment, funding, dialogue and the engagement Parents, communities, decision-makers, of wider communities. It will all require employers and other stakeholders will the alignment of inter-sectoral services, contribute to creating a supportive and commitment from municipalities and healthy environment, and will adapt their knowledge of and the capacity to support services to address the unique needs of equity and inclusion. children and their families. Communication will be transparent and constant, and will ensure that strong partnerships are built with families and communities. The roles and responsibilities will be reviewed to ensure all

Strategy for Early and Preschool Education in Montenegro (2016–2020) 21 Goals of the Strategy for Early and Preschool Education

The guiding principle of the Strategy for Early and Preschool Education in Montenegro (2016-2020) is to make sure that all children from birth until school age have their developmental needs met through services with adequate programming and infrastructure, run by competent professionals and staff, with the active involvement of communities and parents.

Goal 3) Introduce Goal 1) Increase coverage by PSE to all innovative, optimal children, particularly those aged 3 to and sustainable compulsory school age in line with funding models. international standards.

Goal 2) Improve the quality of PSE services

GOAL 1: Increase coverage by PSE to This will be achieved through: a) improving all children, particularly those aged 3 infrastructure: building new spaces, to compulsory school age in line with refurbishing existing and adapting the international standards alternative spaces: use of regional primary school buildings or other public and/or private All preschool children in Montenegro need facilities; b) expanding interactive services to be ensured the best possible start in life and book and toy libraries; c) introducing as a precondition for developing their full innovative and flexible programmes (the potentials by inclusion into the preschool free three-hour programme, staggered education system. scheduling); d) intensive integration of the RE population; e) better detection and In future we will aspire to meet international responses to the needs of children with standards and the expectations set SEN; f) programming active participation of regarding the coverage of children aged 3 parents; g) collecting and using data within to school-entry age. and between sectors.

22 GOAL 2: Improve the quality of PSE GOAL 3: Introduce innovative, optimal services and sustainable funding models Preschool education programmes should Sustainable funding and strong partner- offer children a wide range of activities in ships, promoting early-learning values are all areas of development to impact over- needed to increase coverage and improve all attainments. This calls for staff to com- the quality of services intended for pre- petently respond to the needs of children. school children and their families. For effective and efficient implementation of preschool education programmes, constant This will be achieved through: a) considering support for staff is needed, as well as qual- the possibilities for increasing government ity assurance of services delivered in the spending on preschool education; b) public public and private sectors. and private partnerships to fund programme improvements; c) redefinition and better This will be achieved through: a) designing collection of fees payable by parents; d) self- developmentally adequate, stimulating, funding programmes; e) alignment of the high quality, integrated and accessible legal framework; and f) constant promotion programmes and services for all children; of the role and relevance of preschool b) improving pre-service training and education and raising the awareness of enhancing professional competencies the public to encourage the idea of overall of current and future practitioners; c) participation and investment. improving support, monitoring, supervision and counselling services for the staff; and d) further development of quality standards and indicators to monitor impact and outcomes.

Strategy for Early and Preschool Education in Montenegro (2016–2020) 23 Priority Tasks for the Strategy for Early and Preschool Education

GOAL 1: Increase coverage of PSE to all children, particularly those aged 3 to compulsory school age in line with international standards

Improved infrastructure structured work with their children. The best three-hour preschool preparatory The Ministry of Education will focus on programmes will be selected, piloted and creating the infrastructure to support all applied. The application of specialised preschool education programmes. In doing internationally recognised programmes will so, the regional and individual specificities of be reinforced. institutions will be taken into account. Plans An environment that is accepting and in will be developed to establish where new which diversity is respected and valued preschool buildings are needed, where the will be cherished. In cooperation with refurbishment of existing facilities is in order, partners and the Roma community, the role and which existing facilities may be used of early learning and inclusion of children for ECE activities (regional primary school in regular programmes that foster their buildings, community centres, primary integration will be promoted. Linkages with healthcare centres, cultural centres, business the healthcare and welfare sectors will be premises, etc.). Further work will be done on reinforced for better support for children with developing public–private partnerships and special educational needs and their early licensing private preschool facilities. development within their peer community. Facility standards will be reviewed so Models supporting deinstitutionalisation will as to ensure that all facilities are of high be designed. Data collection, sharing and quality, safe, accessible, in line with current use will be improved. legislation, stocked with play-based learning materials, including specialised equipment Improved programming and aids for children with disabilities. In order for early learning services to be of Increasing coverage good quality and developmentally adequate, the work programme will be upgraded Apart from creating the spatial requirements, and fine-tuned. Current methodological interactive services will also be organised approaches and forms of work will be in all municipalities with remote rural areas. innovated and alternative approaches More intensive work will be done to set up will be followed. Creative combinations of and use book and toy libraries to empower different models supporting early learning parents for autonomous, targeted and will be pursued. The three-hour preschool

24 preparatory curriculum will be designed to their monitoring and evaluation (in public suit the local context. and private facilities alike). A schedule of visits to provide counselling support to staff Programme quality standards need to be (in public and private facilities) will also be developed together with the indicators for prepared.

GOAL 2: Improve the quality of PSE services

Professional competencies grounds, and to ensuring professionalism and key competencies. The staff will be fur- To be able to respond to the needs of all ther supported through the development of children, the competencies of staff need optimal pedagogical norms. to be strengthened (in both public and Better two-way linkages among education private institutions) to follow a holistic system institutions will be needed. and multidisciplinary approach, teamwork and partnership with parents; stimulate Clear roles, duties and responsibilities will development according to personal be defined for the administration, ECE characteristics; promote the values of non- services providers, and professionals, violence, tolerance and acceptance of which include operational and licensing differences; and apply modern approaches quality standards. in working with children with SEN depending on the type of their developmental disability. Moreover, a monitoring and evaluation Staff will be trained to apply innovative framework will be developed (for both public services. and private PSIs). Through the pending curriculum reac- The staff will be supported through creditation process, the pre-service train- developing a plan of visits to provide more ing curricula need to be improved. Special intensive and meaningful counselling emphasis will be given to contemporary ev- services, through thematic counselling idence-based early childhood learning and sessions, setting up teacher teama and development trends supported by theory, networks of practitioners, sharing good science and research, and providing con- practices, drafting instructions for stimulating tinued practical work for students. and evaluating certain developmental areas and publishing ECE materials. Quality of ECE services and service providers Family support and parent engagement In order to support holistic early childhood development, attention should be to pro- Parents as the child’s first teachers will be viding staff of relevant educational back- more strongly recognised as partners and

Strategy for Early and Preschool Education in Montenegro (2016–2020) 25 beneficiaries. They will be better informed of of taking part in the preschool community. the importance and efficacy of enrolling their They will be trained to apply creative, children in ECE programming. Programmes appropriate, tailored and structured child- for parents’ participation and training will centred activities in their homes. be designed. Thematic programmes for It is important to work on formatting and strengthening parental skills and more formalising the transition programmes active role in their child’s upbringing and for primary school enrolment to ensure learning will be provided. continuity and timely and smooth transition. Parents should be made to feel welcome Educational and information materials will and be active participants in the processes be developed and disseminated.

26 GOAL 3: Introduce innovative, optimal and sustainable funding models

Funding and legal framework Communication, collaboration, promotion The Ministry of Education will undertake consultations with stakeholders, including The improved universal preschool system investors and businesses, to review diverse needs to be generally understood and options for improving the supply of the ECE accepted by all actors in order to be fully services and strengthen them. applied. The possibility of increasing government With a view to meeting the principles and spending on preschool education to 0.53% goals of preschool education, special of GDP will be considered. attention will be given to communication. Collaboration among relevant actors Universal preschool preparatory pro- working towards the same goal of improving grammes are a priority because of their early childhood learning and development multiplicative effect on child development, in Montenegro will be improved. particularly for children from lower socio- economic and less educated backgrounds. Communities will be informed of the Local Implementation Plans will be devel- importance of PSE programmes. The oped to estimate specific costs. communication and collaboration plan is important to ensure the buy-in of individuals Preschool institutions will be encouraged and the media to send the important to initiate self-funding programmes. The messages that need to be told. sharing of costs by parents will be improved by including the costs of meals and didactic and other materials needed for play-based learning of children in preschools equally. Public–private partnerships, fund-raising and project implementation will be more precisely defined and strengthened. The legal framework will be improved in line with the new PSE solutions to ensure unhindered achievement of planned coverage, application of new services, quality assurance, and introduction of new, optimal and sustainable funding models.

Strategy for Early and Preschool Education in Montenegro (2016–2020) 27 Activities and Methodologies for Strategy Implementation

This section describes the activities and lead institutions, timelines and outcome methodologies for achieving each of the indicators for each activity stream. three main goals, with the understanding that activities will frequently overlap in their These two sections are intended to guide execution. the Strategy implementation, monitoring and evaluation, and may be revised and The Strategy is accompanied by the Action updated as goals are met. Plan that identifies more specifically the

1. Increase the coverage by preschool education to all children aged 3 to school age according to international standards

1.1 Develop and apply plans for con- health-care centres, business and struction of new facilities, recon- other available premises). struction and refurbishing of existing 1.3 Select, pilot, improve, apply and ones and other available spaces in monitor the three-hour preschool line with regional; and institutional preparatory programme. specificities. 1.4 Organise interactive services in all 1.2 Prepare an analysis and a plan to municipalities with remote rural areas. arrange services in regional primary 1.5 Set up and use book and toy libraries school buildings and other local focusing on pre-literacy and pre- institutions that may be used for the numeric activities for children. delivery of PSE services (community 1.6 Develop efficient and effective sharing centres, cultural centres, primary of information within the system,

28 as well as with the healthcare and 1.8 Promote the role of ECE and integra- welfare systems, and improve and tion RE children into daily activities apply the data collection, sharing and in cooperation with partners and the usage procedures. Roma community. 1.7 Continue with subsidies for the 1.9 Improve early detection and inclusion of vulnerable children, while support for children with special developing a model for integrating educational needs, their inclusion and children without parental care to development among peers. accompany the deinstitutionalisation 1.10 Develop a plan with areas of process. cooperation with the civil society.

2. Improve the quality of PSE services

2.1 Review the existing norms and devel- 2.7 Set up teacher teams and networks op and apply new pedagogical norms. of practitioners (both in the public 2.2 Define clearly the roles, duties and and in the private sector); establish responsibilities of the administration, forums for sharing good practices; PSE service providers, and profes- develop guidelines to stimulate sionals, which include operational certain developmental areas and to and licensing standards. record progress made by children, and develop other education and 2.3 Develop the PSE quality framework information material for the expert and standards (for the public and and general public. private sectors) with monitoring and 2.8 Develop and carry out the ECE pub- evaluation indicators. lishing plan. 2.4 Improve and upgrade current pro- 2.9 Carry out re-accreditation of pre- grammes to include innovative ap- service training curricula for teachers proaches, and create the three-hour and professionals focusing on ECE preschool preparatory programme. and practical work of students. 2.5 Develop a timeframe for visits to insti- 2.10 Develop and implement the infor- tutions (public and private) for provide mation plan, meetings with parents, counselling support to the staff. thematic programmes, workshops to 2.6 Develop the plan and carry out the- reinforce parental skills and assuming matic counselling on: tailored planning the active role in child’s upbringing and learning environment, individual- and learning, and formalise the pri- isation, holistic and multidisciplinary mary school transitional programme. approaches, promote non-violence, acceptance of differences, approaches; in working with children with SEN depending on the type of disability, teamwork and partnership with families, the three-hour preschool preparatory programme, interactive services, book and toy libraries, etc.

Strategy for Early and Preschool Education in Montenegro (2016–2020) 29 3. Introduce innovative, optimal and sustainable funding models

3.1 Upgrade the legal framework to 3.6 Develop and apply public–private ensure unhindered achievement of partnerships to improve coverage. the planned coverage, quality and 3.7 Promote the role and significance of funding. PSE and raise awareness of the public 3.2 Develop the plan and increase – with the accompanying ongoing government spending for PSE. campaign, featuring educational 3.3 Develop Local Implementation Plans programmes in the media intended envisaging the participation of and for preschool children, their parents, the role for municipalities. experts and other interested public. 3.4 Plan and apply self-funding programmes. 3.5 Improve collection of fees payable by parents and make such fees to include both the costs of meals and didactic and other materials needed for play-based learning.

30 Conclusion

Given the persuasive evidence about the It is important to map out a reasonable, benefits of ECE, there is a strong call to cost-effective and measureable implemen- further invest in and reform this area, and tation plan and ensure shared and individu- provide programmes that are accessible al responsibility for implementation through and equitable for all children and parents a high degree of cooperation and motiva- and are beneficial to Montenegrin society. tion. Leading change in ECE requires flexible The management and delivery will be evidence-based approaches that are shared among state actors, practitioners, responsive to the diverse needs of families local communities, non-governmental and children. It is therefore important to organisations, businesses and other create interpersonal and intergovernmental partners. collaboration and cooperation.

Strategy for Early and Preschool Education in Montenegro (2016–2020) 31 THE ACTION PLAN ACCOMPANYING THE STRATEGY FOR EARLY AND PRESCHOOL EDUCATION 2016–2020

The Action Plan is a five-year implementation responds to the questions of Why and What framework for the Strategy for Early and is planned and intended, and the Action Preschool Education. It is intended to Plan responds to Who, When, Where and facilitate the implementation and monitoring How. It gives a framework for autonomous of the Strategy, and is open for revisions implementation of measures, forging of and modifications. partnerships, participation of domestic and international non-governmental and The Action Plan needs to link the Strategy other organisations, and offers possibilities with practice with the financial context and for project-based fulfilment of goals and to sketch out the roles, responsibilities and actions. expected results. The 2016–2020 Strategy

32 facility facility € 75,000 € 20.000 € 30,000 € 50,000 € 600,000 € 50,000 per Cost estimate € 30,000 a year € 1,000,000 per verification Indicators and sources of Number of IS, number children covered Number of book and toy libraries and users Number of RE children Chosen model piloted. Number of children covered, reports Chosen model applied. Number of children covered, reports Reports, recommendations, number of refurbished facilities Number of regional school buildings, community culture centres, primary healthcare centres, business premises put to use as PSI Reports, recommendations, number of new facilities and timeframe Responsible entity MoEd, BES, PSE, LG, donors Deadline: 2017 MoEd, BES, PSE, NGOs, donors Deadline: 2017 MoEd, BES, PSE, LU, NGOs, donors Deadline: continuous MoEd, BES, PSE, donors Deadline: 2016/17 MoEd, BES, PSE, donors Deadline: 2020 MoEd, PSE Deadline: 2016–2020 MoEd, MoH, MLSW, MoC, MoEd, MoH, MLSW, LG, PVO, donors Deadline: 2016/17 academic year MoEd, PSE Deadline: 2016–2020 Activity 5-year-olds in 2017/18 4-year-olds in 2017/18 3-year-olds in 2017/18 Set up interactive services in all municipalities Set up and use book toy libraries Involvement of RE children in daily activities Piloting the chosen three-hour preschool preparatory model Application of the chosen three-hour preschool preparatory programme: • • • Plans developed and facilities refurbished Development of LIPs responding to local and regional specificities Construction plans for new buildings developed and applied Goal 1) Increase preschool coverage to all children aged 3 to school age in line with international standards

Strategy for Early and Preschool Education in Montenegro (2016–2020) 33 € 5,000 € 5,000 € 5,000 € 15,000 € 15,000 € 10,000 € 25,000 € 100,000 Cost estimate € 60,000 a year € 10,000 a year verification Indicators and sources of Number of children, financial reports Number of children Number and type of NGO services and people covered Programmes updated and applied Standards developed, counsellors and supervisors trained applying standards Number of visits, reports The procedure established and operational, number of meetings, reports, number of measures MEIS upgraded, exchanges with other sectors operational; reports; number of counselling sessions, number of people covered; of children and services Number of services; number number and type of training staff; events and trained professionals, number of children covered Roles defined and set, reports and timeframe Responsible entity MLSW, MoEd, PSE, CSW MLSW, Deadline: 2017 MoEd, NGO, PSE Deadline: 2016 MLSW, MoEd, PSE, CSW MLSW, Deadline: continuous BES, PSE Deadline: 2016/17 BES, PSE Deadline: 2016/17 BES, PSE Deadline: 2016/17 MoEd, MoH, MLSW, MoEd, MoH, MLSW, primary BES, PSE, CSW, healthcare Deadline: 2016. MoEd, BES, PSE Deadline: 2016/17 MoEd, MoH, MLSW, MoEd, MoH, MLSW, primary BES, PSE, CSW, healthcare Deadline: 2017 PSE, MoEd, MoH, MLSW, primary healthcare CSW, Deadline: 2017 and onwards Activity Development and implementation of the model for including children without parental care Develop the plan with areas of cooperation with civil society Subsidised inclusion of vulnerable children Updating the existing and designing the three-hour programme Develop programme quality standards with indicators for monitoring and evaluation Develop schedule of visits to provide counselling support for staff Develop cooperation procedures, and efficient sharing of effective information within and among systems Define roles, responsibilities of the administration, educators, professionals Improve data collection and use Improve early detection and support for children with SEN Goal 1) Increase preschool coverage to all children aged 3 to school age in line with international standards 2) Ensure quality of preschool education services

34 € 5,000 € 15,000 € 10,000 € 15,000 € 10,000 € 10,000 € 100,000 € 1,500 per € 5,000 a year Cost estimate institution a year verification Indicators and sources of Number of meetings, good practices Guides developed and applied; reports Material designed and disseminated, number and type of materials Number and type of publications Number of meetings, workshops, thematic programmes, parents covered plan developed, number Transition of trainings, number trainees, reports Number of surveys, reports, recommendations followed through Curricula adopted and aligned with international standards Reports: number of training sessions & trainees, number and type of topics, counselling and people covered and timeframe Responsible entity MoEd, BES, PSE, donors Deadline: 2016/17 and onwards MoEd, BES, PSE, NGOs, donors Deadline: 2016/17 and onwards MoEd, BES, PSE, NGOs, donors Deadline: continuous PSE BTTA, Deadline: 2016/17 and onwards MoEd, PSE, NGOs, donors Deadline: 2016/17 and onwards MoEd, PSE, donors Deadline: 2016/17 and onwards MoEd, BES, PSE, NGOs, donors Deadline: continuous University Deadline: 2017 MoEd, BES, PSE Deadline: 2016/17 and onwards Activity Set up teacher groups, networks of practitioners and models for changing good practices Develop guides for stimulating certain developmental areas and recording progress Develop, disseminate and apply educational and informative materials Develop and implement the ECE publication plan Develop and apply parent meeting plan, thematic programmes, parent workshops Develop formats and apply transition programmes for primary school Conduct surveys Review and align curricula for pre- service training of staff Develop plan and carry out counselling and training Goal 2) Ensure quality of preschool education services

Strategy for Early and Preschool Education in Montenegro (2016–2020) 35 € 5,000 € 5,000 € 5,000 € 10,000 € 50,000 0.53% GDP 80% collection Cost estimate verification Indicators and sources of Budgetary appropriation Reports Number of programmes, number of children covered, financial statements Number and type of PPPs Number of advertisements, campaign reports Number of educational shows and programmes Legal framework adopted, norms improved; number of professionals and timeframe Responsible entity MoEd, MoF Deadline: 2020 MoEd, PSE Deadline: 2017 and onwards MoEd, PSE Deadline: 2016/17 and onwards MoEd, private sector Deadline: 2016/17 and onwards MoEd, PSE, donors, media Deadline: continuous MoEd, PSE, media Deadline: 2016/17 and onwards MoEd Deadline: 2017 Activity Develop a plan and increase government spending on PSE Redefine and improve collection of fees from parents Draft the plan and apply self-funding programmes plan Develop and apply the PPP Promote and raise awareness about early childhood learning Design and apply the plan of interactions with the media Improvement of legal and normative framework Goal 3) Introduce innovative, optimal and sustainable funding models