Human Resources Development Convention, 1975 (No. 142) - Montenegro (Ratification: 2006)

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

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Articles 1 and 5 Convention. Formulation and implementation of education and training policies. Cooperation with the social partners. With regard to the development of vocational guidance and training, the Government refers to numerous educational and promotional activities dedicated to adult education and training (conferences, focus groups, fairs, round tables, seminars, info days, etc.) and to measures taken for the improvement of procedures for recognition of non-formal and informal learning for adults to acquire national professional qualifications. The Government further refers to general and special programs of professional orientation implemented by the Employment Agency of Montenegro which includes professional information services, counselling and psychological analysis for employment or inclusion in the active employment policy programs, in particular the Program “Encouraging career development of directly employable unemployed persons” which encourages the professional development of jobseekers that are registering for the first time with the Employment Agency. The Committee notes the statistics provided by the Government on the number of beneficiaries who have participated, from 2018 to 2021, in various professional orientation programmes, including the number of people that have used career guidance services and the number of students that have benefited from the special professional orientation Program, namely the “Career orientation and labour market in primary and secondary schools”, which provides career guidance and information on professional orientation to young people in the education system. In this respect, the Committee notes however that the number of students that have benefited from the Career Orientation and Labour Market Program in Primary and Secondary in 2020 (611 students) has decreased by more than 90 per cent, compared to 2019 (6,824 students). Regarding employment training measures, the Government refers to training programs such as “training for work with the employer” which supports unemployed people who lack practical knowledge or skills and the “training for independent work” which supports unemployed persons without working experience that have secondary education (3rd and 4th degree education). The Committee notes that in collaboration with 76 employers, the training Program for independent work has provided employment for 238 participants (for a period of six months). It also notes that 2,248 unemployed persons have benefited from active employment measures and that the Government has further implemented adult education and training programs for 896 participants, public work programs such as the “Keep It Clean” project for 629 people, independent work training for 238 individuals, employer training for 239 candidates, “Stop the Gray Economy” program for 190 participants and has allocated 42 loans to promote self-employment, which has generated 56 new jobs. In this regard, the Government indicates that the implementation of the above-mentioned measures has created employment for 1,306 unemployed persons with identified barriers to employment, for a period of three to seven months. With regard to the coordination between the labour market and education, the Government indicates that an internal analysis of occupational deficits and a projection for the development of educational programs were prepared, which focuses on the needs of people with low skills, in accordance with the Recommendation of the EU Council on forms of training: new opportunities for adults – Upskilling Pathways. In this respect, the Committee notes that the Employment Agency of Montenegro has taken various measures, including financial assistance and reimbursement of transportation costs during education, to facilitate the implementation of the EU Recommendation. The Committee welcomes the information received and invites the Government to continue providing updated information on the design and implementation of vocational education and training policies and programs, closely linked with employment needs, including programs aimed at specific groups, such as young persons, women and persons with disabilities. In addition, the Committee invites the Government to provide disaggregated statistical data on the number of vocational guidance and training graduates accessing employment following the completion of the training programs. The Committee further requests the Government to provide detailed information on the steps taken to promote cooperation with the social partners in the formulation and implementation of vocational guidance and vocational training policies and programs.

Article 3(1). Coverage by the vocational training system of groups in vulnerable situations. With regard to women, the Government indicates that the Ministry of Science, Education, Culture and Sports and its agencies support strategies for strengthening the position of women in society, raising the level of their elementary and functional literacy and their employability. The Government further refers to a Pilot program “Empower me and I will Succeed” which has been implemented in 2018, to support the integration of hard-to-employ persons, primarily women, into the labour market. The Committee notes that the program has covered 925 hard-to-employ persons (95.7 per cent women, 37.6 per cent persons older than 50 years, 4.1 per cent persons under 30, and 22.2 per cent long-term unemployed persons). It further notes detailed statistics provided by the Government on the participation of women, youth, persons with disabilities and older workers in various entrepreneurship, training and employment programs, in particular, the public project “Personal Assistant”, which created temporary non-market jobs of public interest in the field of protection of persons with disabilities for 507 people, and the public work “Care of the Elderly” in the field of protection of the elderly which has created short-term employment (four to six months) for 117 people. With regard to ethnic minorities, the Committee notes with interest that, in 2020, the Government has organized special training for the professional qualifications of the Roma population. It further notes that the Government has developed the Strategy for Social Inclusion of Roma and Egyptians 2021–25 to improve the current status and position of the Roma and Egyptian communities in Montenegro, as well as to enable them to exercise their rights guaranteed by the Constitution and other legal acts, in order to fight all forms of discrimination and segregation. The Government indicates that the Centre for Vocational Education, in cooperation with international and domestic organizations such as HELP, the Red Cross, the Roma Education Fund (REF) and some NGOs, has created four professional qualifications and developed educational programs for Associates in Social Inclusion of Roma and Egyptian Women in four areas of education, employment, health and social protection. The Government further refers to measures taken to strengthen the social integration of the Roma population and for the preservation of their culture, language and traditions. In this regard, the Committee notes that an educational program for the acquisition of key skills – Romology and an examination catalogue based on it – was prepared. The Government indicates that, in 2021, efforts have been made, in cooperation with the Public Health Centre Podgorica, to provide additional support for the early development of children in families with special reference to Roma and Egyptians. With regard to categories of workers in vulnerable situations, the Government refers to various measures taken for the implementation of the primary adult education program, which include the preparation of an Andragogy handbook for teachers implementing the Elementary Functional Literacy Program, which was undertaken with the support of the EPALE project National Support Service for Montenegro. The Government further indicates that the Employment Agency, in cooperation with the Ministry of Labour and Social Welfare, the Ministry of Finance - Tax Administration, the Ministry of the Interior – Police Administration and the Inspection Administration, has implemented the Training and Employment Program for Youth with Higher Education in Preventing Informal Work “Stop the Gray Economy” program, which provides training and employment program to support the integration of young people in the formal labour market. The Committee notes that the “Stop the Gray Economy” program, which targets unemployed young persons (up to 30 years of age and with at least 9 months of work experience), has covered 180 unemployed persons with higher education (56.7 per cent women and 15 per cent long-term unemployed). The Committee welcomes the information received and invites the Government to continue to provide updated information on the development and implementation of measures in relation to vocational training and lifelong learning and their impact on access to quality lifelong learning of specific groups, particularly women, young persons and the long-term unemployed. It also requests the Government to supply information on the manner in which such measures encourage and enable all persons, on an equal basis and without any discrimination whatsoever, to develop and use their capabilities for work in their own best interests and in accordance with their own aspirations, account being taken of the needs of society. The Committee further requests the Government to provide up-to-date detailed information, including statistics disaggregated by age and sex, on the impact of policies and programs implemented in relation to vocational guidance and special training for professional qualifications of the Roma population, including those adopted in the context of the Strategy for Social Inclusion of Roma and Egyptians 2021–25.

Article 4. Lifelong learning. The Government refers to the National Strategy for Adult Education 2015–25, the four-year Adult Education Plan 2019–22 and the annual adult education plans which are based on the existing strategy and several key EU documents that provide guidelines for improving adults’ education. The Government further reiterates that the National Strategy for Employment and Human Resources Development for 2016–20, provides for “Improving qualifications and competencies” (priority 3) and defines a series of activities to be carried out by the Ministry of Education for promoting access and participation of adults in lifelong learning (objective 1). In this regard, the Committee notes that the Centre for Vocational Education carries out various activities and organizes educational and promotional events dedicated to adult education and learning, including “Days of Adult Education and Learning”, International Literacy Day and International Day of Older Persons. The Government indicates that each year, the Department for Adult Education and Life-long Learning Centre (LLLC) implements measures for improving the educational offer of different target groups. The Government further refers to various measures taken to strengthen the national system of adult education with the support of the EPALE project National Support Service for Montenegro, including the initiative to connect 31 databases on the adult education system and the ongoing research conducted on the educational needs of teachers as well as the impact of the COVID-19 pandemic on adult education and the labour market. The Committee notes the statistics provided by the Government on the participation of adults (aged 15 to 64) in Life-long learning (LLL) programs based on the EU requirement (participation of 15 per cent of the adult population in LLL by 2020). It further notes that, in 2020, the percentage of adult participation in LLL activities was 9.48 per cent, which has increased compared to 2019 (6.88 per cent). The Committee requests the Government to continue to provide updated detailed information on the content and practical impact of the policies and programs related to adult education, vocational guidance and lifelong learning, and on their impact on access to quality lifelong learning.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee notes with concern that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Formulation and implementation of education and training policies. Cooperation with the social partners. The Committee notes the adoption of the National Strategy for Employment and Human Resources Development for the period 2016–20, which aims at “creating optimal conditions for employment growth and improving human resources in Montenegro”. The Government indicates that the Strategy places priority on increasing employment, reducing unemployment, promoting the efficient functioning of the labour market, promoting social inclusion and reducing poverty. The Committee notes the various measures taken by the Government in the field of education and training to improve qualifications and competencies required by the labour market, including the activities carried out under the Action Plan for the implementation of the Lifelong Career Orientation Strategy (2017–18). The Committee requests the Government to communicate updated detailed information on the nature, content and impact of the vocational guidance and training programmes developed and implemented with the cooperation of the social partners. The Committee further requests the Government to provide information on the manner in which it ensures effective coordination between vocational guidance and vocational training policies and programmes, on the one hand, and employment and the public employment services, on the other hand. The Committee invites the Government to continue to provide extracts from reports, studies and inquiries and statistical data relating to current policies and programmes of vocational guidance and training.

Article 3(1) of the Convention. Coverage by the vocational training system of groups in vulnerable situations. In its previous comments, the Committee invited the Government to submit updated information with respect to measures taken to promote the development and use of vocational skills among workers in vulnerable situations, as well as to provide information on the evaluation of such measures. The Committee notes the information provided by the Government regarding a series of training programmes seeking to promote inclusion in the labour market of persons in vulnerable situations, including: young people with no practical education, persons with disabilities and those belonging to the Roma and Egyptian population. The Committee invites the Government to continue to provide up-to-date information on the nature and impact of measures taken to encourage groups of workers in vulnerable situations, such as women, workers belonging to ethnic minorities, persons with disabilities, older workers and those working in the informal economy, to develop and use their vocational skills.

Article 4. Lifelong learning. In its previous comments, the Committee requested the Government to provide information on the impact of measures taken to implement adult education, training and lifelong learning reforms and to introduce employment-oriented approaches, particularly with regard to low-skilled workers and the long-term unemployed. The Committee notes that the National Strategy for Employment and Human Resources Development for the period 2016–20 establishes as one of its priorities “Improving Qualifications and Competencies Adapted to Labour Market Needs”. The Government indicates that this priority reflects the objective of promoting the participation of adults in lifelong learning. The Committee notes the Government’s indication that the amendments to the Law on Vocational Education, introduced on 29 June 2017, improved the provisions related to practical education and dual education. The Committee notes a series of measures targeting “hard-to-employ” persons, as defined by the Law on Employment and Exercising of Rights from Unemployment Insurance, and long-term unemployed persons, including public work programmes, adult education and training, professional rehabilitation, training for work with employers as well as training for independent work. The Committee requests the Government to continue to report on the impact of the measures taken in relation to adult education, vocational guidance and lifelong learning, in particular measures targeting low-skilled workers and the long-term unemployed.

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

Formulation and implementation of education and training policies. Cooperation with the social partners. The Committee notes the adoption of the National Strategy for Employment and Human Resources Development for the period 2016–20, which aims at “creating optimal conditions for employment growth and improving human resources in Montenegro”. The Government indicates that the Strategy places priority on increasing employment, reducing unemployment, promoting the efficient functioning of the labour market, promoting social inclusion and reducing poverty. The Committee notes the various measures taken by the Government in the field of education and training to improve qualifications and competencies required by the labour market, including the activities carried out under the Action Plan for the implementation of the Lifelong Career Orientation Strategy (2017–18). The Committee requests the Government to communicate updated detailed information on the nature, content and impact of the vocational guidance and training programmes developed and implemented with the cooperation of the social partners. The Committee further requests the Government to provide information on the manner in which it ensures effective coordination between vocational guidance and vocational training policies and programmes, on the one hand, and employment and the public employment services, on the other hand. The Committee invites the Government to continue to provide extracts from reports, studies and inquiries and statistical data relating to current policies and programmes of vocational guidance and training.

Article 3(1) of the Convention. Coverage by the vocational training system of groups in vulnerable situations. In its previous comments, the Committee invited the Government to submit updated information with respect to measures taken to promote the development and use of vocational skills among workers in vulnerable situations, as well as to provide information on the evaluation of such measures. The Committee notes the information provided by the Government regarding a series of training programmes seeking to promote inclusion in the labour market of persons in vulnerable situations, including: young people with no practical education, persons with disabilities and those belonging to the Roma and Egyptian population. The Committee invites the Government to continue to provide up-to-date information on the nature and impact of measures taken to encourage groups of workers in vulnerable situations, such as women, workers belonging to ethnic minorities, persons with disabilities, older workers and those working in the informal economy, to develop and use their vocational skills.

Article 4. Lifelong learning. In its previous comments, the Committee requested the Government to provide information on the impact of measures taken to implement adult education, training and lifelong learning reforms and to introduce employment-oriented approaches, particularly with regard to low-skilled workers and the long-term unemployed. The Committee notes that the National Strategy for Employment and Human Resources Development for the period 2016–20 establishes as one of its priorities “Improving Qualifications and Competencies Adapted to Labour Market Needs”. The Government indicates that this priority reflects the objective of promoting the participation of adults in lifelong learning. The Committee notes the Government’s indication that the amendments to the Law on Vocational Education, introduced on 29 June 2017, improved the provisions related to practical education and dual education. The Committee notes a series of measures targeting “hard-to-employ” persons, as defined by the Law on Employment and Exercising of Rights from Unemployment Insurance, and long-term unemployed persons, including public work programmes, adult education and training, professional rehabilitation, training for work with employers as well as training for independent work. The Committee requests the Government to continue to report on the impact of the measures taken in relation to adult education, vocational guidance and lifelong learning, in particular measures targeting low-skilled workers and the long-term unemployed.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

Formulation and implementation of education and training policies. Cooperation with the social partners. The Committee notes the Government’s detailed and comprehensive report received in connection with its 2009 direct request. The Government includes detailed statistical information on activities carried out in 2012 in connection with vocational guidance for high school and university students in different cities of the country. The Committee notes the creation of several centres for vocational guidance in Pljevlja, including the establishment of the University of Montenegro’s Career Development Centre, which has the goal of improving the link between work and learning at university level. The Council for Qualifications, created in 2011 in accordance with the Law on National Vocational Qualifications, is composed of ten sectorial committees responsible for analysing sectorial labour market trends and identifying and suggesting the development of new qualifications to meet labour market needs. The Committee notes with interest that the Council for Qualifications is composed of government representatives, employers and workers, along with representatives of universities. Social partners also participate in other institutional bodies in the field of vocational education and training, such as the National Council of Education. The Government indicates that as a result of the education reform of the last few years, a greater involvement of the social partners in vocational education was achieved. The Montenegrin Vocational Education Development Strategy for the period 2010–14 was prepared by a working group composed of government, employers’ and workers’ representatives. However, the Government recognizes that the country’s vocational education system is confronted with the difficulty of properly predicting employment needs, which change faster than education cycles, and with budgetary constraints resulting from the impact of the crisis on research and development funding. The Committee invites the Government to include in its next report detailed information on the programmes and measures implemented with the cooperation of the social partners, indicating the manner in which it ensures effective coordination between vocational guidance and vocational training policies and programmes, on the one hand, and employment and the public employment services, on the other. The Committee also invites the Government to provide extracts from reports, studies and inquiries and statistical data relating to current policies and programmes of vocational guidance and training (Part VI of the report form).

Coverage by the vocational training system of vulnerable groups. The Committee notes the Government’s indications on the negative impact of the crisis on public and private sources of funding for education and research, but the Government also recognizes the aspiration of the society to embrace the needs and capacities of all vulnerable groups to create a socially inclusive education system. In this regard, existing education and training programmes addressed to Roma and Egyptian communities have been recently reformed in order to enhance their efficiency. Moreover, the Committee notes the First Employment Programme addressed to young people with tertiary education and no work experience which supports first job opportunities by financing 60 per cent of trainees’ salaries. The Government indicates that 75 per cent of the Programme participants in 2010 are still working with the same employer and that 362 persons benefited from the Programme in 2012. The Government further indicates that the participation of persons with disabilities and women in the Public Work Programme has proportionately increased compared to the unemployment rate of these groups. The Committee invites the Government to provide up-to-date information on the measures taken to encourage vulnerable groups of workers, such as women, workers belonging to ethnic minorities, persons with disabilities, older workers and those working in the informal economy to develop and use their vocational skills. Please also supply any available information on the evaluation of these measures.

Article 4. Lifelong training. The Committee notes that the Montenegrin Vocational Education Development Strategy for the period 2010–14 intends to set up a vocational education system in cooperation with the social partners to produce qualified workers. The strategy mainly seeks to facilitate a faster vocational education response to labour market needs, to ensure high quality vocational education and enable adequate conditions for lifelong training. Furthermore, the National Strategy for Employment and Human Resources Development for the period 2012–15 sets as one of its objectives the promotion of lifelong learning and raising awareness of its importance. The Committee invites the Government to continue to report on the impact of the measures taken to implement adult education and training and lifelong learning reforms so as to introduce employment-oriented approaches, in particular measures targeting low-skilled workers and the long-term unemployed.

Direct Request (CEACR) - adopted 2009, published 99th ILC session (2010)

1. Formulation and implementation of education and training policies. The Committee notes the Government’s first report on the application of the Convention received in September 2008. The Government refers briefly to the relevant provisions of the Labour Code and the Law on Employment, the General Law on Education and the Law on Adult Education, which were attached to its report. The Committee notes that the adjustment of the education system to labour market needs is one of the objectives of the National Strategy for Employment and Human Resources Development 2007–11 in line with the recommendations set out in the Country Review of Employment Policy on Montenegro prepared by the ILO and the Council of Europe in 2007. The Committee invites the Government to provide in its next report on Convention No. 142 detailed information on the impact of the measures taken under the National Strategy for Employment and Human Resources Development 2007–11, so as to ensure that: (i) vocational guidance and vocational training policies and programmes take due account of employment needs, opportunities and problems, thereby improving the integration between work and learning; and (ii) there is coordination between vocational guidance and vocational training policies and programmes and the strategies for poverty reduction and promotion of social inclusion (Article 1(1) to (4) of the Convention).

2. Coverage by the vocational training system of vulnerable groups. The Committee notes that the reform of the vocational education and training system in Montenegro is not yet complete and that there are still significant gaps in the existing vocational training programmes as concerns the integration into the labour market of women workers or workers belonging to vulnerable groups. The Committee invites the Government to provide in its next report on Convention No. 142 detailed information on the impact of the reform of the vocational education and training system so as to ensure that: (i) access to active labour market policies is improved for women, young workers and workers belonging to ethnic minorities; and (ii) the number of programmes for vocational training and requalification of unemployed persons with disabilities and of older workers are increased.

3. Article 4. Lifelong training. The Committee notes that, in its National Strategy, the Government refers to the need to increase the level and quality of adult education and training services and envisages the adoption of measures aiming at promoting the culture of lifelong learning at the level of society and among the adult population. The Committee asks the Government to report on the measures taken to implement adult education and training and lifelong learning reforms so as to introduce employment-oriented approaches, in particular those measures targeting low skilled workers and the long-term unemployed.

4. Article 5. Cooperation with employers’ and workers’ organizations. In its report, the Government indicates that the social partners are consulted over the formulation of laws and regulations concerning vocational education and training as well as professional orientation. The Committee also notes that in its National Strategy, the Government recognizes the need to increase the participation of the social partners and the private sector in the design and planning of training programmes. The Committee asks the Government to include in its next report information on the measures taken in order to ensure that vocational education and training policies and programmes are formulated and implemented in cooperation with the social partners.