Montenegro 2018

[15] This section draws mainly on input from the 2018 update of the European inventory on validation of non-formal and informal learning (European Commission et al., forthcoming).

The legal framework for validation of non-formal and informal learning (VNFIL) is provided in Montenegro by the law on VET, the law on national vocational qualifications (2008, amended in 2016), the law on adult education ([16] Available at: http://www.cso.gov.me/biblioteka/zakoni ), and the 2010 law on the Montenegrin qualifications framework ([17] Law on Montenegrin qualifications framework, Official Gazette of Montenegro, No 45/2010. http://www.cko.edu.me/Library/files/Law%20on%20MQF.pdf). Validation is also referred to in a number of strategic documents ([18] The Strategy for development of vocational education in Montenegro 2015-20; the Adult education strategy 2015-25 and Adult education plan 2015-19; the Strategy for lifelong career orientation 2016-20; the National strategy for employment and human resource development 2016-20 Labour market in the European path; the Employment and social reform programme 2015-20; and the Strategy of development and financing of higher education 2010-20.).

The law on the MQF allows for qualifications obtained through non-formal learning to be placed at all levels of the MQF. However, current education policies in the country focus primarily on formal education. VNFIL is limited to the VET sector, with minimal involvement of higher education institutions. The MQF is seen as a bridge between formal education and non-formal and informal learning at levels 1 to 5, through occupational standards ([19] Qualifications at MQF levels 6-8 are not based on occupational standards (European Commission et al, forthcoming).), common to both educational qualifications and national vocational qualifications (NVQs). A formal VET qualification is based on several related occupational standards and a NVQ is based on one occupational standard related to a module within the formal VET qualification. While a full VET qualification cannot be obtained through validation, candidates may be awarded credits and part of a formal qualification via validation, or can gain access to formal programmes. The law on VET allows for validation only in continuing vocational education and training (CVET).

The law on national vocational qualifications stipulates that NVQs can be acquired via formal programmes and via direct assessment of knowledge, skills and competences. Amendments to this law in 2016 transferred responsibility for assessment of knowledge, skills and competences for qualifications at MQF levels 1 to 5 from the Examination Centre to licensed education providers; this is expected to lead to an increase in assessments. Assessment for qualifications at these levels is carried out based on examination catalogues proposed by the VET Centre and issued by the National Council for Education. The examination catalogues and standards used are the same as those for qualifications obtained through formal education. Higher education institutions can carry out assessments for qualifications at MQF levels 6 to 8.

Between 2008 and 2016, 318 national vocational qualifications were issued through VNFIL, the majority in the tourism sector. No qualifications have been awarded after 2016, as part of the secondary legislation defining the procedures for VNFIL in accordance with the revised law on national vocational qualifications is yet to be adopted. A rulebook prescribing the format of the certificate for national vocational qualifications, and a rulebook on the procedures for issuing and revoking validation assessors' licenses, were planned to be developed in 2018. The law on national vocational qualifications also regulates the implementation of Europass, expected to support validation processes by enabling better understanding of knowledge, skills and competences acquired in both formal and non-formal contexts.

Certain elements of the Montenegrin education and training system provide a good basis for future work on VNFIL: the principles underlying the MQF, particularly the gradual shift to learning outcomes; modular design of VET qualifications; well-established provision for development of professional competences; licencing of staff involved in the verification of national vocational qualifications; and work to expand the network of licenced adult education providers ([20] A total of 102 adult education providers were licensed by the end of 2017 (European Commission et al., forthcoming).). By June 2018, 30 vocational education programmes were modularised, allowing gradual acquisition of formal VET qualifications and the acquisition of national vocational qualifications by students who do not complete formal education and students with special educational needs. All formal VET qualifications are expected to be modularised by 2020.

Higher education is underpinned by lifelong learning principles; redefinition of higher education qualifications and the use of credit transfer are expected to support VNFIL implementation. However, there is no system in place yet and validation measures have been limited so far to the University of Montenegro, which addressed adult higher education and VNFIL in its 2012 lifelong learning strategy.

While it is recognised in the country that people's skills are underused and that validation of non-formal and informal learning could be a solution to the existing skills mismatch on the labour market, there is also concern that valuing learning acquired in non-formal contexts could lead to a reduction of students in formal education and undermine the quality of qualifications. The main challenges to be tackled to advance VNFIL implementation include adoption of the remaining secondary legislation in line with the 2016 law on national vocational qualifications; addressing the lack of information about VNFIL, both among the general public and among labour market stakeholders; and promoting VNFIL opportunities in a systematic manner.