“Civic education exists only formally, with limited institutional reach. It is present ‘on paper,’ but its scope and consistency are not systemically guaranteed”, revealed in-depth interviews with the academic community, conducted within the project “Enhancing Civic and Human Rights Education: Educational Reforms for a Stronger Democracy”, implemented by the Centre for Civic Education (CCE), Human Rights Action (HRA), and the Centre for Women’s and Peace Education ANIMA.
Civic Education was introduced as a mandatory subject in primary schools in 2004/05 and in secondary schools in 2006/07. However, in 2017 curriculum reforms relegated it to an elective subject, significantly reducing its coverage.
Members of the academic community note that Civic Education is offered throughout all four years in gymnasiums, whereas in other secondary schools, it is not available to all students. As a result, the quality depends on the specific school and the educators delivering it. This has led to large discrepancies – ranging from ambitious, methodologically modern approaches to merely fulfilling the bare minimum requirements. They assess that the subject is marginalized, and often instrumentalized, for example, as a space to “resolve absences” and similar activities for which teachers do not find enough time in other classes. This undermines the symbolic status of the subject and the credibility of its educational messages.
Interviewees point out that the elective status produces selection effects: the subject is more often chosen by more motivated students, while others remain outside the systematic development of civic competences. Thus, civic education ceases to be a “public good” and becomes a privilege of certain school environments.
Interlocutors from the academic community unanimously support restoring the subject to mandatory status, aligning with the views of parents, students and the civil sector. They also emphasize that the subject must be taught by someone who understands the values, digital culture of youth, and the local context, and who possesses the ability to moderate discussions and lead projects, as only in this way can civic education gain the legitimacy of a “living subject”. Otherwise, young people receive the message that values are mere rhetoric, not actual guiding principles. A recommendation is also made to create space for co-teaching with credible activists, supported by pedagogical preparation and clear standards.
Key challenges identified include a lack of qualified staff, low teacher motivation, and limited pedagogical infrastructure. Although highly valued in discourse, this subject remains superficially present and of inconsistent quality in practice.
The academic community believes that the content and methods of teaching must be adapted to the Montenegrin context and that it is important to plan joint learning situations – such as debates on historical documents, literary works with themes of freedom, or analysis of media narratives – in order to make the concepts of rights, responsibilities, and participation more tangible. Priority topics include democracy and institutions, human rights and the rule of law, civic culture and values (tolerance, solidarity, common good), media and political literacy, active citizenship and civil society, with a focus also on minority rights and youth participation in the community.
Methodologically, they highlight the importance of participatory and experiential learning for quality instruction– from moderated discussions, simulations of parliament, trials or elections, through the UN Model, to project-based and service learning in the local community, case studies, and small group work – as only in this way can youth be transformed from passive recipients into active participants.
Ten in-depth interviews with members of the academic community were conducted by the expert team of the Damar Institute. Professors and associates from Montenegrin universities participated in the interviews.
The project “Enhancing Civic and Human Rights Education: Educational Reforms for a Stronger Democracy” is part of the programme “Strengthening Citizen Trust in Institutions and Building Resilient Communities”, implemented by UNDP, UNICEF, and UNESCO in cooperation with the Government of Montenegro, and funded by the UN Peacebuilding Fund.
Sara Čabarkapa, Active Citizenship Programme Coordinator