The working conditions of teachers in early and school education in Montenegro are regulated primarily by the General Law on Education, as a basic systemic regulation in the field of education, as well as by the Branch Collective Agreement for Education and relevant bylaws.

Among the key bylaws are the Rulebook on scoring criteria for hiring teachers, which regulates in detail the procedure for evaluating and ranking candidates in the hiring process, and the Rulebook on types of titles, conditions, methods and procedures for proposing and awarding titles to teachers, which regulates professional advancement and the acquisition of higher titles in the teaching profession.

The normative framework is predominantly centralized. The Ministry of Education, Science and Innovation (hereafter: the Ministry) has a key regulatory and management role in the field of employment, staffing, issuing and renewing licenses, as well as in professional advancement procedures. In the implementation of these responsibilities, the Ministry acts with the professional and operational support of the Bureau for Educational Services (hereafter: the Bureau), the Center for Vocational Education (hereafter: the Center) and other relevant institutions of the system. These institutions have an advisory, developmental and professional role, especially in the area of ​​improving the quality of teaching, professional development of teachers and application of educational programs.

Educational institutions, on the other hand, carry out procedures at the institutional level, especially in the part of tendering, work organization and human resource management within the valid normative framework.

Planning policy

There is no single and comprehensive formal policy for long-term planning of the supply and demand of teaching staff based on systemic demographic and statistical projections in Montenegro. The planning of human resources in education is mainly carried out on an annual basis, through the distribution of classes and the management of existing personnel.

The Branch Collective Agreement for Education stipulates that, as a rule, by August 10, directors of institutions are obliged to allocate hours and jobs and submit to the Ministry the lists of employees who lack hours up to the full norm, as well as the number of free unallocated hours. Based on these data, the Ministry compiles the appropriate lists, which is an important mechanism for managing the teaching staff on an annual basis.

In addition, the General Law on Education stipulates that the Ministry determines the list of employees for an indefinite period, from which institutions, before announcing the competition, are obliged to check the possibility of taking over teachers by agreement. This solves part of the need for teaching staff by redistributing existing human resources in the system.

The normative framework also allows for the recruitment of teachers who meet the prescribed conditions regardless of their retirement status. In practice, this includes hiring retired teachers, most often through fixed-term contracts or with a limited number of lessons, especially in situations where there is a shortage of staff for certain teaching subjects. This mechanism represents a flexible solution for ensuring the continuity of teaching in conditions of personnel limitations.

Entry to the profession 

The employment of teachers in Montenegro is regulated primarily by the General Law on Education (hereafter: the Law), which defines the conditions, procedures and responsibilities in the employment process, as well as by relevant bylaws.

A teacher can establish an employment relationship if, in addition to the general conditions prescribed by the Labor Law, he also meets special conditions regarding the appropriate level and profile of education, passing a professional exam, or having a work license (Article 100a). The Law provides for the possibility of employing foreign citizens under certain conditions, as well as the recognition of foreign qualifications in accordance with special regulations.

Employment in public educational institutions is based on the principle of open employment through a public call (Article 101). The call is announced by the director of the institution and lasts for 15 days. Candidates are selected by a Committee appointed by the director in accordance with the institution's statute, and the Committee compiles a ranking list of candidates based on criteria prescribed by Law:
- average grade, i.e. index of success in studies,
- length of study,
- the university's position on the internationally recognized university ranking list,
- interview grade.

The director is obliged to choose the candidate who is first on the ranking list. The Law also prescribes probationary work as a special condition of employment.
The detailed elaboration of the criteria and the method of their evaluation is prescribed by the Rulebook on the method of scoring criteria for the employment of teachers (hereafter: the Rulebook), adopted on the basis of the Law.

This Rulebook specifies that candidates can achieve a maximum of 100 points, namely:
- up to 40 points for the average grade,
- up to 15 points for the length of study,
- up to 20 points for the university's position on the internationally recognized ranking list,
- up to 25 points for the interview.

The Rulebook additionally prescribes the structure and duration of the interview, the elements that are evaluated (pedagogical abilities, motivation and professional development, communication skills), as well as the way of compiling the ranking list and the procedure in the event of an equal number of candidates' points.

Before announcing a call for employment for an indefinite period, the public institution is obliged to check the possibility of agreeing to take over a teacher from another public institution from the list of employees for an indefinite period established by the Ministry (Article 101a). The call can only be announced if such an opportunity does not exist, if the job position is systematized and approved, and if financial resources are provided.

In certain situations, such as the replacement of a temporarily absent teacher, temporarily increased workload or work on a project, the Law allows temporary employment without announcing a public call (Article 101b). This provision represents a flexible mechanism for ensuring the continuity of teaching.

Induction 

In accordance with the General Law on Education (hereafter: the Law), the phase of introducing teachers to the profession (induction), as defined in the previous text, exists in Montenegro and is implemented through the internship institute.

According to Article 102 of this Law, a teacher-trainee is a person who establishes a working relationship in an institution for the first time in order to be trained to perform tasks independently. This phase has a clearly defined duration: for teachers with level VII of the National Qualification Framework, the qualification lasts nine months, while for those with level IV it lasts six months. After the end of the internship, the trainee's employment relationship ends, which indicates that this phase is not a permanent employment, but a transitional period of professional training.

Induction is mandatory for all teachers entering employment for the first time, and is a structured part of their professional development. During this period, interns actively participate in educational work, i.e. perform teacher tasks with supervision, which is in accordance with the definition of induction as a phase in which new teachers partially or fully take over the responsibilities of experienced staff.

Article 103 prescribes that the internship is realized according to the established program of educational work, under the direct supervision of a mentor. A mentor is an authorized teacher who, as a rule, has more than three years of work experience and at least the same level of education as the trainee. The mentor is appointed by the director of the institution on the proposal of a professional active, which clearly defines the institutional framework of the organization of this phase.

The mentor's role is crucial and includes providing professional, but also broader support to the trainee during his training. However, the Law does not specify whether the mentor undergoes special training for this role or whether he is additionally financially compensated for performing mentoring tasks; these aspects are regulated by special regulations of the Ministry.

During the internship, the activities include practical work in classes, implementation of the educational work program and continuous cooperation with the mentor, which corresponds to elements such as professional guidance and learning through practice.

Professional status

In Montenegro, teachers are not civil servants with the status of permanent employment in the sense of a civil servants career, but they establish an employment relationship in accordance with the general labor legislation, that is, based on an employment contract, in accordance with the General Law on Education and the Labor Law.

In terms of types of contracts, there are permanent and fixed-term employment contracts in the system. A fixed-term contract can be concluded in special cases, such as replacement of a temporarily absent teacher, temporarily increased workload or work on a project (Article 101b). Also, a fixed-term contract can be transformed into an indefinite-term contract if the teacher meets the prescribed conditions and there is a corresponding standard of hours (Article 101d).

A teacher's job security depends on the type of contract. Teachers employed for an indefinite period of time have greater stability in their employment, while employment for a fixed period of time is limited in time and depends on the needs of the institution. Also, a teacher's employment may be terminated in cases prescribed by the law, including failure to fulfill professional obligations or serious violations of work duties (Article 111).

In order to practice the teaching profession, it is necessary to have a work license, which is a public document confirming the level of general and professional competences (Article 107a). The license is issued after passing a professional exam and is valid for five years, after which it is renewed through the relicensing process. A teacher who does not have a valid license cannot perform educational work.

The professional status of a teacher includes a certain degree of autonomy in work. Teachers have freedom in the organization of teaching, the choice of methods, forms of work and tasks, within the established educational program (Article 99).

Teachers are obliged to obey the professional code of conduct. Professional associations of teachers, which are established in accordance with the law, participate in the improvement of educational work and jointly adopt the Code of Ethics for teachers (Article 99b).

The law also envisages the mechanisms of professional responsibility and student protection. A teacher may be temporarily prohibited from teaching in case of initiation of proceedings for certain criminal offenses (Article 99a), while a teacher who has been legally convicted of criminal offenses against sexual freedom cannot perform educational work (Article 100).

Replacement measures

The temporary replacement of an absent teacher is regulated by the General Law on Education (hereafter: the Law), primarily through provisions related to temporary employment.

The Law (Article 101b) stipulates that a teacher can be employed without announcing a public call, for a period of up to 30 days, in the following cases:
- replacing a temporarily absent teacher,
- temporarily increased workload,
- working on the project.

If, after the announcement of the call, a candidate who meets the prescribed conditions does not apply, the teacher can remain engaged for a certain period of time until the end of the school year (Article 101b).

In addition, the Law stipulates that institutions, before announcing a call for employment for an indefinite period, are obliged to check the possibility of agreeing to take over a teacher from another public institution from the list of employees for an indefinite period determined by the Ministry (Article 101a). Although this provision primarily refers to the filling of positions for an indefinite period of time, it is part of a wider mechanism for managing teaching staff in the system.

The normative framework does not stipulate the obligation that existing teachers must replace an absent colleague through internal reassignment of classes. Instead, an institutional solution is envisaged through the temporary engagement of another person in accordance with the Law.

The Law does not provide for special measures for the immediate employment of persons without appropriate qualifications, but even in the case of temporary employment, the teacher must meet the prescribed conditions for working in an educational institution.

Support measures

Support measures for teachers are defined through the General Law on Education (hereafter: the Law), as well as through the system of continuous professional development implemented by competent institutions.

The Law stipulates that the Bureau for Educational Services (hereafter: the Bureau) has an advisory, developmental and professional role, including providing support to teachers in improving educational work, as well as organizing professional development and training. This support is achieved through cooperation with educational institutions, analysis of teaching practice and giving recommendations for improving the quality of teaching.

Additionally, the teacher support system in Montenegro relies significantly on continuous professional development (CPD), which includes various forms of professional development, such as seminars, workshops, trainings and programs organized by the Bureau and other accredited institutions. These programs allow teachers to improve their pedagogical, didactic and subject competencies throughout their career.

Support for teachers is also realized through advisory work and consultations, provided by advisers of the Bureau. This type of support is particularly important in situations where teachers face professional challenges, including working with students with different educational needs, managing a classroom or introducing innovative teaching approaches.

At the school level, the professional development of teachers is realized through internal forms of professional development, including the work of professional actives, team cooperation of teachers, exchange of good practices and participation in school development activities. Also, professional associates (pedagogues, psychologists) play an important role, providing immediate support to teachers in solving pedagogical and interpersonal challenges.

Although the Law sets a general framework, concrete support measures for teachers are elaborated in more detail through by-laws and strategic documents that regulate the field of professional training and professional development of teachers.

Salaries

Salaries of teachers in public institutions are regulated by the Branch Collective Agreement for Education, concluded between the Government of Montenegro and the representative education trade union. The salary system is based on collective bargaining at the level of the public sector, and not on individual contracts between the employee and the employer.

The basic salary is determined by applying coefficients that depend on the level of educational qualification, complexity and responsibility of the job, while specific amounts are determined through the calculation value of the coefficient in the public sector system. The salary system has the characteristics of a matrix model, because the amount of salary depends on a combination of factors such as the position, qualifications, length of service, acquired professional or scientific title and allowances for special working conditions.

The starting salary is determined according to the workplace and the corresponding coefficient, in accordance with the level of education and the complexity of the work. The previous work experience outside of education is not specifically defined as a criterion for a higher starting position, but the total length of service affects earnings through the bonus based on past work.

Earnings are increased during the career based on past work, namely by 0.5% for every year of service up to 10 years, 0.75% from 11 to 20 years and 1% for over 20 years of service. An additional increase is achieved based on the acquisition of higher professional titles (teacher-mentor, teacher-advisor, teacher-senior advisor and teacher-researcher), in accordance with the Rulebook on types of titles, conditions, method and procedure for proposing and awarding titles to teachers, as well as on the basis of the acquired scientific degree (master's/master's and doctor of science) and the performance of management functions in the institution.

In addition to the basic salary, the Branch Collective Agreement for Education provides earnings related to specific work duties and working conditions, including class leadership, work in inclusive teaching without an assistant, work in combined classes, work in multiple institutions, performance of multiple subjects, as well as fees for classes beyond the norm.

The contract also regulates non-monetary forms of support for employees, including collective insurance, jubilee awards, assistance in special life circumstances, solidarity fund and reimbursement of transportation costs in certain cases, as well as the right and obligation to professional training.

Working time and holidays

The teacher's working time does not refer only to the number of hours of direct teaching, but to the total working time that includes teaching, teaching preparation, assessment, administrative and professional duties, cooperation with parents and colleagues, as well as professional development. The General Law on Education (hereafter: the Law) also prescribes the obligation of teachers to participate in the work of professional bodies of the institution.

The standard duration of a lesson in schools is 45 minutes. The teaching norm depends on the level of education and the subject and is governed by special regulations. The Law also provides for a reduction in the teaching norm for trainee teachers and for teachers who have at least 35 years of experience in education, by two lessons a week, while retaining their full salary.

When it comes to holidays, the Branch Collective Agreement for Education stipulates that the institution provides an employee who has one year of service in a calendar year with annual vacation for the duration of 20 working days, increased based on the length of service, disability, state of health and certain social circumstances. This agreement also prescribes cases of paid leave in detail.

Promotion/advancement

The promotion of teachers is regulated by the General Law on Education (hereafter: the Law) and elaborated in detail by the Rulebook on types of titles, conditions, methods and procedures for proposing and awarding titles to teachers. The main form of professional advancement within the teaching profession is achieved through the acquisition of higher professional titles: teacher-mentor, teacher-advisor, teacher-senior advisor and teacher-researcher.

The awarding of the title is not automatic, but is based on the fulfillment of general and special conditions prescribed by the Rulebook. Promotion is based on work performance, results of work with students and other participants in education, continuous professional development and professional development, application of acquired knowledge in practice, as well as additional professional work and contribution to the educational process.

For each title, precise conditions are prescribed in terms of minimum work experience, previous title (for higher titles), as well as points achieved through accredited professional development programs and professional papers. For example, for the title of teacher-mentor, at least five years of work in the educational process, a certain number of points from professional development and evaluated professional works are prescribed, while for higher titles, stricter criteria are provided in terms of experience and professional results.

The promotion procedure is initiated at the level of the institution, and the final decision is made by the Commission for Awarding the Title appointed by the Minister for a period of four years, which ensures a centralized and formalized procedure. Based on the Commission's decision, a decision is issued to the teacher, with the possibility of initiating an administrative dispute before the competent court.

In addition to advancement through professional titles, other career development opportunities are available to teachers, including the performance of management functions in the institution (director, assistant director), engagement in professional institutions of the education system, as well as participation in the development of educational programs, projects and professional bodies at the national level.

Information related to teacher evaluation as part of the quality assurance system is not included in this chapter. For this information please refer to the sub-chapter 10.1 - Quality assurance in early childhood and school education.

Mobility and transfers

The mobility of teachers is regulated by the General Law on Education (hereafter: the Law), as well as by the relevant provisions of the Branch Collective Agreement for Education.

The transfer of teachers between public institutions is possible through mutual transfer, with the consent of the teacher and the agreement of the director of the institution, provided that the teacher meets the prescribed conditions for the position to which he is transferred (Article 109). This mechanism is applied especially when there is a need for staff in another institution.

The Law also foresees the possibility of assigning teachers to supplement the number of hours, i.e. in situations where the parent institution does not have the full teaching norm or the need for his work has ceased due to organizational changes, changes in the educational program or reduction in the number of students. In those cases, the teacher can be employed in another institution up to the full norm of hours, in accordance with the Law.

Mobility is also partially regulated through the personnel management system at the central level. Before announcing open positions for employment for an indefinite period, institutions are obliged to check the possibility of hiring teachers from the list of employees for an indefinite period established by the Ministry (Article 101a), which ensures the redistribution of existing human resources within the system.

A teacher who is transferred or assigned to another public institution retains the employment rights, including the rights arising from the Collective Agreement, in accordance with the regulations governing work in public institutions.

Dismissal

The termination of employment of teachers in Montenegro is regulated by general labor regulations, as well as special provisions of the General Law on Education (hereafter: the General Law).

In addition to the grounds provided by the Labor Law, the General Law prescribes special reasons for termination of employment in the field of education, such as: the failure to implement educational programs in accordance with established standards, abuse of position, failure to fulfill professional obligations (including non-participation in the work of professional bodies of the institution), violence, insulting or abusing students, causing national or religious intolerance, organizing students for political or religious purposes, as well as illegally providing private lessons to students from one's own school (Article 111).

In particularly serious cases, especially when it comes to legally established criminal acts against sexual freedom, the teacher is permanently prohibited from performing educational work (Article 100).

The General Law also provides for the possibility of temporary removal from work (suspension) in situations where criminal proceedings have been initiated against the teacher for certain acts or proceedings regarding sexual harassment, until the proceedings are completed (Article 99a).

The notice period, duration and other procedural issues related to the termination of the employment relationship are regulated by the Labor Law and depend on the type of employment contract and the length of service of the employee.

Retirement and pensions

The conditions for the retirement of teachers in Montenegro are not specifically regulated by regulations in the field of education, but general regulations on pension and disability insurance are applied to them. Teachers exercise the right to retirement or early retirement under general legal conditions regarding years of life and length of insurance. In the case of early retirement, the general rules on pension reduction apply. In the submitted educational regulations, there are no specific professional differences between men and women regarding the retirement of teachers.

References

General Law on Education (Opšti zakon o obrazovanju i vaspitanju), "Official Gazette of Montenegro", No. 12/26 of 06/02/26.

Labor Law (Zakon o radu), "Official Gazette of Montenegro", No. 165/25 of 31/12/25. 

Branch Collective Agreement for Education (Granski kolektivni ugovor za oblast prosvjete), "Official Gazette of Montenegro", No. 140/25 od 01/12/2025. 

Rulebook on types of titles, conditions, methods and procedures for proposing and awarding titles to teachers (Pravilnik o vrstama zvanja, uslovima, načinu i postupku predlaganja i dodjeljivanja zvanja nastavnicima), "Official Gazette of Montenegro", No. 084/20 od 12/08/2020.

Rulebook on the method of scoring criteria for the employment of teachers (Pravilnik o načinu bodovanja kriterijuma za zapošljavanje nastavnika), Ministry of Education, Science and Innovation, "Official Gazette of Montenegro", No. 37/2026 of 17/3/2026.