The Network for European Policies – MASTER has published a policy paper titled “Who Appoints School Principals?”, with the support of BIRN (Balkan Investigative Reporting Network) and the Civic Alliance, as part of research on transparency, accountability, and governance in Montenegro’s education system. The document analyzes the system for appointing directors of educational institutions in Montenegro, with a focus on its alignment with the principles of transparency, professionalism, and meritocracy.
The research was conducted during February and March 2026 and aimed to provide a comprehensive insight into the formal procedures for appointing school principals, as well as how these procedures are applied in practice. The document is based on a combination of qualitative and quantitative methods, including a desk analysis of the existing normative and institutional framework, a comparative analysis of European models, and a survey conducted on a sample of 440 respondents, predominantly employees in the education sector.
The findings indicate a significant gap between formally established procedures and their implementation in practice. Although the law предусматриes public calls, competency assessments, and the involvement of multiple stakeholders in the decision-making process, the results show that these procedures are often perceived as a formality, with outcomes known in advance.
A particularly strong perception of political influence in the appointment process is evident. A large majority of respondents believe that political factors play a key role in decision-making, which calls into question the principles of meritocracy and professional advancement. At the same time, a considerable number of respondents point to the lack of clear and consistently applied criteria, as well as the limited availability of explanations for decisions, further reinforcing perceptions of a lack of transparency.
The research also highlights a low level of trust in the fairness of employment in the education sector, as well as a sense of pressure among employees to demonstrate political loyalty in order to retain their jobs or advance professionally.
The practice of frequent changes in leadership and the appointment of acting principals further undermines the stability of educational institutions and the continuity of their development.
Additional insight into the functioning of the system is provided by the analysis of events from 2021, when mass dismissals of principals were carried out across a large number of educational institutions. These decisions resulted in a significant number of court proceedings, most of which were resolved in favor of the dismissed principals, with financial consequences for the state budget, further highlighting the weaknesses of the current system.
A comparative analysis of models from Slovenia and Finland shows that successful systems for appointing principals are based on clearly defined professional standards, transparent procedures, and the involvement of a broader range of stakeholders in the decision-making process, with limited scope for discretionary decision-making.
Based on the analysis, the document proposes improvements to the system through more precise normative regulation and the strengthening of institutional mechanisms. Key recommendations include improving the implementation of the competency framework, introducing transparent scoring and public ranking of candidates, strengthening the role of independent expert commissions, increasing the transparency of procedures, and enhancing oversight and legal protection mechanisms.
The method of appointing school principals goes beyond an administrative issue and directly affects the quality of the educational process, the professional environment within institutions, and public trust in institutions.
Improving this system represents an important step toward building an education system based on the principles of accountability, equal opportunities, and professional standards.