Montenegro’s Preschools Overwhelmed, Groups Exceed Legal Limits

Preschool facilities in Montenegro are facing significant overcrowding, with groups nearly doubling the legal limits set by the country’s laws. In the 2025/26 academic year, a total of 26,786 children enrolled in both public and private preschools across Montenegro, marking an increase of 3.3 percent from the previous year. Public institutions serve 94.8 percent of these children, according to data from the Statistics Agency of Montenegro (Monstat).

The legal framework governing preschool education stipulates maximum group sizes based on age. For instance, only a maximum of eight children are permitted in groups for children under one year, 12 for ages one to two, 14 for ages two to three, 20 for ages three to four, and 24 for four to five-year-olds. The oldest age group (five to six years) can have no more than 25 children, while mixed-age groups should not exceed 20 children.

Overcrowding in Specific Regions

Despite these regulations, the average number of children per group across the country stands at 30.9. In certain municipalities, this figure is alarmingly higher. Zeta has the highest average with 45.3 children per group, followed by Tuzi at 39.4. Other areas showing high averages include Plav at 38.7, Danilovgrad at 38.3, and Gusinje at 36.8. The capital, Podgorica, has an average of 36.4 children per preschool group, while Herceg Novi and Budva report averages of 35.1 and 33.8, respectively.

In contrast, compliance with legal standards is more consistent in municipalities like Šavnik, where the average is only 3.5 children per group. Other areas maintaining adherence include Andrijevica at 12.5, Plužine at 18, and Bijelo Polje at 21.5.

Staffing Challenges and Gender Distribution

Public preschools in Montenegro employ a total of 3,678 staff, including 1,602 educators. The average ratio of children to teachers stands at 15.7 children per educator. In Zeta, one educator is responsible for an overwhelming average of 27.2 children, with Tivat following at 20.3 and Budva at 19.8.

The gender distribution among preschoolers shows that girls make up 47.7 percent (12,776) of the total enrollment, while boys account for 52.3 percent (14,010). Podgorica reflects this national trend, with 4,997 boys and 4,475 girls registered. Notably, Nikšić has a significant gender imbalance favoring boys, with 1,287 boys compared to 1,137 girls.

In the private sector, 33 private preschools operate across the country, employing 250 staff and accommodating 1,389 children. Although the average group size in these institutions is lower at 13.8, some private facilities still report overcrowding, with 26.5 children in groups in Bar and 24.8 in Kotor.

The situation highlights a pressing need for reforms in Montenegro’s preschool system to balance enrollment with legal standards and ensure adequate staffing for the growing number of children in early education. As the government seeks solutions, the implications for children’s development and educational outcomes remain a significant concern.