by Ognjen Markovic, Team Leader of the RCC’s Western Balkans Youth Lab project
I was 13 years old when the first person from my close-knit circle of family announced she was leaving Montenegro. Back then I was not yet aware that it was the beginning of a ‘trend’ and that over the next few years I would keep witnessing more and more people I know leaving our homeland to find a living in the EU.
Reading that 71% of young people from the Western Balkans would consider working and living abroad, I was struck by a bittersweet feeling. To me, and to many citizens of the Western Balkans, the percentage is not just a number, because hidden behind it are the names of family members and loved ones who we will get to see only two or three times a year when they return home for the holidays.
On the other hand, the attractiveness of the EU is understandable. Beyond the promises of a higher pay, greater sense of stability and security and other socio-economic indicators, the EU offers mobility that most young people crave for. And while highways, fast trains and flight connections may sound banal, to a person who has entered adulthood only recently, they provide endless possibilities and new and exciting experiences.
For those who enjoy spending their time in nature, the EU commitment to the Green Deal and sustainable tourism provides clean air, water and easy access to well-marked hiking trails. Capitals of EU Member States have the infrastructural capacity to attract world-renowned musicians, film and art festivals. For the ambitious and career-oriented individuals, open labour market provides a broad range of opportunities, not least grounded in the process of recognition of academic and professional qualifications.
I have a deep admiration for the European Union as such, especially since I had the opportunity to experience it first hand during my study exchanges in Slovenia, Poland and Italy. It was then that I came to fully understand the benefits of cross-border initiatives that bring young people together.
It was particularly impressive that, along with the diversity of our backgrounds and interests, we could easily agree on the changes we wanted to see in the world around us. And it did not matter if students came from the Western Balkans or the EU, because we shared the same values and principles: freedom, democracy, equal opportunities. Most of all, we agreed that our voices should be heard.
I took this lesson with me as I returned to Montenegro.
Though I enjoyed and valued my time in the EU tremendously, still coming home felt right. When saying ‘coming home’, I do not mean only Montenegro but the entire region of the Western Balkans.
Namely, there is another aspect of my life through which I had the immense pleasure of developing a deep connection to our region. From a young age, I was a member of a folklore ensemble, which had taken me across the Western Balkans to numerous competitions and festivals. We would travel very often to small cities and rural areas in the region, eager to represent our culture, but even more enthusiastic to learn about the others. It is through that experience that I heard Albanian music for the first time, and loved it ever since; I revelled in Macedonian national dishes, which I still praise to everyone I meet; in Serbia I learned about hospitality and untouched sceneries, while in Bosnia and Herzegovina I discovered ceif and merak.
Everywhere I went I met brilliant people my age and I have been cherishing those friendships to this day. This made me sure that what we have in common is much more significant than what tells us apart.
From my student exchanges in Slovenia, Poland and Italy, I returned with a thought: “Where the EU has benefits, the Western Balkans has potential.”
Thus, when the opportunity to join Regional Cooperation Council’s Western Balkans Youth Lab project presented itself in 2020, I eagerly packed my bags and moved to Sarajevo, ready to assist the implementation of everything I believed in: giving young people of the Western Balkans a platform that makes their voices heard, and even more so, that involves them in the meaningful way in the decision-making processes, contributing to the fulfilment of the regional potential.
Now, in the winter of 2024, with the first phase of the project behind us, I can confidently say that it was a right decision to make.
Together with young people from across the region, we enacted real and substantial changes. From amending laws on youth employment tailored as per youth needs to creating national strategies on youth mental health, new generations in the Western Balkans can look forward to better conditions and a brighter future. Most importantly, they can find inspiration and motivation in the fact that the change comes from us – for us, as long as we stay committed to the joint perspective that we all share.
The fact that we made only the first steps on the long road that waits ahead is not discouraging. I am proud and honoured to work with incredible young people, and I do not doubt even for a second that they have what it takes to eventually turn the tides on the emigration waves, to transform the potential into benefits, and to lead the way to the family of EU Member States, where the Western Balkans rightly belongs.
* This publication was funded by the European Union. Its contents are the sole responsibility of the Center for Democracy Foundation and do not necessarily reflect the views of the European Union.
This research on the youth policies and policy-making processes in the Western Balkans has been conducted as part of the regional project entitled Regional Youth Dialogue for Europe – RYDE. The project is financed by the European Union. The goal of the project is to contribute to strengthening the participatory democracy of European integration and regional cooperation in the Western Balkans by increasing the influence of civil society organisations (CSOs), youth organisations in particular, in promoting democratic values and the political, economic and social benefits of the European integration of the Western Balkans. The publication was presented on 31st of January 2024.
The aim of the research is to increase overall awareness by collecting relevant data concerning youth policies and social investment in the Western Balkans. The research provides an analysis of the current viewpoints held by both youth organisations and youths themselves, regarding youth policies in this region. The research covers six economies: Albania, Bosnia and Hercegovina, Kosovo*, Montenegro, North Macedonia and Serbia.
The research team consisted of paired senior and junior experts from all of the covered economies, with the exception of Montenegro (which was covered by a researcher from Serbia).
The focus of the research was to collect data on the attitudes toward existing youth policies, approaches to improving youth policies at local/national/ regional levels and the priorities of vulnerable youth groups in respective policies. Both youth CSOs and young people (civic and political activists, policy-makers, journalists, scholars, etc.) participated in the research.
Following this, two complementary surveys were conducted concurrently in all economies – one focusing on youth organisations through interviews, and the other on a broader spectrum of stakeholders, through an online survey. From August – October 2023, a total of 151 interviews with CSO representatives were conducted in the Western Balkans economies. The interviews were followed by an online survey conducted throughout October and November 2023. The survey included 1,366 youth individuals in these economies. Both surveys aimed to assess the state of youth policies, their effectiveness, and the perspectives of those engaged in youth-related activities. (…)
The Research has been conducted as part of the Regional Youth Dialogue for Europe Project (RYDE) funded by the European Union. Regional Youth Dialogue for Europe Project (RYDE) aims to contribute to the overall knowledge via collection of relevant data on youth policies in the Western Balkans, while focusing on youth related issues including inclusiveness and transparency of the public policy process.
The Project is implemented by Center for Democracy Foundation (Belgrade) in cooperation with partners: Academy of European Integrations and Negotiations (Tirana), Kosovar Stability Initiative (Pristina), Network of Progressive Initiatives (Sarajevo), NGO Info Center (Skopje), Regional Academy for Democratic Development (Novi Sad) and Youth Act Center (Tirana).
The Research includes the views of CSOs and young individuals – political activists, journalists, scholars and others interested parties in the youth-related policy making process.
The researchers will display the findings based on reported experiences, attitudes, capacities and challenges of youth-oriented civil society organisations and young individuals in the policy making process from the Western Balkan Region – Albania, Bosnia and Hercegovina, Kosovo*, Montenegro, North Macedonia and Serbia.
The event will gather the representatives of civil society organisations, state institutions, international organisations, independent institution, young individuals and other interested parties.
The Research has been conducted as part of the Regional Youth Dialogue for Europe Project (RYDE) funded by the European Union. Regional Youth Dialogue for Europe Project (RYDE) aims to contribute to the overall knowledge via collection of relevant data on youth policies in the Western Balkans, while focusing on youth related issues including inclusiveness and transparency of the public policy process.
The Project is implemented by Center for Democracy Foundation (Belgrade) in cooperation with partners: Academy of European Integrations and Negotiations (Tirana), Kosovar Stability Initiative (Pristina), Network of Progressive Initiatives (Sarajevo), NGO Info Center (Skopje), Regional Academy for Democratic Development (Novi Sad) and Youth Act Center (Tirana).
EU dijalog sa mladima (The EU Youth Dialogue – EUYD), prethodno Strukturirani dijalog, predstavlja mehanizam usvojen na nivou Evropske unije, čija je svrha rešavanje potreba mladih i problema sa kojima se oni susreću. Kroz ovaj dijalog, donosioci odluka stiču uvid u potrebe i zahteve mladih, što im omogućava da donose informisane odluke koje su u njihovom najboljem interesu. Ukratko, EUYD obezbeđuje platformu preko koje mladi učestvuju u procesima usvajanja politika i imaju priliku da se njihov glas čuje.
U skladu sa EU strategijom za mlade 2019-2027, EUYD podržava njenu implementaciju i podstiče saradnju zemalja EU u vezi sa pitanjima važnim za mladu populaciju, sa glavnim fokusom na tri oblasti – povezivanje, angažovanje i osnaživanje. Svaki ciklus dijaloga traje 18 meseci i posvećen je jednoj temi koja se odnosi na neki od 11 Ciljeva za mlade. Trojno predsedništvo upravlja implementacijom EUYD u bliskoj saradnji sa Evropskom komisijom, Nacionalnim agencijama, Evropskim omladinskim forumom i drugim nevladinim omladinskim organizacijama, pod okriljem grupe za koordinaciju. Tokom čitavog ciklusa, mišljenja mladih se prikupljaju na svim nivoima i kroz različite vidove konsultacija kao što su EU konferencije mladih, evropske ankete, nacionalni događaji, različiti projekti i lokalni događaji.
EU konferencija mladih je najvažniji događaj i organizuje se dva puta godišnje u zemlji koja predsedava Evropskom unijom. Tokom konferencija, mladi, donosioci odluka ali i stručnjaci, istraživači i predstavnici civilnog društva rade zajedno, objedinjuju rezultate aktivnosti EUYD i formulišu zajedničke poruke za EU. Savet EU može da usvoji dokument politike na osnovu ovih izlaznih informacija, usmeren na unapređenje položaja mladih u Evropskoj uniji.
Deseti ciklus dijaloga pod nazivom „We Need Youth“ (Potrebni su nam mladi) traje od 1. jula 2023. do 31. decembra 2024. godine, pod predsedništvom Španije, Belgije i Mađarske. Fokus ovog ciklusa je stavljen na implementaciju Cilja za mlade broj 3 „Inkluzivna društva“ i ima za cilj angažovanje mladih, podsticanje inkluzivnosti i slavljenje uspeha ostvarenih u okviru dijaloga.
Omladinska laboratorija Zapadnog Balkana: Utiranje puta inkluzivnom donošenju odluka
Na žalost, mladi i kreatori politika iz zemalja sa statusom kandidata za članstvo u EU su isključeni iz ovog procesa. Kako bi se premostio taj jaz, Regionalni savet za saradnju je pokrenuo Omladinsku laboratoriju Zapadnog Balkana (Western Balkans Youth Lab – WBYL), projekat koji finansira Evropska unija, a čija je svrha da se stvore prilike za učešće mladih u donošenju odluka u zemljama Zapadnog Balkana (WB).
WBYL se zasniva na metodologiji EUYD i nastoji da otvori dugoročni, strukturirani regionalni dijalog između omladinskih organizacija i nacionalnih organa uprave, usmeren na zajedničko razvijanje politika kojima se jača učešće mladih u donošenju odluka, uključuju pitanja mladih u same politike i unapređuje sveukupno društveno i ekonomsko okruženje i mobilnost mladih u zemljama Zapadnog Balkana.
Od 2020. godine, sprovedene su dve Omladinske laboratorije. Prva je bila posvećena nezaposlenosti mladih, a druga mentalnom zdravlju mladih. Na samom početku, mladi i kreatori politika iz zemalja Zapadnog Balkana, uključujući Srbiju, prošli su kroz obuku o metodologiji i modelu, nakon čega je usledilo formiranje regionalnog i nacionalnog stručnog tela. Stručnjaci su imali priliku da se sastaju putem online i offline sastanaka, kao i srednjoročnih i završnih konferencija, kako bi zajednički osmislili programe i politike relevantne za mlade.
StrukturiranjeEU dijaloga sa mladima u Srbiji
Tokom poslednje četiri godine, Srbija je nesumnjivo bila lider u implementaciji EUYD van granica EU, i kao takva, treba da služi kao ključna tačka za region (i druge zemlje sa statusom kandidata), pružajući vrstan uvid u to kako se različiti aspekti mehanizama mogu implemetirati u zemljama kandidatima.
Dva programa koja vodi Krovna organizacija mladih Srbije (KOMS), kako na nacionalnom tako i na lokalnim nivoima, zasnovana su na EUYD metodologiji. Na nacionalnom nivou, od 2019. godine, KOMS je vodila dijaloge sa mladima i ključnim donosiocima odluka, poput Dijaloga mladih sa premijerom/kom, (bivšim) ministrom za omladinu i sport i drugim akterima kao što je Poverenik za zaštitu ravnopravnosti. Ovi dijalozi stvaraju prilike za mlade ljude da istaknu izazove sa kojima se suočavaju u Srbiji i predlože konkretne mere, zasnovane na dokazima, za njihovo rešavanje. Na lokalnom nivou, KOMS sprovodi program pod nazivom „Odlučionice“. Program povezuje predstavnike jedinica lokalne samouprave (opštine i gradovi), studentske parlamente i organizacije civilnog društva, koji prolaze zajedničku obuku i uče o omladinskim politikama, aktivizmu i učešću mladih u lokalnim zajednicama. Nakon obuke, oni postaju deo mreže lokalnih koordinatora dijaloga sa mladima i rade na unapređenju saradnje između mlade populacije i donosioca odluka. Lokalni koordinatori počinju zajednički rad implementacijom inicijative zajednice koja je kreirana kroz program.
Za potrebe dalje standardizacije implementacije u Srbiji, 2021. godine je osnovan Stalni stručni tim za EUYD. Tim je formiran prema modelu nacionalnih radnih grupa za implementaciju EUYD, osnovanih u zemljama članicama EU za koordinaciju omladinskih politika i standardizovanih praksi za uključivanje mladih u procese donošenja odluka. U stalni stručni tim su uključeni predstavnici Ministarstva turizma i omladine, Ministarstva za evropske integracije, Nacionalne asocijacije praktičara/ki omladinskog rada, Fondacije Tempus i KOMS-a. Koordinaciona međusektorska grupa, koja postoji samo u zemljama članicama EU, predstavlja ujedno važan korak i potencijal za mlade i njihovu aktivnu participaciju. Institucionalizacija grupe u okviru Saveta za mlade Vlade Republike Srbije, kao savetodavnog tela, osigurava da se preporuke mladih postavljaju kao ključni elementi za razvoj omladinskih i drugih relevantnih politika.
Implementacija dijaloga u Srbiji – Hvatanje u koštac sa izazovima
EUYD podrazumeva aktivno učešće u procesima donošenja odluka i zasniva se na principu zajedničkog upravljanja. To znači da mladi ljudi i donosioci odluka diskutuju o temama relevantnim za mlade na strukturiran način i dogovaraju se o mogućim rešenjima. Ova vrsta dijaloga često nedostaje u lokalnim zajednicama a postojeći mehanizmi (ako uopšte postoje) često se ne koriste u praksi, te samim tim, ne ispunjavaju svoju svrhu. Podaci o lokalnim omladinskim politikama koje je objavila KOMS 2021. godine, ukazuje na činjenicu da 54,5% lokalnih saveta za mlade, kao instrumenata lokalnih omladinskih politika, niti su funkcionalni niti inkluzivni u velikoj većini jedinica lokalne samouprave. Ako pogledamo druge parametre, možemo da zaključimo da lokalni donosioci odluka često ne daju prioritet izazovima sa kojima se suočavaju mladi i ne pridaju im dovoljno pažnje u procesu kreiranja javnih politika.
Dijalozi mladih na lokalnom i nacionalnom nivou u Srbiji se isključivo finansiraju na osnovu projekata preko KOMS-a, a za sredstva je potrebno da se podnosi zahtev svake godine. Ovakva praksa ne garantuje njihovu implementaciju u budućnosti, što može biti izuzetno štetno za kvalitet informacija koje EUYD prikuplja, ali i za prostor za civilno društvo i kulturu dijaloga u Srbiji. Dijalozi su u prošlosti pružili konkretne rezultate, među kojima je program „Mоја prva plata“, odluka da se ne obustavi rad studentskih poliklinika u Srbiji, kao i nekoliko drugih dostignuća u procesu usvajanja nove Nacionalne strategije za mlade. Međutim, praćenje koraka na koje se donosioci odluka odluče nakon dijaloga, ostaje problematično.
Planiranje daljeg puta: Budućnost EU dijaloga sa mladima (u Srbiji)
Tokom prve konferencije desetog ciklusa, najavljena je ocena mehanizma. Ovu vest su toplo pozdravili, posebno mladi delegati, jer je praćenje rezultata procesa uobičajeno na svim nivoima implementacije. Delegati su sami oformili radnu grupu koja će raditi na povećanju transparentnosti procesa donošenja odluka koje se tiču mladih na nivou EU.
Jedan od ključnih izazova u implementaciji EUYD mehanizma u Srbiji je već pomenuti nedostatak integracije zemalja kandidata. Naime, članovi Stalnog stručnog tima su retko dobijali pozive za učešće u ciklusima EU dijaloga sa mladima na nivou EU, uključujući i pomenute EU konferencije mladih. Ipak, omladinski predstavnici Stalnog stručnog tima pozvani su da učestvuju na drugoj EU konferenciji mladih 2023. godine u Alikanteu, Španiji, što predstavlja značajan korak napred.
Sam EUYD čeka dug put daljeg unapređenja. Gledano iz perspektive Srbije i svih drugih zemalja kandidata, ovaj proces mora da uključi sve nas i na svim nivoima implementacije. Na ovaj način se jačaju kapaciteti mladih za zagovaranje, ali se i pripremaju predstavnici donosilaca odluka za odgovornosti koje će preuzeti kao buduće članice EU.
Autorka: Anja Jokić, master politikološkinja i omladinska aktivistkinja
Koautorka: Maša Vračar, diplomirana politikološkinja za međunarodne odnose i omladinska aktivistkinja
* Izrada ove publikacije finansirana je od strane Evropske unije. Njen sadržaj je isključiva odgovornost Fondacije Centar za demokratiju i ne odražava nužno stavove Evropske unije.
Over the last few years, the youth unemployment rate has continuously decreased in all WB economies. However, it varies from economy to economy and remains higher compared to EU member states. The highest youth unemployment rate is in North Macedonia, at 34.9%, while the lowest is in Kosovo* – 21.4%. According to Eurostat datafrom November 2023, youth unemployment in the EU stands at 14.5%. A decade ago, this rate was roughly 24%. How did youth unemployment decrease by approximately 10% over the past 10 years in the EU despite the COVID-19 pandemic, the war in Ukraine, and other crises affecting the European labour market?
Throughout 2013, the Youth Guarantee programme was initiated by the European Commission and was adopted by the European Council in the same year. The Youth Guarantee is the political commitment of all EU member states to provide all young people aged 15 to 29 with an offer of employment, an apprenticeship, internship, volunteering, or further education within four months of completing formal education or losing employment. The Youth Guarantee is a commitment of all relevant sectors in the country, including the executive authorities, employment agencies, civil society organisations, and the business sector, i.e. employers. The main goal of the programme is the inclusion of NEET youth, that is, those not in employment, education, or training.
With the Economic and Investment Plan for the Western Balkans published by the European Commission in October 2020, the Youth Guarantee programme became an obligation for Western Balkan economies aspiring to EU membership. They committed to implementing this programme, as stated in the Western Balkans Declaration on the Sustainable Integration of Youth into the Labour Market, adopted at the Second Ministerial Meeting of the European Union – Western Balkans held on 8 July 2021, in Slovenia. Western Balkan economies are at different stages of implementing the Youth Guarantee programme. North Macedonia, which initiated the programme in 2018, is the most successful regional example. Implementation plans for the Youth Guarantee have been adopted in Serbia, Kosovo*, and Albania, while Montenegro and Bosnia and Herzegovina are still awaiting adoption.
As mentioned earlier, North Macedonia is the most successful country in the region in implementing the Youth Guarantee. From 2017 to 2019, youth unemployment decreased by nearly 9%. The new Implementation Plan for the Youth Guarantee for the period 2023-2026 was adopted by the Government of North Macedonia in March 2023. North Macedonia has set a target of 30%, meaning it considers the Youth Guarantee successful if a minimum of 30% of young people who go through the programme find employment, apprenticeships, volunteering, or further education and training within a four-month period. Out of 19,322 young people who participated in the Youth Guarantee programme in 2021, 41% were granted opportunities for employment, volunteering, or further education. In 2022, over 20,000 youths participated in the programme, and 43% were successful in securing employment or opportunities for training once they had completed the programme. Therefore, North Macedonia is considered exceptionally successful in implementing this programme, having achieved and exceeded the set goal of 30%.
Despite the successful integration of a large number of programme participants into the labour market, the implementation of the Youth Guarantee also contributes to strengthening institutions. The Ministry of Labour and Social Policy is the main driver of the implementation process, and a Coordination Council for the Youth Guarantee has been established to oversee the programme’s implementation. However, the youth unemployment rate in North Macedonia in 2022 stood at 34.9%, which is still nearly double the EU average, standing at 14.5%, and remains the highest youth unemployment rate in the entire region. The European Commission Progress Report on North Macedonia for 2023, states that active labour market measures and the Youth Guarantee programme are currently inadequately monitored, evaluated, and assessed. A key challenge of programme implementation is the limited financial resources the Government of North Macedonia is unable to secure.
The Youth Guarantee in Serbia has been recognised in the new National Employment Strategy for the period 2021-2026 and the Youth Strategy adopted in January 2023. The youth unemployment rate in Serbia for the year 2022 stood at 24.9%, while the unemployment rate for so-called NEET youth – those not employed, not in the educational system, nor in training – stood at roughly 15%. In late December 2023, the Government of the Republic of Serbia adopted the Implementation Plan for the Youth Guarantee. The pilot programme will be conducted in three branches of the National Employment Service – in Kruševac, Sremska Mitrovica, and Niš – from January 2024 to the end of 2026. The aim is to expand the programme across the entire territory of the Republic of Serbia. During the EU Opportunities Week in 2023, the Republic of Serbia and the European Union signed a financial assistance agreement amounting to EUR 5.5 million, directed towards the implementation of the Youth Guarantee. This funding is specifically for piloting the programme in the mentioned three branches. Institutions in Serbia emphasise that there are currently insufficient capacities for the implementation of this programme throughout the entire country, but full implementation of the programme at the national level is one of the main priorities of the Operational Programme within IPA III 2023-2027. The programme is led by the Ministry of Labour, Employment, Veterans, and Social Affairs of the Government of the Republic of Serbia, which has established a Coordination Body to develop and monitor the implementation plan for the Youth Guarantee. They have also formed an Expert Group to carry out preparatory activities.
Kosovo* is still in the early preparatory phase regarding negotiating Chapter 19, which pertains to social policy and employment. However, the European Commission Progress Report on Kosovo* for 2023 notes that some progress has been made in preparing for the implementation of the Youth Guarantee, following the Implementation Plan adopted in November 2022. The report emphasises the need to continue with the Implementation Plan and creating conditions for piloting the programme in two municipalities – Mitrovica and Uroševac. The youth unemployment rate in Kosovo* saw a remarkable decrease of 16.6% in 2022. In 2021, the rate was 38%, dropping to 21.4% in 2022. The Employment Agency of Kosovo* is undergoing restructuring to enable the implementation of the programme. However, the European Commission’s report highlights the significant challenge of a lack of human resources in public employment services and an outdated information system.
According to the European Commission Progress Report on Albania for 2023, preparations for the implementation of the Youth Guarantee programme have progressed. It is deemed necessary to commence piloting the programme to enable its implementation across the entire country. Albania has adopted the Implementation Plan for the Youth Guarantee as an annex to the new National Youth Strategy for the period 2023-2030. The overall process is led by the Ministry of Finance and Economy of the Republic of Albania. The youth unemployment rate for 2022 stood at 27.8%, while the unemployment rate for so-called NEET (Not in Education, Employment, or Training) youth stood at 23.4%.
Montenegro and Bosnia and Herzegovina are the only countries in the region that have not yet adopted the Youth Guarantee Implementation Plan. The youth unemployment rate in Montenegro stood at 28.3% in May 2023. According to the Progress Report for Montenegro in 2023, the European Commission recommends strengthening the Employment Agency and preparing for the implementation of the Youth Guarantee. A Working Group for the Youth Guarantee programme has been formed to enhance the draft Implementation Plan, collaborating with experts from the International Labour Organisation.
Bosnia and Herzegovina is ranked last in the region relative to implementation of the Youth Guarantee programme. The Progress Report of the European Commission on Bosnia and Herzegovina for 2023, highlights that limited progress has been made regarding the finalisation and adoption of the Youth Guarantee Implementation Plan. In October 2023, the Employment Strategy in the Federation of Bosnia and Herzegovina for the period 2023-2030 was finally adopted, recognising the Youth Guarantee as a completely new youth employment model. The lengthy process of its adoption represented a major obstacle to the Youth Guarantee programme in Bosnia and Herzegovina. The programme’s pilot phase has already begun, with two smaller municipalities, Visoko and Čitluk, chosen for the pilot. After the pilot phase, expansion across the entire territory of Bosnia and Herzegovina is expected. At the national level, the Ministry of Civil Affairs of Bosnia and Herzegovina is responsible for the implementation process, while the Federal Ministry of Labour and Social Policy is in charge of implementing the programme in the Federation of Bosnia and Herzegovina. Information about the Youth Guarantee in the Republika Srpska entity is not available on the internet, nor is it mentioned in the annual reports of the European Commission. The youth unemployment rate in Bosnia and Herzegovina is the highest in the entire region, reaching 33.47% for the year 2022.
The key to the successful implementation of the Youth Guarantee programme lies in the intensive collaboration of all sectors in the country—from the governments responsible for providing financial resources for implementation to employers and civil society organisations. Once the Employment Strategy is adopted in the Federation of Bosnia and Herzegovina, it is expected that Bosnia and Herzegovina will adopt the Implementation Plan in the coming period. We hope that this will be followed by Montenegro, allowing all economies in the region to implement this ambitious programme for young people across their territories in the coming years. However, strong political will from all governments in the region will be essential for this, as only they can secure financial support for successful implementation.
Author: Nemanja Ivanović, Youth Activist and Member of the Governing Board of the Social Democratic Party
* This publication was funded by the European Union. Its contents are the sole responsibility of the Center for Democracy Foundation and do not necessarily reflect the views of the European Union.
Poslednjih nekoliko godina smanjuje se stopa nezaposlenoosti mladih u zemljama Zapadnog Balkana, ali varira od zemlje do zemlje i još uvek je veća u odnosu na zemlje članice Evropske unije. Najveća stopa nezaposlenosti mladih je u Severnoj Makedoniji i iznosi 34,9%, dok je najniža na Kosovu* – 21,4%. Prema podacima Eurostata iz novembra 2023. godine, nezaposlenost mladih na nivou EU iznosi 14,5%. Pre 10 godina, ta stopa bila je oko 24%. Kako je došlo do smanjenja nezaposlenost mladih za oko 10% u proteklih 10 godina na nivou EU i pored izbijanja pandemije COVID-19, rata u Ukrajini i drugih kriza koje su ostavile posledice na evropsko tržište rada?
Tokom 2013. godine iniciran je program Garancija za mlade od strane Evropske komisije, a iste godine usvojio ga je i Evropski savet. Garancija za mlade je politička obaveza svih zemalja članica EU da svim mladim osobama od 15 do 29 godina obezbede ponudu za posao, pripravnički staž, volontiranje ili mogućnosti daljeg školovanja i to u roku od četiri meseca nakon završetka formalnog obrazovanja ili gubitka zaposlenja. Garancija za mlade je obaveza svih relevantnih sektora u zemlji – izvršne vlasti i zavoda za zapošljavanje, organizacija civilnog društva i biznis sektora, odnosno poslodavaca. Glavni cilj Programa je inkluzija NEET mladih, odnosno onih koji nisu zaposleni, nisu u sistemu obrazovanja, niti su na obuci.
Ekonomsko-investicionim planom za Zapadni Balkan objavljenim od strane Evropske komisije u oktobru 2020. godine, program Garancija za mlade postao je obaveza i za zemlje Zapadnog Balkana koje su kandidati za članstvo u EU. Obavezale su se na sprovođenje ovog Programa i na Drugom ministarskom sastanku Evropska unija – Zapadni Balkan, održanom 8. jula 2021. godine u Sloveniji, usvajanjem Deklaracije Zapadnog Balkana o održivoj integraciji mladih na tržište rada. Zemlje Zapadnog Balkana nalaze se u različitim fazama implementacije programa Garancija za mlade. Severna Makedonija, koja je još 2018. godine započela uvođenje ovog programa, predstavlja najuspešniji primer u regionu. Planovi implementacije Garancije za mlade usvojeni su u Srbiji, Kosovu* i Albaniji, dok Crna Gora i Bosna i Hercegovina još uvek čekaju na usvajanje.
Kao što je već pomenuto, Severna Makedonija je najuspešnija zemlja u regionu kada je reč o implementaciji Garancije za mlade. U periodu od 2017. do 2019. godine nezaposlenost mladih smanjena je za oko 9%. Novi Plan za sprovođenje Garancije za mlade za period 2023-2026 Vlada Severne Makedonije usvojila je u martu 2023. godine. Severna Makedonija je postavila cilj od 30%, odnosno da se Garancija za mlade smatra uspešnom ako minimum 30% mladih koji prođu kroz Program dobiju zaposlenje, pripravnički staž, volontiranje ili mogućnost daljeg školovanja i usavršavanja u roku od 4 meseca. Od 19.322 mladih koji su tokom 2021. učestvovali u programu Garancija za mlade, 41% njih dobilo je priliku za zaposlednje, volontiranje ili usavršavanje. Tokom 2022. više od 20.000 mladih ljudi učestvovalo je u Programu, pri čemu je 43% njih nakon završetka programa uspešno pronašlo zaposlenje ili mogućnost za obuku. Stoga se smatra da je Severna Makedonija izuzetno uspešna u implementaciji ovog Programa, jer je uspela da dostigne i premaši postavljeni cilj od 30%.
Pored uspešnog uključivanja velikog broja učesnika Programa na tržište rada, implementacija Garancije za mlade doprinosi i jačanju institucija. Nosilac procesa implementacije je Ministarstvo rada i socijalne politike, a osnovan je i Koordinacioni savet za Garanciju za mlade čija je nadležnost nadgledanje sprovođenja ovog Programa. Ipak, procenat nezaposlenosti mladih u Severnoj Makedoniji u 2022. godini iznosio je 34,9%, što je i dalje skoro duplo više u odnosu na prosek u zemljama Evropske unije koji iznosi 14,5%, a ujedno je i najveća stopa nezaposlenosti mladih u celom regionu. U izveštaju Evropske komisije o napretku Severne Makedonije za 2023, navodi se da aktivne mere tržišta rada i program Garancija za mlade trenutno nisu dovoljno praćeni, evaluirani i procenjeni. Ključan izazov u implementaciji Programa je ograničenost finansijskih sredstava, koje Vlada Severne Makedonije nije u mogućnosti da obezbedi.
Garancija za mlade u Srbiji prepoznata je u novoj Nacionalnoj strategiji zapošljavanja za period 2021-2026 i Strategiji za mlade usvojenoj u januaru 2023. Stopa nezaposlenosti mladih u Srbiji za 2022. godinu iznosila je 24,9%, dok je stopa nezaposlenosti tzv. NEET mladih – onih koji nisu zaposleni, nisu u obrazovnom sistemu niti na obuci oko 15%. Krajem decembra 2023. godine Vlada Republike Srbije usvojila je Implementacioni plan Garancija za mlade. Pilotiranje programa u tri filijale Nacionalne službe za zapošljavanje – Kruševcu, Sremskoj Mitrovici i Nišu trajaće od januara 2024. do kraja 2026. godine, sa ciljem proširenja programa na celu teritoriju Republike Srbije. Za vreme trajanja EU nedelje mogućnosti 2023. godine, Republika Srbija i Evropska unija potpisale su sporazum o finansijskoj pomoći u iznosu od 5,5 miliona evra koja je usmerena na implementaciju Garancije za mlade, odnosno za pilotiranje programa u pomenute tri filijale. Institucije u Srbiji ističu da trenutno ne postoje kapaciteti za realizaciju ovog programa na teritoriji cele Srbije, ali puna primena Programa na nacionalnom nivou je jedan od glavnih prioriteta Operativnog programa u okviru IPA III 2023-2027. Nosilac programa je Ministarstvo za rad, zapošljavanje, boračka i socijalna pitanja Vlade Republike Srbije, koje je formiralo Koordinaciono telo za izradu i praćenje sprovođenja Plana implementacije Garancije za mlade, kao i Stručnu grupu za realizaciju pripremnih aktivnosti.
Kosovo* se još uvek nalazi u ranoj pripremnoj fazi kada je reč o pregovaračkom poglavlju 19 koje se odnosi na socijalnu politiku i zapošljavanje. Ipak, u Izveštaju Evropske komisije o napretku Kosova* za 2023. godinu napominje se da je postignut određeni napredak kada je reč o pripremama za implementaciju Garancije za mlade u skladu sa Implementacionim planom koji je usvojen u novembru 2022. godine. U Izveštaju se navodi da je neophodno nastaviti sa sprovođenjem Plana implementacije i obezbeđivanju uslova za pilotiranje programa u dve opštine – Mitrovica i Uroševac. Stopa nezaposlenosti mladih na Kosovu* je tokom 2022. smanjena za neverovatnih 16,6% – 2021. godine taj procenat iznosio je 38%, dok se 2022. smanjio na 21,4%. Zavod za zapošljavanje Kosova* je u fazi restrukturiranja kako bi se ta institucija osposobila za implementaciju Programa. Ipak, u Izveštaju Evropske komisije ističe se da je najveći problem nedostatak ljudskih resursa u javnim službama za zapošljavanje, kao i zastareli informacioni sistem.
U izveštaju Evropske komisije o napretku Albanije za 2023. godinu navodi se da su pripreme za implementaciju Programa napredovale, te da je neophodno započeti pilotiranje programa kako bi se omogućila implementacija Programa na teritoriji cele zemlje. Albanija je usvojila Plan implementacije programa Garancija za mlade kao Aneks nove Nacionalne strategije za mlade za period 2023-2030. Nosilac celokupnog procesa je Ministarstvo finansija i ekonomije Republike Albanije. Stopa nezaposlenosti mladih tokom 2022. bila je 27,8%, dok stopa nezaposlenosti tzv. NEET mladih iznosi 23,4%.
Crna Gora i Bosna i Hercegovina su jedine zemlje u regionu koje još uvek nisu usvojile Plan implementacije Garancije za mlade. Udeo nezaposlenosti mladih u Crnoj Gori u maju 2023. iznosio je 28,3%. Prema Izveštaju o napretku Crne Gore za 2023, preporuke Evropske komisije su da se ojača Zavod za zapošljavanje i pripremi za sprovođenje Garancije za mlade. Formirana je Radna grupa za program Garancija za mlade sa ciljem unapređenja nacrta Plana implementacije Garancije za mlade, koja radi i sa stručnjacima iz Međunarodne organizacije rada.
Bosna i Hercegovina je poslednja zemlja u regionu kada je u pitanju sprovođenje programa Garancija za mlade. U Izveštaju Evropske komisije o napretku Bosne i Hercegovine za 2023. godinu ističe se da je postignut ograničen napredak kada je reč o finalizaciji i usvajanju Plana implementacije Garancije za mlade. U oktobru 2023. konačno je usvojena Strategija zapošljavanja u Federaciji Bosne i Hercegovine za period 2023-2030, koja prepoznaje Garanciju za mlade kao potpuno novi model zapošljavanja mladih, a dugačak proces njenog usvajanja predstavljao je glavnu prepreku za program Garancija za mlade u Bosni i Hercegovini. Pilotiranje programa je već počelo, a za pilot opštine izabrane su dve manje sredine Visoko i Čitluk. Nakon pilotiranja programa očekuje se proširenje na celu teritoriju Bosne i Hercegovine. Na nacionalnom nivou Ministarstvo civilnih poslova Bosne i Hercegovine je nosilac procesa implementacije Programa, dok je za implementaciju programa u Federaciji BiH nadležno Federalno ministarstvo rada i socijalne politike. Informacije o Garanciji za mlade u entitetu Republika Srpska nije moguće pronaći na internetu, niti se pominju u godišnjim izveštajima Evropske komisije. Stopa nezaposlenosti mladih u Bosni i Hercegovini najveća je u celom regionu i iznosi 33,47% za 2022. godinu.
Ključ uspešne primene programa Garancija za mlade leži u intenzivnoj saradnji svih sektora u zemlji – od izvršne vlasti koja je dužna da obezbedi finansijska sredstva za implementaciju, preko poslodavaca, pa sve do OCD. Nakon usvajanja Strategije zapošljavanja u Federaciji Bosne i Hercegovine očekuje se da će i Bosna i Hercegovina u narednom periodu usvojiti Plan implementacije, koju će, nadamo se, slediti i Crna Gora, kako bi sve zemlje regiona u narednim godinama mogle da primenjuju ovaj ambiciozni program za mlade na celoj teritoriji. Ipak, za to će biti neophodna snažna politička volja svih vlada u regonu, jer samo one mogu da obezbede finansijsku podršku za uspešnu implementaciju.
Nemanja Ivanović, omladinski aktivista i član Glavnog odbora Socijaldemokratske stranke
* Izrada ove publikacije finansirana je od strane Evropske unije. Njen sadržaj je isključiva odgovornost Fondacije Centar za demokratiju i ne odražava nužno stavove Evropske unije.
* This publication was funded by the European Union. Its contents are the sole responsibility of the Center for Democracy Foundation and do not necessarily reflect the views of the European Union.
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