Government of Montenegro
STRATEGY OF METROLOGY DEVELOPMENT IN MONTENEGRO
for period 2016 – 2018
Podgorica, December 2015
ABBREVIATIONS AND DEFINITIONS USED IN THE STRATEGY:
Abbreviations:
ABM – Accreditation body of Montenegro
BIPM – Bureau International des Poids et Mesures
(International bureau for weights and measures
CELEX – Europeae Lex
(European Union law database)
CEN – European Committee for Standardization
CENELEC – European Committee for Electrotechnical Standardization
CGPM – Conférence Générale des Poids et Mesures
(The General Conference on Weights and Measures)
CIPM – Comite International des Poids et Mesures
(International Committee for Weights and Measures)
CIPM MRA – L’Arrangement de reconnaissance mutuelle du CIPM
(CIPM Mutual recognition Arrangement)
CMC – Calibration and Measurement Capabilities
CMRS – Center for International Cooperation and Development
DI – Designated Institutes
EA – European Accreditation
EA MLA – The EA Multilateral Agreement
EFTA – European Free Trade Association
EMPIR – European Metrology Programme for Innovation and Research
EMRP – European Metrology Research Programme
ETSI – European Telecommunications Standards Institute
EU – European Union
EURAMET – European Association of National Metrology Institutes
CAA – Croatian Accreditation Agency
IAEA – International Atomic Energy Agency(
IMT – Institute for Metals and Technology
IPA – Instrument for Pre – Accession Assistance
JCRB – Joint Committee of Regional Bodies
KCDB – Key Comparison Database
MID – Measurement Instruments Directive MIRS – Metrology Institute of the Republic of Slovenia
NAWI – Non-automatic weighing instruments Directive
NMI – National Metrology Institute
NGO – Non-governmental organizations
OIML – International Organization of Legal Metrology
PEER REVIEW – Mutual proficiency assessment by the equals from the same field
PT – Proficiency Testing
PPCG 2015-2018 – Montenegro’s Programme of Accession to the European Union 2015-
2018
RMO – Regional Metrology Organization
SI – Le Système international d'unités
(International system of units)
SIDA – Swedish International Development Cooperation Agency
SWOT – Strengths, Weaknesses, Opportunities, Threats
TAI – Temps atomique international
(International atomic time)
TC-EM – Technical Committee for Electricity and Magnetism
TC-F – Technical Committee for Flow
TC-IM – Technical Committee for Interdisciplinary Metrology
TC-L – Technical Committee for Length
TC-M – Technical Committee for Mass and related Quantities
TC-T – Technical Committee for Thermometry
TC-TF – Technical Committee for Time and Frequency
TC-Q – Technical Committee for Quality
TFEU – Treaty on the Functioning of the European Union
UTC – Temps universel coordonné
(Universal coordinated time)
WELMEC – European Cooperation in Legal Metrology
Definitions:
Effectiveness – The degree to which planned activities are successful in producing a desired result
Efficiency – Relation between achieved results and resources used Standard – Materialized measure, measuring instrument, reference material or
a measuring system intended to define, realize, preserve or
reproduce a unit, or one or more quantity values so in order to
serve as a reference
Information – Relevant data Calibration – Operation, carried out under specified conditions, establishing the
relation between quantity values provided by a measuring
instrument or a measuring system, or values indicated by a
materialized measure or reference material and corresponding
values indicated by standards
Quality – Degree to which the totality of appropriate features fulfill implied requirements
Competence – Proved ability to apply knowledge and skills User – Organization or a person receiving a good Quality management – Coordinated activities for managing an organization with regard
to quality and managing the organization in terms of quality
Metrology – Science of measurements and its appliance Measuring – Process of experimental obtaining one or more quantity values
that can be reasonably attributed to the quantity
Measuring instrument – Device intended for measuring, individually or within an additional device i.e. devices
Supervision – Systematic repetition of conformity assessment activities as a foundation for maintaining the statement of conformity valid
Quality assurance – Part of a quality management focused on the ensuring the affiance that the quality requirements are fulfilled
Assessment of
conformity with the
prescribed metrological
requirements
– Activity which directly or indirectly determines if a measuring instrument fulfils prescribed metrological requirements for
measuring instruments
Verification of measuring – Procedure that includes evaluation and hallmarking, i.e. issuing
instruments the certificates on measuring instruments verification, whereat
assessment of conformity with prescribed metrological
requirements is asserted and confirmed
Review – Activity undertaken to determine conveniences, adequacy and effectiveness of the subject matter for achieving the set goals
Prepacked products – Products that are packaged in the absence of customer, and the quantity of these goods cannot be changed without opening
them, which would make a considerable damage, or without
changing the package Procedure, method – Determined manner for performing an activity or a process Control – Systematic, independent and documented process for obtaining
a proof of control and its objective evaluation in order to
determine a degree to which control criteria are fulfilled
Management system – The framework for establishing policies and objectives, and for the realization of these objectives
Quality management
system
– Management system that is, from the stand point of quality, used for managing and leading an organization
Traceability – Property of a measurement result or of a standard value, by which standards can be related to the stated references, national or
international standards, through an unbroken chain of
comparison, each having the stated measurement uncertainties
Type-approval
/certificate of conformity
– Decree or a document issued on the basis of previous examination, which confirms that the measuring instrument type is
in conformity with prescribed metrological requirements and that
the measuring instrument is suitable for usage for a certain period
Validation – Confirmation by providing an objective proof that the requirements for a certain usage or appliance are met
Requirement – Stated need or an expectation that are as a rule implied or mandatory
Legal
measuring instrument
– Measuring instrument that meets requirements prescribed by the Law on metrology („Official gazette of MNE“, no. 79/08 and 40/11)
CONTENTS
FOREWORD
1. INTRODUCTION…………………….………………………………………….…….... 1
2. METROLOGY SYSTEM IN MONETENGRO……..…..….......................................... 3
2.1 HISTORY OF METROLOGY IN MONTENEGRO……………………..…….............. 3
2.2 LEGISLATIVE FRAMEWORK..………………………..…………............................... 6
2.3 INSTITUTIONAL FRAMEWORK……………………………...………………............. 11
2.4 ASSESSMENT OF DE FACTO SITUATION SWOT ANALYSIS….............................. 23
3. CONFORMITY WITH EU LEGISLATION................................................................. 25
4. INTERNATIONAL AND REGIOANL METROLOGICAL ORGANIZATIONS……….. 28
4.1 INTERNATIONAL METROLOGY INFRASTRUCTURE.….......................................... 28
4.1.1 METRE CONVENTION……………………………………………………….............. 28
4.1.2 CIPM MUTUAL RECOGNITION ARRANGEMENT................................................. 29
4.1.3 OIML……………………………………………………………………………………... 30
4.1.4 NATIONAL METROLOGICAL INSTITUTES......… ……………………...................... 31
4.1.5 REGIONALNE INTERNATIONAL METROLOGICAL ORGANIZATIONS…….......... 31
4.2 EUROPEAN METROLOGICAL INFRASTRUCTURE……………............................... 32
4.2.1 EEURAMET………………………………………………………………….................... 32
4.2.2 WELMEC………………………………….....………………………………………….. 33
5. STRATEGY DESIGN PROCEDURE AND STRATEGIC PLANNING….……………... 34 6. STRATEGIC GOALS………..……………………………………............................... 36
Strategic goal 1. Effictient metrological system in Montenegro..….............. 36
Strategic goal 2. Conformity with EU legislative….......................................... 48
Strategic goal 3. Ensuring metrological traceability……............................... 53
Strategic goal 4. Improvement of procedures for conformity assessment
of legal measuring instruments......................................................................... 58
Strategic goal 5. Improvement of the calibration procedures regarding
standards/measuring instruments used in the industry as well as in the
processes of examination and production....................................................... 64
Strategic goal 6. Reinforcement of metrological supervision..................…. 71
Strategic goal 7. Promotion of the role and significance of metrology in
Montenegro……………………………………………………………………........... 74
Strategic goal 8. International recognition of Montenegrin metrology
system ………………………………………………...……….................................. 77
ANNEX………………...……………………………………………………................. 87
LITERATURE………………….…………………………………………......………....... 117
FOREWORD
As part of preparations of negotiations for accession of Montenegro to the
European Union in the field of free movement of goods (negotiation chapter 1)
there has been drafted a Strategy of Montenegro for implementation of the
acquis communautaire in the area of free movement of goods from 2014 to
2018, adopted by the Government of Montenegro in October 2014. The key
priorities of the Strategy of Montenegro for the implementation of the acquis
communautaire in the area of free movement of goods 2014 – 2018 are related
to harmonization of the general principles and the EU acquis, defining priorities
in this area, which is determined by the articles 34 to 36 of the Treaty on the
Functioning of the European Union, improving the coordination of all horizontal
activities, strengthening the administrative capacity of the Ministry of Economy
and of quality infrastructure institutions, as well as in the field of market
supervision.
For the execution of vertical measures in the field of "new approach" and
- "old approach" Strategy of Montenegro for implementation of the acquis
communautaire in the area of free movement of goods from 2014 to 2018
stipulates deadlines, plan to strengthen administrative capacity for the adoption
and implementation of regulations by the end of 2018. year, as well as the
allocation of funds. Within the Strategy of Montenegro for implementation of the
acquis communautaire in the area of free movement of goods from 2014 to 2018
in the field of procedural measures, it was defined that Montenegro will fully
implement checks at external borders, the notification of technical regulations
and standards, conformity assessment procedures and information society
services.
Strategy of Montenegro for implementation of the acquis communautaire
in the area of free movement of goods from 2014 to 2018 includes detailed plan
of administrative capacity, target dates and clear responsibilities for undertaking
and efficient implementing of laws for the specified period. Based on the time-
frame and the activities given in this Strategy, it is expected that Montenegro will
take over and implement the entire acquis in the area of free movement of
goods by the end of 2018.
Montenegro’s Programme of Accession to the European Union 2015-2018
(PPCG 2015 - 2018) is the key document which defines the objectives, activities
and dynamics of realization of activities on Montenegro's path towards EU
membership. In this document, the strategic, legislative and administrative
objectives and activities are given. Strategy for the development of metrology in
Montenegro, for the period 2016 - 2018, a detailed analysis was presented and
strategic objectives and actions for the development of metrology in
Montenegro were defined, which among other things includes the legislative
and administrative framework that matches the one given in PPCG 2015 - of
2018.
Being that the developed metrology system, as part of the national quality
infrastructure, provides adequate protection of the health, environmental
protection, consumer protection and safety, within the framework of the
Strategy of development of metrology in Montenegro based on the analysis of
the existing metrology infrastructure, fulfilment of obligations provided by the
Montenegro’s Programme of Accession to the European Union 2015-2018 and
Strategy of Montenegro for implementation of the acquis communautaire in the
area of free movement of goods from 2014 to 2018, as well as the characteristics
of the metrology system that is essential to Montenegro, strategic objectives for
further development of metrology in the period 2016-2018 are defined.
The realization of the planned activities will enable continuous realization,
preservation, maintenance and development of national standards and
provision of metrological traceability in Montenegro; maintaining a high quality
of existing services and providing new services for calibration of measuring
instruments and standards in accredited laboratories of the Bureau of Metrology
for the needs of customers from Montenegro, but also from outside of
Montenegro; improving activities in the field of legal metrology in Montenegro
i.e. provision of accuracy of measurement in the fields in which measurements
affect the transparency of economic transactions, health and safety; reliable
control of pre-packaged products; strengthening of the metrological
supervision, as well as active participation in international and regional projects.
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1. INTRODUCTION
Metrology, the science of measurement, includes definition of units, the
realization of standards of measurement units, the development of measuring
instruments and the scope of their application, establishing a chain of
traceability of measurement results, as well as other theoretical and practical
problems associated with the measurement.
Measuring is present in human society since ancient times, and as such
affects all aspects of people’s life. It is believed that people were first interested
to understand time while watching the periodic natural phenomena, and then
the length i.e. distance. Although the measuring and measuring units have
been changing throughout the history, the goal is always the same - make the
measurement as accurate as possible.
Trade, a very important segment of economic stability, cannot be
imagined without measurements. It is known that the ancient Greeks knew the
measures used by people from other areas with whom they develop trade
relations. In order to make trade as efficient as possible, local measuring
instruments of length, mass and volume could be found at markets in the Middle
Ages. History has left us with important information on the adoption of the
decrees and laws on measures, as well as the declarations of national standards
by rulers. Therefore, today we should not be surprised by the fact that taxes,
weights and measurements have become part of everyday life.
Metrology enables us to examine the air we breathe, the water we drink,
the food we eat. Accurate measurement ensures the safety and efficacy of a
medical treatment. Sports activities and top sports results that follow anti-doping
control cannot be realized without measurements.
Measurements with known degree of uncertainty are the basis of industrial
quality management and of the increase of the value and quality of products.
Accurate measuring promotes energy systems efficiency and ensures
proper calculation. Exploring the possibility of transforming the existing fossil fuels
in a more acceptable form of energy, research in order to discover new and
renewable energy sources, as well as the improvement of energy efficiency are
very important topics for metrologists worldwide.
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Metrology is the basis of all scientific research. Monitoring changes in
temperature, climate change, registration of seismic activity, astronomy, etc.,
cannot be imagined without measurements. Moving the boundaries of the
possible and documenting the results obtained by research implies the
existence of effective measurement devices.
Global economy depends on reliable measurements that do not present
technical barriers to trade. Equivalence of standards, as well as demonstration
of an acceptable level of compliance with the relevant standards allows
comparison measurements carried out in different countries.
Metrology is continuously evolving and affects the development of
various processes in the industry of instruments, automotive industry, aerospace
industry, outer-space industry, but also the research and production of new
materials, development of electronics, new communication technologies,
environmental protection, research of new and renewable energy sources,
improvement of security , organic food production, efficient application of
diagnostic and therapeutic methods, as well as the development of new
technologies, in order to improve health care, etc.
World Metrology community expects that on the basis of the conducted
research, redefining the SI unit system will be undertaken in the future, which is
another indicator that metrology is a complex science that affects our daily
lives.
Metrology can be viewed in three categories with different levels of complexity
and accuracy:
• Scientific metrology (relates to the organization and development of
measurement standards, as well as to maintaining them at the highest level);
• industrial metrology (should ensure the proper functioning of measuring
instruments used in industry, as well as in production processes and testing);
• legal metrology (relates to the accuracy of measurements in the areas
in which measurements affect the transparency of economic transactions,
health and safety).
The highest levels of accuracy within certain areas are indicated by
fundamental metrology, for which there is no international definition.
Fundamental metrology can be described as a branch of scientific metrology
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of a highest level, complemented by parts of legal and industrial metrology that
require scientific competence.
The development of metrology is an important stimulus for economic and
social development of every country. The foundation of the metrology system in
Montenegro is represented by the Bureau of Metrology, which was established
by the Government of the Republic of Montenegro on the 14th of September,
2006, with the aim of establishing a unified measuring and ensuring the
traceability of the measurement results.
Reforming the metetrological infrastructure inherited from the State Union
of Serbia and Montenegro, as well as changes of legislation and harmonization
with EU legislation, are activities that are constantly being implemented in
Montenegro.
2. METROLOGY SYSTEM IN MONTENEGRO
2.1 HISTORY METROLOGY IN MONTENEGRO
As early as from the Middle Ages there was a measurement system in
Montenegro. Thus, in the Charter of Balsa III to monastery Moracnik on Skadar
Lake, threshing floor of salt and a bucket of salt were mentioned, as a donation
to the monastery.
The charter of Ivan Crnojevic, from 1485, says that each household brings
three bundles of firewood to the monastery at Cetinje. According to the
available documentation in Montenegro, the following measurements were also
mentioned: cubit, span, fathom, thumb i.e. inch, yardstick, load (100kg),
footstep, foot, ’vagan’ – a measurement for wheat (61kg), ‘krblja’, scythe (of a
meadow), oka or okka (an ottoman measure), plough (of arable land), hoe (of
digging), a bucket (of milk), ‘žban’(of water), vlaka (of hay), sack (of wheat). In
the occupied territories of Montenegro, were used measures of the ruling
countries, as for example col, meter and similar. This is witnessed throughout the
extensive literature relating to the measures used since the Roman times.
Metric system was adopted in France by the end of the XVIII century. The
need for the usage of the universal metric system in other countries as well,
becomes evident in the middle of the XIX century. In 1875, representatives from
17 countries in Paris, at a diplomatic conference on meter, have signed a treaty,
4
named “Meter Convention”. The states parties have decided to found and
finance a permanent scientific institute “The International Bureau of Weights and
Measures” (Bureau International des Poids et Measures - BIPM). The application
of the metric system in Montenegro was introduced by a Decree of January the
1st 1888, but based on the available archival records one can see that the “new
(French) meter measurements” were used even in the first half of the XIX
century. The term “meter” has been mentioned for the first time in the letter of
Petar Petrovic Njegos, from 1835, where he informs district captain from Kotor,
about a deal, made by some Montenegrins, for the delivery of “80 pieces of
nets and two hundred meters of rope.” There can be found other cases of the
usage of kilogram and meter in the second half of the XIX century Montenegro:
according to a document from 1879, commander of the Montenegrin army in
Metohia, has ordered for army to receive flour measured in kilos, and not in “an
easy Montenegrin steelyard” (as they were probably using the okka). The record
of mountains, hills and other important places in Montenegro was drawn up and
printed in1881, where the altitudes i.e. the above sea levels, was marked with
meters. In 1894, The Ministry of Finance at Cetinje, has issued The Guidelines for
Surface Measuring.
Development of the trade with the surrounding countries where the metric
system was used, have significantly influenced the legislative regulations of the
application of the metric system in Montenegro. After the legislative
introduction of the metric system in Montenegro, in certain towns the prices
were immediately regulated according to the metric system, which was also
introduced into the primary school textbooks. However, according to the
Guidelines for Surface Measuring, certain units which didn’t belong to the metric
system were used. Thus, plough and scythe were used as surface area units,
while cubit was used for length.
The Ministry of Internal Affairs, on the 11th of November, 1903, for the
purpose of control of the metric system implementation in Montenegro, issued
the Regulations on measures and measuring, according to which, merchants
using their own measures, were obliged to submit their measures to the annual
control, once the municipal governance decide. The projected control of the
measures was done by a special committee comprised of one municipal
governance commissioner, one clerk and one expert appointed by the
municipal governance. The Ministry of Internal Affairs has also announced
Proclamation of the 25th of May 1906, where, according to the Law on
regulation of the town municipalities, these authorities are obliged to “to
5
supervise if the measures are correct and to control them, hence they are
obliged to put a signet on it.” Based on the Decree on jurisdiction of the
administrative authorities, “usage of the wrong measures” at the countryside,
was under the supervision of the rural serfs and captains of the tribes. Penalties
were provided for the contempt of the given regulations: fines, confiscation of
goods, permanent or temporary bans from conducting the activities,
imprisonment.
The application of the measurements system in the region has been
regulated by regulations since the time of the Kingdom of Serbs, Croats and
Slovenians, through the ex-Yugoslavian federation after the Second World War,
until the contemporary Montenegro.
In 1919, in the Kingdom of SCS, there was formed a Department for
measures and measurements, with headquarters in Belgrade, which as the main
objective had “measures law enforcement and execution of other laws and
regulations.” The Department for Measures and Measurements was a foundation
for the various future kinds of centralized metrological institution.
In the State Union of Serbia and Montenegro, the state functions in the
field of metrology were executed by the Bureau for Measures and Precious
Metals, with its headquarters in Belgrade, while in Podgorica, there was one out
of the eight bureau’s branch units – The Control of measures and Precious
Metals (formed at the beginning of ‘60s). The rudimentary tasks of The Control of
measures and Precious Metals Podgorica were: examination s of the national
standards and measuring instruments, surveillance and verification of the
measuring instruments, ensuring that all the requirements laid down for the
examination of the measuring instruments at requesters are fulfilled, obtaining
the professional support, issuing the certificates on accuracy of the measuring
instruments, investigation and verification of precious metals articles, defining
conditions for issuing decision on the mark of a manufacturer, as well as the
metrological surveillance.
The Control of the Measures and Precious Metals – Podgorica, has realized
necessary metrological activities until the foundation of the Metrology Center,
on the 17th of July, 2006. that was under the jurisdiction of Ministry of Economy.
Metrology Center conducted the administration in the field of Metrology until
the foundation of the Bureau of Metrology.
6
On the 14th of September, 2006, the Government of the Republic of
Montenegro has founded Bureau of Metrology which establishes, maintains and
develops unique metrological system in Montenegro, and contributes to the
creation of technical prerequisites for entering the international market of goods
and services.
2.2 LEGISLATIVE FRAMEWORK
Law on Metrology (“”Official gazette of MNE”, no. 79/08 and 40/11)
applies in the field of Metrology in Montenegro, regulates system of
measurement units and standards of Montenegro, procedures of assessment of
conformity of the measuring instruments with the prescribed requirements,
authorizations in the field of metrology and other issues relevant to metrology.
The field of metrology in Montenegro is organized to:
• making the system of legal units of measurement uniform with the
International System of Units;
• establishing a system of national standards and ensuring their
traceability to international standards;
• establish metrological uniformity in Montenegro and credibility of
measurement results performed for the purpose of consumer protection of lives,
health of people and animals, environmental protection, general safety and
protection of natural resources;
• support the development of appropriate metrology infrastructure that
ensures traceability of measurement results;
• encourage free trade and remedy potential obstacles to the trade;
• directing and financing of metrology research activities;
• prepare, adopt and implement metrological regulations;
• implement the procedures for assessment of conformity with the
requirements of legal metrology;
• provide information from the field of metrology.
Article 5 of the Law on Metrology (“Official gazette of MNE”, 79/08 and
40/11) stipulates that the measuring results related to health, general safety,
7
environment and the economy, shall be available to public in conformity with
the regulations.
The Law on Metrology (“Official gazette of MNE”, 79/08 and 40/11) was
drafted based on:
• the relevant EU directives and the legal framework for adoption of
subordinate legal acts that are in conformity, or will be, with EU legislation in the
field of metrology;
• Agreement on Technical Barriers to Trade of the World Trade
Organization regarding the implementation of the assessment of conformity of
measuring instruments with prescribed metrological requirements so that
regulations adopted pursuant to the Law on Metrology ("Official Gazette", Nos.
79/08 and 40/11) shall not constitute unnecessary barriers to trade, and shall be
equally applied to persons and goods originating from other countries and to
local persons or goods;
• Document OIML D1 - Elements for a Law on metrology, issued by the
International Organization of Legal Metrology (OIML).
Regulations adopted pursuant to the Law on Metrology ("Off. Gazette of
MNE", no. 79/08 and 40/11) are based on the practices and experiences of
relevant international and European organizations and institutions and do not
create unnecessary barriers to trade, instead they allow regulation of legal,
industrial and scientific metrology. Subordinate legal acts that apply in the field
of metrology in Montenegro, which transpose EU directives in this area are:
Decree on legal units of measurement (“Official Gazette of MNE”,
no. 22/09), that transposes EU Directive 80/181/EEC;
Rulebook on requirements applied to the devices and systems with
measuring function – MID (“Official Gazette of MNE” no. 29/13), that
transpose EU Directive 2009/23/EC;
Rulebook on non-automatic weighing instruments – NAWI (“Official
Gazette” no. 29/13), that transposes EU Directive 2009/23/EC;
Rulebook on pre-packaged products (“Official Gazette” no. 56/11),
that transposes EU Directive 76/211/EEC and 2007/45/EEC;
Rulebook on bottles used as measuring containers (“Official
Gazette” of MNE no. 56/11), that transposes EU Directive
75/107/EEC.
8
Following regulations, pursuant to the Law on Metrology (“OG of MNE”,
no. 79/08 and 40/11):
Regulation on legal measuring instruments that are mandatory
subjected to verification i.e. measuring instrument type approval
(“Official gazette of MNE”, no. 81/09);
Rulebook on deadlines for the regular verification of the measuring
instruments (“Official gazette of MNE”, no. 81/09);
Rulebook on the types, forms and method of affixing marks that are
used in the verification of instruments, as well as more detailed form
and content of the certificate of the verification of measuring
instrument and the certificate of the type approval of the measuring
instrument (“Official gazette of MNE”, No. 80/90);
Rulebook on the method of determining the conformity with the
metrological requirements for legal measuring instruments (“Official
Gazette of MNE”, No. 04/10);
Rulebook on detailed procedure and method of type approval
examination of measuring instruments (“Official Gazette of MNE”,
No. 10/10);
Decree on the amount and the manner of payment of fees in the
field of metrology (“Official Gazette of MNE”, No. 73/10);
Rulebook on extraordinary checks of legal measuring instruments in
use (“Official Gazette of MNE”, No. 73/10);
Rulebook on deadlines for calibration standards used for verification
of legal measuring instruments ("Official Gazette of Montenegro",
no. 33/11);
Rulebook on metrological requirements for the basic clocks within
telephone exchanges used for the calculation based on the call
data records (“Official Gazette of Montenegro”, no. 06/10);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of water
meters for verification (“Official Gazette of Montenegro”, no. 44/09);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of mass
measuring instruments for verification (“Official Gazette of
Montenegro”, nos. 65/09 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
9
taximeters for verification (“Official Gazette of Montenegro”, nos.
74/09 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of fuel
dispensers and devices for liquefied petroleum gas for verification
(“Official Gazette of Montenegro”, nos. 15/10 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
measuring systems for quantities of liquids other than water for
verification (“Official Gazette of Montenegro”, nos. 15/10, 81/10 and
09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
electricity meters for verification (“Official Gazette of Montenegro”,
nos. 20/11 and 09/13);
Rulebook on fixed tanks (“Official Gazette of Montenegro”, no.
02/14);
Certain metrological regulations, which are still effective in Montenegro,
which will cease to be valid after the adoption of new regulations in
accordance with the activities of Montenegro in implementing its obligations
under Articles 34 and 36 of the Treaty on the Functioning of the European Union
(TFEU) are:
Rulebook on metrological requirements for ethylometers („Official
gazette SFRJ“, no. 42/91);
Rulebook on Doppler radars („Official gazette SFRJ“, no. 03/85);
Rulebook on metrological requirements for manometers for
measuring tire pressure („Official gazette SFRJ“, nos. 20/86 and
10/87);
Rulebook on metrological requirements for manometers for
measuring blood pressure („Official gazette SFRJ“, no. 20/86);
Rulebook on metrological requirements for manometers, vacuum
meters and mano-vacuum meters („Official gazette SFRJ“, no.
30/86);
Rulebook on metrological requirements for measuring instruments
used to measure loop impedance („Official gazette SFRJ“, no.
31/84);
10
Rulebook on metrological requirements for measuring instruments
used to measure loop impedance („Official gazette SFRJ“, no.
31/84);
Rulebook on metrological requirements for measuring instruments
for electrical resistance of insulation („Official gazette SFRJ“, no.
03/98);
Rulebook on metrological requirements for measuring instruments
for electrical resistance of grounding („Official gazette SFRJ“, nos.
34/98 and 40/98);
Rulebook on metrological requirements for semiconductor counters
– gamma-ray spectrometer („Official gazette SFRJ“, no. 22/91);
Rulebook on metrological requirements for scintillation detector –
gamma-ray spectrometer („Official gazette SFRJ“, no. 31/93, 42/93
and 44/93);
Rulebook on metrological requirements for Geiger-Muller counters
(„Official gazette SFRJ“, no. 56/94);
Rulebook on metrological requirements for scintillation detectors of
alpha-ray radiation („Official gazette SFRJ“, no. 56/94);
Rulebook on metrological requirements for proportional counters –
working standards („Official gazette SFRJ“, no. 76/94);
Rulebook on metrological requirements for plastic scintillation
counters („Official gazette SFRJ“, no. 34/96);
Rulebook on metrological requirements for automatic liquid level
gauges in fixed tanks („Official gazette SFRJ“, no. 76/90);
Rulebook on metrological requirements for sound level meters
(„Official gazette SFRJ“, no. 27/01);
Rulebook on metrological requirements for housings of road and rail
balances („Official gazette SFRJ“, nos. 31/87 and 39/90);
Rulebook on metrological requirements for road and rail
weighbridges („Official gazette SFRJ“, no. 72/99);
Rulebook on metrological requirements for standard weights from
50 kg to 5000 kg („Official gazette SFRJ“, no. 44/88);
Rulebook on metrological requirements for weights of nominal
weight from 1 mg to 50 kg („Official gazette SFRJ“, no. 54/88 and
06/89);
Rulebook on metrological requirements for measurement
transformers for electrical energy meters („Official gazette SFRJ“, no.
66/84);
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Rulebook on metrological requirements for reactive electrical
energy electric (static) meters accuracy class 1 and 2 („Official
gazette SFRJ“, no. 47/98);
Rulebook on metrological requirements for milk cooling tanks (lacto
freezers), milk meters and measuring vessels(„Official gazette
SFRJ“, no. 29/91);
2.3 INSTITUTIONAL FRAMEWORK
Pursuant the Law on State Administration („Official Gazette of RMNE“, no.
38/03 and „Official Gazette of MNE“, no. 22/08 and 42/11 ), Decree on the
Organization and Manner of Work of State Administration („Official Gazette of
MNE“, no. 05/12, 25/12, 44/12, 61/12, 20/13, 17/14 and 06/15), as well as the Law
on Metrology („Official Gazette of MNE“, no. 79/08 and 40/11), the Bureau for
Metrology performs expert and related administrative affairs, while applying
scientific methods and knowledge in the field of metrology. Ministry of Economy
performs supervision and monitoring of the execution of the affairs from the field
of metrology.
Pursuant the Decree on the organization and manner of work of state
administration („Official Gazette of MNE“, no. 05/12, 25/12, 44/12, 61/12, 20/13,
17/14 and 06/15), Bureau of Metrology conducts work related to:
• ensuring the application of the system of legal units of measurement;
• realization, preservation, maintenance and improvement of standards
of Montenegro;
• Provision of metrological traceability for laboratories standardization, as
well as for research and control laboratories;
• organizing activities of calibration (calibration);
• conformity assessment of standards with metrological requirements;
• give expert opinion for accreditation of laboratories for verification of
measuring instruments;
• represent Montenegro in international and regional metrological
organizations and to establish cooperation in the field of metrology;
• control of precious metals articles as well as other activities within its
jurisdiction.
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Pursuant the Law on metrology („Official Gazette of MNE“, no. 79/08 and
40/11), the Bureau of Metrology performs further business affairs:
• ensuring that the system of legal measurement units in Montenegro;
• realizes, preserves, maintains and improves national standards;
• ensures metrological traceability;
• organizes calibration activities;
• conducts conformity assessment of measuring instruments with
prescribed metrological requirements: type approval and certification of
standards;
• conducts a review of pre-packaged products;
• gives expert opinion on the authorization of persons to perform tasks in
the field of metrology;
• represents Montenegro in international and regional metrological
organizations and establishes cooperation in the field of metrology;
• cooperates with the competent inspection bodies and provides expert
assistance in the field of metrology;
• decides in administrative procedures in the field of metrology;
• prepares expert foundation for drafting the regulations in the field of
metrology;
• ensures metrological information and issues official publication;
• performs other tasks in the field of metrology.
Regulations on internal organization and systematization of the Bureau of
Metrology, adopted by the Government of Montenegro at the conference on
31st of July 2014, established the internal organization and systematization of civil
servants and state employees. Internal organizational units of the Institute are:
• Department for metrological traceability and national standards;
• Department for certification of standards;
• Department for precious metals;
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• Department of General Affairs, Finance and Information Systems.
Outside the organizational units, activities carried out are related to the
establishment, maintenance and improvement of the quality system.
Rulebook on amendments to the Rulebook on internal organization and
systematization of the Bureau of Metrology, adopted by the Government of
Montenegro at its session of 16 July 2015, jobs for a total of 52 executors
including the elder Institute were systematized. The total number of employees
in the Metrology Institute in 2015 was 36.
Within the Bureau of Metrology national calibration laboratories are
established and developing: Laboratory for Mass, Laboratory for Large Masses,
Laboratory for Length, Laboratory for Temperature, Laboratory for pressure,
Laboratory for Electrical Quantities, Laboratory for Time and Frequencies,
Laboratory for Small Volumes and Laboratory for Large Volumes.
The most important role of the metrological laboratories of the Bureau of
Metrology is the establishment and maintenance of metrological traceability in
Montenegro. After the proclamation of independence of Montenegro in 2006,
the Directorate for Precious Metals in Serbia, standards based on the previous
common state were retained, which meant the termination of traceability in
Montenegro. This was followed by activities for resolution of the problem. First
metrological traceability chain in the field of weight and length was established.
In the period from 2008 to 2011, the secondary and working standards in the
field of electrical quantities, metrology of pressure, temperature, length
metrology and high frequencies were used, which the Bureau of Metrology took
over from the military metrology laboratories during 2007.
Metrological traceability chain in the field of mass, length, temperature,
pressure, volume, electrical quantities, as well as the time and frequency, in
Montenegro is based on equipment that has been delivered to the Institute
within the framework of the IPA 2007: Development of quality infrastructure in
Montenegro, programme IPA 2011: development of quality infrastructure and
metrology in Montenegro, as well as the equipment provided by the Institute
from its own funds. Calibration of standards at the Bureau of Metrology is carried
out in the laboratories of the national metrology institutes or authorized Institutes
(EURAMET Designated Institutes) who have published CMC in BIPM KCDB or are
accredited by an accreditation body signatory to the EA MLA Agreement.
14
The main responsibility of Laboratory for mass, established within the
Bureau of Metrology, is the realization, preservation, maintenance and
improvement of the national mass standards and ensuring metrological
traceability in the field of mass ranging from 1 mg to 20 kg in Montenegro.
Continuous provision of the necessary equipment, staff training and continuous
improvement of work processes, in the period since the establishment in 2007,
have enabled the good results in inter-laboratory comparisons in the field of
weight, as well as providing services in the field of calibration of gauges /
standards, certification of standards / the implementation of standards and tests
in order to issuance of the type of standard, to date. Traceability chain in the
field of mass measuring in Montenegro is shown in the image P1 (attached).
Laboratory for large mass implements activities in order to ensure
traceability of measurement in the field of mass in Montenegro, in the range
from 50 kg to 500 kg. Calibration of weights of a lower accuracy class shall be
conducted by the equipment of the laboratory for mass, where the unit of mass
by direct comparison method is being transferred to the standards of lower
accuracy class, over which the mass unit is transferred to the user in
Montenegro. Laboratory for large mass conducts calibration and verification of
weights ranging from 50 kg to 500 kg. Traceability chain in the field of large mass
measuring in Montenegro is shown in the image P2 displayed (attached).
Laboratory for length preserves and maintains the national standard for
length, caring about establishing the traceability in length measuring in
Montenegro and performs transfer of the length unit to the end users. The
laboratory provides services for the calibration of measuring instruments and
standards of length, verification of measuring instruments for length which are
the subject of legal metrology and performs tests in order to implement the
issuance of measuring instruments type approval. All activities that the staff, at
laboratory for length, implements are aimed at providing high quality, reliable
and traceable measuring results. Chain of traceability in the field of measuring
of length in Montenegro is shown in the image P3 (attached).
In the Laboratory for temperature the national standard for temperature is
realized, preserved and maintained, together with the standard platinum
resistance thermometer (SPRT) for temperatures up to 650 ° C, thermocouple
(TC) for temperatures above 650 ° C, as well as the standard for relative humidity
dew-point meter (DP) for the temperature range from 10 ° C to 70 ° C and a
relative humidity of 10% RH to 95% RH. These standards owns the best
15
metrological properties in Montenegro, along with other equipment are used as
the basis for the provision of metrological traceability in the field of temperature
and relative humidity, and to assign value to units of temperature and relative
humidity to end users. Traceability chain in the field of temperature
measurement is shown in the image P4 (attached) and of relative humidity in
Montenegro is shown in image P5 (attached).
Primary competence of Laboratory for pressure is ensuring the
metrological traceability in the field of pressure measuring in Montenegro, i.e.
transfer of pressure units to the lower level laboratories. Laboratory for pressure
provides service in the field of calibration and verification of pressure gauges,
and performs the assessment of conformity with the prescribed technical and
metrological requirements with aim to determine the type of measuring
instrument. The image P6 (attached) shows the chain of traceability in the field
of pressure measurement.
Laboratory for electrical quantities is responsible for the provision of
metrological traceability in the field of electrical quantities in Montenegro, and
transfer of units of measurement of electrical quantities to the lower level
laboratories. Laboratory for electrical quantities is capable of providing
calibration and verification of measuring instruments for electrical quantities.
Chain of traceability in the field of measurement of electrical quantities is shown
in the image P7 (attached).
Laboratory for Time and Frequency is responsible for realization,
preservation and maintenance of national standards of time (frequency), the
realization of traceability of unit of time (frequencies) to the international system
of units and transmission of the unit of time (frequency) to end users. Laboratory
for Time and Frequency is responsible for the realization of the national time
scale and its distribution as well as participation in the calculation of TAI (Temps
Atomique International) and UTC (Universal Time Coordinated) time scales. The
laboratory for time and frequency has fulfilled all the necessary requirements for
participation in the calculation of UTC time and filed an application for inclusion
in the CCTF-K001.UTC key comparison in June 2014. The Bureau of Metrology
officially began to send data to the BIPM ftp server in July 2014, and the results
of the Bureau were first published in September 2015 in a monthly bulletin
magazine Circular T, which publishes deviation of local realization of UTC from
UTC time, what ensures the realization of the formation of Montenegrin time -
16
Montenegrin seconds. The traceability chain in the field of measuring of time
and frequency in Montenegro is shown in image P8 (attached).
Laboratory for small volumes is responsible for ensuring the traceability of
metrological measurements in the field of small volume in Montenegro.
Laboratory for small volume provides services for calibration of standards /
measuring instruments for the industry, health institutions, the pharmaceutical
industry, biochemical laboratories, and laboratories in the field of genetic
engineering and other specialized laboratories. The chain of traceability in the
field of measurements in Laboratory for small volumes by gravimetric method in
Montenegro is displayed in the image P9 (attached).
Laboratory for large volume ensures metrological traceability of the
measurement in the field of large volume in Montenegro. The laboratory for
large volume provides calibration by gravimetric and volumetric method
standard for overflow pipettes and standard for containers of metal. Traceability
for gravimetric method is provided internally through the traceability of
Laboratory for mass. Chain of traceability in Laboratory for large volume by
gravimetric method in Montenegro is displayed in P10 image (attached).
Traceability for volumetric method is provided by the national standard volume,
standard overflow pipettes of metal with traceability of the results of the
calibration to laboratories of national metrology institutes. Laboratory for large
volume implements procedure of the assessment of conformity with prescribed
technical and metrological requirements for determination of the type of
measuring instruments.
Competence of the Bureau of Metrology for performing calibrations that
are specified in the determined scope of accreditation, was confirmed by the
Accreditation Body of Montenegro (ABM), which on March 4, 2014 awarded a
Certificate of Accreditation (Lk14.02) and Croatian Accreditation Agency (CAA)
of 16 April 2014 issued a Certificate of accreditation (no. 2451) which establishes
that the Bureau of metrology is qualified for calibration of measuring instruments
for mass, temperature and length.
In November 2014, Croatian Accreditation Agency and the Accreditation
Body of Montenegro confirmed that the Department of Metrology meets
requirements of MEST EN ISO / IEC 17025: 2011 standard, and that it is competent
to perform calibration of weights, weights with free nominal masses and non-
automatic weighing instruments, calibration of temperature measuring
instruments and calibration of standards and measuring devices for length. The
17
accreditation scope for the Laboratory for mass was expanded in the terms of
calibration of weights of free nominal masses from 1 mg up to 50 kg.
Being confirmed, competence enables Laboratories for mass, length
laboratories, laboratories for temperature, pressure Laboratories, Laboratories for
the electrical size and laboratories for time and frequency, calibration service
delivery benchmarks and standards and customers outside the borders of
Montenegro.
Confirmed competence, enables Laboratory for mass, Laboratory for
length, Laboratory for temperature, Laboratory for pressure, Laboratory for
electrical quantities and Laboratory for time and frequency, to provide services
of calibration for measuring instruments and standards to customers outside of
Montenegro.
At the Bureau of Metrology were also established and are being
developed, Laboratory for electrical power and Laboratory for verification of
measuring instruments for speed of a moving vehicle.
Following activities are performed at the Laboratory for electrical power:
• Provision of metrological traceability in the field of electrical power in
Montenegro, or transfer of units of electrical power to end users;
• Verification of electricity meters (accuracy class 0.2S, 0.5S, 1 and 2, active
electrical energy and accuracy class 2 and 3 reactive electrical energy).
Laboratory for electrical power achieves traceability via a standard
device for testing of electricity meters, the manufacturer MTE, PCS400.3 type,
accuracy class of the device is 0.02. The work capacity of the Laboratory for
electrical power is limited because there is only 3 measuring points, but it is
important to note that a review of electricity meters of accuracy class 0.2S used
for indirect connection to high voltage network, at the systems for power
transmission by high voltage lines. Laboratory for electrical power also conducts
extraordinary inspection of electricity meters in use at the request of interested
parties (Montenegrin Electric Enterprise, consumers).
18
In the Laboratory for verification of measuring instruments for speed of a
moving vehicle inspection is realized in order to determine conformity with the
requirements of metrology, i.e. verification of the following measuring
instruments for speed of a moving vehicle:
• Measuring instruments for speed on the principle of the Doppler effect;
• Laser measuring instruments for speed by measuring the round-trip time
for light to reach a vehicle and reflect back to the instrument;
• measuring instruments for speed working on the principle of measuring
the length of the past distance in relation to time;
• measuring instruments for speed by measuring the time upon the
passage of the vehicle between at least two fixed points at a known
distance.
Verification of measuring instruments for speed of a moving vehicle refers
to:
• measuring instruments that measure the speed from a stationary point
(the scale is not in motion)
• measuring instruments that measure the speed from a mobile point
(scale is in motion).
For the verification of measuring instruments for speed of vehicles,
measuring equipment is used, for which calibration is carried out in the
laboratories of the national metrology institute (NMI) or authorized Institutes
(EURAMET Designated Institutes) who have published CMC in the database of
the BIPM or are accredited by an accreditation body of signatories to the EA
MLA Agreement.
The Bureau of Metrology represents Montenegro at the international and
regional metrological organizations. The Bureau of Metrology is:
A full member of European Association of National Metrology
Institutes (EURAMET), since June 7, 2011;
A corresponding member of International Organization of Legal
Metrology (OIML), since November 2007;
19
An associate member of European Cooperation in Legal Metrology
(WELMEC), since January 2009.
An associate member of (The General Conference on Weights and
Measures) (CGPM), since August 1, 2011.
Vision of the Bureau of Metrology
National metrology institute internationally recognized as a center of an
efficient metrology system in Montenegro.
The Bureau will professionally, objectively and impartially realize the
metrological services, assuring reliable measuring on the territory.
Mission of the Bureau of Metrology
Mission of the Bureau is accomplishment of high quality of services provided in
the field of legal and industry metrology, gaining the trust in the measuring system,
development of scientific metrology,and establishing an efficient metrology system
in Montenegro. The Bureau realizesits mission through expert work and researches,
innovation of services, as well as constant improvment of methods and procedures in
work and management proceses.
20
The Law on metrology ("Official Gazette of MNE", no. 79/08 and 40/11)
stipulates that work in the field of metrology, in addition to the Bureau of
Metrology, is carried out by companies, other legal entities and entrepreneurs
who are authorized to perform the tasks of metrology. Article 8 of the Law on
Metrology ("Official Gazette of Montenegro", no. 79/08 and 40/11) stipulates
that persons who meet the prescribed requirements in the field of metrology
can perform the following tasks:
1) national laboratory for calibration for certain quantities;
2) verification of certain types of measuring instruments;
3) the preparation of measuring instruments for verification.
The Ministry of Economy evaluates the conformity with the requirements
and decides on approval of authorization to perform specified tasks, after
obtaining the opinion the Bureau of Metrology.
Requirements for the authorization for preparation for the verification are
prescribed for: water meters, measuring instruments for mass, taxi meters,
devices for liquid fuels and liquefied petroleum gas, measuring systems for liquids
other than water as well as electricity meters. The requirements that the
The policy of the Bureau of Metrology is aimed at achieving the following
objectives:
• establishing and maintaining good professional practice and quality
of services;
• meet the requirements of the users;
• continual review of the quality of provided services;
• establishing and implementing the necessary actions to improve the
quality of services;
• ensuring data confidentiality;
• respect for ethical standards;
• motivation and permanent training of employees, encouraging
creativity and innovation.
21
applicant must meet, as well as the manner and procedure for issuing the
authorizations, are regulated by the following bylaws:
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of water
meters for verification (“Official Gazette of Montenegro”, no. 44/09);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of mass
measuring instruments for verification (“Official Gazette of
Montenegro”, nos. 65/09 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
taximeters for verification (“Official Gazette of Montenegro”, nos.
74/09 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of fuel
dispensers and devices for liquefied petroleum gas for verification
(“Official Gazette of Montenegro”, nos. 15/10 and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
measuring systems for quantities of liquids other than water for
verification (“Official Gazette of Montenegro”, nos. 15/10, 81/10
and 09/13);
Rulebook on technical and metrological requirements and the
procedure for authorization of persons for the preparation of
electricity meters for verification (“Official Gazette of Montenegro”,
nos. 20/11 and 09/13);
Activities included in the authorization procedure are illustrated in Figure 1,
and the data on authorized persons to prepare standards officer in Montenegro
are listed in Table P1 (attached).
22
Figure 1. Activities included in the authorization procedure
Measuring instruments for which it is not rational to obtain conditions for
review, here in Montenegro, verification is carried out by competent and
authorized laboratories abroad, i.e. verification is carried out based on the
recognition of documents of foreign institutions in accordance with international
agreements signed by Montenegro.
A very important segment for the functioning of the metrology system in
Montenegro represents metrological-control supervision. Pursuant the Law on
Metrology ("Official Gazette of MNE", no. 79/08 and 40/11) metrological-control
is supervision over the transport, installation, use, maintenance and repair of
measuring instruments, performed in order to verify that the they apply in
accordance with this law and other regulations in the field of metrology, as well
as the verification of the accuracy of the quantities indicated and contained in
23
pre-packaged products, as well as undertaking administrative and other
measures and activities in order to comply determined irregularities with the
regulations.
The manner and procedure of metrological-inspection control is carried
out in accordance with the Law on Inspection Control (“Official Gazette of
MNE”, no. 39/03 and “Official Gazette of MNE”, Nos. 76/09, 57/11, 18 / 14 and
11/15) and the Law on General Administrative Procedures (“Official Gazette of
MNE”, no. 60/03 and “Official Gazette of MNE”, no. 32/11).
Metrological-control supervision was the responsibility of the Bureau of
Metrology until 2012. After the change of the organization and the manner of
work of State Administration in 2012, affairs related to control in the field of
metrology is performed by the Administration for Inspection Affairs.
2.4 ASSESMENT OF DE FACTO SITUATION BY SWOT ANALYSIS
When drafting the Strategy of metrology development in Montenegro
SWOT analysis (Figure 2) was applied, showing that the strategy should:
• Recognize the power on which to develop activities to achieve the
objectives;
• To indentify the weaknesses and indicate the measures to reduce them;
• take advantage of identified opportunities in the best and most efficient
way;
• Identify threats, examine the possibilities for their removal and point out
alternative solutions.
24
Figure 2. SWOT analysis
25
3. CONFOMITY WITH EU LEGISLATION
The requirements of the European Union in the field of metrology are
primarily related to the harmonization of national metrology regulations with the
EU directives in the subject area and strengthening the metrological
infrastructure. The European Union in this regard provides a contribution to the
projects for pre-accession assistance (IPA), which provides professional and
technical assistance to strengthen the capacity of metrology.
Directive of the European Union je a legally binding document for the
Member States, with the individuality of form and methods for their
implementation, through which the legal systems of the Member States are
approximating each other. There are directives of “old approach" and
directives of "new approach". Unique marking system known as CE, towards
which directives of the "new approach" act, was introduced in 1985.
Basic specifics of the Directive of "old approach" are:
• Do not include CE marking;
• A high level of technical requirements for products, detailed
specifications;
• Legislation Member State may apply simultaneously;
• National standards and regulations "faster" than the finalization of the
directives;
• Member States are responsible for the conformity of the product.
Basic characteristics directives of the "new approach" are:
• CE marking;
• The minimum level of technical requirements for products, general
specifications;
• The conditions in terms of safety, quality and design;
• Manufacturers are responsible for the conformity of the product;
• Notified bodies carry out conformity assessment;
26
• Technical requirements for products, in the harmonized European
standards issued by CEN, CENELEC, ETSI;
• Checking conformity with technical conditions:
1) Manufacturers - who themselves certify products based on the
conditions of the relative directive,
2) The Notified bodies - appointed by the Member States which
carry out tests and approval of the product.
Directives of "new approach" allow so-called "modular approach" i.e. 8
modules divided into the phase of development and production phase, of
which 3 modules are based on the introduced quality system.
Directives of the European Union in the field of metrology, for which the EU
Member States have an obligation to transpose into national legislation, in order
to harmonize the regulations, are the following ones:
CELEX 31980L0181, Council Directive 80/181/EEC of20 December, 1979.
on the approximation of the laws of the Member States relating to units of
measurement and abolition of Directive 71/354/EEC;
CELEX 32009L0003, European Parliament and Council Directive 2009/3/EC
of 11 March, 2009. Which amends Council Directive 80/181/EEC on the
approximation of the laws of the Member States relating to units of
measurement;
CELEX 32009L0034, European Parliament and Council Directive
2009/34/EC of 23 April 2009, relating to common provisions for both
measuring instruments and methods of metrological control;
CELEX 31976L0211, Council Directive 76/211/EEC of 20 January 1976, on
the approximation of the laws of the Member States relating to the filling
by weight or by volume of certain prepackaged products;
CELEX 32007L0045, European Parliament and Council Directive
2007/45/EEC of 5 September 2007, that defines rules on the range of
nominal quantities for prepacked products., abolishes Council Directive
75/106/EEC and 80/232/EEC and amends Council Directive 76/211/EEC;
CELEX 31975L0107, Council Directive 75/107/EEC of 19 December 1974,
on the approximation of laws of the Member States relating to bottles
used as measuring containers;
27
CELEX 32014L0032, European Parliament and Council Directive 2014/32/EU
of 26. February 2014, on the harmonization of the laws of the Member
States relating to making available on the market of measuring
instruments (MID);
CELEX 32014L003, European Parliament and Council Directive 2014/31/EU
of 26, February 2014, harmonization of the laws of the Member States
relating to making available on the market of non-automatic weighing
instruments (NAWI).
MID and NAWI regulations represent a novelty in the legislation pertaining
to metrology, since the national type approval procedures and the first national
verification do not apply to measuring instruments included in these regulations,
but the applicable European type testing is in accordance with the MID and
NAWI and the valid marking (initial verification) is the one carried out by the
manufacturer. The subject regulation only treats the placing of the measuring
instruments on the market (initial verification), the manufacturer / importer is
responsible for the conformity of measuring instruments, and the manufacturer
chooses the assessment procedure for the measuring instruments.
Application of MID and NAWI regulations implies active cooperation with
EU bodies for conformity assessment for measuring instruments, as well as
correspondence with the relevant EU institutions.
Basic problems in the process of transposing EU directives in the field of
metrology into the national legislation are:
• legal character dilemmas;
• lack of experience;
• lack of highly qualified professional staff and technical capacity;
• lack of clarity of certain provisions of the Directive;
• the lack of a precise translation into Montenegrin language.
In addition to the harmonized area, which includes legal unity and
synchronization between the Member States, there is a non-harmonized field,
i.e. an area where each member state has its own unique legislation in a
28
particular area, provided that it cannot prevent the trade, and the free flow of
people, goods and services, which is handled by clauses on mutual recognition.
4. INTERNATIONAL AND REGIONAL METROLOGICAL ORGANIZATIONS
4.1 INTERNATIONAL METROLOGICAL INFRASTRUCTURE
4.1.1 METRE CONVENTION
The basic idea from which the metric system has originated - a system of
units based on the meter and the kilogram - was created during the French
Revolution when the first two reference standards were made - for meter and
kilogram, made of platinum, and then located in the French National Archives in
Paris in 1799. – and that is how they later became known as the archive meter
and the archive kilogram. French National Assembly then ordered the French
Academy of Sciences to develop a new system of units that would be used
throughout the world
The advantage of using the French measures became apparent in
Europe, despite the ongoing wars at that time. Finally on 20 May 1875,
representatives of the governments of 17 countries, have signed the Treaty in
Paris called "Metre Convention" in order to ensure a uniform system of
measurement units in the world. Adopted were the unit of length - the meter
and the unit of mass - kilogram, and the International Bureau of Weights and
Measures (BIPM) was established, based in Sevres near Paris. The Metre
Convention was slightly modified in 1921.
Representatives of the governments of the Member States meet every
fourth year at the General Conference on Weights and Measures (CGPM), to
discuss the activities carried out by national metrology institutes and the BIPM, to
make recommendations concerning the new fundamental metrological
guidelines, while they also analyze the other matters important for the
functioning of the BIPM.
CGPM elects up to18 representatives to the International Committee for
Weights and Measures (CIPM),that meets once a year. CIPM supervises the BIPM
on behalf of the CGPM and co-operates with other international metrological
organizations. CIPM is supported by 10 consultative committees.
29
4.1.2 CIPM MUTUAL RECOGNITION ARRANGEMENT
CIPM Mutual Recognition Arrangement (CIPM MRA) is an agreement
between the national metrology institutes, signed in 1999, and to some extent
revised in 2003 with regard to some technical issues. CIPM MRA consists of two
parts. The first part refers to establishing the degree of equivalence of national
measurement standards, and the other on mutual recognition of certificates of
calibration and measurement issued by participating institutes. CIPM MRA may
sign only one national metrology institute (NMI) as a representative of a country,
while the other institutes from that country that keep nationally recognized
standards (authorized institutes), can participate in the CIPM MRA through the
signatory NMI.
National Metrology Institute may choose to join only part of the overall
agreement or CIPM MRA. National Metrology Institutes of associate states of the
Metre Convention can join the CIPM MRA only through their regional metrology
organization. CIPM MRA does not extend nor replace any part of the Metre
Convention and is a technical arrangement between the directors of the
national metrology institutes, not a diplomatic treaty.
OBJECTIVES of CIPM MRA are:
to establish the degree of equivalence of national measurement
standards maintained by NMIs;
to provide governments and other parties with a secure technical
foundation for wider agreements related to international trade,
commerce and regulatory affairs.
These objectives are achieved by the implementation of the following
processes:
review of the declared measurement and calibration capabilities (CMC)
of the national metrology institutes (NMI) of the participants and the
designated Institute (DI);
credible participation of the national metrology institutes in international
standards comparisons (key comparisons or supplementary comparisons);
reviewing the quality system and demonstration of competence of the
national metrology institutes participants and authorized institutions.
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The end result of these processes is declaring measurement and calibration
capabilities (CMC) of an each national metrology institute and the designated
institutes and publication of the results of comparison in the database
maintained by the BIPM and publicly available on the web at:
http://kcdb.bipm.org/appendixC/default.asp
CIPM MRA is coordinated by BIPM and consultative committees. Regional
metrology organizations and BIPM are responsible to implement processes to
achieve the objectives of the CIPM MRA, while Joint Committee of the Regional
Metrology Organizations and of the BIPM is responsible for analyzing and
approving the data to be entered into the database.
4.1.3 OIML
The International Organization of Legal Metrology (OIML) is an
intergovernmental treaty organization founded in 1955., based on the
convention, that was changed in1968. The objective of OIML is to promote the
global harmonization of legal metrology procedures.
OIML has created a technical structure at the global level that provides
for Member States with metrological guidelines for the development of national
and regional requirements concerning the manufacture and use of measuring
instruments used in legal metrology. OIML issues international recommendations
that provides for members with an internationally agreed basis for the adoption
of national legislation for different measuring instruments. Draft
recommendations and documents are prepared by the OIML technical
committees or subcommittees assembled of representatives composed of the
Member States.
The system of beliefs at OIML which was introduced in 1991, enables
producers to obtain the Certificate and Report of the OIML test, as a proof that
a given instrument type complies with the requirements of relevant international
recommendations OIML. Certificates are issued by OIML member states which
have for that purpose set up one or more organs that are responsible for
processing applications from manufacturers needing their instrument to be
approved. Acceptance of these certificates in the field of the national
metrology services is voluntary.
http://kcdb.bipm.org/appendixC/default.asp
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4.1.4 NATIONAL METROLOGICAL INSTITUTES
National metrology system represents a technical infrastructure that enables
the implementation of accurate and reliable measurements. The metrology
system must be adapted to the needs of the country but also internationally
acceptable.
National Metrology Institute (NMI) is the institution that is authorized by
national decision to develop and maintain national standards of one or more
quantities.
Many national metrology institutes realize primary standards of the base and
derived units at the highest achievable international level, while some national
metrology institutes realize some units using secondary standards which are
traceable to other the national metrology institutes.
National metrology institutes are responsible for the following:
• dissemination of the SI units to accredited laboratories, industry, legal
authorities, etc.;
• research in metrology and the development of new and improvement of
standards (primary and secondary), and measurement methods;
• participating in comparisons at the highest international level;
• maintaining the general structure of the national hierarchy regarding
calibration / traceability (National Metrology System).
4.1.5 REGIONAL METROLOGICAL ORGANIZATIONS
At the regional level, the National Metrology Institutes cooperate in the
framework of the Regional Metrology Organization (RMO). Activities of the RMO
depend on the specific needs of the region, but usually include:
coordination of the comparisons of national standards, and other
activities CIPM MRA;
cooperation in metrology research and development;
to facilitate traceability to the SI primary achievements;
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cooperation in the development of metrology infrastructure of the
Member States;
joint trainings and counseling;
joint use of technical equipment and facilities.
Regional metrology organizations play an important role in the CIPM
Mutual Recognition Arrangement, since they are responsible for the review
described in the section 4.1.2, as well as the presentation of the results of an
organization in the Joint Committee of Regional Bodies JCRB.
4.2 EUROPEAN METROLOGY INFRASTRUCTURE
4.2.1 EURAMET
Cooperation between the national metrology institutes in the European
Union and the European Commission (EUROMET) was established as a joint forum
for cooperation in the field of national standards by signing a Memorandum of
Understanding in 1987. Increase of the level of integration, planning and
implementation of metrological research and development created the need
of establishment of a legal entity for coordinating activities in the field of
European metrology. European Association of National Metrology Institutes
(EURAMET) was founded in January 2007, replacing the EUROMET as the
European regional organization on 1 July 2007. Today EURAMET coordinates
cooperation between national metrology institutes with nearly 6,000 employed
metrologists for the development of European metrology infrastructure and
services. EURAMET is a regional metrology organization on European level and
represents Europe in international metrology forum CGPM.
One of the main aims of EURAMET is a coordinated European research in
metrology, i.e. analysis of common future needs in metrology, definition of
common goals and programs, planning and execution of joint research
projects. Into the European metrology research program (EMPR), launched in
2008, was invested 400 million Euros. The report on the research conducted
within the EMRP is expected during 2017. The continuation of this successful
program is a European research and innovation program in the field of
metrology (EMPIR), which is an integral part of Horizon 2020 (Horizon 2020), the
European Union's Framework Programme for research and innovation. Horizon
2020 is aimed at strengthening and expanding the base of the European Union
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to consolidate research area in order to make innovation and research system
more competitive on the global level. EMPIR has a clear objective - ensuring
competitiveness and well-being of European citizens, so that the main
challenges are the following areas: health, energy, environment, industry, as
well as the progress in fundamental science of measurements.
4.2.2 WELMEC
West European Cooperation in Legal Metrology (WELMEC) was established
in 1990, when representatives of 15 European Union Member States and 3 EFTA
Member States, signed the Memorandum of Understanding relating to the
preparation and implementation of the directives of the "new approach". The
organization in 1995 received a new name European cooperation in legal
metrology, but it retained the term WELMEC. At the time an associate
membership in the WELMEC was accepted for the countries that have signed
agreements with the European Union. WELMEC members are the national
authorities for legal metrology in member states of the EU and EFTA, while the
associate members of WELMEC are national authorities for legal metrology in
those countries that are in the process of negotiations on accession to the
European Union.
The goals of WELMEC are to:
• develop mutual trust between the authorities for legal metrology in Europe;
• harmonize legal metrology activities;
• exchange of information between interested parties.
WELMEC advises the European Commission and the Council regarding
the application an further development of relevant metrology directives.
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5. STRATEGY DESIGN PROCEDURE AND STRATEGIC PLANNING
Strategy Draft for the Development of Metrology in Montenegro is a
planning document, consisted of eight (8) strategic objectives as shown in the
figure 3, as well as the guidance with activities for achieving the operational
objectives in the period from 2016. to 2018.
Figure 3. Strategic objectives for the development of Metrology
The management of the Bureau of Metrology, staff representatives
from the Bureau for Metrology and representatives of the Ministry of Economy in
the preparation of the Draft Strategy for the Development of metrology in
Montenegro participated and the main metrology inspector was also consulted.
Preparation of the Draft Strategy for the development of metrology in
Montenegro implied the formation of a working group, which carried out the
collection, preparation and analysis of information necessary for the design of
the strategy, in line with the mission and vision of the Bureau of Metrology, as
well as the needs of the Montenegrin society, economy and science. Through
the development of strategic objectives and action plans the planning
document was established, aiming to provide consistent service delivery in the
field of metrology, that fulfill the relevant requirements of the user and
applicable laws and regulations. The processes necessary for the development
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of the quality management system, as well as their application in the "new"
areas of metrology, were identified. During the period of implementation, the
Ministry of Economy and management of the Bureau of Metrology, guided by
the principle of permanent improvements, shall exercise the review and analysis
of the strategy on an annual basis, as shown in Figure 4. The Ministry of Economy
and management of the Bureau of Metrology, in order to harmonize strategies,
policies, processes and resources for the achievement of its objectives, defines
interested parties and reviewed information on all interested parties and