Education Policy Outlook 2018

Belgium

Context (national)

Belgium scored higher than the OECD average in science in PISA 2015, with a mean score of 501 points, compared to the OECD average of 493 points. Performance in science remained stable across PISA cycles, with an average score change of -2.7 score points, while reading performance has stayed the same and mathematics performance has decreased. Socio-economic status had one of the largest impacts among OECD countries on science performance in PISA 2015, explaining 19.3% of the variance in performance (OECD average: 12.9%). The impact of ESCS on performance in science has not changed since 2006. Gender differences in science performance were among the highest in the OECD, with a difference between boys and girls of 12 points, compared to the OECD average difference of 4 points. Immigrant students made up 17.7% of the student population of 15-year-olds in 2015, higher than the OECD average of 12.5%. Performance differences between immigrant and non-immigrant students are higher than the OECD average. Immigrants scored on average 43 score points lower than non‑immigrants in science in PISA 2015, compared to the OECD average of 31 score points.

Education-only pre-primary programmes with no tuition fees exist in each community of Belgium. A formal curriculum for these programmes is delivered by qualified teachers. Compulsory education in Belgium begins at age 6 and ends at age 18, longer than the typical duration across the OECD. Students are typically first tracked into different educational pathways at age 14, but in some cases as early as age 12, which is earlier than the OECD average of age 14. Upper secondary education has a wide diversity of streams in all education systems in Belgium. All three Communities offer four-year general, technical and vocational streams of education, and the Flemish and French Communities also offer an art education stream. In general, students can access higher education after attending a general, technical or art education upper secondary programme. Vocational streams require the completion of a seventh year of secondary education to receive a secondary school leaving certificate. In the Flemish and French Communities, secondary vocational education can be followed in two strands: purely school-based or dual school‑ and work-based. All five upper secondary education programmes, including dual vocational education, lead to a diploma for secondary education. Only completion of general, arts, and technical secondary programmes provides access to higher education, after four years of upper secondary education. Students in the Flemish and French Communities who complete vocational secondary education receive a secondary school leaving certificate and have access to associate degree programmes only if they complete an extra year, which then can grant access to all strands of higher education, universities and university colleges. In the German-speaking Community, students who complete secondary school receive a leaving certificate and have access to higher education, regardless of the education stream they have completed.

Overall, Belgium has a higher-than-average enrolment rate in school-based VET among OECD countries, with 57% of students aged 15-19 following a VET programme (compared to the OECD average of 40%). The proportion of the population aged 25-64 with lower secondary education as the highest level of attainment in Belgium is higher than the OECD average, with an attainment rate of 16% in 2016, compared to the OECD average of 14.3%. NEET rates (the proportion of those aged 18-24 that are neither employed nor in education or training), are lower than the OECD average, at 12.4%, compared to the OECD average of 15.3%. The share of population aged 25-34 with a tertiary-level qualification is higher than the OECD average, at 44.3% in 2016, compared to the OECD average of 43.1%. Employment rates for 25-34 year-olds with tertiary education are higher than the OECD average. In 2016, 86.8% were employed, while the OECD average rate was 82.9%.

Figure 7.3. Selected indicators compared with the average: Belgium

Note: For each indicator, the absolute performance is standardised (normalised) using a normative score ranging from 0 to 220, where 100 was set at the average, taking into account all OECD countries with available data in each case.

Sources: OECD (2016), PISA 2015 Results (Volume I): Excellence and Equity in Education, PISA, OECD Publishing, Paris, http://dx.doi.org/10.1787/9789264266490-en; OECD (2016), Skills Matter: Further Results from the Survey of Adult Skills, OECD Publishing, Paris, http://dx.doi.org/10.1787/9789264258051-en; OECD (2017), Education at a Glance 2017: OECD Indicators, OECD Publishing, Paris, http://dx.doi.org/10.1787/eag-2017-en.

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Evolution of key education policy priorities

Table 7.3. Evolution of key education policy priorities, Belgium (2008-17)

Identified by	Equity and quality	Preparing students for the future
Selected OECD country-based work, 2008-171	The socio-economic background and immigrant status of students have a higher impact on student performance than in other OECD countries. In the case of immigrants, explaining variables are the level of education on arrival in the country and lower enrolment rates in ECEC, which have an impact on early assimilation of the language. [2007; 2011; 2015]	Persisting difficulties were identified in filling some job vacancies, especially in technical areas. Young people in secondary vocational studies are often unable to find employment, as they lack technical skills. This can partially be explained by the marginal training received in the workplace. As a result, a severe skills mismatch has developed on the labour market. Also, a high share of immigrants pursue VET, with fewer opportunities to pursue further studies afterwards. [2011; 2015]
Evolution of responses to EPO Surveys, 2013 and 2016‑17	The Flemish Community has reported difficulty in integrating students with disadvantaged backgrounds and limited knowledge of Dutch into mainstream education, which has increased dramatically due to the acceleration of immigration within the last few years. In the French Community, grade repetition remains the highest among countries participating in PISA 2015. The integration of students with special needs into mainstream education must also be improved. According to the Community’s reports, major school reforms have been launched recently, aiming to improve equity, key competences, and the quality and relevance of VET. [2013; 2016-17]	The Flemish Community had previously reported a need to adjust adult education to facilitate effective transitions to the labour market, as well as to reduce numbers of students leaving secondary education without a qualification. In the French Community, similar policy priorities remain with regard to early school leaving. It has also been reported that VET lacks attractiveness and student preference should be further taken into account when improving the VET system. [2013; 2016-17]

1. See Annex A, Table A A.3 for the list of OECD publications consulted for this snapshot.

Flemish Community

After the Flemish Parliament ratified the UN Convention on the Rights of Persons with Disabilities in 2009, the Flemish Community of Belgium legally reinforced the right of students with special educational needs to be enrolled in mainstream education, through the passing of the M-Decree in 2014. Its measures include: 1) updating the definition categories for students with special educational needs, including a category for children with autism; 2) requiring mainstream schools to make reasonable adjustments (such as providing specialist equipment and support staff to accommodate students with special education needs in the mainstream system) and requiring mainstream schools to only refer a student to special education once all such “reasonable adaptations” have been tried; and 3) providing the right to appeal to a Student Rights Commission (Commissie inzake leerlingenrechten) to parents of a child with special educational needs who disagree with a school’s refusal to enrol their child. This commission, created by the Parliamentary Act of 2002 on Equal Educational Opportunities, is comprised of experts in equality and education law. In May 2017, the government reached an agreement regarding the allocation of EUR 103 million for updating classrooms and training teachers for special needs students (EC, 2017a).

• Progress or impact: The measures imposed in the M-Decree were implemented in 2015-16. National sources indicate that there is already a noticeable decrease in the number of primary students in special education in the first school year under the new measure (Vlaanderen, 2017).

As part of the Parliamentary Act for primary and secondary education (2008) in the Flemish Community of Belgium, additional financial resources are provided to schools to compensate for socio-economic disadvantage. In fact, the Flemish school-financing system is designed to support equal access to educational opportunities for all students and compensate for differences in student backgrounds. To help schools meet the needs of students from diverse backgrounds, school operating grants are weighted for socio-economic status. This is intended to account for the influence of key differentiating variables: the mother’s educational level, foreign language spoken at home, the family’s financial capacity and the student’s neighbourhood characteristics. Student socio‑economic characteristics are also used in the calculation, and elementary schools and secondary schools receive a top-up of teaching hours based on school concentrations of such characteristics. Differential weighting recognises the adverse impact on student learning of specific student background characteristics. For elementary education, characteristic-based funding amounted to 14% of the overall budget in 2012, and it is being increased gradually to reach 15.5% by 2020. For secondary education, the share of the budget amounted to 10% in 2008-09, and it is gradually being increased to 11% by 2020. For secondary education, the share of the budget amounted to 10% in 2008-09 and is gradually being increased to 11% by 2020 (Flemish Department of Education and Training, 2015). This additional funding may make it possible to run remedial classes, split classes, and release teachers for a range of pedagogical and support activities. In these ways, the Flemish authorities seek to balance choice and autonomy with equity.

• Progress or impact: PISA 2015 data show that larger-than-average gaps remain in performance between students of different socio-economic backgrounds, as well as between immigrant and non-immigrant students (OECD, 2016a). An OECD review of school resources in the Flemish Community found that the system is well resourced, but to fully understand the impact of targeted funding, it would be necessary to have more empirical data available in the system on resource outputs and resource utilisation, as schools have autonomy to disburse the extra funding in different ways according to local needs. The review also proposed shifting more of the budget to lower levels, as evidence shows this provides a higher rate of return (Nusche et al., 2015). The Flemish Community has already begun to make some changes to funding structures in response to the review, such as investing more in areas of high need (for example integrating new immigrants and funding new school infrastructure in densely populated urban areas), as well as redistributing funds to lower education levels (OECD, 2017b).

In 2015, the parliament of the Flemish Community of Belgium launched the action plan “Together against Early School Leaving” (previously the Action Plan on Early School Leaving [2013] and Spijbelplan [2012]). It targets different types of populations at risk: early school leavers (emigrants with low education level); truants; NEETs; and general youth at risk (SERV, 2015). The policy guidelines in the Action Plan outline actions that have been completed, are in operation and are about to begin. Local actions are aligned to the European reference framework of prevention, intervention and compensation (Vlaanderen Department Onderwijs en Vorming, 2017). Furthermore, the action plan includes monitoring, identification and co‑ordination. In 2016, the government set up the Early School Leaving Monitor to monitor and track the outcomes, socio-economic characteristics and study progression of young people who leave education without an upper secondary qualification.

• Progress or impact: As of 201752 actions have been completed, 51 are still in operation and 4 are about to begin. Actions and results on the four levels include reporting recurrent absences of students and addressing students directly in case of truancy, in order to make schools more responsive. The group of measures also includes setting up a plan to combat bullying. Another completed action is the appointment of a Flemish truancy officer who is in charge of accompanying, following up and evaluating the implementation plan. (Vlaanderen Department Onderwijs en Vorming, 2017).

In the Flemish Community of Belgium, a new model of dual vocational learning (Schoolbank op de werkplek) is underway, with pilot projects running since 2015/16 and general implementation starting during 2018/19. Students are trained in the workplace and in a centre for part-time education (CEDEFOP, 2017a). One component is an online tool (werkplek duaal) where companies can upload requests for getting their apprenticeship place accredited (Syntra Vlaanderen, 2017a). The tool started operating in 2016, and 8 938 accreditations were verified by 2017 (Syntra Vlaanderen, 2017a).

• Progress or impact: According to CEDEFOP (2017a), the reforms have already shown positive results. During the pilot stage, 34 schools took part, with 7 operating pathways and 126 apprentices. Also, 25 pioneers of the programme graduated in chemical process techniques. The number of approved accreditations on the werkplek duaal website increased to more than 10 000. In addition, 12 sectoral partnerships were active by then (Syntra Vlaanderen, 2017b).

Between 2009 and 2013, Belgium’s Flemish Community implemented a national qualifications structure that includes measures such as short-cycle tertiary education (Hoger beroepsonderwijs [Higher Vocational Education], HBO5 or SCHE EQF level 5). This new level was added to expand access to higher education and meet labour market needs. The qualifications’ structure will be further expanded with the systematic definition of the competences of professional qualifications to be obtained through schooling. This process is carried out by the Flemish Ministry of Education and Training in co-operation with employers and representatives of the different business and industry sectors.

• Progress or impact: The 2011 results of the pilot project pointed out that the new level corresponds to a paradigm shift, which requires major efforts to move from adult education to a higher education programme at SCHE level 5 (Kirsch and Beernaert, 2011). In 2016, a concept note was put forward by the Flemish government on the expansion of the HBO5 (short-cycle/associate degree). In 2017, a framework on the new HBO5 education transformation (Kader Toets Nieuwe HBO-5 Opleiding Omvorming) was published. It aims to provide clarity on the quality guarantees, standards and criteria, which should be used as a basis to judge the quality of converted HBO-5 programmes. More specifically, the framework includes all the criteria for a HBO-5 decree: educational content and process, material facilities, quality of staff and internal quality assurance (NVAO, 2017).

French Community

In 2016, the French Community of Belgium introduced a further series of measures aimed specifically at reducing the prevalence of children repeating the third pre-primary year. These measures are part of the Take-off Project, initiated in 2012 to prevent grade repetition among children age 2.5 to 8. These recent measures require that children be held back only in exceptional circumstances, following an assessment by the school leader and a psycho-social-medical centre (CPMS). They also introduce a skills assessment for children for early identification of learning difficulties and disabilities. Depending on the child’s outcomes on this assessment, a remediation plan can be put in place by the school, in partnership with the CPMS involved in the assessment to increase the chances for a successful transfer to primary education. In additional, new curriculum standards were introduced for pre-primary schools to define core initial competence bases and promote smoother transitions from pre-primary to primary education.

• Progress or impact: As of 2010, grade retention occurred for students as early as in pre-primary education and through secondary education. In fact, as students got older, they were more and more likely to repeat a grade in both primary and secondary education (Enseignement en Fédération Wallonie-Bruxelles, 2014). However, between 2009 and 2015, grade retention rates decreased for primary students from 18% to less than 15%. Between 2012 and 2015, grade retention for upper secondary students decreased from almost 52% to less than 50% (Enseignement en Fédération Wallonie-Bruxelles, 2016). Following the initiative’s implementation in 2012, at least 160 schools and 45 CPMS joined. By 2014, more than 290 schools and 75 CPMS were participating in the Take-off Project. Between 2012 and 2014, 847 children were enrolled in the project, through 61 CPMS and 215 schools (Enseignement en Fédération Wallonie-Bruxelles, 2014).

Additional education policies of potential interest to other countries

Flemish Community:

• The Flemish Community gives priority access to childcare for children under age 3. Beneficiaries are single parents and/or low-income parents who are unable to care for their children during the day due to their work or study, or for whom childcare can facilitate socio-economic integration and increased labour market participation. Schools receive extra funding (EUR 950 per year) at pre-primary education level for each newly arrived child from the age of 2.5 whose native language is not Dutch.

• In 2015 and 2016, a series of special measures were passed by the Flemish Parliament to enhance integration of refugees in the education system. These include: 1) new funding initiatives for language support in pre-primary schools; 2) an increase of resources for welcoming classes in school education; and 3) further supporting previously existing measures, such as adult linguistic integration and NARIC (National Academic Recognition Centre) for recognising refugees’ qualifications. In addition, special admission procedures and financial support measures are applied for refugee students in universities and university colleges (OECD, 2017b).

• The 2013 Master Plan for secondary education and related policy measures aim to reduce early school leaving by integrating existing initiatives and closely linking to other reform processes (such as the rationalisation of school governance), updating educational objectives and developing a new system of dual learning. The first stage, outlined in three concept notes approved by the government in 2016 and 2017, includes measures for pre-primary, primary and secondary education to ease students’ transition into secondary education. Legislative work is underway to assure gradual implementation of these measures, starting in 2018.

• The Ethical Trading Initiative for Young People Programme (2013) was developed as part of VET education to prepare students for the transition to the labour market and equip them with key competencies, such as ownership, responsibility, creativity, innovation, and critical thinking (Syntra Vlaanderen, 2014).

• A 2012 Agreement between the Flemish Government and the Social Partners on Professional Careers encompasses measures to facilitate transition from education to the labour market. It was the framework for action under the previous administration (2009-14). In the current administration (2014-19), the measures continue under different umbrellas, such as the Action Plan on STEM, for which first pilot projects have started, and the planned reform of work-based vocational secondary programmes in close co-operation with industry, for which parliamentary work is still underway.

French Community:

• The French Community has progressed with the Pact for Excellence in Teaching (Pacte pour un enseignement d'excellence, 2015-30) for ECEC and across all levels of compulsory education. It was developed to define action priorities with a 15-year horizon to strengthen quality, equity and efficiency in education on the basis of an implementation plan. It has five strategic goals: 1) teach the knowledge and skills required for 21st century society (by strengthening ECEC and ensuring a common base learning from ECEC until Year 3 of Secondary education); 2) mobilise education stakeholders within a framework of school autonomy and accountability; 3) make the vocational pathway a stream of excellence (e.g. through career advice and a reform of study pathways; 4) promote inclusive education, and strengthen the fight against school failure, dropout and grade repetition (with the target of decreasing grade repetition by 50% in 2030); and 5) ensure the well-being of each child in a quality school, favouring a democratic school (La Fédération de Wallonie-Bruxelles, 2017; OECD, 2017b).

• The DASPA decree (Dispositif d'accueil et de scolarisation des élèves primo‑arrivants, 2012, further strengthened in 2015) provides for a series of measures to support the integration of newly arrived children and those with a linguistic background other than the language of instruction (French), such as special reception classes and tailored pedagogical support.

• Modifications were proposed in 2017 for the Instrument for Differentiated Support (Dispositif d’encadrement différencié), which was first implemented in 2009. This policy provides additional human and financial resources to schools catering to a larger share of students from disadvantaged backgrounds, as well as a specific pedagogical project to help bridge gaps in opportunities for quality education. Under the new approach, a socio-economic index is used to estimate the need for resources based on the socio-economic background of the student and the community. Elements such as household revenue, educational attainment or unemployment are part of this index, which contains information for all schools in the French Community. Schools where 25% of students score as most disadvantaged by this index can benefit from this instrument. The index is updated every year, but the decision to allocate differentiated support is made on a six-year basis (Eurydice, 2017; Internal Communication).

• The 2016 Decree (Arrêté du Gouvernement de la Communauté française fixant le modèle du document explicatif des types de stage et des attentes de l'enseignement secondaire vis-à-vis du milieu professionnel) mandates work experience in different jobs in the third year of secondary education. It allows students to gain information, access training courses, and have immersion as well as experience in the socio-professional world.

• In 2016, the French Community approved a decree that implements dual vocational education in higher education for certain fields of study and programmes leading to jobs where there are skills shortages (including science fields, information technology and building and town planning) and for new and evolving professions, such as those related to sustainable development or linked with the economic recovery. This new option intends to expand access to higher education, meet labour market needs, ease the transition between education and the workplace for students, and allow students to develop practical skills while still in education. It makes it possible to acquire some higher education degrees dually in an institution-based setting and workplace. Dual vocational education will be permitted in short-cycle programmes and vocational certificates, as well as masters’ degrees. These programmes combine a minimum of 40% of workplace training and a minimum of 40% institution-based teaching (OECD, 2017b).

• In 2015, the Governments of the French Community and the country’s Walloon Region supported the allocation of funds to projects aiming to equip young people with relevant skills and to support the transition to the labour market. Almost 400 projects were selected, with a total budget of EUR 800 million as part of the 2014-20 European Social Fund (ESF) programme.

German-speaking Community:

• In 2014, the Parliament of the German-speaking Community adopted a decree on childhood care covering this Community’s ECEC system. The aim of the decree is to provide a framework for all ECEC support measures in the German-speaking Community and to regulate the basic provisions in childhood care.

More information available at: www.oecd.org/education/policyoutlook.htm.