Education Policy Outlook 2018

Estonia

Context

In PISA 2015, Estonia scored among the highest in the OECD in science, with a mean score of 534 points, compared to the OECD average of 493 points. Performance in science remained stable across PISA cycles, with an average score change of 2.2 score points, while reading performance has increased and mathematics performance has stayed the same. Socio-economic status had one of the lowest impacts in the OECD on science performance in PISA 2015, explaining 7.8% of the variance in performance (OECD average: 12.9%). The impact of ESCS on performance in science has not changed since 2006. There was no significant gender difference in science performance in PISA 2015. Immigrant students make up 10% of the student population of 15-year-olds, a slightly lower proportion than the OECD average of 12.5%. Performance differences between immigrant and non-immigrant students are at the OECD average. Immigrants scored on average 31 score points lower than non-immigrants in science in PISA 2015, compared to the OECD average of 31 score points.

Enrolment of 3-year-olds in ECEC was higher than the OECD average in 2015 at 86.9% (OECD average: 77.8%). Municipalities have to guarantee a place in pre-primary education (alusharidus) to all children between age 1.5 and age 7, but universal coverage has not yet been reached. Integrated programmes, which include education and childcare services, exist nationally. They offer a formal curriculum that is delivered by qualified teachers. Education-only programmes do not exist nationally. Compulsory education in Estonia begins at age 7, and students must attend school until they acquire basic education or reach age 17. This is shorter than the typical duration across the OECD. Students can follow different educational pathways after completion of basic school, usually at age 16, later than the OECD average of age 14. Upper secondary education is divided into general secondary education (provided by upper secondary schools) and vocational secondary education (provided by vocational educational institutions). Students attending the general upper secondary track receive a school leaving certificate and a state examination certificate, which gives them access to tertiary education.

Vocational training is organised by vocational educational institutions and professional higher education institutions. Formal VET leads to four qualification levels (2 to 5) that are the same as in the European Qualifications Framework (EQF). Most VET is provided at upper secondary (Level 4 at EQF) and post-secondary levels (level 5 at EQF). VET programmes are also available for learners who have not completed basic education (Levels 2 and 3 at EQF). Upper secondary vocational education programmes last from three to four years. Graduates receive a Certificate of Vocational Secondary Education and a State Examination Certificate that allows them to attend university or professional higher education institution or continue in post-secondary VET (Level 5 programmes). Vocational programmes at Level 4 that do not contain general subjects and do not lead to upper secondary education are also available. Such programmes last up to 2.5 years and are popular among adult learners. The duration of post-secondary VET programmes (Level 5 programmes) is up to 2.5 years.

In the OECD Survey of Adult Skills in 2012 and 2015, adult literacy scores in Estonia were higher than the OECD average, at 276 points, compared to the OECD average of 268 points. The gap in literacy skills between older adults (age 55-65) and younger adults (age 25-34) was close to the OECD average. The proportion of the population aged 25-64 with lower secondary education as the highest level of attainment is lower than the OECD average, with an attainment rate of 10.3% 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% compared to the OECD average of 15.3%. The percentage of the population aged 25-34 with a tertiary-level qualification is lower than the OECD average, at 41% in 2016, compared to the OECD average of 43.1%. Employment rates for 25-34 year-olds with tertiary education are lower than the OECD average. In 2016, 81% were employed, while the OECD average rate was 82.9%.

Figure 7.7. Selected indicators compared with the average: Estonia

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 7.7. Evolution of key education policy priorities, Estonia (2008-17)

Identified by	Equity and quality	Preparing students for the future
Selected OECD country-based work, 2008-171	The OECD identified a need to address some inefficiencies in the provision of education services, demographic changes and the successful implementation of the school network. In addition, Estonia’s progress in integrating students with special education needs into mainstream schools was found to be very slow. Students who lack proficiency in Estonian, especially those from the Russian- speaking minority, are more likely to encounter academic failure, barriers and high costs for advancing through education. [2012; 2015; 2016]	The OECD found that Estonia is adequately placing increased emphasis on strengthening the mechanisms for the VET system to adjust to changing labour market needs. However, it also considered that the VET system has encountered difficulties, such as a need to strengthen quality, low popularity among good students, high dropout rates, and few opportunities for students to engage in work-based learning and apprenticeships. [2012; 2016]
Evolution of responses to EPO Surveys, 2013 and 2016‑17	A priority reported by Estonia is ensuring that all students have access to a “basic school” close to home and an upper secondary school offering high-quality study choices that meet the student’s needs in the closest regional centre. [2013; 2016-17]	To equip students with skills demanded on the labour market, Estonia reported addressing the need to improve the VET and higher education systems. The challenge of co-operation with employers persists, according to Estonia’s self-report, as it is essential to involve them in development of the content and design of the VET system. Estonia also reported that it needs to assess different apprenticeship systems to improve implementation of the Estonian apprenticeship model for the Estonian context. [2013; 2016-17]

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

Selected education policy responses

In 2017, Estonia implemented amendments to the Preschool Childcare Institutions Act (2014) and the Basic Schools and Upper Secondary Schools Act. These policies now also include a focus on the inclusion and state support of municipalities to create better educational opportunities for children with special needs in kindergartens and schools.

• Progress or impact: National data indicates that, in 2012, access to support systems in preschool childcare institutions (including speech therapy and special education therapists) was made available to almost 14% of children attending preschool childcare institutions. The same data also revealed that nearly 11% of children attending preschool childcare institutions in 2012 had special needs. At that time, local governments and preschool childcare institutions were also using the special education services provided by regional counselling centres that receive state support (speech therapists, special education teachers, psychological and social-pedagogical counselling) (Republic of Estonia Ministry of Education and Research, 2014).

Additional education policies of potential interest to other countries

• The reform of the national curriculum for basic schools and upper secondary in 2010 and 2014 aimed to improve integration between subject areas, allow for the use of a more individual approach for each student, decrease the volume of the curriculum and allow for more flexibility in developing a school identity. Policy adjustments are made based on analytical work. No major changes have been made since the reforms took place.

• Reforms of the VET system started with the implementation of the Vocational Educational Institution Act (2013), a legal framework to improve VET teaching quality and practical training, implement distributive leadership in VET institutions, and modernise funding and infrastructures. Vocational Education Standards (2013) were also put into place. The reform also created an output-based curriculum and new method for awarding course credits, introduced a new generation of study programmes in upper secondary VET (with full rollout by 2017) and intensified and shortened study programmes. Schools receive professional support for new forms of evaluation and assessment where needed. Other changes include introducing professional examinations (kutseeksamid) as a prerequisite for completion of vocational studies and establishing a set of “qualification requirements for teachers” based on “professional standards” in legislation (EC, 2015a).

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