Education Policy Outlook 2018

Latvia

Context

Latvia scored lower than the OECD average in science in PISA 2015, with a mean score of 490 points, compared to the OECD average of 493 points. Performance in science remained stable across PISA cycles, with an average score change of 1.1 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 8.7% 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 in Latvia were among the largest in the OECD in favour of girls, with a difference between boys and girls of -11 points, compared to the average difference across the OECD of 4 points. Immigrant students make up 5% of the student population of 15-year-olds in Latvia, a lower proportion than the OECD average of 12.5%. Performance differences between immigrant and non‑immigrant students are lower than the OECD average. Immigrants scored on average 20 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 86.6%, (OECD average: 77.8%). Pre-primary education programmes (Pirmskolas izglitibas programmas) are offered for children between age 1 and age 6. Children are typically enrolled at age 3. Compulsory education in Latvia begins at age 6-7 (although preparation for school is compulsory for children aged 5-6) and ends at age 16, longer than the typical duration across the OECD. Students are first tracked into different educational pathways at age 16, later than the OECD average of age 14. Upper secondary education is not compulsory in Latvia. A large number of students follow a general upper secondary programme, which lasts three years. There are two vocational upper secondary programmes. Graduates from general upper secondary education receive a certificate of completion and can access both academic and vocational education at the tertiary level. The second programme of vocational education provides graduates with a certificate of vocational qualification but does not grant access to higher education. Students who have completed the second programme and want to enter higher education must complete an extra one-year general secondary education bridge programme.

In Latvia, the term “vocational education” is generally used, rather than “vocational education and training (VET)”. This is because most vocational education is implemented through school-based programmes that include practical learning at schools and in enterprises, although work-based learning is also part of VET. Latvia’s post-secondary non-tertiary education programmes are considered part of the upper secondary level. The proportion of the population aged 25-64 with lower secondary education as the highest level of attainment in Latvia is lower than the OECD average, with an attainment rate of 8.9% 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 close to the OECD average, at 16% compared to the OECD average of 15.3%. The percentage of the population aged 25-34 with a tertiary-level qualification is close to the OECD average, at 42.1% 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, 87.2% were employed, while the OECD average rate was 82.9%.

Figure 7.16. Selected indicators compared with the average: Latvia

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 7.16. Evolution of key education policy priorities, Latvia (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 continue expanding ECEC services, in particular in rural areas and for the youngest children. Also, although Latvia has made good progress in expanding access and improving learning outcomes, the data suggest that there are marked differences in student performance between rural and urban schools in Latvia and that students with special education needs and/or at risk of social exclusion do not equally benefit from quality learning opportunities. [2016]	The OECD recognises the improved quality and attractiveness of the VET system in Latvia. Progress is still needed on VET curricula reform, which is expected to be finalised in 2020. Further efforts should be made to reduce the shortage of relevant skills and to encourage lifelong learning for increased adult participation rates in education and training [2015; 2016; 2017]
Evolution of responses to EPO Surveys, 2013 and 2016‑17	Providing equal education opportunities in the whole country and closing the education performance gap between genders, and rural and urban areas remain challenges, as reported by Latvia. To respond to this, it is necessary to increase the number of ECEC places in urban areas, raise the outcomes for rural students and optimise the school network to respond to the changing demographics of the country. The percentage of early school leavers increased from 8.5% in 2014 to 10% in 2016. Latvia should continue to address this issue [2013; 2016-17].	Challenges persist in adopting the education system to wider development priorities, labour market needs and fiscal and demographic developments. Latvia’s upper secondary system (Grades 10-12) is largely school-based and is characterised by a stark divide between general and vocational pathways [2013; 2016-17].

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

Selected education policy responses

Latvia’s Education Development Guidelines 2014‑20 provide an approach to the improvement of the quality of education and include various initiatives that have been launched for the promotion of the inclusion of students with special needs (2011). In 2003, the Cabinet of Ministers adopted new regulations creating special-needs education development centres. The aim was to convert the best-performing special needs schools into centres of expertise for mainstream schools integrating special needs students. In 2018, there are 12 special education institutions with the status of special education development centre. The aim of these centres is to provide methodological and consultative support for children and students with special needs who are integrated in preschool education institutions and mainstream schools. The regulations set the following targets for the main outputs of each development centre: 1) ensure pedagogical and methodological support to at least 50 teachers from the region per year; 2) provide consultation to at least 50 students with special needs (or their legal representatives) per year; and 3) organise at least two informative events per year on inclusive education and ensure that highly qualified staff is involved in consultations and information events (EC, 2016c). Also, with the support of the European Regional Development Fund, Latvia modernised the infrastructure of education institutions for all educational tracks, including adjusting premises for those with functional disorders. All 59 special education schools were modernised and adjusted as part of these efforts.

• Progress or impact: National sources indicate that Latvia offers two trends in special education, depending on the child’s condition and abilities: 1) special education institutions for children with severe mental and physical disabilities; or 2) within mainstream schools, in either special education classes or special education programmes in regular classes (OECD, 2016c). In 2015/16, 51% of students with special needs were in mainstream schools (in both general education and special education classes). In 2015, Latvia was commended by the Office of the United Nations High Commissioner for Human Rights for its ongoing dedication to ensuring the rights of people with disabilities (OHCHR, 2017). In particular, the Latvian Government was recognised for its efforts to provide inclusive education to students with special education needs.

In Latvia, students at risk of social exclusion due to their poor financial or social situation are eligible to receive a scholarship for successful learning in vocational education. From 2007 to 2013, this scholarship programme was funded by a contribution from the European Commission’s European Social Fund (ESF). As the ESF did not renew the funding for its 2014-20 funding cycle, since 2015 the Latvian Ministry of Education and Science has increased the funding paid from the state budget for scholarships (Metis GmbH, Fondazione Brodolini and Panteia, 2016).

• Progress or impact: According to an evaluation of ESF funding in Latvia, between 2004 and 2012, the share of vocational education students increased from 26% to 39%. Data of the Ministry of Education and Science of Latvia show the share of students in vocational education (after the 9th grade) was 35.9% in 2011/12 and 36.6% in the 2016/17 school year. The ESF scholarships for VET led to an increase in enrolment and attendance in VET education and courses, a sign of its success. Between 2007 and 2013, 71 284 students had benefitted from a scholarship (67% of the total number of VET students). This was far more than the targeted 40 000 students. As a result of its success and since the scholarship programme did not continue beyond 2015, the state budget amount for VET scholarships was increased (Metis GmbH, Fondazione Brodolini and Panteia, 2016). Also, the OECD identified the need to increase the mean-tested scholarship to a level that allows students to concentrate on completing VET programmes and to make it compatible with state family benefits (OECD, 2017e). As of 2018, the government provides additional support, funded by EU structural funds, which allows families to receive both the family allowances and the VET stipend.

Latvia has implemented several policies to address early school leaving. A 2011 regulation allows educational institutions to inform parents, municipal or state institutions if a student is not attending school without an appropriate reason. It also promotes the accounting of compulsory school age children who are not registered in any education institution. The Education Development Guidelines 2014-20 aim to reduce the number of early school leavers through, for example, a 2017 ESF project that supports students in general education institutions (Grades 5-12) and vocational education students (Years 1‑4). Students at risk get individual support (such as compensation for public transport expenses, consultations and support by specialists). A prevention system has also been developed. The overall goal is to have systematic support implemented in 665 education institutions by 2022. In addition, the measures of the 2016 National Reform Programme also address reducing early school leaving by, for example, improving career guidance to students and quality assurance in general and vocational education (EC, 2016d). Initially, the target of the National Reform Programme of Latvia was to reduce the share of early school leavers (aged 18-24) to 13.4% by 2020 (Government of Latvia, 2017).

• Progress or impact: Overall, the early school leaving rate has been decreasing in recent years, from as high as 15.5% in 2008 (Eurostat, 2016). The early school leaving rate of those aged 18-24 with at most lower secondary education and not in further education or training has risen slightly, from 8.5% in 2014 to 10% in 2016, but it remains below the EU average of 10.7% in 2016 and has reached the Europe 2020 target of 10% (Eurostat, 2016; EC, 2017f). Disparities remain between genders and rural and urban areas (EC, 2017f).

The reform of vocational education curricula (2008-20) in Latvia aims to improve the quality and effectiveness of vocational education in accordance with the needs of the economy. Latvia is currently promoting sectoral qualifications structures and is restructuring the vocational educational curricula. Overall, it will develop or restructure occupational standards and qualification requirements to facilitate outcomes-based VET programmes, enhance the examination system and improve assessment of knowledge, skills and competences acquired beyond the formal education system. In 2016, Latvia made amendments to the state vocational secondary education standard to introduce a technical approach to general subjects. These measures aim to reduce contradictions between general subjects in general secondary education and vocational secondary education, as well as to strengthen STEM subjects in vocational education.

• Progress or impact: According to Latvia’s survey responses regarding the reform of vocational education curricula (2008-20), the government has updated 80 out of 240 occupational standards and basic qualification requirements, has introduced a third of modular programmes and has formulated 13% of the examination content.

In 2015, to further strengthen the quality assurance of the higher education system, Latvia passed a regulation to transfer the function of accreditation and licensing to the Academic Information Centre (AIC), which has established the Quality Agency for Higher Education to carry out these functions in Latvia. The AIC ensures licensing and accreditation of study programmes and monitoring and evaluation of their quality (EC, 2017f). The Centre intends to be included in the European Quality Assurance Register for Higher Education by 2018, before the next large accreditation round scheduled for 2019 (EC, 2016d). The overall budget was set at EUR 1.5 million for capacity building with a contribution of EUR 1.27 million from the European Structural and Investment Funds (Government of Latvia, 2015).

• Progress or impact: This is part of the World Bank’s evaluation of internal governance, funding systems and human resources policies of higher education institutions. The World Bank will make recommendations for the design of structural fund programmes, which then may allow for more qualitative tertiary education in the future. The World Bank study is to be completed in April 2018 (EC, 2017g).

Latvia is working on its higher education system to promote conformity with labour market needs (including STEM) and employability of students. This is primarily being done by modernising the technical base of higher education institutions and making more effective use of resources. Financial support is provided by EU funds from 2014 to 2020 for the promotion of appropriate and modern study environments for STEM subjects and the development of joint doctoral study programmes and study programmes in the EU languages. The Latvian Government also recognises the importance of reducing the fragmentation of study programmes, promoting the consolidation of resources and developing joint study programmes and strategic specialisation of higher education institutions.

• Progress or impact In order to introduce the new competence-based education standard, a total of five computer science programme pilot projects were offered to schools for trial during the 2015/16 school year, and 157 schools participated. The pilot project on computer science was successful for all participating schools during the first academic year and stimulated significant interest among pupils and teachers. The launch and implementation of the computer science education programme is supported both financially and in terms of organisation by Foundation IT Education Fund with the international company Accenture (Latvian branch). Within this project, a portal, Start(it), was created that provides learning and methodological material for each class that can be used by any education institution. The computer science programme will be implemented in all schools during the 2018/19 school year (Government of Latvia, 2017).

In 2013, Latvia began participating in the Youth Guarantee to provide free training opportunities in more than 90 different careers to young people until 2018. Since 2014, it has implemented various initiatives to target young people, particularly NEETs age 15-24. Youth registered with the State Employment Agency (SEA) and working with a counsellor or another specialist can learn more about their strengths and relevant employment opportunities based on their individual profiles. A State Education Development Agency (SEDA) project offers short vocational education programmes (1‑1.5 years) that give young people the opportunity to acquire qualifications in 68 professions. KNOW and DO, a project of the Agency for International Programmes for Youth 2014 aims to develop the skills of socially at-risk young people and to facilitate their involvement in education and/or vocational learning, Youth Guarantee activities, active employment, or preventive unemployment reduction measures provided by SEDA or in non-governmental organisations or youth centres. The total 2014-18 total funding amounts to EUR 72.9 million, primarily financed by the ESF and the Youth Employment Initiative. Funding for the Youth Employment Initiative will continue until the end of 2018 (Government of Latvia, 2017).

• Progress or impact: In its most recent progress report submitted to the EC, Latvia reported that from 2014 to 2016, all youths aged 15-29 that obtained registered unemployed status from the SEA in Latvia (111 000) received support as a part of the Youth Guarantee programme. During the same period, 92 400 youths were engaged in the employment-seeking support measures within the Youth Guarantee programme, and 65 000 youths found employment (58% of all the unemployed youths registered with the SEA). Also, between 2014 and 2016, of all the participants in the Youth Guarantee programme aged 15-24 (60 890), 27% (14 932) found employment within the first four months from the date they received unemployment status or submitted application to Youth Guarantee, and 20% (12 429) started training (Government of Latvia, 2017). Eurostat data also shows positive results attributed to this: the share of young NEETs decreased significantly (to 13.8 % in 2017, below the EU average of 14.7%) (Eurostat, 2018). The Latvian Government acknowledges, however, that challenges persist. The programme has been slow to start up, and its visibility across the target group remains low. The government intends to tackle these challenges by reaching out to young NEETs who are not registered at the public employment service. Support measures are also being provided to imprisoned youth, allowing them to acquire skills and competences that are necessary for successful employment.

As part of its Internationalisation Strategy (2015), Latvia aims to attract academic personnel from abroad. For example, it plans to develop joint programmes in the EU languages and joint doctoral programmes. The 2015 Erasmus+ activity for International mobility of students and personnel includes mobility activities of 3-12 months for students, and from five days to two months for academic and general personnel of higher-education institutions. To improve visibility and promote Latvian higher education abroad, the government has set up websites (www.studyinlatvia.eu and www.studyinlatvia.lv), and Latvia is represented at different venues abroad designed to attract potential foreign students.

• Progress or impact: In 2016/17, 8 137 foreign students were in Latvia, and 1 738 Latvian students participated in exchange programmes. Twelve joint programmes were developed with higher education institutions from abroad, and the number of foreign academic personnel working in Latvia increased to 244. EC evidence indicates that in 2016, the share of foreign-born graduates of tertiary education (62.4%) was much higher than the share of native-born graduates, which was (42%), compared to the EU averages of 35.3% of foreign-born graduates of tertiary education and 39.9% of native-born graduates) (EC, 2017f).

Additional education policies of potential interest to other counties

• Latvia's Action Plan for 2016-20 on Development of Adult Education Provision and its Governance Model, financially supported by the ESF, aims to increase Latvia's participation rate in adult education from 5.7% in 2015 to 15% by 2020. As part of the Action Plan, vocational education will become a strategic priority in the provision of adult education. The Governance Model establishes lines for a division of functions, exchange of information and regular communication among involved stakeholders, to eliminate the existing fragmentation of current adult education. An Adult Education Governance Council, a consultative inter-sectoral body, has been established to ensure implementation of the Action Plan. The Council includes representatives from different ministries within the government and other social actors. For the set period, the budget allocation is EUR 27 million (CEDEFOP, 2016). The rate of adult participation in learning increased to 7.3% in 2016. The ESF project started operation in 2017, aiming to have around 36 000 adult participants of which 12 000 are anticipated to be low-qualified adults (EC, 2017f).