Education at a Glance 2018

OECD Indicators

Report

Education at a Glance

11 September 2018

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Indicator D4. How much time do teachers spend teaching?

Based on official regulations, public school teachers in OECD countries and economies are required to teach on average 1 044 hours per year at pre-primary level, 784 hours at primary level, 703 hours at lower secondary level (general programmes) and 657 hours at upper secondary level (general programmes).
In the majority of countries with available data, the amount of statutory teaching time in primary, lower secondary and upper secondary public institutions remained largely unchanged between 2000 and 2017.

Figure D4.1. Number of teaching hours per year in general lower secondary education (2000, 2005 and 2017)

Context

Although statutory working hours and teaching hours only partly determine teachers’ actual workload, they do offer valuable insights into the demands placed on teachers in different countries. Teaching hours and the extent of non-teaching duties may also affect the attractiveness of the teaching profession. Together with teachers’ salaries (see Indicator D3) and average class size (see Indicator D2), this indicator presents some key measures of the working lives of teachers.

The proportion of statutory working time spent teaching provides information on the amount of time available for non-teaching activities, such as lesson preparation, correction, in-service training and staff meetings. A larger proportion of statutory working time spent teaching may indicate that a lower proportion of working time is devoted to tasks such as assessing students and preparing lessons, as stated in regulations. It also could indicate that teachers have to perform these tasks on their own time and hence to work more hours than required by statutory working time.

In addition to class size and the ratio of students to teaching staff (see Indicator D2), students’ hours of instruction (see Indicator D1) and teachers’ salaries (see Indicator D3), the amount of time teachers spend teaching also affects the financial resources countries need to allocate to education (see Indicator C7).

Other findings

Most countries regulate the number of hours per year that teachers are formally required to work, including teaching and non-teaching activities. Some of these countries regulate the specific number of hours required at school, while others set the overall working time, including hours at school and elsewhere.
The number of teaching hours per year required of the average OECD public school teacher in pre-primary, primary and secondary education varies considerably across countries and tends to decrease as the level of education increases.
On average across OECD countries and economies, in public institutions pre-primary teachers are required to teach about 39% more hours than primary school teachers. Statutory requirements for working time at school and/or total working time also differ between pre-primary and primary levels, but generally to a lesser extent.
Required teaching time in public schools varies more across countries at the pre-primary level than at any other level. The number of teaching hours required in public pre-primary schools averages 1 044 hours per year across OECD countries and economies, ranging from 532 hours per year in Mexico to 1 755 in Germany.
Public primary school teachers are required to teach on average 784 hours per year across OECD countries and economies, but this ranges from less than 590 in Estonia, Lithuania and Poland to more than 1 050 in Chile and Costa Rica.
The number of teaching hours required in public lower secondary schools (general programmes) averages 703 hours per year across OECD countries and economies, ranging from 478 hours in Poland to over 1 050 hours in Chile, Colombia and Costa Rica.
Teachers in public upper secondary schools (general programmes) are required to teach on average 657 hours per year across OECD countries and economies, but teaching time ranges from 405 hours in Denmark to over 1 050 hours in Chile, Colombia and Costa Rica.
There has been little change in statutory teaching hours between 2000 and 2017 on average across countries with available data for 2000, 2005, 2010, 2015 and 2017, but in a few countries, teaching time increased or decreased by 10% or more between 2000 and 2017.

Analysis

Teaching time

At pre-primary, primary and secondary levels of education, countries vary considerably in their annual statutory teaching time, the number of teaching hours per year required of a full-time public school teacher (for variation of teaching time at the subnational level, see Box D4.1).

Across countries and economies with available data, statutory teaching time in public schools varies more at the pre-primary level than at any other level. The number of teaching days ranges from 157 per year in the Flemish Community of Belgium to 225 in Germany, Iceland and Norway. Annual teaching time ranges from 532 hours per year in Mexico to 1 755 hours in Germany. On average across OECD countries and economies, teachers at this level of education are required to teach 1 044 hours per year, spread over 41 weeks or 196 days of teaching (Table D4.1 and Figure D4.2).

Figure D4.2. Number of teaching hours per year, by level of education (2017)

Primary school teachers are required to teach an average of 784 hours per year in public institutions. In most countries with available data, daily teaching time ranges from three to six hours a day. There is no set rule on how teaching time is distributed throughout the year. In Spain, for example, primary school teachers must teach 880 hours per year, nearly 100 hours more than the OECD average. However, these teaching hours are spread over fewer days of instruction than the OECD average, because primary school teachers in Spain teach an average of 5 hours per day, compared to the OECD average of 4.3 hours (Table D4.1).

Box D4.1. Teaching and working time at the subnational level

Differences are observed across regions in teachers’ statutory teaching and working time among the three countries (Belgium, Canada and the United Kingdom) reporting subnational data. The number of weeks of teaching (at pre-primary, primary, lower and upper secondary levels) varies between regions, by one week within Belgium (from 36 to 37 weeks) and two weeks within Canada (from 36 to 38 weeks). In the United Kingdom, there are 38 weeks of teaching in the different subnational regions. However these differences mask larger differences in teaching time of teachers (number of days or hours of teaching) at the subnational level (OECD/NCES, 2018[1]).

Patterns of variation at the subnational level are different between these countries. In Belgium, the number of days of teaching varies much more between the French and Flemish Communities than the number of hours of teaching. At upper secondary level (general programmes), the number of days of teaching is 40% higher in the French Community than in the Flemish Community (179 days compared to 128 days), whereas the teaching hours varies by 20% between the two communities (498 hours in the Flemish Community compared to 596 hours in the French Community). However, these differences are mainly due to the fact that it is not possible to exclude the number of examination days in the French Community of Belgium, whereas these days are excluded in the Flemish Community of Belgium. By contrast, the number of teaching days at primary and secondary levels varies by 6% between the different provinces/territories in Canada (190 days compared to 180 days), but teaching hours vary much more between subnational regions. The largest number of teaching hours is 29% higher than the smallest number at primary level (905 hours compared to 700 hours), and the difference exceeds 50% at lower and upper secondary levels (934 hours compared to 612 hours) (OECD/NCES, 2018[1]).

However, caution is necessary when comparing information at the subnational level, considering potential differences in the regulations between countries and between subnational regions within countries, and in the way data are reported for the different subnational regions. For example minimum or typical teaching time is reported in the subnational regions of Belgium, but maximum or estimated teaching time is reported in the different subnational regions in Canada (for more information on potential differences in data reported, see Box D4.2).

Lower secondary school teachers in general programmes in public institutions are required to teach an average of 703 hours per year, ranging from fewer than 600 hours in Finland, the Flemish Community of Belgium, Korea, Poland and Turkey to more than 1 000 hours in Chile, Colombia, Costa Rica, Latvia and Mexico. However, teachers in Poland can be obliged to teach as much as 25% of the statutory time as additional overtime, at the discretion of the school head (at the lower secondary level).

A teacher of general subjects in upper secondary education in public institutions has an average teaching load of 657 hours per year. Teaching time exceeds 800 hours in only seven countries and economies: Chile, Colombia, Costa Rica, Latvia, Mexico, Scotland (United Kingdom) and the United States. However, in Chile and Scotland (United Kingdom), the reported hours refer to the maximum time teachers can be required to teach, not to their typical teaching load (Box D4.2). In contrast, teachers are required to teach fewer than 500 hours per year in Denmark, the Flemish Community of Belgium, Iceland and Poland. Teachers in Finland, Iceland, Japan, Korea, Norway, Poland, the Slovak Republic, Slovenia and Turkey teach for three hours or less per day, on average, compared to six hours or more in Colombia, Costa Rica and Latvia (Table D4.1).

Variations in how teaching time is regulated and/or reported across countries may explain some of the differences in statutory teaching time between countries (Box D4.2).

Box D4.2. Comparability of statutory teaching time data (2017)

Data on teaching time in this indicator refer to net contact time as stated in the regulations of each country. The international data collection gathering this information ensures that similar definitions and methodologies are used in compilation of data in all countries. The impact on the comparability of data of differences in the way teaching time is reported in regulations is also minimised as much as possible. For example, teaching time is converted into hours (of 60 minutes) to avoid differences resulting from the varying duration of teaching periods between countries.

Statutory teaching time in this international comparison excludes preparation time and periods of time formally allowed for breaks between lessons or groups of lessons. However, at the pre-primary and primary levels, short breaks (of ten minutes or less) are included in the teaching time if the classroom teacher is responsible for the class during these breaks (see the Definitions section).

Other activities for teachers, such as professional development days, student examination days and conference attendance, are also excluded from the teaching time reported in this indicator. However, days devoted to these activities are not always specified in the regulations, and it may be difficult to estimate and exclude them from teaching time. At the pre-primary level, about one-quarter of the countries and economies reporting statutory teaching time could not specify whether these activities were included or excluded from these data. At other levels of education, most countries can exclude all or most of these activities from teaching time. However, excluding examination days may be more challenging for countries. At the upper secondary level about 30% of countries do not exclude them, and in 30% of countries, the information on whether they are excluded or included is not available. This may result in overestimating teaching time by a few days in these countries.

Moreover, data based on regulations that are reported in this indicator may refer to minimum, typical or maximum teaching time, which may explain some of the differences between countries. While most data refer to typical teaching time, about one-quarter of countries report maximum or minimum values for teaching time.

More detailed information on the reporting practices on teaching time for all participating countries and economies is available in Annex 3.

Differences in teaching time between levels of education

In most countries, statutory teaching time at the upper secondary level (general programmes) is less than at the pre-primary level. The exceptions are Chile and Scotland (United Kingdom), where the time teachers are required to teach is the same at all levels of education, and Colombia, Costa Rica, Korea and Mexico, where upper secondary school teachers are required to teach more hours than pre-primary school teachers (Table D4.1 and Figure D4.2).

Teaching time requirements vary the most between the pre-primary and primary levels of education. On average, pre-primary school teachers are required to spend almost 39% more time in the classroom than primary school teachers. In the Czech Republic, Estonia, Germany, Hungary, Iceland and Slovenia, pre-primary school teachers are required to teach at least twice the number of hours per year as primary school teachers (Table D4.1).

In the Flemish Community of Belgium, France and Turkey, primary school teachers have at least 30% more annual teaching time than lower secondary school teachers, while there is no difference in Chile, the Czech Republic, Hungary, Iceland, Latvia, Scotland (United Kingdom) and Slovenia. The teaching load for primary school teachers is slightly lighter than for lower secondary school teachers in Costa Rica, Estonia and Lithuania, and much lighter in Colombia and Mexico (Table D4.1).

Teaching time at lower and upper secondary levels is similar across most countries. However, in Iceland, Mexico and Norway, annual required teaching time at the lower secondary level is at least 20% more than at the upper secondary level (Table D4.1).

Differences in teaching time between types of programmes

In most countries, statutory teaching time does not vary between general and vocational programmes. Focusing on upper secondary level, for which most countries have both general and vocational programmes, teaching time is similar in both general and vocational programmes in nearly two-thirds of the countries with available information. However, teaching time is at least 15% higher in vocational than in general programmes in Finland, Latvia, Lithuania and Switzerland, and at least 40% higher in the Flemish Community of Belgium (for practical courses in vocational programmes) and Denmark. In both these countries, annual teaching time in general upper secondary programmes is significantly lower than the OECD average (fewer than 500 hours, compared to 657 hours on average across OECD countries). Canada and Mexico are the only countries where teaching time is significantly lower (at least 15% lower) in vocational programmes than in general programmes (Figure D4.3).

Figure D4.3. Number of teaching hours per year in general and vocational programmes at upper secondary level (2017)

Actual teaching time

Statutory teaching time, as reported by most of the countries in this indicator, refers to the time as defined in regulations. However, teaching time of individual teachers may differ from the regulation, because of overtime, for example. Actual teaching time is the annual average number of hours that full-time teachers teach a group or a class of students, including overtime, and it thus provides a full picture of teachers’ actual teaching load.

While only a few countries were able to report both statutory and actual teaching time, these data suggest that actual teaching time can sometimes differ significantly from statutory requirements. In Latvia, for example, lower secondary teachers actually teach 46% more than the statutory teaching time. This reflects the low value of statutory salaries, meaning teachers often perform additional teaching time or other tasks for which they can be compensated. In Slovenia, lower secondary teachers teach around 7% more hours than the statutory benchmark time, while in Poland, actual teaching time is up to 14% more than statutory requirements. By contrast, in France and Lithuania, actual teaching time is about 2% to 5% less than statutory teaching time at the lower secondary level (Figure D4.5, available on line).

Differences between statutory and actual teaching time can be the result of overtime due to teacher absenteeism or shortages, or may be explained by the nature of the data, as figures on statutory teaching time refer to official requirements and agreements, whereas actual teaching time is based on administrative registers, statistical databases, representative sample surveys or other representative sources.

Trends in teaching time

While there has been little change in average teaching hours over the last 17 years, some countries with available data (and no break in time series) reported an increase or decrease of 10% or more in teaching time in one or several levels between 2000 and 2017 (Table D4.2 and Figure D4.1).

At the primary level, teaching time increased by at least 15% (more than 100 hours) between 2000 and 2017 in Israel, Japan and Latvia (Table D4.2). In Israel, this increase in teaching (and working) time is part of the “New Horizon” reform that has been gradually implemented since 2008. One of the key measures of this reform was to lengthen teachers’ working week to accommodate small-group teaching in exchange for more generous compensation. Teachers’ working time was increased from 30 to 36 hours per week and now includes 5 hours of small-group teaching in primary schools. To compensate, salaries have been raised substantially (see Indicator D3).

Teaching time for lower secondary school teachers also increased in Israel, by more than 20% (120 hours) during this period. The increase at the lower secondary level is also significant in Japan, albeit to a lesser extent (about 9% or 53 hours). At the upper secondary level, the largest increase in teaching time also occurred in Israel, where teachers had to teach at least 16% more hours (86 additional hours) in 2017 than in 2000 (Table D4.2).

By contrast, net teaching time dropped between 2000 and 2017 in some countries and economies. At the pre-primary level, among the few countries and economies with available data for 2000 and 2017, teaching time decreased by 9% or more (corresponding to 95 hours or more) in Portugal and Scotland (United Kingdom). At other levels of education, teaching time decreased by 10% or more in Mexico at lower secondary level (by 135 hours), in the Netherlands at both lower and upper secondary levels (by 117 hours), in Scotland (United Kingdom) at primary level (by 95 hours) and in Turkey at upper secondary level (by 63 hours). The decrease exceeded 22% in Korea at the primary level (194 hours). In Scotland (United Kingdom), the decrease in teaching time for primary teachers was part of the teachers’ agreement, “A Teaching Profession for the 21st Century”, which introduced a 35-hour working week for all teachers and a phased reduction of maximum teaching time to 22.5 hours per week for primary, secondary and special-school teachers in 2001. However, even with this decrease of net contact time, the maximum time teachers at these levels in Scotland (United Kingdom) can be required to teach is longer than the OECD average teaching time (Table D4.2).

Teachers’ working time

In the majority of countries, teachers’ working time is partly determined by the statutory teaching time specified in working regulations. In addition, in most countries, teachers are formally required to work a specific number of hours per year, as stipulated in collective agreements or other contractual arrangements. This may be specified either as the number of hours teachers must be available at school for teaching and non-teaching activities, or as the number of total working hours. Both correspond to official working hours as specified in contractual agreements, and countries differ in how they allocate time for each activity. In Israel, for example, recent reforms take into account working hours at school beyond teaching time. Regulations now specify the working time required at school, including teaching and non-teaching time. Following the reform, non-teaching hours at school have been extended, to allow more time for non-teaching tasks, such as meetings with students or parents, preparation of lessons' plans and checking of students' work.

More than half of OECD countries and economies specify the length of time teachers are required to be available at school, for both teaching and non-teaching activities, for at least one level of education. In over half of these countries, the difference between the time upper secondary school teachers and pre-primary school teachers are required to be available at school is less than 10%. However, in Hungary, Latvia, Sweden and Turkey pre-primary teachers are required to be available at school at least 30% more hours than upper secondary school teachers (although statutory total working time is the same for both levels in Hungary, Latvia and Turkey) (Table D4.1).

In some other countries, teachers’ total annual statutory working time (at school and elsewhere) is specified, but the allocation of time spent at school and time spent elsewhere is not. This is the case in Austria (in primary and lower secondary education), the Czech Republic, Denmark, England (United Kingdom), Estonia (in primary and secondary education), France (in lower and upper secondary education), the French Community of Belgium (in pre-primary and primary education), Germany, Japan, Korea, Lithuania (in primary and secondary education), the Netherlands, Norway (in pre-primary education), Poland, the Slovak Republic and Switzerland. This may result from the fact that, in some countries, such as France for example, total annual statutory working time is valid for all civil servants, not specifically for teachers (Table D4.1).

In Sweden, although the total working time per year is decided through collective agreements, school leaders decide on the number of working hours per week and (to some extent) on the use of teachers’ time (teaching or non-teaching activities).

In addition, workload and teaching load requirements may evolve throughout a teacher’s career. In a number of countries, some new teachers have a reduced teaching load as part of their induction programmes. Some countries also encourage older teachers to stay in the teaching profession by diversifying their duties and reducing their teaching hours. For example, in Portugal, teachers may have a reduced teaching workload, due to their age, years in the profession or for doing extracurricular activities at school. Iceland reduces working time of upper secondary teachers according to their age: 30-37 year-old teachers benefit from a 24-hour extra holiday a year and 38-year-old and older teachers have a 48-hour extra holiday per year. In addition, 55-year-old or older upper secondary teachers receive a reduction of teaching time (from 58 hours for 55-59 year-olds to 290 hours for 60-year-old and older teachers).

Non-teaching time

Although teaching time is a substantial component of teachers’ workloads, other activities such as assessing students, preparing lessons, correcting students’ work, in-service training and staff meetings should also be taken into account when analysing the demands placed on them in different countries (see Box D4.3 for details on these tasks at lower secondary level). The amount of time available for these non-teaching activities varies across countries; a larger proportion of statutory working time spent teaching may indicate that a lower proportion of working time is devoted to these activities.

Figure D4.4. Percentage of lower secondary teachers’ working time spent teaching (2017)

Even if teaching is a core activity of teachers, in a large number of countries, most of their working time is spent on activities other than teaching. In the 24 countries and economies with data for both teaching and total working time for lower secondary teachers, 44% of teachers’ working time is spent on teaching on average, with the proportion ranging from 32% or less in Japan, Poland and Turkey to 75% in Colombia. While the proportion of working time spent teaching increases with the annual number of teaching hours, there are significant variations between countries. For example, Japan and Portugal have a similar number of teaching hours (610 hours in Japan and 616 hours in Portugal), but 32% of working time is spent on teaching in Japan, compared to 42% in Portugal. Moreover, in some countries, teachers devote similar proportions of their working time to teaching, even if the number of teaching hours differs considerably. For example, in Spain and the United States, lower secondary teachers spend about half of their working time teaching, but teachers teach 713 hours in Spain, compared to 966 hours in the United States. Only teachers in Chile, Colombia, Israel, Latvia, Scotland (United Kingdom) and Spain spend at least 50% of their statutory working time teaching (Figure D4.4).

In some countries, such as Austria (upper secondary level), Costa Rica, the Flemish and French Communities of Belgium (secondary levels) and Italy, there are no formal requirements for time spent on non-teaching activities. However, this does not mean that teachers are given total freedom to carry out other tasks. In the Flemish Community of Belgium, although there are no regulations regarding the time devoted to preparing lessons, correcting tests, marking students’ papers and other non-teaching tasks, additional non-teaching hours at school are set at the school level. In Italy, there is a requirement of up to 80 hours of scheduled non-teaching collegial work at school per year. Of these 80 hours, up to 40 hours of compulsory working time per year are dedicated to meetings of the teachers’ assembly, staff planning meetings and meetings with parents, with the remaining compulsory 40 hours dedicated to class councils (Table D4.1).

Box D4.3. Non-teaching tasks required of teachers in lower secondary education (2017)

Non-teaching tasks are a part of teachers’ workload and working conditions. The non-teaching activities required by legislation, regulations or agreements between stakeholders (e.g. teachers’ unions, local authorities and school boards) do not necessarily reflect the actual participation of teachers in non-teaching activities, but they provide an insight into the breadth and complexity of teachers’ roles.

According to regulations, individual planning or preparing lessons, marking/correcting student work, general administrative communication and paperwork, and communicating and co-operating with parents are the most common non-teaching tasks required of lower secondary teachers (general programmes) during their statutory working time at school or statutory total working time (Table D4.3). These tasks are required in at least 26 of the 37 countries and economies with available data. Teamwork and dialogue with colleagues and supervising students during breaks are also required in around half of the countries with available data. In a quarter of countries, lower secondary teachers are required to take on various additional responsibilities, such as counselling students, teaching more classes or hours than required in the full-time contract, or being class/form teacher (Table D4.3 and Figure D4.a).

Teachers do not only perform tasks that are required by regulations; they often perform voluntarily tasks such as engaging in extracurricular activities, training student teachers, offering guidance counselling and participating in school or other management activities. In almost half of the countries, individual teachers decided whether or not to perform these tasks. Responsibilities such as class/form teacher or participating in school or other management in addition to teaching duties are largely distributed at the school level.

Figure D4.a. Tasks and responsibilities lower secondary teachers are required to perform (2017)

Definitions

Actual teaching time is the annual average number of hours that full-time teachers teach a group or class of students. It includes all extra hours, such as overtime. Data on these hours can be sourced from administrative registers, statistical databases, representative sample surveys or other representative sources.

The number of teaching days is the number of teaching weeks multiplied by the number of days per week a teacher teaches, less the number of days on which the school is closed for holidays.

The number of teaching weeks refers to the number of weeks of instruction excluding holiday weeks.

Statutory teaching time is defined as the scheduled number of 60-minute hours per year that a full-time teacher teaches a group or class of students, as set by policy, teachers’ contracts of employment or other official documents. Teaching time can be defined on a weekly or annual basis. Annual teaching time is normally calculated as the number of teaching days per year multiplied by the number of hours a teacher teaches per day (excluding preparation time). It is a net contact time for instruction, as it excludes periods of time formally allowed for breaks between lessons or groups of lessons and the days that the school is closed for holidays. At pre-primary and primary levels, short breaks between lessons are included if the classroom teacher is responsible for the class during these breaks.

Total statutory working time refers to the number of hours that a full-time teacher is expected to work as set by policy. It can be defined on a weekly or annual basis. It does not include paid overtime. According to a country’s formal policy, working time can refer to:

the time directly associated with teaching and other curricular activities for students, such as assignments and tests
the time directly associated with teaching and other activities related to teaching, such as preparing lessons, counselling students, correcting assignments and tests, professional development, meetings with parents, staff meetings and general school tasks.

Working time required at school refers to the time teachers are required to spend working at school, including teaching and non-teaching time.

Methodology

In interpreting differences in teaching hours among countries, net contact time, as used here, does not necessarily correspond to the teaching load. Although contact time is a substantial component of teachers’ workloads, preparing for classes and necessary follow-up, including correcting students’ work, also need to be included when making comparisons. Other relevant elements, such as the number of subjects taught, the number of students taught and the number of years a teacher teaches the same students, should also be taken into account.

For more information please see the OECD Handbook for Internationally Comparable Education Statistics 2018 (OECD, 2018[2]) and Annex 3 for country specific notes (http://dx.doi.org/10.1787/eag-2018-36-en).

Lithuania was not an OECD member at the time of preparation of this publication. Accordingly, Lithuania does not appear in the list of OECD members and is not included in the zone aggregates.

Source

Data are from the 2017 OECD-INES Survey on Teachers and the Curriculum and refer to the school year 2016/17 (statutory information) or school year 2015/16 (actual data).

Note regarding data from Israel

The statistical data for Israel are supplied by and under the responsibility of the relevant Israeli authorities. The use of such data by the OECD is without prejudice to the status of the Golan Heights, East Jerusalem and Israeli settlements in the West Bank under the terms of international law.

References

[2] OECD (2018), OECD Handbook for Internationally Comparative Education Statistics 2018: Concepts, Standards, Definitions and Classifications, OECD Publishing, Paris, https://doi.org/10.1787/9789264304444-en.

[1] OECD/NCES (2018), Education at a Glance Subnational Supplement, OECD/National Center for Education Statistics, Paris and Washington, DC,, https://nces.ed.gov/surveys/annualreports/oecd/index.asp.

Indicator D4 Tables

Table D4.1. Organisation of teachers' working time (2017)

Table D4.2. Number of teaching hours per year (2000, 2005 to 2017)

Table D4.3. Tasks and responsibilities of teachers, by level of education (2017)

Figure D4.5 (Web only). Actual and statutory teaching time in general lower secondary education (2016)

Cut-off date for the data: 18 July 2018. Any updates on data can be found on line at http://dx.doi.org/10.1787/eag-data-en.

https://doi.org/10.1787/888933805553

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