THE EUROPEAN UNION / Brussels, 20 December 2011
18577/11
ADD 2
EDUC 293
JEUN 79
SOC 1112
RECH 437
MI 669
COMPET 620
COVER NOTE
from: / Secretary-General of the European Commission,signed by Mr Jordi AYET PUIGARNAU, Director
date of receipt: / 20 December 2011
to: / Mr Uwe CORSEPIUS, Secretary-General of the Council of the European Union
No Cion doc.: / SEC(2011) 1608 Final
Subject: / Staff Working Document accompanying document to the Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and, the Committee of the Regions - 'Education and Training in a smart, sustainable and inclusive Europe' - analysis of the implementation of the Strategic Framework for European cooperation in education and training (ET 2020) - Country analysis
Delegations will find attached Commission document SEC(2011) 1608 Final.
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Encl.: SEC(2011) 1608 Final
18577/11 ADD 2 GN/ag 1
DGI - 2B EN
POLAND
Starting with the country’s performance in relation to the education and training benchmarks and the challenges identified during the first Europe 2020 European Semester, this country summary analyses the country’s situation on the basis of the ET 2020 national reports and other available sources. It focuses on key areas for the implementation of ET2020 as well as Europe 2020 and the European Semester, i.e. measures relevant for achieving the Europe 2020 headline target and the related national targets, along with mobility, lifelong learning, skills matching, and investment in education and training.
1. Benchmarks
POLAND / Poland / EU average / EU Benchmarks2000 / 2010 / 2000 / 2010 / 2010 / 2020
Participation in early childhood education
(4 years old — year before start of comp. primary) / 58.3% / 70.9%09 / 85.2% / 91.7%09 / - / 95%
Low achievers
(15 year-olds;
PISA study results) / Reading / 23.2% / 15.0%09 / 21.3% / 20.0%09 / 17.0% / 15%
Mathematics / 19.8%06 / 20.5%09 / 24.0%06 / 22.2%09 / - / 15%
Science / 17.0%06 / 13.1%09 / 20.2%06 / 17.7%09 / - / 15%
Early leavers from education and training
(age 18–24) / 7.4%01 / 5.4% / 17.6% / 14.1% / 10% / 10%
Tertiary education attainment
(age 30–34) / 12.5% / 35.3% / 22.4% / 33.6% / - / 40%
Adult participation in lifelong learning
(age 25–64; 4 week period) / 5.0% 04 / 5.3% / 8.5% 03 / 9.1% / 12.5% / 15%
Source: Eurostat (UOE, LFS) and OECD (PISA)
01= 2001, 03= 2003, 04= 2004, 06 = 2006, 09 =2009
PISA: reading: 18 EU countries, maths and science: 25 EU countries
‘EU Benchmarks’ are defined as ‘EU average performance levels’ (weighted averages)
2. Europe 2020: Outcome of the European Semester
Analysis presented in the Commission Staff Working Document accompanying the Recommendation for a Council Recommendation on the implementation of the Integrated Guidelines for the economic and employment policies of the Member States
Poland has been carrying out extensive reforms to modernise all levels of its education system and has improved its results in OECD PISA studies. The numbers leaving school early are considerably below the EU average, and higher education attainment is slightly above average. However, the education system faces serious difficulties in providing adequate skills required by the labour market. Skills and jobs mismatches, especially among young people, should be addressed by implementing the proposed effective lifelong learning strategy, reform of the higher education system, linking it better with labour market needs, and further investment in vocational education programmes, targeting the low-skilled and older workers in particular. Work has already started on implementing the National Qualifications Framework on top of the national register of qualifications (scheduled for 2012). A policy document, ‘The prospect of Lifelong Learning’, is soon to be adopted. The NRP sets out plans for legislative amendments to link education more closely to the needs of the labour market, e.g. by enabling schools to implement training courses preparing to confirm qualifications. The NRP also envisages facilitating the transition from education to first employment and job creation in new, less crisis-prone industries. In addition, Poland is addressing challenges in this area through higher education reform, expected to be implemented in the second half of 2011. The reform is intended to encourage universities to provide more flexible, higher-quality curricula which would reduce the skills mismatch by involving employers in the education process and by strengthening university-business links to ensure an appropriate range of fields of studies that meet labour market needs. Access to tailored and individualised support programmes, including dedicated training and apprenticeship programmes leading to a first vocational experience, is low.
Council Recommendation on the implementation of the Integrated Guidelines for the economic and employment policies of the Member States
Recommendation (4)
Implement the proposed lifelong learning strategy, enhance apprenticeships and dedicated vocational training and education programmes for older workers and low-skilled workers. Strengthen links between science and industry by implementing the ‘We build on Knowledge’ programme (‘Budujemy na Wiedzy’). Implement the higher education reform programme ‘Partnership for Knowledge’ (‘Partnerstwo dla Wiedzy’) so as to better align educational provision with labour market needs.
3. Europe 2020 headline targets
3.1. Early school leaving
Poland is one of the best performers in the EU regarding early school leaving, with a rate of 5.4% in 2010, against an EU average of 14.1%. Poland intends to reduce this rate to 4.5% by 2020.
Poland is undertaking several preventive and compensating measures to tackle early school leaving, such as extending the duration of comprehensive education at the level of lower secondary school to prevent early segregation, or organising training courses and classes for adults who want to improve their education and competences.
As regards preventive measures, Poland will have to put particular emphasis on increasing participation in early childhood education and care. While the rate has increased significantly since 2000, it still is the lowest among the EU Member States (67.5% against EU average of 92.3%). New legislation (2011) aims to simplify the setting up of nurseries, to encourage enterprises to set up nurseries and ensure the legal employment of ‘nannies’. As from the school year 2011/2012, all five-year-olds and from 2014, all four-year-olds will have a guaranteed right to pre-primary education, but the number of public kindergartens and nurseries is currently insufficient and will need to be increased. The state budget will grant financial support to activities implemented by local governments.
To improve analysis and monitoring, the modernisation of the SEI (System of Educational Information) decided in 2011 and to be implemented as of 2013, will support the identification of failures to fulfil compulsory pre-primary preparation, compulsory schooling and education.
3.2. Tertiary attainment
The rate of tertiary education attainment was 35.3% in 2010, slightly above the EU average of 33.6%. Progress in the period 2000-2009 has been one of the strongest in the EU. The proposed national target to attain 45% by 2020 is an ambitious goal but in accordance with the past trend. In 2008, the share of drop-outs from higher education amounted to 36%.
Poland has made significant progress in increasing the number of MST graduates, for which the growth rate has been almost three times the EU average, resulting in a doubling of the number of graduates since 2000. The rise in number is also coupled with a better gender balance. There is, however, scope for a further increase in the number of MST graduates.
The biggest challenges in modernising the higher education system are to ensure that the subjects offered are a better match for the needs of the labour market and to improve the quality of teaching to provide students with the more practical knowledge required by employers that will help them find a first job after graduation. In line with the specific recommendation issued in the framework of the European Semester, Poland is addressing these challenges through higher education reform, which is expected to be implemented in the second half of 2011. The reform is intended to encourage universities to provide more flexible, higher-quality curricula, which would reduce the skills mismatch by involving employers in the education process and by strengthening university-business links in order to ensure an appropriate range of fields of studies meeting labour market needs.
4. Mobility
As regards tertiary education, Poland has an outbound long-term mobility (1.8% of students per year) below the EU average (2.8%), while short-term mobility under the EU Erasmus programme (0.5% of students in 2008/09) is also below the EU average.
Mobility in Poland is mainly financed under the Lifelong Learning Programme, Youth in Action and several national and bilateral programmes. The main barriers identified include lack of language competences and shortcomings in recognition of learning outcomes. These barriers are being addressed by work on the National Qualification Framework and by introducing compulsory foreign language lessons at different educational levels.
The implementation at national level of the principles of cooperation developed in the areas of EQF, EQARF, ECVET and EUROPASS will also be important for reducing barriers to mobility in learning.
These measures consistently address the challenges identified.
To promote the mobility of young people in vocational education in particular, the Ministry of National Education disseminates examples of good practice. This is supported by a special survey on international cooperation and student exchanges between VET schools.
5. Lifelong learning, new skills and jobs, other measures
Poland has made progress in developing its lifelong learning strategy. The document named Lifelong Learning Perspective is set to be finally adopted by the Council of Ministers before the end of 2011.
As indicated in the outcome of the European Semester, the biggest challenge facing the education and training system, including VET, is to respond better to the needs of the labour market, given the particularly high unemployment rate among young people under the age of 25 (26% in March 2011).
In line with the specific European Semester recommendation, improving the relevance of education and training to the labour market and maximising access to lifelong learning and continuing training, particularly for the low-skilled and for groups at risk such as the unemployed or older workers (the participation of adults in lifelong learning is only 5.3%, against the EU average of 9.1%.) is on the policy agenda. It would also be beneficial to foster closer partnerships between education/training providers and employers, for example by reinforcing work-based learning in VET, including apprenticeships (starting from first grades) to facilitate the transition of young people from education to work through practical training, and by increasing incentives for employers to take on young workers.
The reform of the VET system is in progress and is expected to be implemented in 2012/2013. Proposed changes include increasing the attractiveness of VET and better matching it with labour market needs. The reform of higher education also aims to ensure closer cooperation and links with employers, in line with the European Semester indications.
Another challenge is to improve guidance services, especially for young people, in both VET and tertiary sectors, to inform them about the prospects of finding a job after graduation in the studies of their choice. Fostering entrepreneurship attitudes at all stages of education and training will also be important.
Poland has also reported several measures to carry out a skills forecast and to use it to shape the education and training on offer nationally and regionally.
6. Investment in education
Poland / EU average2000 / 2008 / 2000 / 2008
Investment in education
Public spending on education,% of GDP / 4.89% / 5.09% / 4.88% / 5.07%
Source: Eurostat (UOE)
Investment in education has remained stable since 2000 and is close to the EU average, 5.09% versus EU average of 5.07%.
Poland does not report any explicit influence of the crisis on public education budgets or reform in any sector of education. School teacher salaries actually increased by 7% in 2010. Combined with increases in previous years, the overall salary increase for teachers was 30% compared to 2007.
In addition to new curriculum and delivery models, reforms aiming to raise participation in pre-primary and primary education have not been affected by the crisis. The European Social Fund co-finances major reforms of the Polish education system.
The increase in spending on higher education recorded since 2007 (16.8% over four years) was maintained. Moreover, spending on higher education is being rationalised: while maintaining the rate of growth in the level of finance for universities, an additional grant will be awarded to entities promoting academic excellence (Krajowe Naukowe Ośrodki Wiodące — KNOW — Leading National Scientific Centres).
The budget for education in 2011 is estimated at 37.2 billion zł (about €9.3 billion), which is 6.3% higher than in 2010 (35 billion zł — €8.75 billion).
Developments observed in the Polish education and training budget are fully consistent with the call for preserving and promoting growth-enhancing investment that resulted from the European Semester 2011.
7. Conclusions
The document Lifelong Learning Perspective, to be adopted in late 2011, and its accompanying Action Plan, represent significant progress towards developing a national lifelong learning strategy as recommended in the framework of the European Semester. The new comprehensive approach can play a key role in fostering human capital development and constitute a guiding principle for all Polish sectoral strategies.
Consistent with the challenges identified during the European Semester, Poland is modernising its vocational training system through a package of proposals set forth in 2011, to be implemented from 2012–13 onwards. This should enable Poland to increase the provision of apprenticeship places, and to promote dedicated vocational training aimed at developing the skills of both the older and the unskilled workforce.
Poland is also implementing a new higher education reform adopted in 2010, intended to reduce skills mismatches, in line with the European Semester recommendation, by introducing a novel approach based on learning outcomes, which is consistent with the objectives of the European Qualifications Framework (EQF).
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