1. Key indicators

2. Highlights

3. A focus on digital education

Schools at all levels are well equipped with digital devices and high speed broadband. In particular in primary (90%) and lower secondary (90%) education, a much higher share of schools is well equipped than the EU averages of 35% and 52%. Danish schools are much more frequently linked to the internet through connections above 100 mps. At ISCED 2 and 3¹, over 90% of students use digital devices (computer, notebook) for learning at least once a week compared to the EU averages of 52% and 59%. Around 80-90% use their own laptop in school, compared to 12% and 15% at EU level (European Commission, 2019d). In 2011 Denmark’s government launched a DKK 500 million (EUR 67 million) initiative for ICT in compulsory education jointly with municipalities. Investment continued throughout 2016 and 2017 and included compulsory learning platforms.

Denmark has followed a strategic approach to developing digital infrastructure, online resources and the digital skills of students and teachers. In 2011, ICT was introduced into compulsory education, and investments of DKK 45 million (EUR 6 million) to develop digital resources, with additional investments in 2015 and 2016, a digital teacher network and a public digitalisation strategy in 2016. The latest action plan for digitalisation in compulsory education was launched in 2018 and has introduced a new subject, technology comprehension (teknologiforstaelse) that is currently being tested both as independent and as separate subject.

Students have good digital skills and teachers feel confident using ICT in class, even if not all have received formal training. Danish students continued to show the best computer and information technology competences in the ICILS 2018 international survey (553 points on average, up 11 compared to 2013 and with 3% reaching the highest competence level) (Fraillon et al., 2019). Digital competences are assessed for all students in national tests at both primary and secondary level (European Commission 2019c). Performance differences among Danish students due to socio-economic and migrant backgrounds or to non-availability of IT equipment at home are less pronounced in Denmark than in other countries (Fraillon et al., 2019). According to OECD TALIS lower secondary students in 2018 are among those most exposed to using ICT for projects in class (90.4%, an increase of 16.6 pps in 5 years). Even in primary school, 58.3% do so. Forty one percent of primary and 58% of upper secondary teachers report having been formally trained to use ICT, in primary less and in upper secondary school more than in other European countries. In TALIS only 39.5% of all teachers felt well prepared, but this increases to 52.2% for those who graduated more than 5 years previously. An evaluation from 2017 (Rambøll) establishes a clear link between teachers’ confidence in ICT and their effectiveness in ICT teaching, and points to a need for continuous upskilling.

Well-developed ICT infrastructure coupled with strong digital competences of teachers and pupils allowed a quick adaptation to distance learning following the COVID-19 outbreak. All early childhood education and care (ECEC) institutions, schools and higher education institutions closed in mid-March 2020. They gradually started reopening from mid-April (higher education is expected to re-open in September). Schools, teachers and students were relatively well prepared for the sudden shift to home schooling, with a central communication platform, different learning platforms, digital strategies in schools, and teachers and students with good ICT skills. Initial research shows that teachers largely managed to establish good dynamics in the virtual learning environment (Gymnasieskolen, 2020a). According to a survey by Aarhus University of over 10 000 students in third and ninth grades and their parents, 80% of students knew what teachers wanted them to do and they felt part of a learning community. Parents played an important role; 80% of students received support from them, more than half from teachers and friends. Less than 10% felt they did not get support at home. Yet school closures had a major impact on the wellbeing of students: over 90% missed friends and peers (60% their teachers) and 20% reported having trouble as an online learner. To address these challenges, the administration took several measures, particularly that of instructing teachers to reach out actively to students at risk. Other challenges identified included providing adequate structure to students and sufficiently varied study material to avoid ICT overload, and allowing collaboration opportunities.

4. Investing in education and training

General government expenditure on education as a proportion of GDP further decreased to 6.4% in 2018 but remains well above the EU average (4.6%). Expressed as a share of total general government expenditure, it stood at 12.6% in 2018, again well above the EU average of 9.9%. After consecutive decreases in 2016 and 2017 (by 0.6% and 2.7% respectively), spending in real terms increased slightly in 2018 (+0.6%). The 2018 increase went to tertiary (2.3%) and secondary and post-secondary education. Teachers’ pay, at 51%, absorbs a much smaller proportion of spending than the EU average of 65%. Denmark spends a significantly higher share on pre-primary and primary education (45.5%) than the EU average (34.1%) and on tertiary education (24.6%; EU average 16.4%).

Latest investments are focused on pre-primary and primary education. The primary education budget increases by DKK 275 million (EUR 37 million) in 2020 and will grow further by DKK 800 million (EUR 104 million) in 2023. Spending on ECEC will increase by DKK 828 million (EUR 107.6 million) in 2020 and will allow for implementation of minimum standards and for municipalities to hire more qualified staff. In upper secondary and higher education, previously projected cuts of DKK 678 million (EUR 91 million) for 2020 are not being implemented. The attractiveness of primary and secondary teacher salaries fell in 2011-2017, in contrast to the trend in most other EU countries (OECD 2019a). DKK 127.5 million (EUR 17 million) previously earmarked for a talent promotion programme for students have been reoriented to improving teacher education.

5. Modernising early childhood and school education

Participation in ECEC is high. All children between 4 and compulsory primary school attend ECEC (100% in 2018). According EU-SILK participation in childcare under age 3 is also high, and stable at around 66% (2019), almost the double the EU average. Moreover, the majority (58%) attend more than 30 hours a week, longer than the EU average. Children aged over 26 weeks are legally entitled to full-time publicly subsidised ECEC (European Commission, 2019e). There is practically no difference in attendance rates between disadvantaged and advantaged students (OECD, 2019b).

The lack of a quality framework for ECEC and uneven professionalisation of staff may cause uneven quality. Municipalities are responsible for ECEC provision. A recent report by the Danish Evaluation Institute identified significant differences between the 98 municipalities, for instance with respect to children-to-staff ratios, qualifications and mix of staff (Danmarks Evalueringsinstitut, 2020). The Day Care Act does not set minimum requirements for initial education or for the continuing professional development of pedagogical staff and assistants. Nor is there a minimum requirement for head positions. Starting salaries of staff are high by international standards but remain largely unchanged throughout the career, which makes the profession unattractive. This could result in teacher shortages in the longer term, given an expected increase by 60 000 in the number of children in the next 10 years. In 2018, only about 60% of staff had a professional bachelor’s degree in ‘pedagogy’, and about 7% have a formal education as a pedagogical assistant. Higher pre-service qualifications tend to translate into better staff-child interaction, a key component of successful ECEC. As part of the 2020 Budget Bill, legal minimum staff/child ratios will be gradually introduced by 2025 (three children per adult in nurseries, and six children per adult in kindergartens). But Denmark has adopted an updated pedagogical curriculum for the 0-6 year olds to be implemented across all ECEC institutions by 2020.

Facilitating transition from ECEC to primary education is particularly important for children with a disadvantaged background. Access to quality ECEC is particularly important for children from a disadvantaged background, who are also likely to need support to facilitate the transition to primary school. While the broad objective of facilitating transitions is specified by law and there are some common child monitoring methods such as development reports, there are major differences in local approaches (OECD, 2019b), leading to uneven levels of support. The government invests DKK 1.6 billion (EUR 208 million) in higher quality, to provide more pedagogical staff in areas with children from vulnerable backgrounds and for upskilling of pedagogical staff. Nevertheless, more attention is needed to support transitions, in particular by improving collaboration among the responsible bodies.

Pupils show good average basic skills and the share of underachievers is low. The share of 15 year-olds that underachieve in basic skills, as measured in the OECD’s Programme for International Student Assessment (PISA) 2018, is well below the EU average and better than or close to the 15% EU benchmark (mathematics 14.6%, reading 16.0% and science 18.7%). Since 2012, the share of underachievers remained broadly unchanged in mathematics, reading and science. The share of top performers is close to the EU average and, while largely unchanged for mathematics and science (11.6% and 5.5% respectively), almost doubled in the past decade for reading (now at 8.4 %).

Socio-economic inequalities and some gender imbalances persist. According to PISA pupils with a migrant background perform considerably worse in reading (-65 points) than native born. Even after taking account of socio-economic disadvantage, the gap stands at -34 points, about twice the EU average (18.3). The share of low achievers in reading among foreign-born pupils is also very high, 38.3%, against only 13.3% among native born, and decreases by only about 4 pps to 34.6% for second-generation migrants. This is a substantial challenge, as about 10.7 % of Danish students have a migrant background (OECD, 2019c). Seventy-six per cent of foreign-born and 44% of second-generation students do not speak Danish at home. Since 2009 the attainment gap in reading among the first generation has slightly worsened (+12) and has barely changed for the second generation (+1). There is a significant gender gap, in particular in reading, with the share of low achievers 9.8 pps lower among girls than boys. Between 2015 and 2018 this worsened by 3.9 pps.

Wellbeing among pupils is comparatively good and remains stable. In PISA students report that they feel at home at school (only 28% disagree, 7.2 pps below the EU average). But those who do not feel at home show an above average negative impact on their reading performance. Bullying is an issue, but has little negative impact on reading performance (-3 at student and -9 at school level). Values have remained stable between 2015 and 2018. The rate of absenteeism is similar between boys and girls and is more linked to social disadvantage and migrant background than the EU average. Wellbeing was one focal point of the reform of primary schools (Folkeskolereform) in 2013; nevertheless, recent evaluations found no major improvements either in wellbeing or in education outcomes. Reforms in this area have not yet been fully implemented.

The lack of qualified teachers and support staff risks somewhat affecting teaching quality. The OECD TALIS 2018 study shows that Danish teachers have high self-efficacy from the start of their careers. A variety of factors influences the quality of teaching. Schools tend to be about half of the EU-27 average size, the pupil/teacher ratio is also favourable at 11.9 and teaching practices have shifted to more autonomy and responsibility among students. Danish teachers spend more time actually teaching in class than their peers elsewhere. School heads consider the most important obstacles to quality education to be the shortage of qualified teachers and support staff for learners with special educational needs, as well as lack of sufficient time with students. The 2020 Budget Bill earmarked a total of DKK 275 million (EUR 37 million) in 2020, increasing to DKK 800 million (EUR 107 million) in 2023, to employ more teachers in public schools. The removal of the tertiary education ceiling (uddannelsesloftet) will allow higher education institutions to provide more study places for teachers (European Commission, 2020).

Teachers choose their career out of interest in children and not for financial security, but many leave the profession early. Danish teachers state that they choose the profession primarily to influence the development of children and young people (94.2%) and linked to their personal preferences (61.1%); pay or job security motivate their choice less. However, about a 20% of teacher below 50 intend to leave teaching within the next 5 years (double the EU average). Teacher starting salaries are relatively high, but still below that of other workers with a tertiary degree, and they have become less attractive over time (OECD 2019a). The pay structure is rather flat and salaries increase little during the career. Teachers in public schools tend to be more content with their financial situation than those in private schools, but this is reversed for school leaders (TALIS), whose salaries are determined by school characteristics and local circumstances. Danish schools enjoy a high level of autonomy. School leaders have a decisive say on staff policies, school budget and on administrative and pedagogical management of schools.

Government is reforming access to teacher training to increase quality and reduce dropouts. The government has remodelled the admission process to teacher training to ensure a better match between applicants and the job requirements, thus reducing dropout, which amounted to 41% in 2005. This introduces a qualitative element into access to teacher training, balancing the financial incentive for institutions to maximise the number of students (OECD, 2019a). While initial teacher education is strong in areas like pedagogy, it is less so in preparing trainees for teaching in a multicultural or multilingual setting. Opportunities for professional development are close to the EU average, but are lacking more importantly in relation to multicultural and multilingual teaching and special needs. The OECD TALIS study observed no improvement in the competences of teachers in these areas in 2013-2018.

Denmark shifted rapidly to digital learning in the COVID crisis, but home schooling provided a challenge for younger students. It quickly emerged that home schooling was challenging in particular for younger children, who need the structure offered by schools, and for children from lower socio-economic and migrant backgrounds. The Minister of Education therefore instructed teachers early in the lockdown to reach out in other ways where students did not turn up online. Application procedures for higher education were amended, and the final upper secondary grade exam was reduced to two written and one oral exam. Preliminary research indicates that parents of primary school children found it difficult to provide the necessary support for home schooling, in particular when they were teleworking. Parents nevertheless also report that they gained a better understanding of their children’s learning and closer collaboration with teachers. Home schooling also presented challenges for teachers, in particular keeping contact with students and adapting requirements to their capacities. The return to school brought new challenges related to hygiene and social distancing. The administration collaborated closely with all stakeholders. The return highlighted an apparent loss of motivation, particularly among upper secondary students, one of the last groups allowed to return. A fund of DKK 5 million (EUR 670 000) aims to boost motivation of these students through additional one-to-one interaction with teachers.

6. Modernising vocational education and training

Participation in VET is below the national target and dropout is high. In 2018, 37.7% of learners at the upper secondary level were enrolled in a VET programme, below the EU average of 48.4%. Regional differences are significant, with the lowest participation rates in the larger cities (Cedefop, 2020). According to national data, VET programmes have the highest dropout rates when compared to other educational paths. (Danmarks Statistik, 2019). According to the most recent available data from the 2016 EU labour force survey, the exposure of VET students to any form of work-based learning is slightly below the EU average (53.1 vs. 59.5%). However, Denmark is above the EU average when focussing apprenticeships as a more comprehensive way of integrating work-based learning into VET. The employment rate among recent VET graduates in 2019 decreased slightly to 84.7% from 85.0% in 2018, but is still above the EU average of 79.1%.

Final VET exams are held if possible, but VET schools may otherwise provide the VET student with a degree and administrative diploma. VET schools reopened on 20 April, after the COVID-19 lockdown in March, for students with less than a year to graduation. Students unable to complete their education programme within the fixed maximum study period will have the possibility to extend it. The COVID-19 epidemic has intensified the use of distance learning in VET; however, teachers and learners expressed their worries about the lack of opportunities for hands-on-experience in practical subjects. Evaluations point out that groups at risk will become further challenged (Cedefop, 2020). The Education Ministry has conducted a general evaluation of VET institutions’ use of ICT platforms, concluding that there has been clear progress.

Denmark continues efforts to address a shortage of apprenticeship places. The networks of ‘advantages programmes’ expanded from 29 to 37 in 2019. The programme funds employers to guarantee apprenticeship to graduates of the second basic programme (GF2) (Cedefop, 2020). However, according to an analysis by the Danish Building Employers Association, the COVID-19 crisis will have a major impact on the supply of apprenticeships. Their worst-case scenario is a reduction by 7 700 from 2019 to 27 800 in 2020 (Dansk Byggeri, 2020). This spring, 14 500 VET students who completed their studies, as well as 500 who have definitely lost their apprenticeship during the crisis, needed an apprenticeship (Folktinget, 2020). A tripartite agreement will reallocate a surplus of around EUR 670 million from the Employers' Education Grant (AUB) to provide a wage subsidy scheme for apprenticeships. From May 1 until end of 2020, companies will receive 75% of their ongoing apprentices' salary. Wage subsidies are also granted for new agreements: 45% for short agreements and 90% for ordinary education agreements. In addition, all employers received an extraordinary subsidy to support the continued creation of apprenticeships (Beskaeftigelsesministeriet, 2020).

7. Modernising higher education

The tertiary attainment rate has continued to increase to 49% in 2019, with women (57.1%) strongly outnumbering men (41.2%). Tertiary attainment rates vary considerably between cities (65.7%) and rural areas (32%) - a gap of 33.5 pps, twice as high as the EU average. While the rates for the native-born (48.5%) and foreign-born (51.5%) population are relatively similar, it drops to 45.1 % for people born outside the EU. The share of tertiary graduates in 2018 in STEM fields keeps slowly increasing, but, at 22.2%, is still below the EU average of 25.4%. Female STEM graduates make up 32% compared to 56% in all study areas, both around the EU average.

Students are comparatively old, and more likely to complete their studies within the programmed time and continue to at least master level. Danish students are older than their EU counterparts: 25.9% of bachelor and 49.9% of master students were 25 or older when they started their studies, but they are more likely to finish their studies on time (50%, and an additional 30% after another 3 years) and few drop out (less than 15%) (OECD 2019f). After completion of a bachelor’s degree, 99 % continue to a master’s. The structure of student support facilitates this. To encourage bachelor graduates to start working, the government introduced the possibility in the grant system of waiting up to 3 years after completing a bachelor’s degree before starting a master’s, without losing any rights. The earnings premium for higher education is relatively modest for a bachelor’s degree, but about 10% higher for short-term studies and 20 pps higher for those with master’s degrees (OECD 2019f).

International students are numerous, particularly at doctorate level, and universities have a high scientific output. International participation amounts to 36.2%, 19.6%, 12.98% and 5.79% at doctorate, master, short cycle and bachelor level. The large number of courses offered in English, and no tuition fees combined with student support, make Denmark highly attractive for incoming students. Few foreign graduates stay to work, however, which has motivated the government to reduce the number of courses in English. With its important inflow of scientific talent, Denmark was in 2015 among the most productive countries in terms of scientific publications (OECD 2019f).

8. Promoting adult learning

Adult participation in learning has decreased significantly in recent years, but remains among the highest in the EU. The rate has declined from 31.3% in 2015 to 25.3% in 2019, still more than double the EU-27 average (10.8%). The drop may be linked to high economic activity, during which employers may have allowed less time for training – the fact that participation for those in employment has declined more than for the unemployed supports this hypothesis. Among the 25.3% who take part in adult learning, there are no significant differences in terms of skills level or educational background. There are, however, significant gender gaps, with the participation of men (20.7%) being lower than that of women (30.0%) (Cedefop, 2020).

A political agreement (October 2019) earmarked DKK 102 million (EUR 13.7 million) for the upskilling of unskilled workers. The overall aim is to ease the shift from unskilled to skilled work and to address labour shortages by ensuring the supply of skilled workers with necessary competences. It was also agreed to continue the job rotation scheme in 2020, allowing unskilled workers in certain sectors (e.g. health) to take part in training to become a skilled worker in the same field, while an unemployed person fills the position while training takes place. Launched in February 2019, the National Coalition for digital skills and jobs aims to promote digital skills. With more than 10 000 members, it supports actions to supply high-quality graduates in line with labour market needs (Cedefop, 2020). Digital skills of adults are better than the EU average and very few Danes have no digital skills (DESI 2019).

9. References

Beskaeftigelsesministeriet Danmark (2020). Trepartsaftale skal sikre flere lære- og elevpladser. https://bm.dk/arbejdsomraader/aktuelle-fokusomraader/covid-19/

Cedefop ReferNet Denmark (2019). Denmark: a new VET initiative/law. https://www.cedefop.europa.eu/el/news-and-press/news/denmark-new-vet-initiativelaw

Cedefop ReferNet Denmark (2020). Denmark: Better opportunities for VET students progression into higher education. https://www.cedefop.europa.eu/el/news-and-press/news/denmark-better-opportunities-vet-students-progression-higher-education

Cedefop ReferNet Denmark (2020a). Denmark: introductory basic education for people under 25 consolidated. https://www.cedefop.europa.eu/el/news-and-press/news/denmark-introductory-basic-education-people-under-25-consolidated

Danmarks Evalueringsinstitut (2020). Kvalitet i Dagtilbud, s.l.: EVA.Danmarks statistik Erhvervsuddannelser i Danmark 2019: https://www.dst.dk/da/Statistik/Publikationer/VisPub?cid=32526

European Commission/EACEA/Eurydice (2017), Citizenship Education at School in Europe — 2017. Eurydice Report. Luxembourg: Publications Office of the European Union.

European Commission (2019a), Digital Economy and Society Index (DESI).

European Commission, (2019b), Digital Economy and Society Index (DESI), 2019 Country Report Denmark. https://ec.europa.eu/digital-single-market/en/news/digital-economy-and-society-index-desi-2019

European Commission (2019c), Digital Education at School in Europe, Eurydice. https://op.europa.eu/en/publication-detail/-/publication/d7834ad0-ddac-11e9-9c4e-01aa75ed71a1/language-en/format-PDF/source-105790537

European Commission (2019d) 2nd Survey of Schools: ICT in education – Denmark Country Report. https://ec.europa.eu/digital-single-market/en/news/2nd-survey-schools-ict-education

European Commission/ECEA/Eurydice (2019e), Key Data on Early Childhood Education and Care (2019)

European Commission, (2019f). PISA 2018 and the EU. Striving for fairness through education. https://ec.europa.eu/education/news/pisa-2018_en

Commission (2020) European Semester, Country Report Denmark. https://ec.europa.eu/info/publications/2020-european-semester-country-reports_en

Eurostat. https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Early_leavers_from_education_and_training

Fagbladet boligen: https://fagbladetboligen.dk/artikler/2020/april/dansk-byggeri-7700-faerre-praktikpladser-i-2020/

Fraillon, J. et al (2019) Preparing for Life in a Digital World, IEA International Computer and Information Literacy Study 2018. https://www.springer.com/gp/book/9783319142210

Gymnasieskolen (2020) Digitalisering må ikke overlades til den enkelte. [Online].
https://gymnasieskolen.dk/digitalisering-maa-ikke-overlades-til-den-enkelte

Nyt fra Danmarks Statistik 12. marts 2020 - Nr. 98 https://www.dst.dk/da/Statistik/nyt/NytHtml?cid=30304

Rambøll, (2017), kortlægning af e-læring i de videregående uddannelser, Uddanelses-og Forskningsstyreslen. https://ufm.dk/publikationer/2017/kortlaegning-af-e-laering-ved-de-videregaende-uddannelser

OECD (2018): Engaging Young Children – Lessons from Research about Quality in Early Childhood Education and Care. http://www.oecd.org/education/engaging-young-children-9789264085145-en.htm

OECD (2019a), Working and Learning Together: Rethinking Human Resource Policy for Schools, OECD Reviews of School Resources, OECD Publishing, Paris, https://doi.org/10.1787/b7aaf050-en

OECD (2019b). Starting strong 2018, Paris: OECD Publishing. http://www.oecd.org/education/school/startingstrong.htm

OECD (2019c), PISA 2018 Results (Volume I): What Students Know and Can Do, PISA, OECD Publishing, Paris, https://doi.org/10.1787/5f07c754-en

OECD (2019), PISA 2018 Results (Volume II): Where All Students Can Succeed, PISA, OECD Publishing, Paris, https://doi.org/10.1787/b5fd1b8f-en

OECD (2019h), PISA 2018 Results (Volume III): What School Life Means for Students’ Lives, PISA, OECD Publishing, Paris, https://doi.org/10.1787/acd78851-en

OECD (2019d) PISA 2018 Country Note: Denmark https://www.oecd.org/pisa/publications/PISA2018_CN_DNK.pdf

OECD (2019g) Reviews of School Resources. Working and Learning Together: Six policy approaches to support effective working environments in schools. 2019. http://www.oecd.org/education/school-resources-review/Six-Policy-Approaches-to-Support-Effective-Working-Environments-in-Schools.pdf

OECD (2019e), TALIS 2018 Results (Volume I): Teachers and School Leaders as Lifelong Learners, TALIS, OECD Publishing, Paris. https://doi.org/10.1787/1d0bc92a-en

OECD (2019f) Benchmarking Higher Education Systems Performance, Higher Education, OECD Publishing, Paris. https://doi.org/10.1787/be5514d7-en

OECD (2020), TALIS 2018 Results (Volume II): Teachers and School Leaders as Valued Professionals, TALIS, OECD Publishing, Paris. https://doi.org/10.1787/19cf08df-en

The Danish Parliament https://www.ft.dk/samling/20191/spoergsmaal/s1184/index.htm

The Danish Parliament https://www.ft.dk/samling/20191/spoergsmaal/s1125/index.htm

Annex I: Key indicators sources

Annex II: Structure of the education system