1. Key indicators

2. Highlights

3. A focus on digital education

Digital skills are promoted in broader national strategies, but there is no focused digital education strategy. The 2020 strategy for responsible development¹ envisages strengthening the school curricula with innovative skills, including information and communication technologies (ICT), adjusting higher education to the needs of the labour market and embedding new digital solutions in education. The integrated skills strategy up to 2030² includes actions to improve the use of digital technologies and combat digital exclusion. Research shows, however, that the successful integration of digital technologies into education and training requires an overall policy vision, organisational change, leadership and, in particular, support for teachers (Conrads et al., 2017). Experts have recommended developing a comprehensive digital skills strategy covering school and adult education, digital talent and e-inclusion (Tarkowski et al., 2018). The new digital competences development programme up to 2030, which is coordinated by the Ministry of Digital Affairs, focuses on the digital skills needs of citizens, ICT specialists, SME employees and public administration³. In 2020, Poland received a country-specific recommendation from the Council of the EU to ‘improve digital skills’ (Council of the EU, 2020⁴).

The new curriculum aims to enhance students’ digital skills. In 2019, 51% of 16-19 year-olds reported having above-basic overall digital skills (EU 57%)⁵. Poland showed the highest increase in the EU, by 19 pps, since 2015. At the same time, only around half of those aged 18-30 think that education has equipped them with the right skills, including digital competences, for their careers⁶. From 2017, the new computer science core curriculum includes programming from the first grade of primary school and, at later stages, introduces competences such as analysing and solving problems based on logical and abstract thinking, algorithmic thinking and information representation (European Commission/EACEA/Eurydice, 2019).

Improving the use of digital technologies in teaching requires specific support measures. Although 90% of teachers state that they use digital technologies in teaching, research shows that they usually use presentations or interactive boards, while still conducting classes via traditional transmission methods (Plebańska, 2017). Only around 12% of students use the internet during lessons, and mainly engage in simple online activities (Pyżalski et al., 2019). Experts recommend a new approach to supporting teachers, equipping them with the skills to use digital content and educational services more interactively (Głomb et al., 2019). Poland continues to support teachers in ICT, also using EU funds (Box 1). The evaluation report of European Social Fund (ESF) support for ICT training for teachers since 2008 suggests the following key drivers for improvement:

• greater availability of ICT infrastructure in schools;
• improving teachers’ competences;
• ensuring qualified technical staff;
• ensuring equal access to education for students with special educational needs (Bieńkowska, Z. et al., 2019).

Given the high expectation that teachers should engage with technology, training needs are high (Czapliński, et al., 2020).

Although progress has been made in schools’ digital infrastructure, secondary schools still lag behind the EU. Over the years, projects financed by the government, European Structural and Investment Funds and the private sector have improved schools’ connectivity, digital infrastructure and teaching aids. The Polish Educational Network project (OSE⁷) launched in 2017 aims to connect schools to the internet and create a digital education network by the end of 2020. In 2018, 37% of primary school students (EU 35%), 39% of lower secondary school students (EU 52%) and 51% of upper secondary school students (EU 72%) attended schools which were highly digitally equipped and connected (European Commission, 2019a). In mid-March, all education and care institutions closed due to COVID-19, and 2 weeks later pre-schools and schools began providing distance learning⁸, facilitated by the swiftly upgraded online educational platforms⁹. To prevent digital exclusion, the government allocated around EUR 81 million to local governments to purchase ICT equipment for disadvantaged pupils, and for schools and teachers under the operational programme ‘Digital Poland’, and intensified investment efforts under OSE (both supported by the European Regional Development Fund (ERDF)) (see Volume 1).

4. Investing in education and training

While investment in education is high compared to other EU Member States, spending per pupil remains low. Poland spent 5.0% of its GDP on education in 2018 (EU 4.6%) and 12.0% of total government expenditure (EU 9.9%). Education spending has grown significantly: in 2010-2018, public expenditure on education overall increased in real terms by 13%, and from early childhood education and care up to upper secondary levels it grew in real terms by 17.92%¹⁰ (i.e. by EUR 2 233.1 million). This included the costs of the school system reorganisation. Nevertheless, in 2017, annual spending per student for all education levels remained low compared to other Member States¹¹. The very good results of Polish 15-year olds in the OECD Programme for International Student Assessment (PISA) 2018 coupled with this comparatively low spending per pupil indicate that the system is efficient. However, low spending per pupil largely reflects low teachers’ salaries, and teachers’ enthusiasm is among the lowest in the EU (OECD, 2019b Vol. III) with shortages emerging. In 2019, teachers’ average actual salaries were 63% of the earnings of other tertiary-educated workers at pre-primary level (ISCED02), 75% at primary level, 76% at lower secondary level and 75% at the upper secondary level, well below the averages (between 80-94%) for OECD countries (OECD, 2020). Efforts have been made to improve the financial attractiveness of the profession: following an increase of salaries by 14.6% for all teachers and further increases for starting and class teachers in 2019, budget 2020 envisages to increase the minimum teacher salary by 6% from September.

Discussions regarding financing education continue. According to the Statistical Office’s data the share of spending borne by local governments has been increasing faster than the central government subsidies (Statistics Poland, 2019a). This is, however, seen differently by the Ministry. The impact of COVID-19 is likely to further affect the local government budgets. Discussions between the central and local government on these issues are ongoing¹², ¹³.

5. Modernising early childhood and school education

The ECE participation rate is close to the EU average but both coverage and quality of provision vary. In 2018, the participation rate of children aged 4+ in pre-school education in Poland was 93% (EU 94.8%), having increased by 16.7 pps since 2010. Since September 2017, children aged 3-5 have a legal entitlement to pre-school education, yet the participation rate of children 3+ was still only 88.2% in 2018 (EU 92.2%). An assessment by the Supreme Audit Office found that access to pre-school education is not fully ensured for ages 3-5. Provision is weaker in rural areas and there are concerns over the quality of services and the transparency of recruitment processes (NIK, 2019). In an effort to boost quality, from 2019/2020 future pre-school and early education teachers follow a 5-year master’s course.

Enrolment of children under 3 is low and faces various barriers. In 2018, the enrolment rate was 10.9% (EU 34.7%). The Ministry of Family, Labour and Social Policy continues to support expanding places for such children under the Toddler+ programme launched in 2011; the government’s strategy for responsible development envisages 33% participation by 2030. The Ministry acknowledges barriers to reaching this goal: a shortage of places, a low proportion of municipalities with childcare facilities, and high costs for parents (MRPiPS, 2019). The assessment carried out in preparation for a possible child guarantee scheme indicated the need for: flexible forms of childcare; actions to increase participation of children from recent refugee and migrant families; and better quality of service for children with disabilities and other special needs (Frazer et al., 2020).

Poland continues its high performance in basic skills. According to PISA 2018, 15 year-olds ranked among the best in the EU in reading, mathematics and science. Performance improved in all three testing areas since 2015, with a particularly positive long-term trend in reading and mathematics (OECD, 2019a). The proportion of low achievers has decreased; in 2018, Poland was one of four Member States to meet the ET2020 benchmark in all three areas (reading 14.7%, mathematics 14.7%, science 13.8%). In 2009-2018, the proportion of top-performing students in reading increased by 5 pps to 12.2%, and in 2018 was above the EU-27 average in mathematics (15.8%) and science (9.2%). The proportion of top performers in all three areas was among the highest in the EU (5.3% v 3.4%) (Figure 3) (OECD, 2019b Vol. I). This sustained high performance indicates that the reforms implemented in 1999-2019 have both reduced the number of low achievers and supported high performers. Experts underline a number of challenges still to be addressed: the demotivation of teachers; the need to support students from disadvantaged backgrounds; and the need to update the education process in line with changing needs in an increasingly digital environment (Sitek & Ostrowska, 2020). Since the 2016 law fundamentally changed the school system and curricula, it will be necessary to closely monitor educational outcomes.

Socio-economic background has a relatively low influence on PISA results but impacts strongly on pupils’ academic ambitions. Boys’ reading performance significantly improved in 2009-2018; the gender gap in favour of girls narrowed from 50 to 33 score points. In mathematics and science, girls scored similarly to boys. The impact of socio-economic status (11.6%) is relatively limited and below the EU-27 average (14.2%), and the variation between advantaged and disadvantaged schools is also below the EU-27 average (81 v 137 score points) (OECD, 2019b, Vol. II). However, socio-economic background strongly affects academic ambitions: only 29.3% of pupils from the lowest socio-economic cohort planned to complete tertiary education (EU-27 43.4%) and 47% of high-performing students from disadvantaged backgrounds did not intend to do so. In contrast, 86.5% of pupils from advantaged groups planned to do so (EU-27 82.3%), and only 8.4% of high-performing advantaged students did not (Figure 4). This finding points to a persistent risk of intergenerational transmission of poverty, as lower-education perpetuates the risk of lower earnings and higher unemployment¹⁴. Although education and career guidance is obligatory to all students, disadvantaged students may need more appropriate support regarding their education and career choices. A relatively low proportion of disadvantaged schools provide career guidance in Poland (51.3%) (OECD, 2019b, Vol. II).

School climate and students’ well-being require attention. In 2018, the proportion of students who reported that they belonged at school (60.8%) was lower than the EU-27 average of 65.2%, and the proportion who reported being bullied at least a few times a month increased by 5.27 pps to 26.4%. Bullying is particularly common among low-achieving students (36.3% v 21.2% for high achievers). Improving the school climate could enhance students’ academic ambitions and attitudes to learning later in life, as negative educational experiences are one of the barriers to adult learning (Ministry of National Education, 2019).

The rate of early school leavers remains low at 5.2% in 2019. In 2009-2019, the level of early leavers from education and training fell by 0.1 p.p.). It is particularly low in cities (4.0%), and fell also in rural areas by 1.2 pps to 5.6%, while increasing in towns and suburbs by 2.1 pps to 6.3%. Regional variations persist: the highest rate is in Northern Poland (7.5%), while the lowest is in Southern Poland (3.2%)¹⁵.

While they were adjusting to the new education system, schools faced the additional challenge of suddenly switching to distance learning due to the COVID-19 crisis, which created additional challenges. Schools started fully implementing the changes introduced by the 2016 law¹⁶ in 2019/2020 which created challenges related to the increased number of students in primary and secondary schools, new curricula and homework burdens (European Commission, 2019b). While measures to support distance learning were swiftly implemented, notably provision of additional ICT equipment, e-materials, online platforms, and guidance for teachers and parents, the COVID-19 crisis revealed that there are still groups of students at risk of educational exclusion (RPO, 2020). A survey¹⁷ among school heads undertaken a month after distance learning was launched showed that 85% of surveyed schools were able to provide distance learning, although relying largely on their own resourcefulness, and that there was a digital divide affecting both students and teachers. School heads also indicated a need for psychological support for students, teachers and parents. At the end of the school year, 87% of surveyed teachers had learnt how to use digital teaching tools, but only 10% felt fully prepared for online teaching (Fundacja Orange, 2020). The crisis prompted an expert discussion resulting in a series of ‘Educational Alerts’¹⁸ discussing inter alia digital skills and education, digital exclusion of pupils, the quality of teaching at all levels, and the financing of education. Building a broad consensus with social partners, teacher unions, parents and student organisations on teaching content, including digital and social competences, is seen as key to ensuring that the high quality of education can be maintained.

Poland continues measures to improve inclusive education. With the assistance of the European Commission’s Structural Reform Support Programme, the Ministry of Education continues its efforts for better integration of students with disabilities into mainstream education. The new regulation¹⁹ on initial teacher education standards and qualifications puts stronger emphasis on practical training and on supporting students with special educational needs. The European Agency for Special Needs and Inclusive Education is helping the Ministry prepare new legislation drawing on evidence from within and beyond Poland. Numerous workshops and a national conference were held. Poland continues to implement projects to improve inclusive education, including with ESF support²⁰. The number of foreign-born students in Polish schools more than doubled in 2017-2019, reaching almost 58 000 (Statistics Poland, 2019a), requiring additional efforts to ensure their integration.

6. Modernising vocational education and training

The implementation of the vocational education and training (VET) reform is ongoing. In February 2019, a new regulation was adopted defining core curricula for all occupations in a new classification, including additional vocational skills for selected occupations. In 2019, the Ministry of National Education published the first forecast of demand for employees in vocational occupations. In 2020, local governments will receive increased state subsidies for VET learners in high-demand occupations identified in the forecast. In 2019, the employment rate of recent graduates at ISCED 3-4 level was 77.3% (EU 75.9%).

The activities of vocational schools were restricted due to COVID-19. Distance learning primarily covered theoretical vocational subjects and the practical content which could be implemented remotely. Technical and post-secondary school students completed their apprenticeships in the school year 2019/2020 and employees (students of sectoral schools) will be able - in agreement with the employer - to take practical classes in the following years²¹. Schools resumed on-site classes in September; however, they may switch to distance or blended learning if approved by the local health authorities.

ICT specialists are needed. In 2018, a third of Polish enterprises needing ICT specialists reported difficulties in filling vacancies. The supply of ICT specialists is gradually growing, but remains below the EU average. ICT specialists represent a lower proportion of the workforce (3%) than the EU average (3.9%) and only 0.9% of employed women are ICT specialists (European Commission, 2020).

Several digital training initiatives were launched. In 2019, the Ministry of National Education launched an initiative to enhance the use of modernised content, tools and e-resources in initial and continuing VET. It is expected to improve provision for learners with disabilities, develop learners’ digital competences and promote learner-centred teaching and teamwork. To support long-term productivity, Poland needs to continue improving digital skills and female participation in the digital domain (European Commission, 2020).

7. Modernising higher education

Tertiary education attainment is well above the EU average, yet the gender gap widens. In 2019, the higher educational attainment rate was 46.6%, up by 0.9 p.p. since 2018 and exceeding the Europe 2020 national target of 45%. The gender gap at 19.2 pps in favour of women is significantly above the EU average of 10.5 pps. The overall proportion of graduates in science, technology, engineering and mathematics (STEM) decreased to 21.6% (EU 25.4%)²². The proportion of women in STEM at 9.4% is above the EU average (8.5%). The employment rate of recent tertiary graduates increased from 83.7% in 2010 to 90.1% in 2019 (EU 85%). Poland’s graduate tracking system (ELA²³) shows that the labour market situation of graduates is improving. The risk of unemployment among graduates drops below the national average around 9 months after graduation. Graduates in engineering, IT, mathematics and economics have the highest salaries; those in medical, engineering and social studies are most likely to find jobs quickly (Chłoń-Domińczak, 2019).

Higher education institutions (HEIs) are implementing the latest reform aimed at improving quality²⁴. 2019/2020 was the first full year of implementation of the reform. HEIs are putting in place new statutes, reorganising their staff and setting up scientific councils. They are also preparing for the first cycle of scientific evaluations according to the new principles planned for 2022 under new quality assurance institutions (e.g. the Council of Scientific Excellence, the Science Evaluation Committee). Critics argue that despite valuable new initiatives such as the ‘Masters of teaching’, the importance of teaching is undervalued in the new law²⁵ (Żylicz, 2019), which provides no requirements for lecturers to undertake initial pedagogical training or continuing professional development. The OECD Skills Strategy for Poland suggests strengthening support and incentives for effective teaching in HEIs (OECD, 2019c).

Internationalisation of higher education is slightly improving. The number of foreign students increased by 7.6% between 2017/2018 and 2018/2019 and now constitute 6.3% of the total. The majority of foreign students come from Ukraine, Belarus and India (Statistics Poland, 2019b). However, the inward degree mobility rate remains limited at 2.3% (EU 7.8%)²⁶ in 2018. Poland subsidises the programme `Poland my First Choice´²⁷, seeking to encourage students from target countries to pursue second-cycle studies there. According to the 2018/2019 Mobility Scoreboard, learning mobility support for disadvantaged students could be improved (European Commission/Eurydice, EACEA, 2020c).

Overall, HEIs moved swiftly to online learning, although some were strongly affected. Due to COVID-19, HEIs implemented distance learning, as well as online recruitment, exams and assessments between mid-March and the end of the academic year. According to a survey among students, 47% reported having had distance learning in all classes while 24% indicated they missed out in more than one class (NZS, 2020). It was remarked that the closure strongly affected medical, pedagogical and artistic HEIs, as many activities could not be conducted remotely²⁸. In consultation with stakeholders, the Ministry for Science and Higher Education prepared guidelines for reopening from 25 May. Following a competition launched under the operational programme ‘Knowledge, Education, Development’, the MOOC platform www.navoica.pl, managed by the Ministry of Science and Higher Education, will include new e-learning courses focused also on digital literacy.

8. Promoting adult learning

Adult learning needs strong reinforcement. Although the education system is gradually opening up to non-formal adult education and informal learning, the scale and the results remain weak. At policy-making level, the priority is to develop the details of the integrated skills strategy (MoE, 2019) and sectoral skills councils. The limited progress suggests a need for inter-ministerial cooperation. At employer/employee level, there is a need to raise awareness of the benefits of lifelong learning and improve access to learning opportunities (MoE, 2019). Poland continues implementation of the ESF LOWE project (Local Knowledge Education Centres), and in June, the government approved the national ‘folk university support programme 2020-2030’ aimed at providing adult learning opportunities (Eurydice, 2020).

More adults need digital skills, especially in the post-COVID-19 world. Despite the increasing numbers of adults going online, basic and advanced digital skills remain below the EU average. Only 44% of individuals have at least basic digital skills (EU 58%) (European Commission, 2020). Evidence shows that while the majority (70%) of the digitally excluded are aware of the benefits of internet use, more than half do not see any need to start using technology, and about one in four do not believe that they can learn these new skills. According to the draft ‘digital competences development programme 2030’, interventions to date in digital education for adults have lacked resources and focus on media literacy and digital hygiene. The majority of digital education opportunities for adults are co-financed from the ESF and ERDF.

9. References

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Annex I: Key indicators sources

Annex II: Structure of the education system