1. Key indicators

2. Highlights

3. A focus on well-being in education and training

Lack of discipline in classrooms, violence and bullying are the main obstacles to pupils’ and teachers’ well-being at school. French schools have the least positive disciplinary climate in the EU, according to the PISA 2018 disciplinary climate index (-0.34 vs -0.1 mean index¹) (OECD, 2019a). The situation is worse for disadvantaged students (-0.45 vs EU average of -0.16) and students in disadvantaged schools (-0.50 vs -0.21). The gap between disadvantaged and advantaged schools, however, is not significantly different from the EU average (-0.33 vs -0.31) (Figure 3). The majority of French teachers (58.4%) perceive monitoring classroom discipline as one of the important sources of stress, ranking third on average in the EU (41.7%) (Eurydice, 2021). They also reported being ‘intimidated’ or ‘verbally abused by students quite a bit or a lot’ (24.6% vs EU average of 14.1% – fourth in the EU). During the first half of 2019/2020, school heads reported that on average 7.9 serious incidents per 1 000 students occurred in secondary education, of which 39% were verbal and 31% involved physical violence (DEPP, 2021a). On a positive note, fewer French students than on average in the EU reported being bullied at least a few times a month (19.8% vs 22.1%). Reducing bullying and improving the disciplinary climate have the potential to significantly improve educational outcomes (European Commission, 2020).

Improving the school climate and preventing violence and bullying have become top priorities. The right to education without harassment has been included in the education code (Law on a School of Trust, 2019). France has a systemic policy approach to school climate which should contribute to improving educational outcomes, students’ and teachers’ well-being, safety and security and reducing inequalities in education. All schools need a violence prevention plan, including an action plan against all forms of harassment (MENJS, 2021a). These should focus on co-education with parents, a team strategy ensuring coherence between stakeholders, violence prevention, cooperation between students and motivation and commitment, quality of school life, partnership practices and justice at school (MENJS, 2021b). Mobile security teams are in place to help schools. School violence prevention programmes and school climate improvement pathways through a whole school approach are available. The long-running campaign against bullying (‘Non au harcèlement’) has regained momentum since 2020 (MENJS, 2020a). The national plan against racism and antisemitism (2018-2020) includes several measures to be implemented in compulsory and higher education, including against cyberbullying. School heads and inspectors are given training by a network of trainers from regional education academies. Regular surveys to monitor the mental health of students and evaluate bullying and violence at secondary school will be extended to primary schools and education staff between 2021 and 2023. A new observatory was set up in July 2021 to monitor the remuneration and well-being of education staff, and inform policies and decision-making.

France took measures to improve the mental health of pupils and teachers during the pandemic. Schools remained mostly open in 2020/2021 (Section 5), but the pandemic has had a major impact on the mental health of young people. In early 2021, special guidelines were issued for schools on how to identify and guide students in distress and suffering from domestic violence, and how to improve information for pupils and parents (MENJS 2021c). The Ministry of Education published online toolkits for all educational staff, and strengthened the remit of the 119 hotline ‘Childhood in danger’ campaign to preventing sexual, physical and psychological violence and negligence. Since 2021, the provision of (mental) healthcare has also been stepped up for compulsory education staff, with hotline hours to give teachers psychological support extended.

The pandemic has affected higher education students the most. Higher education institutions shifted to remote teaching at the end of October 2020, allowing face-to-face teaching for small groups of vulnerable students from the end of January 2021. Half of the students reported having suffered from loneliness or isolation and 31% from psychological distress during the first lockdown. Despite their need for it being greater, 23% of students could not access healthcare during the pandemic because they lacked the financial means to do so, and 27% because it took too long to get an appointment (OVE, 2021). From early 2021, an additional 80 psychologists and 60 social assistants, student mentors in university residences and tutors were hired to direct students to the right support services. Students had access to free psychological consultations as part of a broader psychological support scheme through university health services or a platform bringing together a network of 1 740 psychologists, as well as the Nightline telephone service for listening to students. A report from the National Assembly recommends, in the wake of COVID-19, strengthening school healthcare services and the system of (mental) healthcare in universities, and providing students with accessible and affordable mental healthcare services (Assemblée Nationale, 2020).

4. Investing in education and training

Public expenditure on education increased in real terms by 8.4% between 2010 and 2019, above the average EU increase of 6.4%. In 2019, education expenditure accounted for 9.5% of total public expenditure (EU average 10.0%) and remained, as a proportion of GDP, at 5.3%, above the EU average of 4.7%. The population from 3 to 18 year olds increased by 3.8% from 2010 to 2019 (EU average -0.8%). The proportion of funding for pre-primary and primary education increased from 24.3% in 2010 to 26.6% in 2019 (EU average 33.4%). This corresponds to a real increase of 18.7% in total spending on pre-primary and primary education, while public expenditure on secondary and tertiary education has increased more moderately (6.6% and 4%). The overall increase in education expenditure is largely due to an 11% increase in compensation for employees.

Further strengthening pre-primary and primary education, tackling inequalities and investing in inclusive education are budget priorities for 2021. The EUR 1.6 billion 2021 budget increase (+2.6%) for compulsory education covers various wage premiums for school staff (+ EUR 400 million), of which EUR 100/month net is for novice teachers, improving the working conditions of primary school heads, providing additional support for pupils with a disability and digital equipment for schools, as well as the planned decreases in pre-primary and primary class sizes. To do the latter, an additional 2 039 teaching posts will be created, even though the pre-primary and primary pupil population is expected to fall by 65 000 in 2021 (MENJS, 2020b).

A multiannual investment plan will support the agenda for transforming higher education institutions (HEI) and education and training ecosystems, partly supported by the National Recovery and Resilience Plan (NRRP). Calls for projects for the Investment Plan for the Future (‘PIA 4’) will help HEI strengthen excellence in one or more areas, diversify sources of funding for higher education and research institutions, and transform school education by promoting innovation in teaching practices and in school organisation and management (EUR 750 million). The acceleration strategy ‘Education and digital strategy’ covers the digital transformation of education from kindergarten to university, and will support the development of Education Technology (EdTech) and performing digital education ecosystems (EUR 350 million) (Gouvernement, 2021).

5. Modernising early childhood and school education

Schools closed in spring 2020, but remained largely open during the 2020/2021 school year. To limit early school leaving, learning loss and inequalities in education, primary schools closed for only 5 days and secondary schools for only 10 days in the first 5 months of 2021, except for local school closures. Secondary schools shifted to part-time remote teaching.

Measures were taken to limit learning loss and inequalities in education. In 2020/2021, primary and secondary students in their first year benefited from additional personalised and homework support (‘Devoirs faits’). Personalised support or supervision in small groups (‘Je réussis au lycée’) was then extended to upper secondary students in 2021/2022. Summer camps (‘learning Holidays’) consolidated educational outcomes with sports, cultural and sustainable development activities (EUR 120 million). This enabled vocational secondary school students, relatively more affected by lockdown, to resume or deepen their learning. Digital resources and services were further developed and pooled to ensure teaching continuity (MENJS, 2021). In September 2020, 80% of secondary and 20% of primary students used digital work environments. The NRRP will support digital transformation projects in schools. A national digital action plan is gradually being implemented (EGNé, 2021).

Since September 2019, compulsory education starts at three (2019 Law on a School of Trust). France was the best performer in the EU regarding participation in ECE of children aged 3 to 6 in 2019 (100% vs the EU average of 92.8% and the new EU-level target of 96% by 2030). Since 2021/2022, French and maths have been strengthened in the third pre-primary year curriculum to improve outcomes in primary education.

The halving of class sizes in priority areas and reducing them to 24 pupils outside priority areas aim to improve basic skills from ages 5 to 7. The latter measure, concerning 26% of all classes, will be gradually rolled out between 2020/2021 and 2022/2023. By September 2019, 300 000 pupils in disadvantaged (high) priority areas² (20% of the age group) in the first and second years of primary education were being taught in classes of maximum 12 pupils. By 2022/2023, an additional 150 000 children in the third year of pre-primary education will also be taught in similar conditions. A recent study showed that the halving of the classes provided positive results, with better outcomes for maths than for French, and better results in the first than in the second grade. Pupils also showed more positive learning attitudes, enjoyed more personalised support and a better class climate (DEPP, 2021b). However, 70% of disadvantaged pupils in schools outside priority areas do not benefit from this measure (MENJS, 2019).

Since September 2020, compulsory education and training has been extended from 16 to 18 years, supported by different measures to prevent early school leaving in the COVID-19 context. In 2016, France had already reached the new EU-level target for 2030 (less than 9%) for early leavers from education and training (European Commission, 2020). This figure continued to fall in 2020 (8.0% vs the EU average of 9.9%), only to be thrown into jeopardy by the pandemic. Compulsory training includes education, training, apprenticeships, employment, civic service or social or professional integration schemes (2019 Law on a School of Trust). To prevent disengagement from education and training during the pandemic, the programme ‘one youngster, one job’ provided additional places in vocational and tertiary education and support for social and professional integration programmes. Mentoring programmes by university students to help disadvantaged young people aim to expand their horizons and define their professional ambitions (‘Working together for success’) and additional places in boarding schools of excellence are supported by the NRRP.

Comprehensive standardised tests in primary education showed that the spring 2020 school closures had a negative impact on educational outcomes mostly for disadvantaged pupils (in the 2020/2021 school year). At the beginning of the school year, pupils in grade 1 and 2 performed worse in French and maths than in the previous year, and the performance gap between pupils from priority and non-priority education areas was also higher. The mid-term evaluation of grade 1 in January 2021 showed better results overall in maths and French than in January 2020 (before COVID-19). However, the performance gap in French between priority and non-priority education areas had further increased. In contrast to the younger pupils at the beginning of the school year, pupils in year 6 performed better overall in French and maths, despite the school closures. But again, pupils in disadvantaged schools and in priority education areas made relatively less progress in maths, with their respective gaps remaining significant. While 71.5% of all pupils showed sufficient or very good mastery of maths, only 39.6% and 54% did so in high priority and priority education areas respectively (DEPP, 2021c, 2021d and 2021e).

Education for sustainable development and the green transition has been reinforced in school education. Since September 2020, sustainable development and the green transition have been integrated into all school curricula from pre-primary to upper secondary level (MENJS, 2020c) and complemented by practical projects. Eco-delegates from each secondary school class implement school projects, play an ambassador’s role and keep their peers informed. Elected eco-delegates are part of the school steering committee, which aims to involve all stakeholders. The green transition is being integrated into both initial and continuous teacher training. About 10% of schools currently have an ‘E3D’ label (school with a global approach to sustainable development). But for that to be the case, buildings and their maintenance, as well as the school environment, also need to match up to ecological standards.

The ‘Grenelle de l’éducation’ plan should make the teaching profession more attractive by January 2022. France has a shortage of teachers and students in initial teacher training (Eurydice, 2021). Planned measures include better staff compensation, especially for young teachers (EUR 1.1 billion in 2021-2022) and more promotion possibilities; flexible career paths with mobility options for all staff; for secondary school heads, a financial premium and for primary school heads more teaching discharges to create room for management tasks; more autonomy in recruitment for secondary schools; and more modern and decentralised management (MENJS, 2021e).

6. Modernising vocational education and training and adult learning

At 39.3%, the proportion of upper secondary students in vocational education and training (VET) remained stable in 2019. This was 9.1 pps below the EU average. In 2020, 68.5% of VET graduates (ISCED 3-4, age 20-34) found employment between 1 and 3 years after graduating, representing a continuous decrease since 2018 (-3.7 pps).

Given the rising skills mismatch in the French labour market, access to initial and continuous VET is crucial. In the 2020/2021 school year, implementation of the 2018 reform of the vocational training and apprenticeship systems to improve their efficiency and adequacy in meeting skills needs continued. A new quality label, ‘Qualiopi’, has been implemented for initial training. A new service, ‘Inserjeunes’, has also been set up, to develop indicators for the purpose of monitoring the professional integration of initial VET students. The set-up of the revamped individual learning account and the associated career guidance (conseil en évolution professionnelle) offered made it easier for workers to access continuous VET. The Skills Investment Plan (PIC) (2018-2022), complemented by other sources of EU funding, further helps unemployed people and job seekers access continuous VET. A first evaluation of this plan identified positive results overall despite a lack of adequate guidance, during and after the completion of training courses, on labour market (re)integration.

COVID-19 has had a negative impact on the labour market integration of VET graduates. In July 2020, 65% of apprentices and 44% of school-based VET students were in employment, 12 months after graduation. This is respectively 3 and 6 pps less than the employment rates of students who graduated in 2018 (Dares, 2021a).

Measures were also taken to improve the VET system’s ability to weather a crisis. To ensure continuity, teaching material and digital equipment was provided for learners from disadvantaged areas; teaching staff could make use of digital workspaces and final assessments were based on continuing assessment instead of final exams. Career guidance services were ensured thanks to the digital support and infrastructure already in place. Despite these efforts, students from a disadvantaged background were more deeply affected.

Education and training centres had to shift from on-site to online and hybrid training courses. Overall, jobseekers’ access to training was affected by the crisis, with the courses of only one third of unemployed people fully maintained during the first lockdown. However, the system appears to have become more resilient, with this number growing up to 79% during the October 2020 lockdown (Dares, 2021b). The move towards online teaching has however highlighted existing social inequalities: people without IT equipment or a good quality internet connection at home and digitally illiterate people are, by force of circumstances, excluded from these training opportunities.

Access to upskilling and reskilling opportunities is particularly important for workers affected by the crisis, notably the less qualified, unemployed and people on short-term contracts. At 13.4% (on par with the EU average), unemployment of low-skilled people remained particularly high in 2020³, with skills mismatches presenting a persistent challenge. Although France had the strongest drop in adult participation in learning in the EU between 2019 and 2020 (-6.5 pps vs the EU average of 1.6 pps), it still was the seventh best performer in the EU. Only 13.0% of adults participated in learning, compared to 19.5% in 2019, ending the continuous increase since 2015. While adult learning is still higher in France than the EU average (9.2%), it is comparatively lower for less skilled people, the unemployed and people on short-term contracts. In 2020, low-skilled adults (4.6%) participated 2 times less than medium-skilled adults (9.5%) in learning, and 4 times less than highly skilled adults (20.5%)⁴. The share of unemployed people participating in learning stood at 11.1% in 2020, 3.4 pps less than in 2019. However, the main Public Employment Service, Pôle Emploi, reported that more unemployed people started training courses in 2020 than in 2019 (+13%). This was also due to the rapid take-up of individual learning accounts (CPF Autonome).

To mitigate the negative impact of the COVID-19 crisis, significant investments were made to increase employment, through skills acquisition and VET, with a particular focus on young people. The recovery plan strongly supported the VET and apprenticeship systems by providing additional places in VET to meet current and future skills needs, and by hiring subsidies (EUR 3.15 billion). Upskilling and reskilling adults is a priority in the French NRRP. The plan will support EUR 1.6 billion worth of investments for the skills acquisition of workers and unemployed people. Workers in partial (un)employment are able to attend training courses and participate in professional reconversions (EUR 1.07 billion); top-ups are provided on individual learning accounts for those wishing to develop their digital skills (EUR 25 million); training materials are being digitalised (EUR 304 million); unemployed people will be provided with distance training courses (EUR 160 million); and organisations supporting professional transitions will be given more resources (EUR 100 million).

7. Modernising higher education

In 2020, 49.4% of adults between 25 and 34 held a tertiary education degree (vs the EU average of 40.5% and the new EU-level target of 45%) and this long-term increase is set to continue. France’s gender gap (6.9%) is the lowest among the countries that have reached this target in the EU and both men (45.9%) and women (52.8%) have reached this target. However, the employment rate of recent graduates (81.1% in 2020⁵) was the sixth lowest in the EU (EU average 83.7%). Here too, women perform better than men (83.5% vs 78.4% (EU average)). Between 2014 and 2019, 12.4% more students enrolled in higher education. The progress was stronger at Bachelor (+12.6%) and Master’s levels (+16.5%) than at short-cycle tertiary level (+7.1%) and doctoral level (-3.0%) (Figure 4). French data show that more students enrolled again in 2020/2021 (+2.1%), as a result of higher success rates in the Baccalaureate (+ 7 pps) (DEPP, 2020), linked to the COVID-19 crisis (MESRI, 2020a). For 2021/2022, 34 000 new places will be funded in public higher education.

Several measures were taken to address student poverty, ensure teaching continuity and give access to employment. Several measures introduced in 2020/2021 will be continued, including different financial support schemes for students (food aid, access to healthcare, exceptional scholarship top-ups); the extension of the student loan scheme (an NRRP measure); EUR 1 meals for students in precarious situations and scholarship students, as well as the freezing of enrolment and student accommodation fees. The tutoring plan and the system of referent students in university cities will be continued. Higher education institutions used their learning management systems platforms and support services for digital teaching methods to roll out further remote teaching. Digital resources have been pooled together at national level for the benefit of all HEI. The NRRP will finance additional projects for the development of online modules, nationwide platforms to offer these modules and digital infrastructure (EUR 35 million). Support for employers to recruit apprentices will also be continued until 30 June 2022. Dual learning in higher education has considerably increased in the past year.

Universities are relatively less well funded per student than other higher education institutions. In 2019, France spent around EUR 10 110 per year on a student at university compared to the average annual spending of EUR 11 530 for a higher education student (EESRI, 2021). The National Consultative Commission for Human Rights believes that the chronic underfinancing of universities should stop. It recommends strengthening public student guidance services, especially for disadvantaged students, and mentoring and tutoring schemes. In higher education, places on highly popular programmes and related resources should be increased, taking employment opportunities into account (CNCDH, 2021). Adults whose parents have completed tertiary education are 13.6 times (Programme for the International Assessment of Adult Competencies (PIAAC) average 11.1) more likely to complete tertiary education than those whose parents have not completed tertiary education (OECD, 2018).

Policies are being developed to integrate environmental sustainability into higher education. The Research Programming Law 2021-2030 (LPR) has included awareness of ecology and sustainable development in the missions of HEI (Légifrance, 2020). A 2020 interim report (MESRI, 2020b) recommended integrating the green transition into all higher education programmes, training all students on transition issues, and developing training programmes for higher and compulsory education staff. A working group was then mandated to develop further by September 2021 the recommendations on how to support and facilitate the implementation of these training and awareness actions within HEI (MESRI, 2021a). The NRRP will also finance energy-saving renovations of 1 054 higher education, research and student housing buildings (EUR 1.3 billion).

8. References

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

OECD (2021), The State of School Education: One Year into the COVID Pandemic, OECD Publishing, Paris, https://doi.org/10.1787/201dde84-en.

OVE (2021), La vie d’étudiant confiné. http://www.ove-national.education.fr/wp-content/uploads/2020/10/La-vie-detudiant-confine-Sante.pdf

Annex I: Key indicators sources

Annex II: Structure of the education system