Education and Training Monitor 2024

1. Learning for sustainability

The green transition and sustainable development are key priorities for reforms and developments in education, training and skills policy. A key policy framework in this area is ESD to 2030: A Second National Strategy on Education for Sustainable Development (Irish Government, 2023), which covers all levels of education and lifelong learning. Sustainability had already been integrated into the curricula at all levels, as well as into inspection, assessment and initial teacher education under the first strategy (Government of Ireland, 2014). ESD to 2030 aims to move towards a more action-oriented approach, enabling learners to be engaged in sustainable development globally and locally (Box 1). Furthermore, the Action Plan for Apprenticeships (2021-2025) includes a range of new apprenticeships in skill areas relevant to the green transition and sustainability. Green skills for Further Education and Training 2021-2030 also outlines the three key objectives for developing green skills for life, for the construction sector and for careers. At tertiary level, the national charter for universal design in tertiary education (ALTITUDE) was launched in 2024, and several universities offer micro-credentials that provide sustainability skills¹. However, there are no systemic monitoring mechanisms to implement sustainability in education in Ireland, and the key challenges relate to the extent to which learning for sustainability is embedded in teaching in practice.

Sustainability is a cross-curricular theme in certain subjects, and Ireland plans to boost it at upper secondary level from 2025. At primary level, almost all the sustainability competences are included in some subjects (European Commission/EACEA/Eurydice, 2024). At lower and upper secondary levels, competences linked to sustainability are taught through science subjects, geography, civic social and personal education, and politics and society, where students undertake a citizenship project. Climate education is covered almost universally at upper secondary level (96% of students) (OECD, 2023). Within the reform of the upper secondary curriculum, ‘Climate Action and Sustainable Development’ will be introduced as a curriculum subject at upper secondary level from 2025. However, since schools will have autonomy in offering this subject, not all students will be able to benefit from it. The current review of the early childhood education and care (ECEC) framework (Aistear) aims to embed children’s learning around sustainability.

There is still room for improving the transformative character of learning for sustainability. The evidence points to a disparity between students’ awareness of key global issues and their actual engagement. Evidence from the OECD Programme for International Student Assessment (PISA) and a recent national survey (PISA, 2018; Carroll et al., 2024) suggests that secondary students in Ireland do not seem to be engaged in activities that promote global competence², but largely consider themselves as being respectful towards other cultures (although this is lower than the average across the OECD countries). Closing this knowledge-action gap requires targeted, relevant and carefully designed educational programmes (Carroll et al., 2024). Overall, evidence suggests a need for improving the focus on civic, cultural and sustainability education across the education system in Ireland, which is also among the goals of the 2030 national strategy.

Sustainability competences are well embedded in the teacher competence framework and initial teacher education (ITE), and schools receive central support to participate in sustainability networks. Global citizenship and education for sustainable development are included in the standards for ITE programmes, and actions are underway to embed it in continuing professional development (CPD) in all education and training sectors (Teaching Council, 2020). As the specifications for ITE are relatively new, strengthening sustainability in CPD will be important for the majority of current teachers. Also, the new longitudinal study of ITE launched in April 2024, and running to 2030, will show how well teachers are prepared in this area³. The Irish Schools Sustainability Network⁴ provides a forum for teachers and students to work together to accelerate climate action, address the loss of nature and prioritise sustainability. Supported by the Department of Education (Ireland’s ministry of education), schools are also active in Green Schools⁵, the leading environmental management and award programme. The National Blue Schools Network supports schools in carrying out marine educational activities⁶.

2. Early childhood education and care

Participation in early childhood education and care (ECEC) dropped below the EU-level target for 2030. In 2022, the rate for children aged 3 and over decreased to 93.2%, dropping by 3.2 percentage points (pps) compared to 2021. The reasons for the decline are not clear. All children aged between 2 years and 8 months and 5 years and 6 months can attend the 2-year public pre-school Early Childhood Care and Education (ECCE) programme, which is provided for free for 3 hours a day. From September 2024, the Access and Inclusion Model (AIM), which supports children with disabilities to participate in ECCE has extended supports to children beyond the time they spend on the programme, both in term and out of term. The 2022 evaluation of AIM showed its positive impact on the participation of children with disabilities in ECEC, with 69% of parents reporting that their child’s interaction with their peers and meaningful participation in pre-school were well supported (Robinson et al, 2022). Despite the improved support measures, children from marginalised communities, including Traveller and Roma children, are significantly less likely to attend ECEC (Eurochild, 2024; Gilmore, 2024). An action plan has been developed to respond to other areas for improvement identified through the AIM evaluation.

Ireland continues to carry out reforms to improve childcare affordability. Participation in formal ECEC below the age of 3 was comparatively low at 22.1% in 2023⁷ (EU 37.5%), but 3 pps up since 2022. Ireland has an ambitious reform agenda in the sector with a 2030 national target of 35.1%, which also involves further strengthening of public funding and public management of private-based childcare services. From September 2024, when the third year of the new funding stream started⁸, the core funding for providers saw an increase of the state’s annual contribution reaching EUR 331 million, allowing for a 3% capacity increase over the year. In line with Ireland’s National Action Plan for the European Child Guarantee, Equal Start is to help disadvantaged families fully participate in ECEC services from September 2024, with EUR 14.5 million earmarked for the first year.

3. School education

Ireland maintained its overall good performance in basic skills, and has committed to improving them further. According to the OECD Programme for International Student Assessment (PISA) 2022 results, Ireland has become the top country in average performance of students in reading, and is among the best performing countries in maths and science in the EU. The proportion of low-achieving students has remained well below the EU average in all three fields over the past decade. Underachievement in mathematics has increased by 3.3 pps since 2018, although this is less than the EU average. The underachievement rate in reading has been consistently one of the lowest among the EU countries since 2012. In science it decreased in 2022 compared to 2018, aligning with the European Education Area 2030 target⁹. The PISA 2022 results reflect for the first time the substantial curricular and assessment changes brought by the lower secondary school reform. The reform emphasised key competences, learning outcomes-based curricula, learner-centred teaching and learning, and well-being as the new area of learning is central to the programme¹⁰. The targeted strategies have improved literacy and numeracy since 2011, with the latter embedded as foundation skills across the curriculum. In 2024, Ireland adopted the new 2024-2033 strategy to deliver systematic improvement in literacy, numeracy and digital literacy from ECEC to post-primary level through curriculum, pedagogy and assessment (Government of Ireland, 2024c).

Despite the challenges related to COVID-19, Ireland’s secondary schools managed to provide equitable and inclusive education. The comparatively low proportion of low-achieving students and comparatively low variation between schools reflect the effectiveness of the policies implemented in recent years, which ensured an equitable and high-performing education system. The rate of early leavers from education and training remains low, at 4.0% in 2023. This is among the lowest in the EU, although it remains high among vulnerable groups, including people with disabilities, Roma and Travellers (Eurochild, 2024). Ireland is among the countries with one of the smallest socio-economic gaps in the underachievement rate in mathematics (23.9 pps vs EU 37.2 pps), a gap that did not increase significantly between 2018 and 2022 (OECD, 2023). At 12%, the proportion of students from the lowest socio-economic quartile who scored in the top quarter of mathematics performance is higher than the EU average (9.4%). Although the proportion of students in Ireland with a migrant background increased from 10% in 2012 to 17% in 2022, the proportion of low performers among them, at 20%, is among the lowest in the EU. In contrast with the EU trend, the difference in the underachievement rates of students with and without a migrant background is not statistically significant after accounting for their socio-economic background. There are gender differences among the proportion of low-achieving students in reading only. Even in this area, Ireland has the smallest gender gap with 6.2 pps (EU 8.9 pps). Ireland had the allocation of resources to schools to address educational disadvantage, under the DEIS programme and universally, other support measures reviewed to better meet the needs of disadvantaged students. The review by the OECD, which was carried out under the European Commission Learning Lab on Investing in Quality Education and Training initiative, will contribute with in-depth analysis and policy recommendations (OECD, 2024).

Figure 1: Change in the underachievement rate in mathematics, by students' socio-economic status (PISA 2018-2022)

Ireland has one of the highest proportions of top performers in reading, but there is room for boosting excellence in maths and science, in particular among girls. At 10.3% in 2022, the proportion of top performers in reading has been one of the highest in the EU since 2012. In science, the proportion of top performers increased by 1.7 pps between 2018 and 2022, and currently stands at 7.5% (EU 6.5%). However, the proportion of top performers in mathematics has been decreasing since 2012, remaining below the EU average (7.2% vs 7.9% in 2022). Furthermore, Ireland has one of the highest gender gaps among top performers both in science and mathematics in favour of boys. To boost these skills, Ireland is implementing the STEM Education Policy Statement and Implementation Plan to 2026 (Department of Education, 2023). The new curriculum for mathematics at primary level is characterised by playfulness, risk-taking, collaboration and opportunities for reasoning (DE, 2023).

Exposure to bullying does not impact student performance in Ireland, although student engagement and well-being are still affected by COVID-19. One in six students (16.4%) reported that they were bullied at least a few times a month, but after taking into account schools’ and students’ socio-economic characteristics, this did not affect their mathematics score. In Ireland, 71% of students feel they belong at school, which is around the EU average (72.1%) (OECD, 2023b). Recent research shows that high levels of anxiety and stress among students continue to be reported, affecting student motivation, socio-emotional well-being, and social development (Carroll et al., 2024). Ireland has implemented measures to address increased absenteeism (DE, 2023b). However, to support children’s mental well-being, it is likely that increased funding will be needed to provide adequate preventive and early interventions as well as treatment in schools (Carroll et al., 2024).

While projected student enrolment is set to decrease over the coming years, the current teacher shortages affect schools. Despite mitigation measures, teacher shortages are a serious challenge for both primary and secondary schools. Teacher supply problems and school infrastructure deficits limit the capacity of schools to offer curricular and extra-curricular activities (Carroll et al., 2024). Some experts indicate that also the increased costs of living and increased workload and responsibilities have negatively affected the teaching profession, and there is a need for a comprehensive approach to address teacher shortages (Harford &Fleming, 2023). The newly published projections of student enrolment between 2023-2042 indicate that the number of pupils in primary schools is likely to start declining from 558 000 this year to about 499 000 in 2030. The number of students in post-primary schools is expected to increase from about 417 000 this year to 430 000 in 2026, and to decline to 418 000 in 2030 (Government of Ireland, 2024c). With the support of the EU’s Technical Support Instrument, Ireland is currently working on addressing the challenges to the teaching profession and on measures to improve teacher workforce planning.

Ireland published its first Traveller and Roma Education Strategy to 2030, together with the 2024-2026 implementation plan. The plan aims among other things to ensure that all Traveller and Roma children participate in the ECCE programme, increase the number of young people completing upper secondary education, teach Traveller culture and history through the curriculum, promote diversity in the teaching profession, and provide training on inclusion and diversity through teacher professional learning. The plan also aims to make higher education more inclusive, including safer campuses (Department of Education, 2024a, b).

4. Vocational education and training

Ireland continues its efforts to make its VET sector (known as Further Education and Training or FET in Ireland) more attractive. The VET sector at secondary level remains relatively small. Around 88 000 students followed VET programmes at upper-secondary and post-secondary non-tertiary level in 2022¹¹. The increasing employment rate of recent VET graduates implies that the labour market relevance of VET has improved over the last decade. The rate stood at 81.8% in 2023, in line with the EU average (81%)¹². Nevertheless, most students advance to higher education, which is partly due to the strong presence of large multinational companies and the high productivity of Ireland’s economy, characterised by a highly qualified workforce.

Solas, the Further Education and Training Authority, is taking steps to improve attractiveness, guided by the ‘Future FET: Transforming Learning 2020-2024’ strategy. The three priorities of the strategy are (i) ensuring that vocational education provides skills relevant in the changing world of work; (ii) fostering an inclusive learning experience with a focus on Travellers or persons with disabilities; (iii) simplifying pathways into and inside the sector, and from the sector to other educational levels. The latter is key to attracting those learners who may want to continue their studies in higher education in line with Ireland’s policy of the unified tertiary sector (which enables students of continuing education programmes (‘further education’ in Ireland) to complete their programmes with a university degree).

Less than 4 in 10 of recent graduates (39.2% in 2023) have experienced work-based learning during their VET programme¹³. The trend is increasing but is still below the EU average (64.5%). To address this, Ireland is boosting apprenticeships in sectors with high skills shortages through several initiatives. The National Apprenticeship Office (2022) has become well-established, and now acts as a one-stop shop for employers, apprentices and providers. The ESF+ will continue financing vocational education courses currently supported by the national recovery and resilience plan (NRRP) to provide jobseekers with the future skills they need, including green and digital skills.

5. Higher education

The Irish tertiary educational attainment rate is the highest in the EU. In 2023, the rate among those aged 25–34 was 62.7%¹⁴. While the rate continued to grow for over a decade, the increase over the past 5 years (2019-2023) has been particularly high (7.3 pps vs EU 4.5 pps). At 7.3 pps, the gender gap in favour of women remains among the lowest in the EU (11.2 pps). The proportion of STEM graduates has remained largely stable since 2016, and was around the EU average in 2022 (25.8% vs EU 26.6%). The proportion of information and communication technology (ICT) graduates at 8% remains the second highest in the EU (4.2%). In 2023, the employment rate of recent tertiary graduates remained higher than the EU average (90.3% vs EU 87.7%)¹⁵. In line with its new policy for a unified tertiary sector, Ireland expanded the offer of joint tertiary degree courses to 40 in 2024 (DFHERIS, 2024c).

While student enrolment numbers continue to rise, the sector faces financial challenges. The student enrolment numbers between 2016-2022 increased by 13% (Figure 3). The upward trend in demand is projected to continue until approximately 2031. The recent Eurostudent survey shows that about 40% of students face housing cost overburden¹⁶, significantly higher than the average of 26% for the European Higher Education Area (Hauschildt et al., 2024). However, the survey also shows that Ireland has one of the most inclusive higher education systems in Europe, where students without educated parents are even slightly overrepresented in the student population¹⁷. The government has committed to creating new accommodation places for students, for which a relevant strategy is to be developed in 2024 (DFHERIS, 2024b). Furthermore, the support envisaged for 2024/25 includes contributions to the tuition fees and costs of living for postgraduate students¹⁸. To address financial challenges, under the Funding the Future process launched in 2022, the Government has provided an additional EUR 105.7 million to the sector till 2024, reducing the funding gap to EUR 201.3 million. When adjusted for inflation, however, educational spending in Ireland has not yet returned to the levels of 2008 (EUA, 2024). In view of a recent increase in the awarding of first-class honours degrees by universities, the state agency Quality and Qualifications Ireland has launched a study to identify the underlying reasons, as well as a ‘rethinking assessment’ programme to improve the validity, reliability, and fairness of assessments¹⁹.

Figure 2: Evolution of student enrolment numbers in higher education between 2016-2022 (2016 = 100%)

While Ireland attracts many international students, it is still some way from reaching the European Education Area learning mobility target. In 2022, only 5.8% of higher education graduates in Ireland spent a learning mobility period abroad, less than at EU level (11%)²⁰. Also, as regards intra-EU mobility, it received 38% more EU students seeking to graduate in Ireland compared to how many students it sent abroad to graduate in another EU country. As regards all incoming degree-seeking students (both EU and non-EU), Ireland received twice as many of them as Irish students who went abroad, with the highest proportions coming from Asia (50.9%), the EU (19%) and North America (13.5%)²¹. In 2024, Ireland adopted a new comprehensive internationalisation strategy, Global Citizens 2030 (DFHERIS, 2024a). It is the first strategy to encompass the tertiary education, research and innovation systems. It sets out Ireland’s ambitions to embed excellence in talent and innovation into Ireland’s global presence, as well as further attract international talent. At European level, the strategy promotes Ireland’s engagement in the European Universities alliances.

6. Adult learning

Ireland shows relatively high participation in adult learning, but further efforts will be needed to reach the 2030 national adult learning target. Between 2016 and 2022, the share of the population aged 25-64 who participated in adult learning increased by 2.3 pps to 48.3%. While this outperforms the EU average, it is still well below the 2030 national target of 64.2%²². In general, participation in adult learning increases with age and educational attainment, and women are more likely to participate than men. The ESF+ (EUR 42 million) continues to support basic skills provision to adults, in particular within the Adult Literacy for Life Strategy, which offers free courses in basic literacy, numeracy and digital skills.

Ireland is among the best performers in the EU in digital skills. In 2023, almost 73% of the population had at least basic digital skills, while 43.8% had above-basic digital skills. The digital divide persists among people aged 55 or more and those living in rural areas with lower digital literacy²³. The NRRP has supported Ireland’s efforts to address the digital divide through digital skills strategies and by providing ICT equipment to further and higher education students from disadvantaged backgrounds.

There are numerous financial barriers to participation in adult learning for more disadvantaged learners. These include the cost of returning to education, lack of affordable childcare, and access to reliable and affordable public transport in rural areas. A particular challenge for migrants is that they are required to be resident in Ireland for 3 years before they are eligible for support to go back to education. The need for more targeted and tailored support for disadvantaged learners remains, in line with the recommendations of the OECD Skills Strategy for Ireland (OECD, 2023c). Aontas, Ireland’s Adult Learning Organisation, has launched a national campaign calling for increased financial support for disadvantaged adult learners. This includes increases in supplementary allowances to cover food, travel and accommodation costs, and since one in three FET learners are unemployed, an increase in social welfare rates in line with the cost of living (Aontas, 2024).