Education and Training Monitor 2023

1. The teaching profession

The shortage of staff with proper qualifications is a key challenge in rural areas. According to official data, only a small percentage of teachers are unqualified, with slightly higher percentages in rural areas. In the school year 2021-2022, 2.5% of teachers in pre-school education were unqualified, while the corresponding percentage was 1.6% in primary, 2.1% in lower secondary, 1.7% in high school and 4.2% in professional education (Ministry of Education, 2022). Nevertheless, these figures do not reflect the situation more frequently seen in rural schools¹, where the number of classes is often too low and insufficient to ensure a full teaching norm of 18 hours/week. As a result, teachers often teach subjects they are unqualified for, which affects the quality of education².

In 2023, teacher salaries increased on average by 25% following a three-week strike. In the second quarter of 2023³ teachers earned on average 93% of the national average. Following the first general strike in education since 2005, the government raised the base salary in the sector and introduced top-ups for certain categories of staff (e.g. 10% for head teachers and primary teachers, 15% for teachers in special education, 3-10% for teachers in isolated areas). As a result, salaries have increased on average by a quarter, with a 31.7% increase for starting teachers. Teachers have also been granted annual career bonus vouchers⁴ – to be paid until 2027 and planned to be partially supported by the European Social Fund Plus (ESF+). Furthermore, from January 2024, the salary grid in education will be aligned with the average national wage.

The new pre-university education law includes some measures specifically addressing teachers in rural and disadvantaged schools. The pre-university education law (see Box 2) increases the funding coefficients for disadvantaged schools and envisages the possibility of sharing resources, including teachers. For this, school consortia will be established, in which disadvantaged schools, from rural and isolated areas will be encouraged to take part. The law further stipulates the possibility for subject teachers in rural areas to complete their teaching norms using remedial education measures, after-school activities, or lifelong learning activities. Teachers taking up a position in a school in a disadvantaged or isolated area will also receive a one-off installation bonus equal to five minimum gross salaries. The widescale investments in school laboratories, school equipment and digital infrastructure in rural areas and disadvantaged schools, combined with remedial education measures could also help improve working conditions, therefore, attracting more teachers to disadvantaged schools. These measures are currently implemented nationwide and supported by the Recovery and Resilience Facility (RRF).

Ageing trends among Romanian school teachers are less pronounced than in the EU. Compared to many other European countries that will see a significant proportion of their teaching workforce retire within the next 10 years, only 16.9% of teachers in Romanian schools were over 55 in 2021⁵ (EU average: 24.5%). Any reform of recruitment or initial teacher education will only affect a minority of teachers in the next few decades (OECD, 2020). As a result, updating and modernising teachers’ knowledge and skills will be achieved primarily by working with the existing teacher population (ibid). To upgrade teachers’ skills and accompany the curricular reform, Romania implemented the CRED project: ‘Relevant curriculum, open education for all’, co-funded by the European Social Fund. The project enabled large-scale training and support to teachers in primary and lower secondary education⁶.

Romania aims to strengthen initial teacher education. The pedagogical module – which has served as initial teacher education for the vast majority of school teachers – offers very little preparation and practical training. It particularly lacks training in modern teaching techniques and inclusive pedagogy (OECD, 2017). To overcome this challenge, the new legislative package stipulates that future teachers will be obliged to follow a compulsory Master’s programme in teaching. Students in these programmes as well as those in Bachelor’s programmes in teaching with a double specialisation will receive a scholarship equal to the net salary of starting teachers. Furthermore, Master’s students in teaching must follow a compulsory didactical traineeship and will receive mentoring.

A newly developed teacher competence framework will guide teacher education, career development and certification. Starting from 2025, the professional profile of the teaching profession, describing the competences necessary for teaching, adapted by career and educational levels will become compulsory. It will determine the set of quality standards for initial teacher education and continuous professional development and will guide career development. Previous reviews have shown that the certification process tended to assess theoretical knowledge without being an authentic measure for on-the-job competence (OECD, 2017). The law revises the certification process by strengthening the importance of the candidates’ personal portfolio, which evaluates teaching competences.

2. Early childhood education and care

Participation in early childhood education is low and decreasing. In 2021, only 75.6% of children aged between 3 and the starting age of compulsory primary education were enrolled in early childhood education⁷. This percentage is significantly below the EU average (92.5%) and the EU-level target of 96%. The rate has been declining since 2015, having dropped by 9 percentage points and is significantly lower in rural areas (Ministry of Education, 2022), and for the Roma community (Fundamental Rights Agency, 2022). Enrolment is low even though since 2020, the last year of kindergarten forms part of compulsory education and the middle year became compulsory in September 2023. Newly adopted legislation allows for complementary early childhood education and care (ECEC) services to be set up in isolated and disadvantaged localities where the ECEC services are not close to home, localities that lack ECEC services and in oversubscribed localities. The Recovery and Resilience Facility (RRF) is funding a large-scale training programme for staff in ECEC and the construction of at least 110 new nurseries that will significantly expand the offer⁸.

3. School education

Romania is implementing a national programme to reduce school drop-out and prevent early school leaving In 2022, the percentage of early leavers from education and training among 18-24 years-olds increased slightly to 15.6%¹⁰. The rate is significantly above the EU average (9.6%) and the EU-level target of less than 9%. Early school leaving is particularly high in rural areas (24.5%)¹¹ and for Roma (75%) (Fundamental Rights Agency, 2022). To address the challenge, in 2022, Romania rolled out the National Programme for Reducing School Drop-out, financed by the RRF. Already more than 1 400 schools (37%¹² of primary and lower secondary schools with legal personality) are using grants under this programme to reduce and prevent drop-out, including through additional pedagogical support, social support measures and extracurricular activities. A second round of projects was organised in 2023, with a third call planned for small schools with high drop-out rates and low performance. Further support for primary schools will be co-financed by the European Social Fund+ from 2024 onwards with an estimated budget of over EUR 250 million. At the same time, the early warning tool – developed with help from the EU through the Technical Support Instrument – was scaled up in primary and lower secondary education to help identify children at risk of dropping out and provide them with targeted support. The Technical Support Instrument is also helping to develop a tool to prevent and combat school segregation. Around 51% of Roma children attend schools where all or most pupils are Roma, and the situation has worsened compared to 28% in 2016 (Fundamental Rights Agency, 2022).

Figure 1: Participation of children from age 3 to the starting age of compulsory primary education, 2015 and 2021

Investments and reforms supported by the RRF aim to improve teachers’ and pupils’ digital skills and boost digital education. Only 50% of Romanians aged 16-19 have at least basic digital skills, compared with the EU average of 69%¹³. To guide the development of teachers’ digital skills, the European Framework for the Digital Competence of Educators (DigComEdu) was embedded in national legislation. With RRF support, more than half of Romanian teachers in primary and secondary education will be trained in digital education. Romania is currently installing digital equipment and smart labs in schools not benefitting from this type of investments in the last ten years. These investments are complemented at higher education level by digitalisation grants awarded to 61 universities to improve digital infrastructure, increase the digital skills of academic staff and students and support curricular revision.

Romania is stepping up the development of green competences. It recently adopted a strategy on education for the environment and climate change for 2023-2030. The strategy sets out concrete measures to promote sustainable development and environmental responsibility and raise awareness among children and young people. The strategy envisages four types of measures that involve: implementing a national programme for environment and climate; developing and promoting educational resources; supporting the eco-friendly renovation of schools; and providing teacher training to promote a culture of sustainability at the level of educational establishments. As a result, between February and June 2023, a Green week was held in all schools and pre-schools. In addition, in 2022, Romania adopted legislation defining ‘green schools’ as schools that combine energy saving measures in infrastructure with learning about sustainability and the environment as part of school curriculum and extracurricular activities. To this end, the RRF is funding the set-up of a network of green schools. This involves providing funding for renovations, constructing new buildings, purchasing electric minibuses in support of students from isolated localities, and implementing green curricula activities. Such measures are especially important in light of the 2023 country-specific recommendation calling on all EU countries to step up policy efforts aimed at the provision and acquisition of the skills and competences needed for the green transition (Council of the European Union, 2023).

Romania is taking measures to increase the low-enrolment rate of children displaced from Ukraine in education. According to official data, as of May 2023, more than 94 000¹⁴ displaced people from Ukraine had registered for temporary protection. An estimated 24 500 were aged between 5 and 17¹⁵. However, only a small proportion were enrolled in the education system, due to, among other things, their parents’ preference for Ukrainian online education. Nevertheless, the number of Ukrainian children enrolled was expected to increase as of September due to the new requirements of the dedicated governmental support programme, which link financial support to enrolment in education and employment.

4. Vocational education and training

Reforms and measures to modernise the vocational education and training (VET) system are underway but ensuring quality and labour market relevance remains a challenge. Romania has prepared a comprehensive national implementation plan in response to the 2020 Council Recommendation on VET and the Osnabrück Declaration, guiding the action taken towards modernising VET. Over half of Romania’s upper secondary education students are enrolled in vocational programmes (61.7% in 2021), which is above the EU average (52.1%)¹⁶. However, less than 10% of recent VET graduates (ISCED 3-4) benefited from work-based learning (8.4% in 2022), the lowest rate in the EU (60.1% at EU level)¹⁷. The misalignment with labour market needs is further revealed by the low and decreasing employment rate of recent VET graduates (57.7% vs 79.7% in the EU in 2022)¹⁸. A skills-forecasting mechanism – crucial to ensure the right match between VET provision and the skills required for the economy – is being developed through the ESF-funded ReConnect project and should become operational in early 2024.

The European Social Fund Plus (ESF+) supports significant investments in VET, including measures targeting the quality of teaching and training staff. In 2023, Romania started to implement the ‘Education and Employment’ programme for 2021-2027, funded through the ESF+. EUR 300 million will support measures including: the creation of a mechanism for quality assurance of work-based learning; traineeship programmes; and the revision of curricula and training standards taking into account the digital and green transitions. Increasing the quality of VET provision is envisioned through staff training, continuous professional development programmes for teachers and trainers, and professional counselling services. However, further measures are needed to increase the attractiveness of a teaching career in VET.

Romania recently put in place the legislative framework organising the complete dual route. Dual learning was introduced in tertiary education and the legislative framework was complemented by means of introducing new qualifications. As a result, a full dual route is available from upper secondary to higher education. The reform, complemented by key investments, is currently underway with RRF funding. It includes the development of 10 regional VET consortia, equipping 10 vocational campuses and the transformation of agricultural high schools into professionalisation centres. According to the pre-university law, technological upper secondary education will take place exclusively in the dual system starting in the school year 2029-2030.

5. Higher education

The rate of tertiary educational attainment in Romania is low and the number of students is decreasing. In 2022, 24.7% of Romanians aged 25-34 had a tertiary education degree, compared with the EU average of 42%¹⁹ and the EU-level target of 45%. The figure remains constrained due to the generally low participation in higher education, high-drop-out rates from tertiary education and, in part, emigration. Latest data available show that between 2011 and 2021 the number of students enrolled in Bachelor programmes decreased by more than 20% ²⁰, including due to demographic factors. However, early school leaving, low passing rates at the baccalaureate exam as well as the high rate of students not sitting the baccalaureate despite their eligibility²¹, also limit the number of young people who could enrol in higher education. Studies show that high school graduates who pass the baccalaureate tend to continue in higher education²². In 2023, only 73.3% of those who sat this exam²³ were awarded a passing grade, but only 56.6%²⁴ of candidates from the upper secondary technological track.

Romania aims to increase access to higher education for vulnerable students and increase retention rates. The new higher education law introduces a national programme to reduce university drop-out rates and lays down measures to improve equity. A significant percentage of higher education students never graduate. Existing calculations indicate a drop-out rate of 48% in the cohort that started a Bachelor programme in 2015, with most of them dropping out in the first year of study (UEFISCDI, 2022d). Romania plans to set up a national programme to improve retention at university level, with actions to: support the transition process to higher education; provide counselling and orientation centres in universities; roll out programmes for returning drop-outs to offer them a second chance; and support students from families with a low-level of educational attainment and being the first one studying in the family. The higher education law retains the policy of special places for Roma and high-school graduates from rural high schools. Furthermore, it sets aside a certain number of places for children under the social protection system and students with disabilities²⁵. In addition, a minimum amount for scholarships is introduced, equivalent to 10% of the gross minimum wage, with a higher threshold of 33% for students in science, technology, engineering and mathematics (STEM). Through the RRF, investments are underway to modernise and expand recreational spaces, canteens and student dormitories, with at least 40% of places to be reserved for students from disadvantaged backgrounds.

A recent student survey provides insight into students’ satisfaction with the quality of higher education and the impact of the COVID-19 pandemic. In a survey (UEFICSDI, 2022c) carried out during the period of remote learning²⁶, most respondents felt that universities succeeded in addressing the problems caused by the pandemic. Nevertheless, over a quarter of Bachelor students surveyed encountered difficulties in the educational process due to lack of devices and poor internet connections. The survey revealed that access to educational resources improved considerably but additional investments are still required. About 60% of respondents believed that their university has the necessary conditions and an atmosphere that favours their personal development. Similar proportions reported feeling that they belonged to the university community and believe that students’ assessment of teaching staff is having an impact. While over 64% of Bachelor students believe that the study subjects are relevant for their professional development, slightly less than half are happy with their level of active involvement during class and believe that the teaching technique facilitates the learning process.

The new legal framework in higher education aims to improve labour market relevance, quality and internationalisation. The higher education law continues with the recently introduced possibility of dual education in universities, in partnership with companies. Short-cycle university programmes have been introduced, along with double specialisation programmes. A national programme to support the study of STEM subjects is also provided for under the new law. The obligation to align curriculums with qualifications was reinforced. Courses on ethics and academic integrity are to become mandatory, while the legal framework for university ethics and professional deontology was strengthened. The law also introduces a maximum number of doctoral students per adviser. To support internationalisation, the law provides for the set-up of the national ‘Study in Romania’ programme and facilitates joint-degree programmes with universities from the European Higher Education Area.

Figure 2: Tertiary educational attainment rate (ISCED 5-8), (ages 25-34), 2012-2022

6. Adult learning

Participation in adult learning in Romania is improving, but further measures are needed to address critical skills shortages and mismatches, especially for the green and digital transition. In Romania, the proportion of people aged 25-64 that participated in education and training during the 4 weeks preceding the survey increased from 1.0% in 2020 to 5.4%²⁷ in 2022, but remains significantly lower than the EU average (11.9%). According to the European Skills Index, Romania is among the EU countries that performs the worst in skills development and activation²⁸. Less than a third of the adult population has basic or above basic digital skills (vs 54% in the EU)²⁹ and labour shortages are reported across the economy, including in key occupations related to the green transition (e.g. construction workers)³⁰.

Although measures are being put forward, including with support from EU funds, Romania lacks a strategic policy framework for adult learning. The new education laws provide an improved legislative framework for promoting lifelong learning, including better regulation for certifying learning outcomes acquired through non-formal and informal education and micro-credentials. Through the ESF+ 2021-2027 programmes, the EU will continue to help Romania develop the skills of its population, while aiming for a fair digital and green transition. Operations that are supported include: developing an improved quality assurance system in adult vocational training (EUR 12 million); developing adult career advice systems (EUR 45 million); rolling out the national second chance programme at upper secondary school level to enable early school leavers to re-enter education and training; rolling out a pilot on individual learning accounts; and reskilling over 32 000 people whose jobs are being affected by the transition to a climate-neutral economy. However, policy coordination and governance of the sector remain substantial challenges, as responsibilities are spread across several ministries, and no overarching strategic framework establishing the vision, policy response and targets for adult learning is currently in force.