Education and Training Monitor 2023

1. The teaching profession

Teacher shortages are likely to worsen, mainly in large cities. During the school year 2020/2021, schools reported vacancies for around 2 500 teachers (3.4% of all employed teachers), mainly in the Bratislava region (Balberčáková, M. et al., 2023). It is estimated that until 2025 Slovakia will be lacking up to 1 600 teachers per year. Due to a significant number of teachers retiring, this situation might get more critical between 2026 and 2030. During these years, the education system may lack over 2 100 teachers every year. The comparatively low number of new teachers will not be sufficient to replace retiring teachers (Figure 1). The analysis at EU level shows that in Slovakia, 26% of school teachers were aged 55 and over, above the EU average of 24.4% in 2021. At the same time, the proportion of teachers aged 25-34 fell from 19.4% in 2015 to 13.8% in 2021, below the EU average (15.8%)¹. Slovakia mostly needs qualified teachers for languages, mathematics, physics and information technology, as well as elementary and VET teachers (Profesia, 2022). The national statistics show that teaching is also provided by non-qualified teachers, mainly in elementary schools (ISCED 1+2) in rural areas and VET schools².

Forecasting in educational policy is improving. In March 2023, Slovakia published for the first time a regional forecast for how the number of pupils and teachers will evolve until 2030. This analytical tool was prepared by the Slovak Academy of Science in cooperation with the Ministry of Education, Science, Research and Sport (MESRS) and provides simulations of educational policy taking into account economic activity and demographic changes.

Figure 1: School teachers by age and level of education, 2021

The attractiveness of the teaching profession varies by region, but overall, it is limited by low salaries and low prestige. Slovak teachers feel their work receives only a low level of recognition (OECD, 2019a,b). The OECD’s Teaching and Learning International Survey from 2018 (TALIS) indicated that only 4.5% of teachers in Slovakia agree that their profession is valued in society. More than half of surveyed students do not choose the teaching profession due to low salaries, one third opted against it due to its low level of social recognition and one fourth due to the high level of work-related stress (Perignáthová, M., 2019). This is in line with the fact that in 2021 less than 39% of graduates of pedagogical programmes went into teaching (Balberčáková, M. et al., 2023). Slovak teachers also reported decreasing levels of efficacy (between 2013-2018)³ , with a downward trend in the time spent on teaching while more time is spent on managing the classroom than in many other countries (TALIS, 2018). An ESF project on work trends assessed the attractiveness of the teaching profession at national and regional level. The job attractiveness included salary potential, job stability, availability of job opportunities and future prospects. Teachers' salaries in Slovakia are currently below that of other tertiary-educated workers (0.76 at primary and lower secondary level, and 0.8 at upper secondary level OECD, 2023). The starting salary is relatively low and progressively increases by only 28.8% until the end of the career (Eurydice, 2021). For example, teachers in lower secondary schools in Slovakia earn 23.4% less than other tertiary-educated employees (OECD, 2022). The analysis also shows that problems with teacher supply persist in the Bratislava region with high living costs and numerous other job opportunities. In less developed areas, teachers’ salaries and the profession itself are considered comparatively attractive. Following a national teachers’ strike in 2022, there were two salary increases in 2023: by 10% from January and by 12% from September. Despite these raises, the real wages of teachers and other school staff has not substantially improved because of the high inflation of 12.1% in 2022. Regional top-up contributions to the salaries in regions with higher costs of living are being considered (Balberčáková, M. et al., 2022).

Slovakia is taking steps to improve initial teacher education and in-service training. Both often lack quality and relevance (Santiago, P. et al., 2016; OECD, 2019a). Under its recovery and resilience plan (RRP, European Commission 2023), Slovakia has committed to modernising its teacher education programmes and increasing the professional requirements. For example, the condition that each kindergarten must have at least one staff member with a higher education degree in the teaching programme for early and pre-primary education was adopted in 2023 and will come into force in 2029. According to the 2023 amendment to the study fields act, by 2025 Slovak higher education institutions will need to align their teacher education programmes with the new curriculum and the requirements for professional study programmes, as well as introduce training on digital skills for future teachers. Furthermore, new mentoring services for teachers are being developed (MESRS, 2022). However, while there are in-service teacher training courses provided by public and recognised providers, 40% of teachers responded there is no relevant professional development offered, and schools remark that their budgets for continuing professional development are insufficient (TALIS, 2018). Slovakia’s reform measures are in line with the recommendation to build a strong teaching workforce by improving the relevance of initial and in-service teacher training (OECD, 2020). The successful continuation will depend on sufficient resources being available.

2. Early childhood education and care

Slovakia continues its efforts to increase provision and quality of pre-primary education, but still too many children do not attend kindergartens. Participation in early childhood education for children from age 3 to the starting age of compulsory primary education (ECE) remains among the lowest in the EU (77.4% in 2022 vs 92.5% in the EU)⁴ . Formal childcare for children aged under 3 is also very low (2.3% vs 35.7% in the EU in 2022 – see Figure 2), and even dropped by 2.5 percentage points (pps) since 2020. However, the demand for kindergarten places is strong. And while the overall number of children in ECEC (3-6) is expected to slightly decrease in the coming years (Slovak Centre of scientific and technical information, 2022), in some regions, particularly in Prešov, Košice and Žilina, it is expected to increase. Some municipalities have recently been raising ECEC fees, even though evidence points to the risk that increased fees reduce the probability of 3-4 year-old children participating in ECEC in Slovakia (Škvarenina O., Martinák D., 2023).

Children living in low-income households, with less educated parents or from marginalised Roma communities are less likely to participate in ECEC. Also, children with more siblings (below age 6), with health issues, or those with single parents participate less frequently in ECEC. Only around 33% of young Roma children (from 3 to the compulsory primary school age) attend ECEC while the rate for the general population is around 78% (Fundamental Rights Agency, 2022).

Figure 2: Participation of children in formal childcare or education below 3 years old by number of hours per week, 2022

Slovakia lacks ECEC teachers, which increases the number of pupils per teacher – the ratio rose from 9.5 in 2019-2021 to 9.9 in 2022 (Slovak Centre of scientific and technical information database, 2023). As many ECEC teachers are of pre-retirement age, the situation may get worse in the future.

New legislation guarantees a place for 3-4 year-olds in public ECEC settings. The School Act amendment introduces a legal entitlement to a place in kindergarten for 4 year-olds from the school year 2024/2025, and for 3 year-olds from the school year 2025/2026. In cases where there is no place available in the municipality, the local authority must arrange a place in another kindergarten in the surrounding area. The previous introduction of compulsory pre-primary education for 5-year-olds (in place since September 2021) is expected to help increase the number of children of this age group in ECEC. However, regional differences are significant, and almost half of the 3-5 year-old children that did not attend ECEC reside in the Košice or Prešov regions. At district level in 2021, the highest proportion of 5 year-olds attending ECEC was in Tvrdošín (99.8%) and Bánovce nad Bebravou (99.5%), while the lowest proportion was in Sobrance (83.1%) and Rimavská Sobota (84.2%).

EU funds are helping to increase access to quality ECEC services. The RRP provides EUR 142 million to help increase ECEC capacities, and over 9 100 new ECEC places are expected to be built by 2026. In July 2023, MESRS launched a call under the RRP for NGOs to increase access to and improve the quality of inclusive pre-primary education and help pregnant women break inter-generational poverty (EUR 6 million). The European Social Fond Plus (ESF+) also supports targeted measures to increase the number of children from disadvantaged backgrounds, including Roma children or children with disabilities attending ECEC (EUR 2.3 million for 2021-2027).

3. School education

Slovakia’s education outcomes are below the EU average and equity and inclusiveness in its education system remain a challenge. (European Commission, 2022). The proportion of early leavers (18-24) from education and training decreased gradually from its peak of 9.3% in 2017 to 7.4% in 2022 and remains below the EU average (9.6%). Education attainment is a strong predictor for the risk of poverty and social exclusion and how it is passed from one generation to the next. In Slovakia, children from a low-education background face a significantly higher risk of poverty or social exclusion than the EU average (80.7% vs 61.9% in the EU-27 in 2022)⁵.

The reading performance of fourth-grade pupils in Slovakia remained relatively stable during the last decade (2011-2021). According to the Progress in International Reading Literacy Study (PIRLS) 2021, Slovak children (9-11 years old) performed slightly better than the EU-19 average. Overall performance dropped by 6 points since 2016, one of the smallest decreases recorded in the EU. Girls outperform boys, although this difference decreased between 2011 and 2021. Socio-economic status remains a strong predictor for reading competence in Slovakia, confirming that equity challenges exist⁶. The outcomes of the PIRLS 2021 also highlighted the links between children’s well-being at school and reading performance, and the spread of bullying which gives room for concern in the countries participating in the study.

Slovakia is continuing with measures to increase inclusiveness in education. In 2022, it published its first action plan on implementing a strategy on an inclusive approach to education (2022-2024). The strategy aims to improve inclusive education, promoting desegregation and improving access to schools, better linking counselling services and providing better support to teachers. The RRP will provide EUR 210 million to support these actions under its ‘high-quality, inclusive, and accessible education and training for all’ component.

Roma children are still often placed in special schools for pupils with mild mental disabilities. Moreover, many Roma children who attend mainstream education are segregated into separate classes or schools⁷. Around 65% of Roma children aged 6-15 (vs 52 % for the EU-10 average)⁸ are in schools where most or all of their schoolmates are also from the Roma community, and this situation worsened by 5 pps between 2016 and 2020 (FRA, 2021). Also, almost three out of four young Roma (aged 18-24 years) leave the education system early and the rate of young Roma (aged 20-24) who have completed at a minimum upper secondary education decreased by 10 pps (from 2016 to 28 % in 2020). Around 8% of Slovak Roma parents, guardians or students (vs 11% for the EU-10) felt discriminated against when contacting school authorities (FRA, 2021).

It is important to tackle segregation in education as it violates children’s right to education and negatively impacts their life chances. In April 2023, the European Commission referred Slovakia to the Court of Justice for failing to desegregate Roma children in education. In 2023, Slovakia adopted a definition of school segregation and it plans to launch calls supporting desegregation in education and care. A manual for desegregation is being developed with support from the RRP. Active desegregation measures should go hand in hand with actions aimed at creating an inclusive environment in mainstream schools. The effective implementation of both the national strategy for Roma equality, inclusion, and participation as well as the strategy for inclusive education could help Roma pupils access quality mainstream education.

Most children displaced from Ukraine are yet to be enrolled in Slovak schools. In May 2023, there were around 10 391 displaced children from Ukraine enrolled in the schooling system (out of which more than 7 040 attend primary/basic schools according to MESRS). Despite major efforts by the government, municipalities, schools and non-governmental organisations to support displaced children, the enrolment rate at pre-primary and primary level was only around 40% in 2022-2023. Considering the serious educational and socio-psychological risks this entails, in June 2023, MESRS announced that legislative adjustments were being prepared to introduce obligatory school attendance for Ukrainian children with temporary protection status from the school year 2024-2025. This will require strengthening the school education system's financial and human resources.

A comprehensive reform of school education is being rolled out with the support of the RRF funds. It focuses on boosting digital skills, critical thinking and creativity for learners, strengthening the inclusiveness of education, improving mentoring for teachers and providing methodological support to schools. In 2023, the testing phase of the implementation of the new curricula for primary and lower secondary education (ISCED 1, ISCED 2) began in 40 pilot schools and it is to be implemented in all schools in the school year 2026-2027. The School Act amendment⁹ introduces new initiatives to improve inclusiveness in line with the strategy for inclusive education. For example, from 2026 onwards it includes the right for every child with special needs to get support such as tutoring or psychological help. It will be important to ensure sufficient and sustainable financial allocations are provided to implement measures on the ground.

A network of counselling and prevention facilities is now in place to cooperate with the school inclusion teams. Around 160 facilities will help teachers and other staff provide specialist support to, e.g. children with autism or disabilities. Slovakia is continuing with its reform to create a unified system of funding for state and non-state counselling and prevention facilities. It aims to strengthen capacity as the number of children who might need services (e.g. from non-state counselling centres) is expected to increase.

Digital education benefits from support under the Recovery and Resilience Plan and the EU’s Technical Support Instrument (TSI). The action plan of informatisation and digital transformation of education for 2021-2024, published in May 2023 (MESRS), is a follow-up to the national strategy for digital skills. The RRP supports many actions in this area for the benefit of schools, such as increasing digital equipment in schools or providing allowances to buy individual digital equipment, including for children from disadvantaged background.¹⁰ The TSI supported learning from other countries about digital transformation and curricular reforms, and contributed to building the innovation capacity of the Slovak primary schools which provided insights for the ME to adjust the reforms.

Slovakia implemented several projects helping people acquire the skills needed for the green transition. In 2022, the Green Education Fund approved 44 projects to educate children, young people and the general public about the environment (EUR 208 007), out of which 40 have already been implemented. The ‘Enviroprojekt’ funded by the MESRS helped develop green skills in 28 schools in 2023. Environmental protection will be better incorporated into the VET school programmes that are specialised in green issues. The Slovak Environment Agency also supports out-of-school environmental education and plans to develop a system for certifying providers of environment and education activities in 2024.

4. Vocational education and training

The dual VET scheme has been supported by MESRS. Selected employers and professional organisations for relevant fields of study ('sectoral assignees') were allocated EUR 2.6 million to co-finance their activities (Cedefop forthcoming). In Slovakia, the majority of pupils (69.5%) in upper-secondary education (ISCED 3-4) take part in vocational programmes¹¹. More than half of the recent graduates from ISCED 3 and 4 benefited from work-based learning¹² during their vocational education and training (56.5% in 2022), still slightly below the EU average (60.1%). In 2022, 78.7% of recent secondary VET graduates (ISCED 3-4) were employed in Slovakia¹³, just below the EU average (79.7%).

5. Higher education

The tertiary educational attainment rate substantially increased over the last decade. In 2022, 39.1% of 25-34 year olds held a tertiary degree, representing an increase by 12.1 pps since 2012. However, compared to the previous year, it slightly decreased (by 0.4 pps) and remains below EU average (42%). The gender gap in favour of women doubled over the last decade and is among the highest in the EU (22.8 pps vs 11.1pps in the EU 2022). The proportion of STEM graduates (in science, technology, engineering and mathematics) is far below the EU average¹⁴. The proportion of women among the STEM graduates is lower than that of men (33.3% in 2021, around the EU average). Gender gaps in study choices¹⁵ as well as gender stereotypes persist. For example, the proportion of female graduates in ICT is 15.9%, well below the EU average (21.4% in 2021). Reducing the gender gap and helping more young people from disadvantaged socio-economic backgrounds enter higher education could help Slovakia reach the EU level target in the tertiary educational attainment rate (45%) by 2030.

Slovakia implements several reforms strengthening the quality of higher education and research. The RRP will help improve the quality of the performance of Slovak higher education institutions with funding of EUR 159 million. A new approach for the accreditation of university programmes was introduced in 2022. A call for proposals for universities under the RRP launched in 2023 (EUR 72 million) aims to boost cooperation among universities. Support will be provided to develop joint study programmes, integrate library and IT systems, and interlink research and innovation capacities. In July 2023, the Slovak Government Office published eight RRP calls (EUR 227 million) for research and innovation projects targeting universities, research institutions and innovative companies. Subsidies will help institutions expand their research and invest in new technologies. Also, MESRS launched a call under the RRP (opened until December 2023) for the reconstruction of infrastructure in the country’s universities including dormitories (EUR 53 million). Furthermore, the ESF+ implementing Programme Slovakia (2021-2027) envisages support for higher education such as the provision of counselling and support services.

An evaluation report on the state of play of science and research in Slovakia was published in January 2023. Supported by the RRP and based on the previous peer review on the verification of excellence, this document included feedback from the external evaluation committees (including research experts from 19 countries) on the quality profiles of higher education institutions in Slovakia. It includes recommendations on research, development and other creative activities. The next evaluation is expected in 2026 and plans to include the evaluation of research infrastructure and societal impact.

A new scholarship scheme aims to attract talented students to study in Slovakia and support students from disadvantaged backgrounds. Every 5th Slovak student in tertiary education studies abroad¹⁶. As a follow up to the strategy on internationalisation in higher education (2022) aiming to reduce barriers for foreign students and teachers to study in Slovakia, futher simplification has been introduced for enrolling university teachers, and improving public health insurance conditions to help people settle in.

6. Adult learning

The Lifelong learning and counselling strategy for 2021-2030 is expected to be completed by means of adopting the acts on lifelong learning and on adult learning. The acts are expected to introduce a system of recognition and validation of non-formal education and informal learning, as well as introduce new elements such as civic education, basic skills and micro-credentials. An amendment to the Act on Employment Services 5/2004 adopted in December 2022 recognised the key role played by the Alliance of Sectoral Councils in aligning the lifelong learning system with labour market needs.

The Program Slovakia (2021-2027) supports lifelong learning through many measures. The budget of EUR 136 million (EUR 86 million under ESF+ and EUR 50 million under ERDF) will contribute to the creation of individual learning accounts, development of lifelong guidance, improved graduate tracking system, assessment of key competences of adults and promote professional qualifications and micro-certificates. In addition, the investments in around 20 VET Centres of Excellence are foreseen to further boost the skills ecosystem and better links between the learning programmes and the labour market needs.

To enable the upskilling and reskilling of new target groups in adult learning ,the ‘Don't lose your job – get trained’ labour market initiative supported by ESF offers training vouchers for persons who are looking for a job but are not unemployed. In addition, the lifelong learning and counselling strategy for 2021-2030, and the new elements in skills development (Slovak State institute for vocational education, 2023) have set the framework for rolling out micro-credentials. A suggestion to roll out the individual learning accounts with a voucher scheme is being examined (Cedefop, 2023).

Finally, to address the need for skills training, specific investment is planned under the Just Transition Fund (JTF) and the RRP. The JTF earmarked support for adult learning and infrastructure with an indicative amount of EUR 53 million. For example, it will provide funds to reskill workers in the mining region of Upper Nitra. Furthermore, under the REPowerEU plan funds of around EUR 30 million will be provided to support the development of green skills in VET, as well as investments in green infrastructure.

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