Education and Training Monitor 2024

1. Learning for sustainability

In Austria, education for sustainable development has been developed in line with UNESCO initiatives. Austria adopted first its strategy on education for sustainable development in 2008 (BMBWF, 2008, 2022a, b), a decree in 2014 further strengthened environmental education for sustainable development (BMBWF, 2022c) in all types of school education at all levels (European Commission, 2024). The decree also determined initial and continued teacher education in this area. Following global action by UNESCO, Austria adopted the ‘Education for sustainable development 2030’ programme¹and the related road map in 2021 (Bildung, 2030a). The teaching of sustainability in education is implemented as part of Agenda 2030 and the Sustainable Development Goals (SDGs), which Austria adopted in 2015 (BKA, 2023).

The concept of learning for sustainability has been integrated into the new competence-based curricula. Austria applies a broad definition for sustainability. The new curricula for primary and secondary education were introduced in 2023/2024 and integrate environmental education for sustainable development as one of 13 overarching topics or teaching principles. In primary school, students are encouraged to develop their capacity to take responsibility, their value system, their ability to change perspectives, and empathy. The entire school team is responsible for supporting the concept of learning for sustainable development (European Commission, 2024). However, it is difficult to monitor the degree to which the teaching principles are applied. Nevertheless, several projects, networks and institutions have been created over time² to help apply these principles. The most important networks are ‘Klimabündnisschulen’ (since 1998), ‘ÖKOLOG Schulen’ and ‘Klimaschulen’ (since 2013) as well as ‘UNESCO Schulen’ (European Commission, 2024; OECD, 2023a) involving in all networks combined about one third of Austrian schools. Austria is developing whole school approaches to promoting education for sustainability (European Commission, 2024).

Teachers’ initial training contains learning for sustainability. KOM-BINE, a competence framework on sustainable development for teachers (European Commission, 2024) was developed to enable cooperation among the 14 University Colleges of Teacher Education in Austria. The 2019 competence compass for environmental education for sustainable development helps teachers improve their competences as regards sustainable development (OECD, 2023a) and helps implement the new primary and secondary curricula (OECD, 2023a). A mid-term report for Agenda 2030 (BMBWF, 2023a) provides some data on monitoring. However, learning for sustainability lacks comprehensive monitoring and statistical data.

Sustainability is well embedded in higher education. Being integrated into about 2 100 study programmes, sustainability is also a core element of the Austrian Higher Education Plan 2030. Performance agreements between the Federal Ministry for Science and Research (BMWF) and the universities encourage attention to sustainability in teaching and research (OECD, 2023a). Sustainability studies is one of the three main areas for extending study places in universities of applied sciences.

Austria is making significant reforms to curricula and the apprenticeships system by adding environment-related subjects. The just transition action plan on training and reskilling, published in early 2023, presents measures to achieve climate neutrality by 2040 (CEDEFOP). The green transition in vocational schools has started through adapting curricula, introducing education for sustainability in all subjects as well as promoting green skills. Competence centres for vocational education and training schools are being established. Training regulations for apprenticeship programmes are continuously evaluated and adapted to the requirements of the green transition. Moreover, new job profiles related to climate neutrality are being introduced.

2. Early childhood education and care

The participation rate in early childhood education and care (ECEC) in Austria remains below the EU average and the EU target. In 2002, the participation rate for children between the age of 3 and the start of compulsory education was 90.6%, having increased by 4.1 percentage points (pps) since 2013³. This is 2.5 pps below the EU average of 93.1% and 5.4 pps below the EU-level target of 96% by 2030. Participation in ECEC varies between regions, with the highest rate in Lower Austria (96.9%) and the lowest in Styria (83.0%)⁴. In 2023, only 24.1% of children under 3 participated in formal ECEC (EU 37.5%), far below the national Barcelona target of 31.9%⁵. The rate has barely increased since 2015⁶.

Improving quality in ECEC services and expanding places remains a priority for Austria. Regions and municipalities are responsible for providing ECEC services, which results in uneven quality among institutions and across regions (Mitterer, 2022). A funding agreement between the federal government and the Laender, covering the years 2022/2023 to 2026/2027 helps provide ECEC services. It aims to step up improvements in quality but falls short of setting compulsory quality standards (European Commission, 2021 and 2024). In addition, the 2024 financial equalisation law, adopted in December 2023, redistributes EUR 3.4 billion in federal funds to regions and municipalities allowing, among other things, municipalities with lower own resources to invest in ECEC. The same law establishes a future fund with a total budget of EUR 1.1 billion for 2024 (Austrian Parliament, 2023), with EUR 500 million earmarked for creating 50 000 additional places in ECEC until 2030. According to studies, higher investments (up to about EUR 2.9 billion annually) are required for quality improvement including expanding the number of places and services, improving staff/child ratios, and narrowing the service differences between regions (ECO-Austria, 2023; Julius Raab Stiftung, 2021; Neuwirth, 2021).

The scope for expanding ECEC places and services is restricted by staff shortages. A recent study estimates that there is a lack of at least 13 000 staff until 2030 (see also European Commission, 2023). The qualification requirements for ECEC staff correspond to ISCED 5 or higher. Students opt for a career in ECEC at an early age (15 years) and are given the right to access higher education upon graduation. About half of graduates never enter the profession, but pursue alternative career paths after graduation (Wirth, 2023; Löffler, 2022). Austria has expanded its campaign ‘Klasse Job’ to generate more interest in the ECEC profession, combined with newly established training opportunities. For instance, Austria introduced in 2023/2024 2-year studies (‘Lateral entry to elementary pedagogics’) at university level, especially for ECEC leaders but also other ECEC teachers. In 2021/22, 400 additional study places were created. A project supported by the European Commission’s Technical Support Instrument focuses on 'improving staff working conditions for better quality in early childhood education and care in Austria'. The Recovery and Resilience Facility covers a certain part of the expenses incurred in expanding ECEC capacity.

3. School education

About one quarter of young Austrians lack a minimum level of proficiency in mathematics, reading and science; this figure has been continuously increasing since 2012. In the 2022 OECD Programme for International Student Assessment (PISA) survey, 24.9% of 15-year-olds underperformed in mathematics⁷, 25.3% in reading2 and 22.7% in sciences⁹ (OECD, 2023b). Values increased between 2012 and 2022 by around a third or 6.2 pps, 6.9 pps and 5.8 pps in mathematics, reading and science, respectively. In addition, the socio-economic gap in underachievement in basic skills has widened. Underachievement has increased especially among students from disadvantaged and migrant backgrounds. In 2022, 45.1% of students from disadvantaged backgrounds did not reach a minimum proficiency level in mathematics (vs 35.1% in 2012)¹⁰ (European Commission, 2024a). Similarly, 45.4% of students born abroad did not reach this level (vs 37.8% in 2012)¹¹.

The share of top performing students remained above the EU average. 10.3% of Austrian students reached the highest levels in PISA in mathematics¹², 7.7% in reading¹³ and 7.9% in science¹⁴, above the EU average in all three subjects. However, their share has fallen in mathematics since 2012 by about a third (-4.0 pps). It increased in reading (+2.2 pps) and remained unchanged in science. This is roughly in line with EU trends. Between 2012 and 2022, the gender gap in reading¹⁵ favouring girls declined at the top level by 1 percentage point (pp.) to 2.6 pps and the advantage of boys in mathematics¹⁶ declined by 1.5 pps to 5.9 pps. In the same period, the performance gap between underperforming boys and girls also declined. In mathematics, it fell by -0.7 pps to a 4.4 pps advantage for boys and the advantage for girls in reading was halved from 13.4 pps in 2012 to 6.6 pps in 2022¹⁷.

Austria has taken steps to improve the quality of education, but challenges remain. A new system of quality management in school education was introduced in 2021/2022¹⁸, changing internal and external evaluation in schools¹⁹. The pilot initiative ‘100 Schools – 1 000 Opportunities’, exploring index-based financing, has been further extended until 2025²⁰. This initiative will also be used to examine a needs-oriented allocation of funds in the future. An analysis, conducted in 2020, identifies 519 schools with a very complex environment (Radinger, 2020).

The ‘Pedagogy package’ contains school entry screening, new curricula, competency grids and individual competence measurement (iKMPLUS). A summer school programme was established after COVID-19 abated. However, while diversity in Austrian schools has increased over the years, schools continue to report a lack of resources needed to deal with the related challenges²¹. For example, the share of pupils with a migrant background more than doubled between 2000 and 2022 (from 11% to 27%)²² (Toferer, 2023). 25% of them do not speak German at home, which makes it more challenging for them to quickly master the language of tuition²³. A recent evaluation showed that the current approach of placing newly arrived migrant children in separate German support classes is not as successful as anticipated. Polled teachers and school heads favour rapid integration of newly arrived migrant children to increase their exposure to the new language (Spiel et al, 2022). Lack of support adapted to the specific challenges faced by schools and their students as well as the lack of teaching staff (European Commission, 2023) might have contributed to the worsening PISA results. Also, Austrian students’ perception of receiving support from their teachers is lower than for the majority of their peers in the EU²⁴. However, differences vary by student characteristics and especially by socio-economic background²⁵ (see Figure 1). In addition, differences in perceived teacher support are important between socio-economically advantaged and disadvantaged schools²⁶.

Figure 1: Index of teacher support, by student characteristics (PISA, 2022)

Austrian students do not always get the support they need and repeat grades more often compared to the EU. PISA 2022 data repeatedly suggest relatively high incidences of teachers ‘never or hardly ever’ showing an interest in how well their students are learning, providing extra help or continuing to teach students until they understand the subject²⁷. The high isolation index in OECD PISA 2022 shows that disadvantaged students in Austria, immigrant students, and low-achieving students in mathematics are more often concentrated in the same schools²⁸. In Austria, 6.4% of students repeat a grade at lower secondary schools and 2.4% in upper secondary schools, which are significantly higher figures than in most EU countries²⁹. Girls repeat classes less frequently than boys (-2.8 pps). Approximately a quarter of disadvantaged (24.5%) and immigrant students (26.3%) repeat classes, which is over three times as often as advantaged students (7.3%)³⁰. Grade repetition occurs four times more often in disadvantaged schools (31.3%) than in advantaged schools (7.3%) and with 17.7% occurring more often in metropolitan areas.

Austrian schools offer a high degree of well-being. According to PISA 2022, bullying occurs in Austria slightly more often than in the EU³¹. However, advantaged students are less exposed compared to their peers in the EU³² (-1 pp. difference from EU -3.9 pps). In Austria the difference between advantaged and disadvantaged schools³³ is nearly half (Austria: -4.3 pps, EU: -7.4 pps). The effect of bullying on learning outcomes, after accounting for socio-economic background, is smaller than in the EU³⁴ (10 score points vs 15). Truancy, as measured by PISA, remains comparatively low in Austria, with 1 in 5 students having skipped class recently (22.1%, EU: 36.22%)³⁵. However, disadvantaged students (17.0%) stay at home considerably more often than their advantaged peers (11.7%) and immigrant students (19.3%) around twice as often compared to non-immigrant students (10.4%). In addition, Austrian students are more often on time in school (64.7% compared to EU 53.5%)³⁶.

4. Vocational education and training

Reforms aim to further promote flexibility, digitalisation and permeability in the Austrian vocational education and training (VET) system. In May 2024, the law on higher vocational education (Austrian Parliament, 2023) established higher vocational education and training (NQF level 5-7) as a separate educational segment. It ensures the equivalence between university and non-university qualifications, and introduced a standardised procedure for qualifications, a unified quality assurance system as well as title designations. To expand the training offer for apprentices, the Austrian Chambers of Commerce established a digital training programme and an education platform for companies, called ‘Wîse up’, targeting businesses of all sizes. It is connected to several larger learning platforms and caters also for the needs of apprentices.

The Austrian VET system offers work-based learning and a high employment rate. Austria has a relatively large VET sector, with 69.9% of the students in medium-level education attending programmes with a vocational orientation (2022 data)³⁷. Work-based learning in VET is extensive (91.2% of recent graduates in 2023 had such experience)³⁸. Recent VET graduates have a high employment rate (89.2% in 2023)³⁹.

Declining levels of basic skills and and persisting socio-economic inequalities in the education system discourage companies offering work-based learning. The increasing share of students underachieving in mathematics represents a big challenge especially for companies offering apprenticeships. According to a 2019 study from the Austrian Ministry of labour, 67% of companies consider the lack of basic mathematical skills as a main obstacle to a successful apprenticeship. Also, the low level of other skills is a big issue for the companies: for example, 69.4% complained about apprentices’ lack of concentration and capacity to perform. To counteract this trend and close knowledge gaps not filled by schools, the Austrian government added to the Apprenticeship guarantee⁴⁰ the AusbildungsFit programme⁴¹ (co-financed by ESF+ 2021-2027), which focuses on psychological and social counselling as well as on providing basic skills.

5. Higher education

Tertiary educational attainment is increasing, but regional variations remain. In 2023, 43.5%⁴² of young people aged 25 to 34 held a tertiary education degree, indicating that comfortable progress is being made towards achieving the 45% EU-level target. Over the last decade, the attainment rate has almost doubled (from 22.8% in 2012)⁴³. In line with the EU trend, the rate for women (48.1%) is higher than for men (39.1%). Although in Austria the gender gap is narrower than the EU average (8.9 pps vs 11.2), it has widened since 2012, more than the EU average (6 pps versus 1.1 pps)⁴⁴. One reason is the higher share of female graduates from upper secondary education. In 2021/2022, women obtained 58% of upper secondary education degrees that give access to tertiary education (Statistik Austria, 2022). The share of young people with a tertiary education degree is particularly high among people born in other EU countries (50.1% vs EU 40.2%)⁴⁵ and among those living in cities (52.6%)⁴⁶. It is also not even across Austria’s nine regions, with 51.6% in Vienna (highest) compared with 32.2% in Vorarlberg (lowest)⁴⁷. Higher education offers only a small employment advantage in Austria. Recent young graduates aged 20 to 34 with a tertiary degree (ISCED 5-8) are only slightly more likely (+1.7pps) to be employed (90.9%) than their peers with a vocational education and training degree (ISCED 3-4)⁴⁸. Austrian tertiary education graduates (25-64 years) with a Master’s degree receive higher wages compared to the EU average⁴⁹.

Austria registers above average inward graduate mobility with many graduates coming from other EU countries and an overall positive mobility balance. Austrian outward graduate mobility with 11.6% is just above the EU average (+0.6 pps)⁵⁰. In Austria, graduates leave almost equally as often on credit and on degree mobility while in the EU credit mobility is generally much more frequent⁵¹. The share of outward mobile PhD graduates is at 31% nearly twice as high as the EU average⁵². Austria has with 18.8% the fourth highest inward mobility at ISCED 5-8. Three quarters of all inward mobile graduates (ISCED 5-8) come from inside the EU, their share drops at ISCED 8 to two thirds⁵³. Two thirds of Austrian credit mobility falls under the Erasmus+ programme⁵⁴. Overall, Austria receives more incoming foreign students than Austrian students that go abroad – see Figure 2.

Figure 2: Degree mobility balance (degree mobility within and outside the EU; net sender and net receiver countries), 2022

Austria aims to further increase mobility for all target groups and to step up international cooperation. The National Mobility and Internationalisation Strategy for Higher Education 2020-2030 supports mobility for all groups in higher education. New legislation enables international cooperation legally, introducing short-term mobility and micro-credentials. Both physical and online short-term mobility should have up to 15 ECTS credits, equivalent to half a semester of full-time study. This clarification enables Austrian higher education institutions to become part of Erasmus+ (e.g., BIPs - blended intensive programs) and of European University alliances.

6. Adult learning

In Austria, adult learning stagnated at a high level, while the participation gap between early school leavers and adults with a tertiary education decreased. 52.2% of the Austrian working-age population (25 to 64 years) took part in formal or non-formal educational activities in 2022⁵⁵. Despite different forms of financial support⁵⁶, participation in adult learning without on-the-job training decreased by 3.1 pps compared to 2016. At 52.2%, it is 12.7 pps above the EU average of 39.5% and 9.8 pps below the 2030 national target of 62.0% of adults participating in learning every year. The gap in participation between people with a compulsory school leaving certificate and those with a university degree has narrowed by 11%. In 2022/2023, 50.2% of people who had completed an apprenticeship, 61.1% of graduates from intermediate vocational education (BMS) and 68.7% of people with a general higher education entrance qualification participated in online learning.

Despite positive structural changes, further measures are needed to involve early school leavers – most of which have low levels of qualifications – in upskilling and reskilling. They have the lowest participation rate in education and training. Only one in four people with a compulsory school-leaving certificate (27.2%) took part in formal or non-formal education and training in 2022/2023⁵⁷. Among those who have only primary or lower secondary education (ISCED 0-2), the number reaches only 26.1%, showing a sharp decrease of 5.2 pps compared to 2016. With the programme “Level Up – Erwachsenenbildung”, participants can acquire basic digital skills as well as basic writing, reading and mathematical skills and receive individual counselling. Furthermore, participants can obtain a certificate of completing compulsory school.

Austria is helping develop basic skills by promoting digital skills and increasing public investment in the public employment service (PES). This increases both available national and EU-funded education bonuses and projects. The level of digital skills of the population (64.7%) in 2023 is significantly above the EU average (55.6%)⁵⁸. However, Austria needs to take further action to achieve its ambition to have 100% of its 16-74-year-olds having at least basic digital skills by 2030. The digital skills campaign offers low-threshold short workshops for basic skills. The PES's budget for active labour market policy was increased as well as substitute benefits to cover living expenses. Monthly education bonuses help social welfare recipients to access adult learning. The ESF+ programme will support 46 basic education projects in the current funding period.