Education and Training Monitor 2024

1. Learning for sustainability

There is no curricular framework for learning for sustainability in Denmark, leaving a large degree of autonomy for schools. A relatively high degree of decentralisation characterises the Danish education system. A binding curriculum (Fælles Mål) regulates each subject at an overall level with guiding materials providing frameworks and possible approaches. Teachers have autonomy and freedom in fulfilling these centrally stated demands and they choose their own teaching materials and teaching methods. There are binding learning objectives at an overall level but learning for sustainability (LfS) is not explicitly integrated in these subjects. “Sustainability” or “sustainable development” is mentioned a few times in the Danish common objectives for some subjects for the primary and lower secondary school level. The law regulating general upper secondary schools has been revised to include the topics environment and climate since August 2023.

The Danish UNESCO ASP (Associated Schools Project) Network consists of 37 schools (primary and secondary schools and vocational education and training colleges) aiming at preparing Danish youth for global citizenship and sustainable development. Schools can also draw on online platforms such as the portal Global Goals in education (EMU.DK) or participate in conferences (UBU.NU) to support their activities.

Danish students rank top in the EU in sustainability knowledge. In the 2022 International Civic and Citizenship Education Study (ICCS), Danish students had the second highest average score in civic knowledge among the 17 EU countries surveyed (Schulz et al., 2023). However, only 38.7% (vs EU: 48%) of Danish schools surveyed reported that they offered all or nearly all their 8th-grade students opportunities to take part in activities related to environmental sustainability. Only two thirds of Danish students consider it important to make changes to their personal lifestyle compared to – on average - four fifths of students in the EU¹. A significant share of Danish students participates actively in school, by designing school educational plans, rules and regulations, classroom activity planning and school self evaluation².

While learning for sustainability is embedded in the competence framework for teachers, participation in related continuous professional development (CPD) activities is low. Sustainability-related competences are embedded in the teacher competence framework in Denmark, which sets the standards for initial teacher education programmes qualifying for teaching in primary and secondary education. Recent Danish legislation stipulates that teacher education programmes should equip teacher candidates with a perspective on sustainability and sets specific learning objectives for some core subjects (UFM, 2023). ‘Sustainability in pedagogical practice’ and ‘environment and innovation’ are two academic qualifications available to teachers for their professional development (European Commission, 2024). Denmark is also among the few countries reporting that CPD activities on sustainability leadership are available to teachers and school heads. (European Commission, 2024). However, only 37.7% of Danish teachers report having attended courses on environment or environmental sustainability as part of their pre-service or in-service training. This is among the lowest level in the EU, well below the average of 53% for the 17 EU countries assessed. With only 8.8% of Danish teachers reporting that they attended in-service training on sustainability, but 34.5% of teachers having learnt it as part of initial teacher training, the situation in Denmark differs strongly from the EU level, where more teachers report that sustainability is covered more in their in-service training (37.2%) than in pre-service training (31.4%). The share of Danish teachers who feel quite or very well prepared to teach learning for sustainability is also lower (77%) than the average for the 17 EU countries (86%) (Schulz, 2022).

Vocational education and training (VET) play a crucial role in securing a greener and more sustainable future for Denmark, as various initiatives demonstrate. In 2024, the Danish government established a knowledge centre for agriculture³ to feed the latest knowledge and skills in sustainability and the green transition into agricultural education. From 2024 annual DKK 4.4 million (EUR 590,000) will support its operation, and DKK 7.5 million (EUR 1. million) in 2024 as well as DKK 3 million (EUR 400,000) in 2025 will finance equipment. In addition, the government has allocated significant funds for modern equipment and green teacher qualifications in vocational education.

Education partnerships are promoting Education for Sustainable Development. The former Minister for Children and Education established eight partnerships to develop an Action Plan for Education for Sustainable Development (2022) developed by 24 stakeholder organisations⁴ to map existing and necessary actions to integrate LfS in eight respective education areas (UVM, 2024a).

2. Early childhood education and care

Participation in early childhood education and care (ECEC) is high in Denmark compared to other European countries. In 2022, the share of children between 3 years and the age of compulsory primary education in ECEC was 97.1%, above the EU-level target (96%) and 4 pps above the EU average of 93. Participation has remained stable compared to 2021. The share of children below the age of 3 in formal childcare was in 2023 the highest in the EU (69.8%)⁵ and above the national Barcelona target of 67.5%. In addition, most children (65.7% vs 26.8% at EU level) attend formal childcare for 25 hours or more.

Reforms to reduce variations in the quality-of-service provision continue. Good quality is a precondition for ECEC to be beneficial for all children; however, significant quality differences persist between ECEC settings (European Commission 2023). A law on minimum standards for children-to-staff ratios entered into force in 2024. To cover the increased staff costs, municipalities will receive annual compensation worth DKK 1.76 billion (EUR 234.7 million) from 2024 onwards. Moreover, DKK 110 million (EUR 14.7 million) have been reserved for 2023 and about DKK 210 million (EUR 28.0 million) annually for 2024-2030 to increase the educational level of ECEC staff. At the same time, the government is proposing to reduce administrative requirements regarding (i) written pedagogical curricula in each ECEC facility, (ii) the biannual review of the facilities and (iii) the obligatory monitoring by the municipality, as well as introducing simplifications to reporting on staff requirements (UVM, 2024b).

Denmark continues its reforms to improve the well-being of children. Up to 79% of polled ECEC staff say they had noticed an increased need to support vulnerable children during the previous year (EVA, 2022, EVA, 2024). The response identified was to reinforce pedagogical - psychological counselling and collaboration between counselling services and ECEC staff. DKK 50 (EUR 6.7) million will be invested in 2024 and DKK 80 (EUR 10.7) million annually between 2025 and 2027 to support the educational staff in preventive work both in ECEC and primary schools (UVM, 2024c/2024d). To increase well-being in ECEC, a majority in the Danish Parliament agreed to limit the use of digital devices in ECEC from July 2024. Without totally banning their use, usage is restricted for children under 2 years old to highly exceptional justified cases (disabilities or cognitive challenges). 3–5-year-olds are allowed to use these devices if there is a pedagogical reason for it (UVM, 2024e).

3. School education

In contrast to EU trends, early school leaving has increased in the past decade. At 10.4% in 2023, the share of early leavers from education and training (ELET) increased by 0.4 pp compared to the previous year and 2.9 pps since 2016, when it recorded its lowest level (7.5%). This is above the EU average of 9.5% and EU-level target of below 9%. The rate is higher for men (11.8%) than for women (9%), with a smaller gender gap than the EU average⁶. Early school leaving is more frequent among foreign-born young people (13.3% in 2023); their rate also saw a sharper rise (+4.8 pps, from 8.5% in 2013) than for the native population, widening the gap from 0.5 pp to 3.1 pps within a decade⁷. Early school leaving also increased in rural areas much more strongly (by 4.7 pps, to 15.0%) than in towns and suburbs (+2.3 pps, to 11.9%)⁸. Denmark is introducing a Junior Master Apprenticeship which aims to reengage students at risk of early school leaving. The programme offers a scheme which alternates 3 days in schools with 2 days in a company. It aims to develop the participants’ future professional prospects by giving them practical work experiences and the education they need to master the last years of lower secondary (UVM, 2024f).

Danish underachievement rates in basic skills, although slightly increased, remain among the lowest in the EU. Nevertheless, the 2022 OECD Programme for International Student Assessment (PISA) shows that one out of five young Danes lacked a minimum level of proficiency in maths (20.4%), reading (19.0%) and science (19.9%), well above the EU target of 15%. These values have increased since 2012, by +3.8/+4.3/+2.8 pps respectively. Denmark will invest DKK 500 (EUR 67) million annually to improve the teaching of Danish and maths (UVM, 2024g), addressing the 10% of students in the country who need it most.

The share of top-performing students remained around the EU average. 7.7% of Danish students reach the highest levels in PISA in maths and 6.3% and 7.0% in reading and science – mostly around the EU average in all three fields. As of 2024/2025, students with potential in 1st grade are to be screened if they are highly gifted. Both primary and secondary schools are obliged to help all students to live up to their full potential (BUVM, 2024h).

Figure 1: Underachievement rates by field, PISA 2012, 2018 and 2022 (%)

Underachievement is significantly higher among students with a migrant background. In 2022, about a third (34.1%) of students from disadvantaged backgrounds did not reach a minimum proficiency level in maths, significantly below the EU average (48%) and only a 2.7 pps increase from 2012 (31.4%). However, almost half (46.0%) of students born abroad underachieve in maths. The performance gap associated with immigrant background also remains significant (21 PISA score points) after accounting for socio-economic background. At 24.8 pps, the gap in achievement between students with or without a migrant background is the fourth highest in the EU⁹. In addition, there is only a small difference between students born abroad or students born in Denmark, but whose parents were born abroad (only 6.2 pps) ¹⁰. The 2022 PISA results point to the difficulties the Danish education system has in addressing the needs of students with a migrant background.

Emerging shortages of qualified teachers is a key challenge that may affect teaching quality. Denmark is embarking on a quality programme in school education at primary and lower secondary level (UVM, 2024). The ‘New agreement on primary and lower secondary schools’ consists of 33 new initiatives organised into 10 important intervention areas, and targets 642 000 students. This initiative invests in school premises, schoolbooks, redesigning curricula, increasing teaching time and providing targeted support for underperforming students. The aim is to increase local governance and give individual schools more freedom, supported by DKK 740 (EUR 98.7) million a year, and a one off sum of DKK 560 (EUR 74.7) million for school books, together with an additional DKK 2.6 billion/ EUR 347.7 million to improve school facilities (UVM, 2024j). It remains a major challenge to train enough teachers and improve continuous professional development and working conditions for them. In 2022, 15% of teacher trainees dropped out in the first year of training, compared to 10% in 2016. After 4 years, more than a third have left (UFM).

Student well-being is high and remains a key policy priority. Denmark has an established policy for improving and monitoring well-being among students. Students show a well-developed sense of belonging in school¹¹. Almost two thirds of them say they find it easy to make friends there¹², and bullying is rare ¹³. Interestingly, advantaged students report a 4.6 pps higher rate of well-being than disadvantaged students, but bullying happens more often in advantaged schools (+5.6 pps)¹⁴. Making friends and the feeling of belonging do have an impact on education results, especially after accounting for a school’s socio-economic profile ¹⁵. However, the impact of bullying on education results remains limited¹⁶. The government is strengthening preventive school counselling capacities in the ten municipalities with the highest socio-economic needs, with a budget of DKK 50 million in 2024 and DKK 80 million annually 2025-2027 (UVM, 2024d).

Denmark continues to invest in improving digital skills. In 2023, 81.36%¹⁷ of 16-19-year-olds had at least basic digital skills, about 1 pp above the 2021 level and 14.9 pps above the EU average. And a new ambitious digital strategy is investing DKK 205 (EUR 27.3) million in three education areas: (1) supporting the new subject ‘Technology Comprehension’ in Danish schools, (2) training teachers in ‘Technology Comprehension’ and (3) boosting digital competences in higher education (Regeringen, 2024).

Denmark has a well-established decentralised framework for inclusion and has embarked on further measures to strengthen schools and teachers in this respect. Almost one in five 16-29 year olds (19%) had a disability in 2022. This share has doubled in the last decade, with a particularly strong increase in mental disability (VIVE, 2023a). All children and young people in daycare and municipal primary and lower secondary school are entitled to extra support through municipalities, subject to a pedagogical-psychological assessment (PPV) (Retsinfomation, 2023b). The preference is to fully include students in regular classes, but the share of segregated special education has increased by 1.3 pps during the last decade, to reach 6.9% in 2023/2024.

Inclusion is an integral part of Danish teacher training. The new Danish teacher education programme includes a core module covering pedagogical psychology, inclusion and special pedagogy. It focuses on both general and special education. In addition, students can choose Special Pedagogy (35 ECTS) as a main subject. These courses emphasise the teacher's role in maintaining inclusive communities and promoting opportunities for participation for all children (Retsinformation, 2023b).

4. Vocational education and training

Denmark continues to increase the attractiveness and quality of VET. In line with the objectives set in its national implementation plan¹⁸, it allocates significant funding to VET¹⁹. Denmark aims to raise the number of applicants to VET and increase the initial VET completion rate.

The fact that few young Danes select VET, especially initial VET (IVET), contributes to persisting labour market shortages. These shortages peaked in 2022 and are prominent in the healthcare sector. Although different governments have focused on increasing participation in VET programmes, enrolments in IVET remain low. The 2022 share of pupils in medium level VET programmes²⁰ was with 40.2% below the EU-average of 54.2% and the national target for completion of IVET by 2025 (67%)²¹. Seven out of ten VET graduates have experienced work-based learning (70,6% in 2023, above the EU average of 64.5%)²². The Danish government has allocated approximately DKK 311 million (EUR 42 million) for vocational education programmes in 2024, increasing to DKK 911 million (EUR 123 million) by 2030. The funds are to be used, among other things, to ensure the green transition of the society.

Denmark has increased its efforts to support adult and young learners with dyslexia. 19 different projects (UVM, 2023b) focusing on dyslexia and weak reading skills were supported through project grants in early 2023²³. Funding was focused specifically on including learners with dyslexia in workshop-based teaching in Preparatory Basic Education and Training (FGU). Several projects within IVET and continued VET (CVET) received funding through this scheme. In October 2023, the Danish Government and a Parliamentary majority agreed to strengthen the support for adults and young learners with dyslexia. In 2023, an amount of DKK 360 million (EUR 48.2 million) was set aside for CVET within the context of the Danish tripartite agreement on long-term CVET investments. The Danish government and Parliamentary majority included a long-term financial boost for preparatory basic education and training (FGU, basic VET programmes) and for adult and continuous education from 2023 onwards²⁴.

5. Higher education

Denmark’s higher education attainment rate increased significantly in the past decade and is now well above the EU-level target. Since 2012, it has increased by 8.8 pps to reach 49.0% in 2022, with no change in 2023²⁵. In 2023, 57.9% of women aged 25-34 had a degree, compared to only 40.4% of men (25-34), leading to a wide gender gap of 17.5 pps (6.3 pps above the EU average) ²⁶. The share of native-born young people with a degree slightly declined (-0.5 pp) to 48.6%, while it increased moderately (+1.2 pps) for non-EU-born to 43.7% and more sharply (+5.1 pps) for those from other EU countries, to 65.0%²⁷ - from 2022 to 2023. From 2025 onwards, the university reform will ensure better managed access to higher education. Less students at Bachelor’s level should motivate more students to enter VET. The number of admissible students is linked to unemployment among graduates of specific programmes and labour market demand (UFM, 2024a).

The government aims to improve the labour market relevance and quality of higher education, including by revising the structure of study programmes. The government agreement from June 2023 calls for the length of some Master’s degree programmes to be shortened from 2 years to 1 and a quarter, as part of the reform “Prepared for the future 1”. The reform combines the reorganisation of studies with quality improvements. The details will be determined at university level. Shorter programmes focus more on labour market needs, while longer programmes orient students towards research. Programmes with a flexible duration should allow students to work fulltime while studying (Regeringen, 2023).

Employment rates for recent graduates are high, and even higher for young people with VET education. In 2023, the employment rate for 20-34-year-olds with ISCED 3-4 VET education was 90.6%. For higher education graduates (ISCED 5-8) it was 88.3%. These figures are, respectively, 9.4 pps and 0.6 ppabove the EU average. Denmark is the only EU country where VET graduates have an employment advantage (+2.3 pps) over graduates from higher education (ISCED 5-8).

Denmark attracts many foreign graduates, while a smaller share of Danes learn abroad. Only 6.2% of Danish graduates had a learning experience abroad, half of the 11.0% EU average in 2022 and 16.8 pps below the EU-level target (23%). Only 1.6% of 2022 graduates obtained their degree abroad (EU average 4.3%), and 4.6% of them (EU 6.7%) went abroad for a short period during their studies. In 2022, 13.4% (EU 8.7%) of total graduates came from abroad, 50.1% of them from another EU country. As regards studying in the EU, Denmark is the highest (90.9%) net recipient of graduates from other EU countries relative to the number of students they send abroad to graduate in another EU country (figure 2)²⁸.

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

6. Adult learning

Adult learning is priority in Denmark, and there is a long tradition of participation across the whole population. However, both dedicated research and the Reform Committee²⁹ have described challenges to adult education in Denmark. The Reform Committee is a high-level group of researchers and experts established by the government in 2020, which finished its work in early 2023. Some of these challenges were addressed in the tripartite agreement between the government, employers’ groups and unions from September 2023 (incorporated into legislation as of 1 January 2024)³⁰. Among the measures promoted by the agreement, the most innovative is arguably the creation of an alliance with companies to engage workers with low levels of basic skills in adult education activities. Financial incentives for education and training institutions providing adult education have also helped create outreach services to businesses and help them analyse and respond to skills needs.

Participation in adult learning is declining. According to the latest Adult Education Survey (AES, 2022) it stood at 47.1%, down from 50.4% in 2016. The main challenge remains people with few or no qualifications. This was a key issue that was already addressed in the 2017 tripartite agreement and subsequent policy initiatives. Skills forecasts foresee significant bottlenecks on the labour market due to a lack of skilled and semi-skilled workers, especially to support the green transition and the continued welfare of the population.³¹

Denmark’s national recovery and resilience plan (RRP) encompasses skills-related reforms and investments amounting to around EUR 334 million. In particular, in the addendum REPowerEU-chapter, a measure for adult education for the green transition was included, earmarking EUR 279 million up to 2026 for green education and upskilling. Vocational education and training providers can apply for funds to support the purchase of new equipment, the production of educational material and the development of teaching skills that strengthen their ability to deliver relevant and updated skills for the green transition.