Reforming the education system and improving learning outcomes

Skopje, 11 September 2024: “The start of the new school year is a time of fresh beginnings and renewed commitments. It is the perfect moment to reflect on the state of our education system and the urgent need to address the ongoing learning crisis.

With three-quarters of 15-year-old students in the country performing poorly in reading; and two out of three with low performance in mathematics and science according to the latest PISA results – it’s no news to everyone here today that the country has been experiencing a learning crisis.

These numbers are not just statistics; these numbers are an urgent call to action to fulfil children’s right to quality and inclusive education and to ensure the education system delivers on human capital development and economic competitiveness.

To understand how to tackle this challenge, we first need to understand “why” we have a learning crisis:

• First, there is insufficient time spent learning: By the time students turn 14, they will have had nearly 900 hours less instruction than primary students on average across OECD countries. This is primarily due to a school network that has not kept up with demographic shifts, leaving 90% of students learning in just 30% of the country’s school buildings, which are forced to operate in shifts.

Less time spent in preschool also negatively impacts learning outcomes. The PISA results show that students who did not attend pre-school or attended for less than one year generally scored lower in reading, mathematics, and science. This is not a surprise considering that only 43% of children aged 3 to 6 are enrolled in preschool, and far fewer among Roma and Albanian children.

• A second factor is the size and distribution of the teaching workforce: The number of teachers has continued to grow on average serving fewer students. Over the past two decades, the average number of students per teacher has decreased from over 18 to less than 10, which is significantly below the OECD average. In fact, two thirds of municipalities have an average student-teacher ratio below 10. At the same time, the distribution of the workforce is imbalanced. Some schools have classes exceeding 30 students, while others have fewer than 10. Almost half of students in rural areas learn in extremely small or combined classes of different grades – both of which adversely impact their learning and socialization.
• The third factor is the resources available for quality learning: Investment in education has been disproportionately spent on salaries, with little allocated to other costs for quality and inclusive education. Currently, nearly 90% of primary education expenditures go towards salary costs, leaving too little for recurrent costs of updating facilities, investing in teachers’ professional development, learning resources and other operating costs.

In short, the learning crisis is the result of decades of not adequately addressing the key structural challenges, a lack of continuity in reform processes across different governments, and not centering education on the real and individual needs of all learners.

The situation calls for the country to rethink the way we utilize our resources. We can make significant improvements; however, we need to align resources to fit the demographic realities. By doing this, we will be able to address the challenges, increase the efficient use of current resources and ensure effective investment in the education system.

Based on our analysis, wide consultations with stakeholders, and international best practice, there is a need to rethink in three critical areas:

1. School Infrastructure: In order to ensure every child is learning sufficient hours in one shift, we need to extend the school day, which may require expanding some school facilities and consolidating others. The aim should be to give every student access to the same level of learning opportunities that come with extra-curricular activities, access to new technologies and equipment, and interacting with larger networks of peers. This will ensure that every child – no matter where they live – will get the requisite hours of learning and skill-building. Expansion of pre-school infrastructure is also required to increase enrolment, recognising that pre-primary education is among the most effective investments to build human capital and increase learning outcomes, particularly when focused on the most vulnerable children.   
2. Human Resources:  In order to align the teacher workforce with current and future needs, we need detailed municipal level analyses of the structure of the existing workforce. Teacher workforce planning needs to consider new roles and support teachers’ professional development - such as teacher mentors and other supporting functions. Models of shared resources across municipalities should also be considered to ensure the workforce is efficiently used. And importantly, we need stronger collaboration with teacher faculties to address issues such as deficits in certain subject teachers and early learning.
3. Funding education: In our consultations, schools and municipalities have highlighted that the current method for allocating primary education funding is not sustainable. We need to improve the allocation of limited resources so that all primary schools can deliver equitable education according to national educational and infrastructural standards and legislation. The current funding formula does not incentivize efficient spending, does not consider school performance and does not earmark funds for teachers' professional development or extracurricular activities.  We need a formula that applies a cost-per-student approach, ensures equitable allocations, guarantees funding for student transportation for those living farther from schools. Also critical is ensuring adequate resources for the inclusion of children with special educational needs and support to schools with instruction in the languages of smaller ethnic communities.

This is a multi-faceted endeavour. Rethinking infrastructure, human resources, and funding for schools isn’t like selecting items from a catalogue; all three components must work together seamlessly, like gears in a well-oiled machine, to ensure the system runs smoothly and effectively.

Dear colleagues,

Today we will discuss these challenges and solutions in more detail. As we begin these discussions, allow me to appreciate the Minister of Education’s vision and efforts to improve learning conditions and quality education for every child. I would also like to acknowledge those trail-blazing municipalities that are pioneering school optimization.

At the same time, I want to remind us that this process is not the responsibility of one minister alone. Reforming an education system is complex and requires strong leadership and political commitment at all government levels. We need the engagement and action of the Parliament, the wider Government beyond the Ministry of Education, including the Ministry of Finance, municipalities, school management, teachers and parents.

More importantly, we are looking to all of you here today, to become champions to support this important work. Only by working together, can we overcome the learning crisis and build an education system that serves all students equitably and effectively.”