You can also read this piece at InternationalEdNews.com
For many, the most surprising thing about the Estonian education system is that it is, in fact, high performing (using the conventional criteria of international tests like PISA). Even with some press in the Hechinger Report, Estonia’s educational performance has garnered much less attention than other high performers like Finland and Singapore. Nonetheless, Estonia has performed at a consistently high level on the PISA tests since 2006. In 2015, Estonia was ranked in the top ten nations in both math and reading on PISA, and in science, it was ranked third in the world behind Singapore and Japan.
Perhaps most impressive, Estonia has among the most equitable outcomes of all the countries participating in PISA. Although the Estonian population is largely homogeneous, there are distinct groups of lower-performing Russian language schools, as well as considerable differences in the size and performance of schools in cities and rural areas. Although Estonia has among the smallest class sizes and teacher-student ratios among OECD countries, those figures hide the fact that there are some very small rural schools, with particularly low ratios (and students of different ages mixed together), but also many city schools with class sizes higher than the OECD average. Despite these differences, students do quite well on average across all regions, with the percentage of students who are low-performing the smallest in both Europe and the world.
In another surprise, Estonian students perform at a consistently high level despite an aging teaching population and difficulty attracting new teachers. In fact, almost half of Estonian teachers are over the age of 50 and Estonian teachers have some of the lowest salaries among OECD countries. In addition, although most Estonian teachers report overall satisfaction with their job, only 14% think the teaching profession is valued in society. On my recent visit there, one of the teacher education institutions I visited even reported they have had only a handful of applicants for some of their programs in recent years. Certainly teachers are important – and other high-performing countries like Finland and Singapore demonstrate the value of well-prepared and well-supported teachers – but Estonia shows that it’s possible to have a high-performing education system – and sustain it and improve it – even with problems in the teaching force.
What’s more the Estonians describe their system as one in which schools, school leaders, and teachers have a considerable amount of autonomy. Schools have to provide a minimum number of course hours in set subjects, but they also have some latitude in emphasizing a particular focus like the arts, technology, or the natural sciences. As a result, some students may end up taking more hours of math and science over their school careers, others more in art and language. Nonetheless, on average, Estonian students still demonstrate consistently high and equitable performance
Given these equitable outcomes, for me one of the biggest discoveries was finding some school choice in Estonia. While students are guaranteed a place in their neighborhood public school, they can apply to attend private schools, selective schools, or another neighborhood school if it has space. In most private schools, tuition is largely subsidized by the state, but schools can also charge additional fees that can make them out of reach for some students. Some of the private schools are religious schools or international schools, but in recent years, a variety of other groups have started own private schools. I spoke with the founders of two different private schools who both described how parents got together to create schools when they were unhappy with their local options. In both cases, founders described the Ministry of Education’s willingness to assist and support the new schools’ efforts. As one put it, there is a “flexible” attitude toward regulations in Estonia, and the officials understand that “if there is a problem, they understand they need to solve the problem, and everybody helps.” While only about 5% of schools in Estonia are private, there are also public schools that the Estonians themselves describe as “elite” and selective. In order to enter these selective schools in first grade, 6 year olds have to pass a high stakes entrance test for which many of those who afford it go to a tutoring center to get prepared.
With the choice and autonomy of schools, one would expect that significant monitoring and oversight would be needed to make sure that all schools are performing well. But when I asked the head of the education department of one large municipality (essentially the equivalent of a district superintendent in the US), he threw up his hands and said he trusted the school leaders and teachers to do their jobs. To guide that work, he reported talking on a weekly basis with the local school leaders. One recent meeting focused on revising and then signing a memorandum in which all committed to 8 points of agreement including “the schools shall value developing a scientific mindset in students”; “the schools shall move towards wider use of digital teaching and learning materials”; and “the students shall get credit for what they have learned in a hobby school to decrease their study load in school.”
Correspondingly, high-stakes testing is limited primarily to exit exams at the end of high school. Results of the exit exams are made public and newspapers and others often publish rankings of upper secondary schools, but no specific rewards or consequences are attached. In elementary and lower secondary schools, in contrast, national assessments are strictly “sampling tests”, as in Finland, given only to a portion of students at the end of 3rd, 6th and 9th grades. The results of those tests are not made public, but instead provide the schools, municipalities, and the Ministry a way to gauge performance and guide planning and policymaking.
Even the Estonian system of inspecting schools is considerably less intrusive than those in many other countries. In England, for example, inspectors from Ofsted (the Office for Standards in Education, Children’s Services and Skills), “carry out hundreds of inspections and regulatory visits throughout England and publish the results online.” In contrast, in Estonia there is no separate inspectorate, and no complex, full-scale inspection is conducted. Instead, the Ministry of Education and Research carries out individual school inspections primarily for licensure applications or in case of complaints. As a former leader in the office of school inspections in Estonia explained it to me, “the system of evaluating schools in Estonia is not very strong, and that is one of the best parts of our system.” When I asked him to describe how he knew if there were schools that were having problems, he responded that “someone would call me.” In turn, he reported that the best approach to fix the problem was usually to call someone he knew who also knew the head of the school with the problem. It’s a kind of management by “phoning around” (akin to “management by walking around” made famous by the founders of Hewlett Packard in the US) that reflects the small size of Estonia and the powerful social networks that connect almost everyone. As one of my hosts explained, Estonians believe that everyone in the country is only two phone calls away.
Although many countries provide some support for early childhood education, I was surprised to find that Estonia assures a right to municipally funded early childhood education for each child beginning at the age of one and a half. As a consequence, almost 90% of children between the ages of 3 and 7 (when children begin first grade) are enrolled. As one member of the Ministry commented, this is not “glorified babysitting,” these early education centers have a national curriculum that emphasizes seven aspects of development including the arts, music, movement, language, and mathematics. In the preschool I visited, the students participate in two lessons a day in small groups for guided instruction. Children who speak another language at home also start to learn Estonian as a second language at the age of three; and all those who complete the curriculum receive a school readiness card that documents each child’s development. What’s more, early childhood teachers in Estonia are required to have a Bachelor’s degree in Early Childhood Education, a substantially higher standard than in many other countries, including “high-scorers” like Singapore.
In another surprise, state and municipal support for education extends afterschool as well. Estonia has a whole system of hobby schools and youth work (a legacy from the Soviet system) in which children can participate. In fact, students get funding from their municipality to participate in at least one afterschool activity a week. According to the Standard for Hobby Education, goals include to help young people to develop “into members of society with good coping skills” and to “grant joy in engaging in hobbies.” Hobby schools provide instruction and activities in sports, technology, culture, nature, music or other arts. Like preschools in Estonia, hobby schools can be privately run or run by schools or other organizations. In hobby schools, educators, often university students or others with expertise in a particular subject, work with groups of students on a weekly basis. In one hobby school I visited, physicists and astronomers at a nearby university offered a course in which students participated in the development of a satellite that was eventually launched into space.
While I did see examples of technology use (including programming classes in almost every preschool, elementary, secondary, and hobby school I visited), I was also surprised to hear that the Estonians themselves are unsatisfied with the level of tech integration in schools. According to OECD’s Teaching and Learning International Survey (TALIS) only 29% of Estonian teachers use ICT for students’ projects or class work. Even more surprising, although Estonia has established itself as a world-leader in e-services – offering online voting and the opportunity to register a business online in a matter of minutes – Estonia doesn’t have much of an edtech sector. In fact, when I asked to visit a local edtech company, my Estonian colleagues didn’t know where to look; and when I did connect with one local company (who are developing a platform for teachers to share their work), they told me they weren’t sure whether to tell their investors that they were one of the few edtech companies in Estonia or the only edtech company in Estonia.
Of course, every educational system has problems. In Estonia, in addition to the concerns about the teaching profession, there are serious concerns that instruction remains too traditional and that some students are disengaged or over-stressed. Nonetheless, given Estonia’s educational success, it’s also remarkable to see the number of new initiatives underway designed to continue to move the system forward. These include ongoing efforts to attract new teachers, among them an increase in teachers’ salaries of more than 40% over the last 5 years. The Ministry is also pursuing initiatives to shift the focus of teaching and learning at all levels of education to support the development of eight competences that encompass cognitive and social skills, creativity and entrepreneurship; to create an in-service system for teachers and school leaders to support that focus; and to use digital technologies more effectively and efficiently in the process. The Ministry is also sponsoring efforts to develop assessments for some of these competences that could increase the likelihood that the schools and teachers incorporate them into their curriculum. In fact, five years ago, Estonia changed their high school exit requirements for all students across the country. Now, instead of taking three compulsory exams (Mother Tongue – Estonian or Russian; Foreign Language, and mathematics) and two other subjects of their choosing, all students are required to complete a research project or a “practical project” in order to graduate. Research projects involve conventional studies and research methods such as conducting an experiment in physics or surveying a group of students. Practical projects include organizing a local Olympics or developing a collection of insects for a museum. Both projects are designed to encourage interdisciplinary work as well as promote the development of the eight competencies.
At the end of the day, the story of Estonia’s high and equitable educational performance on international tests may not be that much of a mystery. All students have guaranteed access to elementary and secondary education and to publicly supported early childhood education and afterschool activities. All those learning opportunities are aligned to national curriculum frameworks that emphasize skills in language, mathematics, and science, but support other aspects of development as well. Schools, school leaders, and teachers in Estonia have considerable autonomy, but they also have a relatively small set of aligned textbooks, curriculum materials, national sampling assessments and high-stakes exit exams that help to keep the system focused and on track. The teaching population is aging and instruction may be traditional, but Estonian teachers report less time spent on administrative tasks and on “keeping order” and more time on teaching and learning than those in many other countries. All of this takes place in a small country, where everyone seems to know everyone else. It’s also a country with a population known for hard work and a methodical approach that some of my colleagues here described as a form of “German exactness.” In education, that methodical approach is being applied to goals that are tightly linked to the kinds of activities and outcomes expected on international assessments. (As a former Education Minister in Estonia put it “the exercises used in international surveys that have been made public in the course of previous surveys have been the examples followed by our test and examination writers.”)
In short, the Estonians have developed a coherent and aligned education system that begins in early childhood and extends beyond the regular school day, and they have done it in a place where, less than 30 years ago, basic goods were rationed and it was a luxury to have a telephone. Those of us in the US can’t expect to improve our education system by doing exactly what the Estonians have done with theirs. Policies that work in a country of 1.3 million can’t be simply transferred to 50 states or to large cities in the US. Nonetheless, there are many different ways to create a coherent, focused, and well-supported education system. Policymakers in the US need to understand that enabling widely inequitable educational experiences across communities isn’t one of them.