Photo by Christina Morillo from www.pexels.com
Written by Siti Hajar Auliannisa
Introduction
Estonia has a rich history dating back to the 13th century, and it has adopted innovative approaches that prioritize equal access to high-quality education. The comprehensive system provides free education at all levels and gives schools more autonomy by allowing them to tailor curricula, teaching methods, and administrative decisions.
Education in Estonia is legally free, unless parents choose to send their children to private schools. Early childhood education, basic education, upper secondary education, and higher education are the four levels of education. The structure of the education system allows everyone to progress from one level of education to the next. Furthermore, the Estonian education system is decentralized, with clear divisions of responsibility between the state, local government, and schools. The language of instruction is mainly Estonian, but other languages may be used as stipulated in the legislation.
According to the PISA 2022 educational survey, Estonian 15-year-olds have the absolute best knowledge and skills in Europe and are among the top eight in the world. Among Estonia is ranked first-2nd in mathematics with Switzerland, first in science, and first-2nd in reading with Ireland.
According to PISA, Estonian headmasters and teachers enjoy significant autonomy, ranking the country first among nations for the freedom educators have in designing school curricula and contributing to management decisions.
However, despite the international acclaim for Estonia’s education system, the growing shortage of qualified teachers stands out as a major concern. This issue, highlighted by the survey, is a critical challenge the nation is working to address in the coming years to preserve its educational excellence.
The Scope of the Problem
For over a decade, state statistics and international comparisons have highlighted a troubling trend in Estonia’s teaching workforce, with conditions deteriorating each year. The average age of Estonian teachers is approximately 50, and the proportion of educators aged over 60 has risen from 17% to 24% between 2015 and 2023 (Haridussilm, 2024; OECD, 2020). Meanwhile, the percentage of qualified teachers—those with a teaching certificate and a master’s degree or equivalent—dropped from 87% to 81% in general education schools from 2017 to 2022 (Ministry of Education and Research, 2022).
Additionally, the latest TALIS report (OECD, 2020) shows that 41% of teachers under 35 in Estonia are considering leaving the profession within the next five years, the highest percentage among all TALIS countries. The COVID-19 pandemic exacerbated the situation, with nearly a third more teachers leaving their roles in the 2021-2022 academic year compared to two years prior (Arenguseire Keskus, 2023). These challenges pose a significant threat to the stability of Estonia’s education system.
Underlying Causes of Teacher Shortages
Economic Factors
The teaching profession’s social status, encompassing low salaries and limited societal recognition, serves as a significant deterrent. Across many countries, teachers earn less than professionals with similar qualifications. In Estonia, the average teacher’s salary equates to 92% of the national average salary for specialists with higher education. In 2023, lower secondary teachers earned an average of USD 37,506, which is 24% higher than the starting salary. However, this remains uncompetitive compared to earnings in other fields, making it difficult to retain teachers in the profession.
While salary is not the primary reason individuals pursue teaching, inadequate pay can drive even highly motivated teachers and aspiring educators to leave the field.
Social Perceptions
The position and perception of teachers in Estonia present a paradox: despite producing some of the world’s best educational outcomes, a significant number of teachers report dissatisfaction with their jobs and the level of societal appreciation. Many teachers perceive their own efficacy as low and view societal attitudes toward the teaching profession as overly critical. Consequently, teaching is not a highly attractive career choice for upper secondary school graduates, leading to a workforce that is increasingly feminized and ageing.
Research has also highlighted various personal factors influencing teacher retention. While the impact of gender is mixed, younger and less experienced teachers are more likely to leave the profession. Many young professionals are opting for higher-paying, more flexible career paths outside of teaching. Conversely, teachers with traditional educational qualifications tend to stay in the field longer compared to those who enter through alternative certification programs.
Workload and Burnout
Teacher retention is heavily influenced by well-being and health, with burnout playing a significant role. For those who choose to stay in the profession, the workload can be overwhelming. Estonian teachers juggle extensive administrative duties alongside the challenges of inclusive education and managing diverse classrooms. Additionally, the national curriculum, often criticized for being excessively demanding, exacerbates their workload, leaving limited opportunities for creativity or personal development.
Impact of Teacher Shortages
On students
Teacher shortages have a profound impact on students’ education, causing disruptions in learning, reducing opportunities, and hindering academic success. The absence of qualified teachers often results in increased reliance on substitute educators or larger class sizes, which disrupt the continuity of instruction and negatively affect students’ understanding of the material.
Moreover, schools facing teacher shortages may be forced to cancel advanced or specialized courses, such as higher-level mathematics or science, limiting students’ academic opportunities and preparation for higher education. Research also suggests that teacher shortages contribute to lower academic performance, as larger class sizes and less qualified instructors may struggle to meet the varied learning needs of students effectively.
On teachers
The decentralized structure of Estonia’s education system adds another layer of complexity. While schools and municipalities enjoy considerable autonomy, this flexibility has led to difficulties in resource distribution, long-term planning, and addressing the specific needs of individual schools. Local municipalities, in particular, often struggle to offer adequate support for teachers, which increases their stress and workload, further aggravating the teacher shortage. Although teacher training programs are theoretically robust, they often fall short in providing enough practical experience, leaving new educators unprepared for the challenges of classroom management and inclusive education. Consequently, many teachers either leave the profession early or decide against entering it altogether, intensifying the shortage.
On the Education System
The National Audit Office highlights that the shortage of adequately qualified teachers undermines the quality of general education. Their analysis reveals that in the context of teacher shortages, lessons in natural and exact sciences are often taught by teachers from other subjects or “career switchers.” While these teachers may hold the required master’s degree and teaching qualification, they often lack the specific training needed for the subjects they teach. The profession’s reputation has been further damaged by negative media portrayals and the increasing practice of employing unqualified individuals, making recruitment even more difficult.
Etonia’s Efforts to Address the Issue
Rethinking teacher schedules, Professional Learning, and Leadership
Estonia is actively reimagining the teaching profession, exploring innovative approaches to school organization that prioritize more flexible schedules for teachers, relevant professional development, and enhanced teacher leadership. These strategies align with calls for similar changes in the U.S. as well.
Diversifying the Teacher Pool
Estonia is working to diversify its teacher workforce by attracting individuals pursuing second careers and offering part-time positions for professionals from other fields.
Modernizing Teacher Education Programs
The reforms are extending beyond the classroom to teacher education, with preparation programs experimenting with “learn on the job” training and emphasizing the use of digital tools to improve learning and tailor education to students’ needs. Additionally, teacher education students are taking on new roles to assist classroom teachers while gaining valuable learning experiences from them.
Increasing Teacher Salaries
Like many other regions, Estonia analyzed teacher salaries and determined that stronger financial incentives were necessary to attract and retain educators. From 2016 to 2020, teacher salaries increased by approximately 40%, and this year, the Education Minister pledged to raise salaries to 120% of the average wage in Estonia by 2023. Additionally, new teachers are offered bonuses to take positions in underserved rural areas.
Conclusion
In conclusion, while Estonia’s education system continues to excel globally, the persistent teacher shortages pose a critical challenge to maintaining its high standards. The root causes, including aging educators, low salaries, societal perceptions, and burnout, demand immediate attention. The nation’s efforts to address these issues—through increased salaries, modernized teacher training, diversified recruitment, and innovative school organization—show promise, but more comprehensive strategies and sustained investment are necessary. Without a robust and well-supported teaching workforce, Estonia risks compromising the very foundation of its educational success and the future development of its students.
References
Arenguseire Keskus. “The Future for the Next Generation of Teachers: Trends and Scenarios up to 2040.” November 15, 2024. https://arenguseire.ee/en/reports/the-future-for-the-next-generation-of-teachers-trends-and-scenarios-up-to-2040/.
Estonian News. “Shortage of Qualified Teachers Is Greater in Estonia Than Previously Thought.” January 26, 2024. https://news.postimees.ee/7947387/shortage-of-qualified-teachers-is-greater-in-estonia-than-previously-thought.
European Commission. “National Reforms in School Education—Estonia.” Eurydice. Last updated March 29, 2023. https://eurydice.eacea.ec.europa.eu/national-education-systems/estonia/national-reforms-general-school-education.
Eva Toome. “PISA 2022: Estonia Consistently Among the World’s Best.” Education Estonia, September 10, 2024. https://www.educationestonia.org/estonias-pisa-2022-results-consistently-among-the-worlds-best/.
Gorard, Stephen, Mark Ledger, Beng Huat See, and Rebecca Morris. “What Are the Key Predictors of International Teacher Shortages?” Research Papers in Education, October 23, 2024, 1–28. https://doi.org/10.1080/02671522.2024.2414427.
Haridussilm. “Teachers.” Accessed January 11, 2025. https://www.haridussilm.ee/ee/tasemeharidus/haridustootajad/opetajad.
Ministry of Education and Research. “Haridus- ja Teadusministeeriumi 2022. aasta tulemusar-uande analüütiline lisa” [Analytical Annex to the Ministry of Education and Research Performance Report 2022]. 2022. https://www.hm.ee/sites/default/files/documents/2023-08/2022_TA_anal%C3%BC%C3%BCtiline_lisa.pdf.
NCEE. “How Estonia Is Addressing Its Teacher Shortage.” January 20, 2022. https://ncee.org/quick-read/how-estonia-is-addressing-its-teacher-shortage/.
OECD. TALIS 2018 Results (Volume II): Teachers and School Leaders as Valued Professionals. Paris: OECD Publishing, 2020.
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