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Raising achievement in mathematics – a Europe-wide challenge

A decline in basic skills is emerging among students across the EU, posing serious challenges to both equity and excellence in education.
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The latest OECD Programme for International Student Assessment (PISA) 2022 results reveal a significant increase in underachievement compared to PISA 2018 – alarmingly, nearly 30% of EU students struggle with mathematics. This places the EU further from its 2030 goal to reduce underachievement to 15%.

Only 8% of 15-year-old students excel in mathematics, a decline from previous PISA studies.  The situation is no better in primary schools. The Trends in International Mathematics and Science Study (TIMSS) 2023 shows that a large proportion of 10-year-olds struggle with mathematics, while too few reach high competence levels.

Socioeconomic background remains a key factor in mathematics performance at all ages, highlighting persistent inequalities in education. Addressing these challenges will ensure a brighter future for Europe’s students. So, what is the response to this situation from national education systems and the EU institutions?

 

National learning support frameworks

A 2022 Eurydice report explored how European education systems support students facing learning difficulties in mathematics, primarily focusing on assessment mechanisms and learning support measures.

  • Most systems identify low achievers through ongoing evaluation, testing and grading by teachers.
  • A minority also use national competence-based tests, which can be compulsory or recommended.
  • Governmental authorities play key roles in ensuring learning support; most require schools to assist low-achieving students.
  • About half of the systems offer broad guidelines, giving schools flexibility in choosing support measures.
  • A quarter provide detailed frameworks.
  • Another quarter leaves decisions to local authorities or schools.

 

Learning support frameworks typically address general difficulties rather than subject-specific issues. However, some systems have specific provisions for mathematics. The most common support strategies include one-to-one or small-group tutoring, peer mentoring and summer schools. Differentiated teaching is also used, although its implementation varies between countries.

 

European strategies to support all students

At EU level, the 2022 Pathways to School Success initiative aims to tackle rising underachievement across the EU. It urges countries to adopt a systemic approach, addressing academic struggles while promoting well-being, preventing bullying and early school leaving and fostering a positive learning environment. Comprehensive national strategies should focus on prevention, intervention and support at all education levels. Special attention should be given to at-risk students, ensuring tailored support in inclusive settings.

Finally, improving data collection and monitoring at all levels would help track progress and refine policies. These steps are crucial to creating more equitable and effective education systems.

Building on the Pathways initiative, this month the European Commission adopted a Basic Skills Action Plan (as part of the Union of Skills strategy)  to step up support for basic skills enhancement at school level, including in mathematics.

 

Further reading

Additional information

  • Education type:
    School Education
  • Target audience:
    Teacher
    Student Teacher
    Head Teacher / Principal
    Pedagogical Adviser
    Teacher Educator
    Researcher
  • Target audience ISCED:
    Primary education (ISCED 1)
    Lower secondary education (ISCED 2)

About the authors

Photo of Marco Montanari
Marco Montanari

Marco Montanari is an economic analyst working in the area of investment and evidence-based policy in education at the Directorate-General for Education, Youth, Sport and Culture of the European Commission. He has held several positions at the European Commission, including as a country desk for Italy at the Directorate-General for Economic and Financial Affairs and as team leader for the future of education and work at the Joint Research Centre. Before joining the European Commission he worked as a researcher in European economic integration at the University of Modena and Reggio Emilia (Italy). He holds a PhD in economics from the University of Bologna (Italy) and an MSc in European studies from the London School of Economics and Political Science (UK). He has published several international academic journal articles in the field of European political economy.

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