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Chapter 1. School Education in Portugal

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Chapter 1. School Education in Portugal 1. SCHOOL EDUCATION IN PORTUGAL │ 39 Chapter 1. School education in Portugal This chapter presents an overview of the political, economic and demographic context of Portugal. It also provides a brief description of structures and trends in the Portuguese school system for international readers. Portugal is a small open economy, on the westernmost edge of continental Europe. Following the late democratisation of its institutions in the 1970s, the country widened access to education with compelling results. While prior to the democratic revolution 25% of the population did not know how to write or read, by 2016 almost half the working-age population had at least completed upper secondary education. The efforts have ensured universal access to school and also clear improvements in quality. The Portuguese education system witnessed the largest improvement in 15-year-olds’ scientific literacy among OECD countries between 2006 and 2015. Still, important challenges remain. Political reforms in the country prioritise greater delegation of responsibilities to municipalities and decision-making autonomy at the school level. Building capacity for a smooth delegation of authority over school resources is crucial. Despite expanded access, substantial equity concerns exist in the provision of schooling. Large proportions of students repeat years, school attainment does not consistently produce labour market success and students’ socio-economic backgrounds still strongly influence their level of school attainment. Finally, high dropout rates and regional disparities hinder the effectiveness of the Portuguese education system. The statistical data for Israel are supplied by and under the responsibility of the relevant Israeli authorities. The use of such data by the OECD is without prejudice to the status of the Golan Heights, East Jerusalem and Israeli settlements in the West Bank under the terms of international law. OECD REVIEWS OF SCHOOL RESOURCES: PORTUGAL 2018 © OECD 2018 40 │ 1. SCHOOL EDUCATION IN PORTUGAL Economic and social context Portugal is situated on the Iberian Peninsula, in southwest Europe. Most of its territory faces or is surrounded by the Atlantic Ocean. Its 92 225 square kilometres include a mainland and two autonomous regions: Azores – comprising nine volcanic islands – and Madeira – comprising three main islands and several islets. Continental Portugal shares its northern and eastern borders with Spain and includes a coastline that extends for 2 601 km. Portugal has 10.3 million inhabitants. Most of these (53%) live in predominately urban areas, making it the 9th most urbanised country in the OECD (OECD, 2016[1]). The country has two metropolitan areas: the capital Lisbon (2.8 million inhabitants) and the city of Porto (1.7 million inhabitants), both on the country’s coast. Portugal is a democratic nation. Its current political regime emerged from a non-violent military coup, on the 25th of April of 1974, effectively replacing the previous authoritarian system. The New State (Estado Novo) lasted for 41 years, one of the longest dictatorial regimes in Western Europe during the 20th century. Education policy in the country is deeply shaped by the late democratisation of its political institutions, which underlies several of the challenges still found in the education system. More recently, economic constraints, demographic trends and aspirations for government decentralisation have influenced education policy priorities in the country. A complex yet centralised governance system Portugal is a semi-presidential republic, which joined the European Union (EU) in 1986. The Constitution of the Portuguese Republic (1976) governs the separation of powers into the legislative (the Assembly of the Republic), the executive (the Government) and the judiciary (the Constitutional Court as well as Administrative, Civil and Criminal Courts) branches. The President of the Republic – elected every five years – is the State’s Chief, whose duties are to represent the country, as well as supervise and guarantee the regular functioning of democratic institutions. The President is also vested with the responsibility of commanding the Armed Forces, approving or vetoing legislation and nominating the Prime Minister, after approval of the Assembly of the Republic. The Assembly of the Republic is the national parliament, composed of 230 members who are elected by popular vote every 4 years. The executive power in Portugal is shared across three administrative tiers: central, regional and local. The central government is divided into executive departments headed by their respective ministers who are nominated by the Prime Minister. The local level is sub-divided in 308 municipalities (concelhos) and 3 091 civil parishes (freguesias). Each municipality has executive and deliberative representation. The Municipal Chamber, composed of a President – the mayor – and other elected members (vereadores) acts as the executive body, whereas the Municipal Assembly supervises all municipal activity. At the sub-municipal level, civil parishes are governed by a Council (junta de freguesia) and an Assembly. Regional level organisation is rather unusual. The Portuguese Constitution established a political division of Portugal into two Autonomous Regions (Azores and Madeira) and 18 districts on the Continent. However, no formal regional administration exists on the Continent. Supra-municipal administration is generally provided by such entities as Metropolitan Areas, Regional Co-ordination and Development Commissions (Comissões de Coordenação e Desenvolvimento Regional – CCDRs) or inter-municipal communities (comunidades intermunicipais – CIMs), which often have intertwining and overlapping functions.1 Most regional approaches are related to the use of EU Structural and Investment Funds, put forth in the Partnership Agreement with the EU for 2014-20 OECD REVIEWS OF SCHOOL RESOURCES: PORTUGAL 2018 © OECD 2018 1. SCHOOL EDUCATION IN PORTUGAL │ 41 2 (OECD, 2016[1]). The five territorial units in continental Portugal – and to which the Review will refer – are the North (Norte), Centre (Centro), Lisbon Metropolitan Area (Área Metropolitana de Lisboa), Alentejo and Algarve (NUTS II). The review also often uses NUTS III regions – subdivisions within the larger NUTS II regions and coincident with the division into inter-municipal communities and metropolitan areas – to conduct regional analyses (see Figure 1.1). Figure 1.1. Map of continental Portugal NUTS II and III regions Norte Centro Área Metro. de Lisboa Alentejo Algarve 0 40 80 160 Kilometers Source of administrative boundaries: Direção-Geral do Território (2016), Official Administrative Maps of Portugal - Version 2016 [Carta Administrativa Oficial de Portugal - Versão 2016], http://www.dgterritorio.pt /cartografia_e_geodesia/cartografia/carta_administrativa_oficial_de_portugal_caop_/caop__download_/carta _administrativa_oficial_de_portugal___versao_2016/ (accessed on 8 December 2017). Despite its complex administrative division, public governance in Portugal is relatively centralised. Given its low share of subnational spending (11.8%), Portugal is the 6th most centralised country in the OECD. Tax revenue at subnational levels is only 9.8% of central government expenditures, which compares to a significantly higher average share of 31.6% across OECD countries (Figure 1.2). Local level governmental fragmentation is also below most OECD countries, with an average of three municipalities per 100 000 inhabitants (OECD, 2016[1]). Most strategic decisions are executed by the central government, according to the annual state budget. The education system is no exception. Decisions on hiring and distribution of human OECD REVIEWS OF SCHOOL RESOURCES: PORTUGAL 2018 © OECD 2018 42 │ 1. SCHOOL EDUCATION IN PORTUGAL resources across schools, teachers’ compensation or total schools’ budget are all made at the central level of administration (see Chapters 3 and 4). Figure 1.2. Subnational role in public finance by category As a percentage of central government expenditures Portugal, 2014 OECD, 2014 Portugal, 1995 OECD, 1995 % 70 60 50 40 63.2 30 58.8 49.8 45.9 20 40.2 31.6 27.5 10 19.8 17.4 11.8 9.8 5.1 0 Expenditure Staff expenditure Public procurement Direct investment Tax revenue Debt Source: OECD (2016), “Country note on Portugal”, in Regional Outlook 2016: Productive Regions for Inclusive Societies, http://www.oecd.org/cfe/regional-policy/regional-outlook-2016-portugal.pdf. Notwithstanding, Portugal is in the midst of a long-term and multi-sector process of decentralisation. Central authorities have gradually sought to promote the delegation of funding and management of responsibilities to subnational levels of governance. The education sector has been one of the spearheads of this process. Successive governments have transferred to municipalities the management of non-teaching staff, school buildings, the provision of extracurricular activities and school transportation. In 2015, selected municipalities signed delegation contracts to provide autonomy in the distribution of all types of school funding, except for teachers’ salaries. The pilot project is targeted at assessing the capacity of those 14 municipalities to manage the funds provided and evaluating the potential to scale up this localised control to the rest of the country. The economy is recovering from a deep recession Portugal is a small open economy. It exports about 40.6% of its production, mainly machinery, transportation equipment and textiles. Labour
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