White Book of Reforms 2025. Chapter 13. Reforms in education and science

Previously, secondary school only extended to the eleventh grade, but there have been two attempts to transition to a 12-year system of education. The first was in 2002, but the reform was rolled back in 2010. Starting in 2017, students enrolled in the New Ukrainian School program will study for 12 years. Since 2000, Ukrainian schools switched from a five-point to a twelve-point grading scale, which greatly reduced the number of students who had to repeat a year of study. Another major change was the introduction of External Independent Testing (EIT) to administer final exams in 2006; the results of these exams have been used for university admissions since 2008. This reform helped reduce admission-related corruption in education.

Higher education institutions have also significantly changed. In 2005, Ukraine joined the Bologna Process and thus modified the student assessment system and divided higher education into bachelor’s (4 years) and master’s (5.5 or 6 years) degrees (instead of the 5-year specialist degree from the Soviet era). Since 2014, universities have gained more autonomy in developing curricula and determining forms of education. In 2019, the government began financing universities based on the quality of education rather than the number of students, while the Ministry of Education and Science recently introduced educational grants to enhance the “the money follows the student” principle. This step is expected to increase competition among higher education institutions and encourage them to improve the quality of education.

External shocks have negatively impacted the quality of education in Ukraine. In 2020, COVID-19 lockdowns forced a shift to online learning, adversely affecting the quality of education and the socialization of students. This negative trend of remote learning was further exacerbated by Russia’s full-scale invasion in 2022. As a result, many Ukrainian students have been unable to return to full-time in-person learning for almost five years, which has negatively affected their academic performance. According to the PISA-2022 results, Ukrainian students tested lower on mathematical, reading, and scientific literacy than the OECD average, and lower than in the PISA-2018.

Despite the government’s attempts to reform the education system since 1991, the most significant and comprehensive reforms began after the Revolution of Dignity. Let’s take a closer look at these reforms.

Reforms of 2014-2019

Secondary Education

Inequality between rural and urban schools is a significant problem in Ukraine’s education system, highlighted by the substantial differences in learning outcomes between them. Small rural schools typically suffer from a lack of teachers, equipment, and opportunities for socialization, which negatively affects the quality of education. According to the PISA-2018 study, 15-year-old students in large cities have significantly higher academic competencies than their peers from small schools, with similar results reported in the PISA-2022 study. This is also visible in the poorer EIT results of rural high school graduates.

To provide children in rural areas with access to quality education, the government began creating a network of hub schools with at least 200 students, to which students from smaller schools can be transferred. This approach ensures adequate socialization of children and provides schools with the necessary staff and material and technical resources. Moreover, it allows for lower per-student costs. The money saved can then be used to purchase school buses, computers, or textbooks and increase teachers’ salaries. Simultaneously, the government stopped funding schools with fewer than 25 students, encouraging communities to transfer students to hub schools. Local authorities can choose to maintain small schools at their own expense or to keep only primary schools as branches of a hub school.

In March 2017, there were 178 hub schools in Ukraine; by early 2021, their number had increased to 1,033, and in January 2023, to 1,599 (of which 446 operated offline, 376 online only, and the rest in a hybrid mode). As shown in Figure 13.2, the share of small schools has declined.

A major reform that modernized the content of educational activities in all secondary schools was the introduction of the New Ukrainian School (NUS). The reform is being gradually deployed to educational institutions: in the 2017/18 academic year, the first grades of 100 pilot schools adopted the new system; starting in the 2018/19 academic year, all first graders began their studies under NUS, and in 2024, the original cohort of NUS students entered the seventh grade. The main idea behind NUS is a shift towards competency-based learning, as well as the development of creative abilities and social skills. It modified the educational format so that instead of merely listening to the teacher, students predominantly engage in practical tasks, discussions, and group work.

NUS standards imply the development of inclusive education. Previously, children with special needs either studied in specialized schools or were homeschooled. After the reform, all secondary schools began providing the necessary conditions for children with special needs to learn alongside their peers. By the end of 2023, the number of inclusive classes (groups of about 20-40 children) in schools exceeded 29,000 (Figure 13.3), which accounts for about 21% of all classes. Over 40,000 students with special educational needs were studying in these classes, accounting for about 80% of all students with special needs.

NUS standards also involve a new approach to student assessment: now, the teacher evaluates the student’s learning process, not just testing outcomes. Instead of traditional report cards, primary school students receive a certificate of achievement, with grades only known by students, their parents, and the teacher. This confidentiality aims to reduce unhealthy competition among students and prevent bullying.

Several years after the reversal of educational reform in 2010, schooling was again extended to a 12-year system to increase student opportunities for professional development. The first cohort of NUS students will study in separate institutions called lyceums from grades 10 to 12 and are expected to graduate in 2029. Currently, the vast majority of lyceums include not only upper grades but also middle and primary grades (see Figure 13.4).

A. Number of institutions 

B. Number of students

The NUS envisions changes in approaches to the education of teachers. To ensure that teachers’ competencies align with the new secondary education standards, the government provided more opportunities for their professional development. A previous requirement to attend centralized qualification courses every five years has been replaced with the opportunity for teachers to freely choose their professional development courses. Overall, a teacher must study for 150 hours over five years, with at least 10% of the total hours focused on enhancing skills in psychological support and at least 10% on inclusive education.

The procedures for appointing heads of educational institutions have also changed. In 2015, transparent competitions for positions of school principals were introduced to improve school management quality. 

Vocational Education

The reform of vocational education and training (VET) began in 2016. At that time, the government implemented a patchwork of changes to improve management approaches in vocational education institutions to increase their financial independence and appeal to students. However, this did not lead to an increase in the number of applications to VET institutions (Figure 13.5).

It was not until the summer of 2019 that Parliament passed the law on professional pre-higher education to comprehensively address problems in this sector. The law introduced corporate governance in vocational institutions, requiring the establishment of supervisory boards to oversee their expenditures and operations. The heads of these institutions will be appointed based on voting by their staff and hold their positions for no longer than a five-year term.

Rules for funding these institutions also changed: state subventions will only cover the provision of general secondary education and training in certain specialties. Vocational institutions will be able to attract additional funding through grants or revenues from providing paid educational services. As a result, vocational institutions are now open to adults (including for fee-paid programs), not just recent school graduates. Adults will be able to upgrade their skills in their current profession, acquire new skills, or completely change their field of work.

Higher Education

The main goal for higher education reform is to increase the independence and financial sustainability of higher education institutions (HEIs) so that they can provide quality educational services. To achieve this, a new law “On Higher Education” was adopted in 2014, introducing several innovations in this field. HEIs gained greater academic and organizational autonomy, allowing universities to independently determine their development plans, the content of educational programs, and matters of internal organization.

The 2014 law introduced a new approach to distributing public-funded places (i.e. the number of students financed by the state budget) among HEIs: more public-funded places are allocated to universities that receive more applications and admit students with higher EIT scores. The scholarship system also changed. Previously, all students who successfully passed their exams were eligible for scholarships, but since 2016, only students with the top 45% GPA are eligible. The state also provides social scholarships for students from vulnerable groups. Thus, the 2014 reform introduced elements of competition for both universities and students, which is expected to improve the quality of education.

Given the previous culture of dishonest admissions (e.g., bribes or cheating at exams), the higher education reform also addressed transparency in the admissions process. Since 2008, EIT results have been a mandatory requirement for university admission, reducing corruption in entrance exams and ensuring an equal playing field for applicants. The independent testing system had to be modified due to the full-scale invasion, and applicants now digitally take the National Multi-subject Test (NMT) on three subjects. Although the structure of the exam and the number of questions have changed, the fair and competitive selection of future students has been preserved.

Since the EIT proved successful for admission to BA programs, this practice was extended to master’s programs. Mirroring the structure of the EIT, the Unified Professional Entrance Exam (UPEE) was introduced for admission to MA programs in law, social sciences, humanities, journalism, and international relations.

Since 2014, the government has continued to reform the bachelor’s admission process by developing an electronic admission system. Applicants can now participate in the competitive selection process at multiple universities by submitting their documents through an electronic applicant portal (before that, they could only submit paper documents to the admission commission). This has increased the options available to prospective students, improved their chances for admission and financing of their education by the state. The applicant portal is supported by the Unified State Electronic Database on Education (USEDE), which stores all EIT results and admission campaign outcomes since 2014. This database enables researchers and policymakers to evaluate the impact of interventions and adjust policies accordingly.

A different admission procedure was in place for students from temporarily occupied territories (TOTs). In 2016, the Ukrainian government introduced quotas and benefits for TOT applicants to enter Ukrainian higher education institutions, providing them with opportunities to complete their schooling remotely. Applicants from Crimea could apply to designated institutions through a simplified procedure via educational centers. These institutions had a special quota-2 allowing those who had not taken the EIT to enroll based on the results of an internal university exam. Children from the temporarily occupied territories of the Donetsk and Luhansk regions could only enroll under a simplified procedure in universities in the Donetsk and Luhansk regions or relocated educational institutions. Unlike Crimean applicants, they did not have a separate quota and participated in the general competition. This approach is in line with the de-occupation strategy aimed at integrating youth from occupied territories into the Ukrainian context.

The National Agency for Quality Assurance in Higher Education (NAQA) was established in 2015 to enhance transparency and reduce corruption. It took over the regulatory and oversight functions of the Ministry of Education and Science, replacing the Higher Attestation Commission and the State Accreditation Commission. NAQA was created as an external, impartial body overseeing higher education, with the authority to accredit educational programs and ensure compliance with education standards. Members of the Agency are selected through an open competition including employers, students, educators, and researchers, adhering to the principle of representation.

Science 

In 2015, Parliament passed a new law “On Science” to reform Ukraine’s research and innovation sector. Among other things, the law created the National Research Foundation, which began funding scientific projects on a competitive basis. The Scientific Committee for coordination of science and innovation policies established in 2017 acts as the Foundation’s Supervisory Board and advises the government on scientific policies. Since 2017, directors of scientific/ research institutions are elected competitively.

Updated legislation has enabled the fight against academic dishonesty. In 2016, the government established the National Repository of Academic Texts, significantly simplifying the process of checking dissertations and other publications for plagiarism. 

After 2019

Preschool Education 

Since the launch of the New Ukrainian School (NUS), the government has increased its focus on the preschool education system. PISA study results have shown that children attending preschool institutions achieve better learning and development outcomes. Therefore, to ensure high-quality secondary education, it is necessary to update the formats and content of preschool education so that children are better prepared for the school. One priority of educational reform is to create a system for every child to receive a high-quality, modern preschool education that considers their individual needs.

Until 2024, the government implemented a patchwork of changes aimed at improving preschool education, such as introducing an electronic enrollment queue and easing requirements for daycare facilities and staff. A comprehensive change came with the adoption of the new law on preschool education in June 2024. This law guarantees every child access to preschool education in municipal institutions, mandates that kindergartens be inclusive for children with disabilities, and formalizes some existing forms of preschool education, such as preschooler development centers. Additionally, the law on the use of the English language in Ukraine mandates that English be taught in kindergartens starting in 2026.

However, implementing these changes will require additional funding — from increasing salaries for educators to constructing new childcare facilities — as the shortage of kindergartens remains a major issue in cities (Figure 13.6).

A. Urban areas

B. Rural areas

Secondary Education 

The new government and Parliament, which began their work in the fall of 2019, continued the NUS reform. In 2020, a new law on secondary education was adopted, reinforcing previous efforts to ensure equal access to quality education that is geographically accessible, inclusive, and provides non-competitive enrollment in primary school. Legislators included the possibility of forming individual educational trajectories to ensure effective approaches for every student. This means that students will be able to select certain subjects and educational formats, and manage the amount of time required to master the material according to their abilities and needs. This approach will help ensure a proper education for students with special needs, those studying at home, or those undergoing medical treatment. Currently, individual educational trajectories are not available in every school, but once the NUS reform is fully implemented, this option will be available to everyone.

The new law establishes a three-tier structure for secondary education: primary school (grades 1-4), basic secondary school (grades 5-9), and specialized secondary school (grades 10-12). The latter will have a status of either an academic or a professional lyceum. In upper secondary school, students will be able to choose either to continue their studies in an academic lyceum and focus on subjects needed for university admission, or enroll into a technical lyceum where they will train for a profession while completing their secondary education. Regardless of the path they choose, students will retain the right to apply to higher education institutions in the future.

Despite the notable successes of the NUS at the primary school level so far, the full implementation of the reform is under threat due to external challenges. First, the COVID-19 pandemic forced schools to switch to remote learning, slowing down the reform’s implementation due to unequal access to technology, varying levels of digital skills among students and teachers, and difficulties in organizing the learning process. The situation worsened following the full-scale invasion, which led to the destruction of school infrastructure (one in seven schools in Ukraine have been damaged by Russia) and resulted in large-scale displacement and emigration of students and teachers.

Under these conditions, ensuring equal access to quality schooling for children has become a challenge for the entire education system. In 2022, the government canceled targeted educational subventions, resulting in the NUS losing adequate funding, teachers being unable to improve their qualifications, and textbooks not meeting the new standards. In September 2023, the government restored funding and initiated a “reboot” of the NUS reform, renewing hope for its full implementation.

Vocational Education

Even before the full-scale invasion in 2022, the Ukrainian labour market was experiencing a shortage of specialists, particularly blue-collar workers. Today, the gap between workers’ skills and employers’ needs has widened. Therefore, it is necessary to accelerate the reform of vocational education and adult learning.

The vocational education sector is still governed by the 1998 law (with amendments). Thus, Parliament must comprehensively update the legislation on vocational education (a new draft law was presented by the Ministry of Education and Science in April 2024). The legislation on the adult education system must be adopted as well (the relevant draft law has only passed the first reading).

Some steps in this direction have already been taken: in 2021, the government approved a new competency-based standard for vocational education; in 2022, it allowed students to receive vocational education free of charge for a second time; and in 2023, it expanded educational benefits for those released from Russian captivity and their children, veterans, and unemployed individuals. The last two categories will receive educational vouchers, while the first will receive subsidized loans or grants.

As early as 2019, the National Qualifications Agency began harmonizing the Ukrainian Qualifications Framework for lifelong learning with the European framework. Qualification centers at vocational education institutions will be able to validate qualifications acquired abroad or through non-formal (certificate programs, training workshops, courses with tutor support without state license) and informal (self-organized learning) education. This approach means that individuals do not need to spend time re-studying for the sake of a diploma if their current level of qualification enables them to perform required tasks on the job. 

To adapt educational programs to labour market conditions and reduce unemployment, the government approved the concept of dual education in 2019 and launched pilot projects in this area. Dual education helps build connections between students and employers during their studies. Under this approach, 25% to 50% of vocational education credits are earned directly at the workplace.

According to the Ministry of Education and Science, as of early January 2023, 27% of vocational education institutions operated under the dual education system, teaching over 10,000 students (5% of their total number). Students working at enterprises are paid according to a tripartite agreement between the employer, the student, and the educational institution. Half of the earned income goes toward developing the institution’s material and technical resources. 

In 2023, the Ministry of Education and Science approved the framework regulation on dual education, which defines the participants in the process and outlines the distribution of responsibilities among them. However, employers remain skeptical of this form of education, preferring to hire adult employees who have completed their education rather than students still acquiring their qualifications. Although organizing the learning process requires effort from both educational institutions and employers, this form of cooperation offers a potential solution to the shortage of workers. In our view, educational institutions should intensify their engagement with businesses, clarifying the mechanism and benefits of such cooperation.

Higher Education

In parallel with the reform of secondary and vocational education, the government has continued the reform of higher education. Significant changes in this area focused on improving the systems of management and funding for HEIs.

The approach of funding universities based on the number of students does not incentivize the improvement of education quality. Under such a system, HEIs are reluctant to expel underperforming students, which lowers the average quality of graduates (in 2019, 40% of employers reported significant skill gaps among employees that hindered achievement of business goals). The government introduced formula-based funding for HEIs in December 2019 to address this issue. This formula of budget funds allocation includes not only the number of students but also the size of the university, its scientific and international performance, and the employment of its graduates. 

Formula-based funding eliminates the requirement for a fixed ratio between the number of lecturers and students, granting institutions more autonomy in using funds (e.g., enabling the reallocation of resources between research and teaching). This approach aims to encourage HEIs to focus more on the quality of education and incentivize smaller universities to merge with larger ones. Merged universities can offer students a wider range of study programs, create interdisciplinary programs, and save on administrative costs.

In 2022, with the onset of the full-scale war, the government reverted to funding HEIs based on the number of students, probably due to an overall budget deficit. The Ministry of Education and Science reinstated the formula-based approach in 2024.

In 2020, the government raised tuition fees for students who pay for themselves in HEIs to cover the actual cost of education, as universities were previously subsidizing these students using state budget funds. This change allowed educational institutions to allocate more funds towards updating material and technical resources and increasing professors’ salaries. However, this change was reversed in 2022. Moreover, with the start of the full-scale war, many fee-paying students lost the ability to pay for their education. Initially, payments were deferred or academic leaves were granted, and eventually, students living in combat zones were allowed to study for state-budget funds. In 2024, the government launched a program allowing fee-paying students with high grades to receive state grants for their education. 

In 2020, Parliament updated the law “On Higher Education” introducing key performance indicators (KPIs) for university rectors. The procedure for electing rectors was also improved by introducing a second round and a candidate vetting procedure. The law simplified licensing requirements for “unregulated” professions and made them more stringent for regulated ones (such as lawyers, doctors, engineers or military — 28 out of over 100 specialties). Regulated professions imply greater responsibility, justifying stricter requirements for the education and training of these specialists.

In line with this logic, the government tried to raise the quality of medical education. Since 2017, only those who score at least 150 out of 200 on the EIT can participate in the competition for admission to medical specialties. Additionally, attempts were made to introduce international external exams such as the IFOM for graduates of medical institutions, as the Ukrainian exams for medical students (KROK) likely were not entirely fair. However, after a pilot test in 2019, this reform was discontinued. 

One of the reform priorities is aligning with European standards and approaches to the organization of higher education. To this end, in 2021, the Ministry of Education and Science updated the system of academic degrees and procedures for awarding them according to European models. Now, Ukraine awards a single Doctor of Philosophy or Doctor of Arts degree instead of the former Candidate and Doctor of Sciences degrees. The Doctor of Philosophy degree is awarded based on the successful public defense of a dissertation, while the Doctor of Arts is awarded based on the public defense of a creative art project. Furthermore, an academic degree cannot be awarded if plagiarism is found in the dissertation. To combat academic dishonesty among researchers more effectively, the law stipulates that penalties for plagiarism in a defended work can also be imposed on the supervisor, the specialized academic council, official opponents, and the higher education institution or organization where the defense took place.

In 2023, lawmakers once again amended the law on NAQA to align it with European practices. They introduced an appeals procedure for decisions made by the Agency and established oversight of universities’ implementation of recommendations made during the accreditation process. Additionally, the government increased the transparency of the state certification process for higher education institutions and research organizations. The new procedure is expected to encourage these institutions to improve the quality of their scientific work.

In 2024, at the EU request, Ukraine expanded opportunities for education in national minority languages, provided they are EU languages. Private higher education institutions may offer instruction in these languages, but Ukrainian must also be taught as a separate course. 

The same year, the law on individual educational trajectories was adopted. First, it simplifies the recognition of learning outcomes gained through academic mobility programs and informal or non-formal education. Second, it allows students to independently determine the duration and cost of their education: they may complete a bachelor’s program more quickly or slowly than the standard 4 years (this option will be available after the martial law is lifted). Students will also be able to enroll in interdisciplinary programs to study a universal curriculum in the first year rather than having to select a specialization (major) right away. These approaches give students more freedom and align Ukrainian education with international practices.

The full-scale war had a significant impact on higher education. In addition to changes in funding approaches, the Ministry of Education and Science had to replace the EIT with the National Multi-subject Test conducted online. For master’s programs, the Unified Professional Entrance Exam (UPEE) and the foreign language test were replaced with the Master’s Test of Educational Competence and the Master’s Comprehensive Test. However, today universities have returned to the pre-2022 test format for MA programs.

In 2024, independent testing became mandatory for admission to graduate programs, aiming to close a loophole used to avoid military mobilization (Figure 13.7 suggests that some individuals are using doctoral studies for this purpose). Today, prospective PhD candidates must pass the Unified Entrance Exam (UEE) and the General Educational Competence Test (GECT), with a minimum GECT score 160 out of 200. Only those who meet this minimum score are allowed to take internal exams at HEIs. Under the new rules, only those studying full-time in state-funded programs will be eligible for deferment from military service. The government aims to close loopholes for draft dodgers, but this measure also infringes on the right to education for individuals willing to study at their own expense.

In 2020, the government updated the admission procedure for applicants from temporarily occupied territories (TOT). All universities were required to introduce quotas for these applicants to be admitted without an EIT score. To facilitate admission through a simplified procedure, all universities had to establish “Crimea-Ukraine” and “Donbas-Ukraine” educational centers. Experts from the Reform Index rated this law negatively, as it creates opportunities for corruption and could lower overall standards for applicants. A better solution would be to enroll children from TOT in state-funded preparatory courses to help them pass the EIT (or NMT) and apply under the general conditions.

Currently, Ukrainians who received education in the occupied territories can confirm their level of knowledge through certification. At the higher education level, no more than 75% of total ECTS (European Credit Transfer System) credits earned can be confirmed. Education from TOTs will not be recognized for a number of professions specified by the government. 

Science

Reforms in science aim to encourage Ukrainian scientists to collaborate with their European counterparts. In 2019, the National Scientific Information System (URIS) was introduced, containing profiles of institutions and individual researchers, their scientific achievements, research opportunities etc. URIS helps Ukrainian scientists establish contacts with international colleagues more effectively. 

Ukrainian researchers successfully participate in the “Horizon Europe” program, an office of which opened in 2023 at the National Research Foundation. Under the Horizon 2020 program, which preceded Horizon Europe, 323 Ukrainians participated in 230 research projects with a total funding of EUR 45.5 million. In 2022, Ukraine secured EUR 13 million in grants under the Horizon Europe program, and this amount increased to EUR 20.3 million in 2023. In addition to research grants, the European Commission introduced several scholarship programs for Ukrainian scientists, such as EURIZON. 

In June 2022, the Ministry of Education and Science established the legislative framework for the creation of centers for the shared use of scientific equipment. These centers will allow scientists to conduct research regardless of whether their institution owns the necessary equipment. At the end of 2022, the government approved the National Open Science Plan, which aims to enhance scientific exchanges and promote science among the Ukrainian population.

What Next?

The full-scale war has exacerbated existing problems in the education system, some of which were also caused by the COVID-19 pandemic. Therefore, education reforms should be accelerated while maintaining the chosen direction of strengthening competition, increasing integrity and enhancing quality in the education system. 

Unfortunately, the education inequality problem was exacerbated by the pandemic and the war. Children who are in a remote learning format (at the start of the 2023/24 academic year, 707,000 children, or 18% of the total, studied online as compared to 0.3% at the beginning of the 2020/21 academic year) or don’t have an opportunity to study without interruptions (e.g. during the pandemic not all the schools were able to introduce remote studies, and now classes are interrupted by air raid alerts and blackouts) on average demonstrate poorer educational outcomes. In response to these challenges, governments and schools could offer additional learning opportunities, such as summer schools, expand home-based learning options, and more actively implement individual educational trajectories.

It is important to involve children who have relocated abroad or stay in occupied territories into the Ukrainian educational context. If these children want to enter Ukrainian higher education institutions, they should be allowed to take the EIT (NMT) on the same terms as everyone. Children from vulnerable categories, instead of preferential treatment during admission (i.e., allowing them to enter universities with low grades), should be offered preparatory (compensatory) courses because children who have not mastered the school curriculum are unlikely to be able to study effectively at the higher education level.

To improve the quality of higher education, on one hand, it is important to strengthen the application of the “money follows the student” principle (for example, providing education grants based on EIT/NMT results instead of budget-financed places at universities). On the other hand, opportunities for universities to attract additional funds should be expanded. Transforming universities into state or municipal enterprises, similar to healthcare institutions, would help increase their financial autonomy and hence their ability to attract grants. These changes would stimulate competition among universities and encourage them to improve the quality of education and research.

Both scientific and educational institutions would benefit from closer cooperation with the real sector — private and public enterprises, including defense companies, different level government agencies etc. This could be organized through student internships, dual education, and adult education programs in higher and vocational education institutions. This cooperation would also help modernize curricula.