Inclusion and education

BOX 2.2: 
Estonia has introduced reforms to achieve inclusive education
The Constitution of Estonia states that everyone has the right to 
education. The Basic Schools and Upper Secondary Schools Act, which 
entered into force in 2010, made provision of inclusive education an 
overarching principle of Estonian education. According to the law, 
high-quality general education must follow the principles of inclusive 
education and be equally accessible to all people, regardless of their 
social and economic background, nationality, gender, place of residence 
or special education needs.
In 2016, the Ministry of Education and Research commissioned 
a study of how the principles of inclusive education had been 
implemented. It showed that implementation had been hindered 
by attitudes and by the lack of knowledge and flexible resources 
for support services. Categorization based on medical diagnoses 
and separate special classes were counter to inclusive education 
principles. Support services were not always available to those in 
need. Recommendations included increased funding and flexibility, 
support from external advisory teams and improvement to the 
Estonian Education Information System (Räis et al., 2016).
A 2018 amendment to the Basic Schools and Upper Secondary Schools 
Act has created opportunities for schools to organize learning based 
on individual needs and to put support systems in place. There have 
been four key changes (Estonia Ministry of Education and Research, 
2018). First, the education budget increased significantly. Teacher 
salaries rose and financial support to schools now covers enhanced and 
special support for students and employment of support specialists. 
In 2017, ‘less than half of all schools had a speech therapist and a social 
pedagogy therapist’ and ‘less than a third had a psychologist or special 
education teacher’ (European Commission, 2018; p.6), while too few 
professionals graduate from the respective programmes (European 
Commission, 2019a).
Second, more flexible opportunities to organize learning for each 
student were created. The rigid distribution of special classes and 
occupancy limits were abolished. Students needing support can study 
in a regular class, take part-time individual study or study in a special 
class or school.
Third, procedures for organizing learning and support services were 
rearranged. Recommendations for these areas are provided by external 
advisory teams, available in each county at Pathfinder Centres, 
which offer a range of services from career counselling to special 
education guidance.
Finally, support specialists’ remuneration was increased. Operating 
expenses, paid from the state budget, can be used to cover labour 
costs for support specialists as long as they are guaranteed the 
equivalent of the minimum teacher salary. In addition, like teachers, 
support specialists working in a school for the first time can apply for 
a beginner’s allowance. Since 2017, the specialists’ average gross salary 
has increased by more than 30% and their number by 32%.
Remaining challenges include development of teacher and school 
leader skills, knowledge and attitudes; availability of support services; 
development of study materials for learners with disabilities and special 
education needs; and expansion of the learner-centred approach,