National support programme to mitigate COVID-19 consequences in education

The programme was introduced in February 2021 and, because of its urgency, was immediately implemented.

An administrative agreement between the education ministry, the Association of VET Colleges and several associations of higher education institutions has been made to determine which measures can be taken in upper secondary vocational education and higher professional education until the end of 2022. It was agreed to use the available budget within 2 years to implement those measures to prevent delays in the educational progress of students as a result of the virus and to prevent spreading of the virus, which limited the continuation of classes in school.

The Netherlands Association of VET Colleges has drawn up a collection of service documents for VET institutions that provide tools for the challenges they faced during COVID-19 pandemic, especially during lockdowns. This concerned short-term support from the Association of VET colleges, which is not part of the NPO.

The first progress report of the NPO shows that the plans of the institutions show a clear prioritisation. Institutions mainly opt for tackling study delay and problems encountered by students in transitions between and within the education sectors (42%) and improving student well-being (almost 30%). As rapid economic recovery helps VET students to obtain internships those that were cancelled in an earlier stage can easily be recovered. However, the economic recovery causes labour market shortages. VET institutions expect difficulties in the implementation of the NPO due to shortages in staff.

The second evaluative report monitoring the implementation of the NPO was published in November 2022. The main findings reveal that the latest lockdown has exacerbated pre-problems among students and staff, and has also brought up new needs. Institutions indicate that it is increasingly difficult to indicate whether the problems being identified are related to COVID-19, i.e. arise from the consequences of the lockdowns, or are caused by an accumulation of other factors and social issues. In general, it is indicated that the resilience of students appears to be lower than before the COVID-19 pandemic. It is unclear whether the pandemic/lockdowns are the cause of this or whether the limited resilience of students observed by institutions already existed and has only become apparent due to the lockdowns. The reduced resilience also means that experts at institutions expect new circumstances, such as financial problems and housing shortages, to result in more complaints and support needs than would have been the case previously.

It remains a challenge for the institutions to properly identify the needs of students in a vulnerable position and to act accordingly in a timely manner. Therefore, institutions have made considerable efforts in recent months to address both aspects of this challenge - identification and action. The shift towards focusing more on student wellbeing was already visible during the previous evaluation and continues. This mainly involves implementing measures to communicate with students in an accessible manner, such as peer-to-peer coaching, study coaches, drop-in points at locations and organising different types of contact moments. In addition to improving identification, the care structure of VET institutions has been improved with the help of NPO resources, and work is underway to strengthen the knowledge and experience of the education teams in this area.

The extent of any learning gaps among students who enrolled in September has not yet become clear within this short period of time. The expectation is that these students will have to be supervised more intensively in the coming months in order to prevent dropouts and/or delays. In addition, institutions expect more students that switch their educational path than in previous years or students who temporarily stop their studies, for example as a result of a change in study direction or even a reorientation in life choices.

The implementation of the NPO plans has gained momentum. Unfortunately, research resources are not always sufficient to cover all the damage suffered, and some institutions have little knowledge of the existence of these resources and how to claim them. Despite labour market shortages, institutions have largely succeeded in recruiting staff or expanding existing contracts, although this varies by institution/region. Recruitment has been particularly successful for positions within the care structure and other types of positions offering support for students (coaches, learning path counsellors, etc). However, the situation is different for attracting teachers, especially in sectors with shortages. In the past period, partly thanks to NPO resources, institutions have developed a range of measures and interventions for the various types of issues they have faced and are still confronted with. Institutions indicate that the extension of the NPO term contributes to the effective use of resources for students who need it.

In November 2022, the second evaluative report monitoring the macro effects of the NPO was published. The results of the second Macromonitor NPO on secondary vocational education (MBO) and Higher Professional Education (HBO) report show that a lot has changed for students since the COVID-19 pandemic. In part, the observed developments appear to have been a temporary shock that quickly recovered - in particular due to easing of previous corona measures - as evidenced by the temporary drop in first-year dropout rates, the temporary higher intake in the teacher training study programmes, the temporary drop in the number of internships and the temporarily lower job opportunities among school-leavers from secondary vocational education. At the same time, negative social consequences actually seem to have increased as the pandemic progressed, such as less attachment to education and less motivation to study. However, it is still too early to draw definitive conclusions, since dropping out can still take place in later academic years and the study success rate for cohorts of students who entered secondary vocational education and higher education after the start of the COVID-19 pandemic cannot be determined yet. The fact that low(er) study motivation and commitment to the study program go hand in hand with more dropout and a lower study success rate as a result of study delay, will mean that this has to be taken into account in the near future. In any case, educational institutions have for the time being, proven successful in limiting dropout rates and thus retaining students within the education system.

In May 2023, SEO Economic Research (SEO Economisch Onderzoek), an independent research institute affiliated with the University of Amsterdam, published a social cost-benefit analysis on the effects of the NPO on VET (and higher education). The report examined the impact of various measures on students, educational institutions, employers, the government, and society. Reported impact for students is reduced study delays and dropouts, achieved through better educational quality, extra activities, and improved internship guidance. For educational institutions, NPO contributed to higher graduation rates, increased funding, and improved job satisfaction among educational staff. Employers benefited from better-educated students, who are more prepared to enter the workforce. For the government and municipalities higher tax revenues and reduced social security costs were reported. For the society positive impacts included lower crime rates, better public health, and broader knowledge dissemination through peer effects and intergenerational knowledge transfer.

Evaluation findings (2023)

Two evaluations of the NPO's implementation were conducted in 2023. While the results were promising, it remains difficult to directly correlate the deployment of NPO resources to the observed effects due to the short evaluation period and limited available data. Based on the findings, it is plausible—but not definitive—that the NPO contributed to these outcomes.

Regarding resource allocation: in both evaluations VET colleges were on track to fully utilise NPO funding within the programme's term. They can spend the money until 2023 with 2024 as possible run-out year. Funds have primarily been used to support smooth transitions into and within VET, focusing on additional guidance and educational supply, with many actions nearing completion.

Regarding secondary education and transition to VET: during the pandemic, looser secondary education exam requirements resulted in students entering VET with fewer skills, increasing the risk of dropout. Additionally, according to the fifth evaluation report, fewer students transitioned from secondary education to VET, possibly due to the looser requirements prompting more students to continue into senior general secondary education (HAVO).

Regarding student well-being: Both evaluations indicated improvements in student well-being and reductions in motivational problems. However, these improvements cannot be solely attributed to the NPO, as additional funds for student well-being were already in place before COVID-19. Well-being remains a pressing issue, requiring sustained institutional commitment. On-site teaching has proven critical to student well-being, while digitalisation efforts initiated during the pandemic are being maintained and integrated where effective. Teachers are receiving training in digital skills and blended learning.

Regarding study delays: the fourth evaluation report mentions that fewer students reported study delays, thanks to institutional efforts supported by the NPO. This decrease is also linked to improvements in motivation and well-being, as students who still report delays often face persistent motivational and well-being challenges.

Regarding internships and apprenticeships: the fifth evaluation reports that the reopening of sectors has resolved many internship shortages, although a general shortage persists, albeit smaller than during the pandemic.

Regarding youth unemployment: tackling youth unemployment, a pre-pandemic issue incorporated into the NPO, remains a focus. According to the fifth evaluation, institutions have used NPO funds to enhance career orientation and counselling. Research on the approach to youth unemployment shows that young people experience the guidance offered as positive.