UNESCO GEM Report 2026: Global Education Access and Equity Findings
The 2026 Global Education Monitoring Report examines participation, completion and inequality through 2024 or the latest comparable reference year. It records wider enrolment alongside a stalled reduction in the number of children, adolescents and youth excluded from education.
Executive Snapshot
Publication year and data reference year are shown separately. Most headline estimates refer to 2024.
The report was published in 2026, but most global participation and completion estimates refer to 2024 or the latest year available. The phrase “2026 GEM Report” identifies the publication, not the reference year of every statistic.
Out-of-School Population in 2024
Upper-secondary-age youth account for almost half of the reported global total.
Out-of-School Population by Education Stage
Millions of children, adolescents and youth of official school age
The three stage totals sum to 273 million. Humanitarian data indicate that the global estimate may exclude at least another 13 million people in ten conflict-affected countries.
Chart analysis
- 130 million upper-secondary-age youth were out of school, representing about 47.6% of the reported total.
- Primary-school-age children accounted for 79 million, or about 28.9% of the total.
- Lower-secondary-age adolescents accounted for 64 million, the smallest of the three stage groups.
- The reported total includes 140 million boys and 133 million girls.
- The out-of-school rate was about 17% globally, compared with 3% in high-income countries and 36% in low-income countries.
- Conflict-related undercounting means that the displayed total is not a complete census of every excluded learner.
Global Access and Equity Indicator Table
The table combines the report’s main participation, completion, progression, financing and inclusion findings. Units and denominators differ by indicator.
| Domain | Indicator | Value | Unit | Year | Comparison or definition |
|---|---|---|---|---|---|
| System size | Students enrolled | 1.4 billion | Students | 2024 | Global enrolment across school systems |
| System size | Primary and secondary enrolment growth since 2000 | 327 million | Additional students | 2000–2024 | Equivalent to a 30% increase |
| System size | Pre-primary enrolment growth since 2000 | 45% | Percent change | 2000–2024 | Growth in enrolled population |
| System size | Post-secondary enrolment growth since 2000 | 161% | Percent change | 2000–2024 | Growth in enrolled population |
| Exclusion | Total population out of school | 273 million | People | 2024 | Children, adolescents and youth |
| Exclusion | Boys out of school | 140 million | People | 2024 | All three school-age groups |
| Exclusion | Girls out of school | 133 million | People | 2024 | All three school-age groups |
| Exclusion | Primary-school-age population out of school | 79 million | Children | 2024 | Official primary school age |
| Exclusion | Lower-secondary-age population out of school | 64 million | Adolescents | 2024 | Official lower secondary age |
| Exclusion | Upper-secondary-age population out of school | 130 million | Youth | 2024 | Official upper secondary age |
| Exclusion | Global out-of-school rate | 17% | Percent of school-age population | 2024 | Approximately one in six |
| Exclusion | High-income out-of-school rate | 3% | Percent of school-age population | 2024 | Income-group aggregate |
| Exclusion | Low-income out-of-school rate | 36% | Percent of school-age population | 2024 | Income-group aggregate |
| Exclusion | Estimated conflict-related undercount | At least 13 million | People | 2024 estimate | Supplementary humanitarian data for ten countries |
| Completion | Primary completion rate | 88% | Timely completion rate | 2024 | Up from 77% in 2000 |
| Completion | Lower secondary completion rate | 78% | Timely completion rate | 2024 | Up from 60% in 2000 |
| Completion | Upper secondary completion rate | 61% | Timely completion rate | 2024 | Up from 37% in 2000 |
| Completion | Projected year for 95% upper secondary completion | 2105 | Projection year | Historical-pace projection | Not a fixed forecast |
| Progression | Primary repetition decline | 62% | Percent reduction | Since 2000 | Report-wide historical estimate |
| Progression | Lower secondary repetition decline | 38% | Percent reduction | Since 2000 | Report-wide historical estimate |
| Early childhood | Participation one year before primary entry | 75% | Participation rate | 2024 or latest | Includes some children already in primary school |
| Early childhood | Estimated children with at least one year of pre-primary | 60% | Estimated share | 2024 or latest | Adjusted for early primary entry |
| Tertiary education | Tertiary gross enrolment ratio | 44% | Gross enrolment ratio | 2024 | Up from 19% in 2000 |
| Tertiary education | Tertiary graduation ratio | 27% | Graduation ratio | 2024 | Up from 17% in 2000 |
| Tertiary education | Tertiary attainment, ages 25–34 | 24% | Population share | 2024 or recent year | Share holding a tertiary qualification |
| Tertiary education | Tertiary attainment, ages 45–54 | 15% | Population share | 2024 or recent year | Older cohort comparison |
| Literacy | Youth literacy rate | 93% | Literacy rate | 2024 | Up from 87% in 2000 |
| Literacy | Adult literacy rate | 88% | Literacy rate | 2024 | Up from 81% in 2000 |
| Learning environment | Children receiving school meals | 466 million | Children | 2024 | 20% increase since 2020 |
| Education finance | Median public education expenditure | 4.2% | Share of GDP | 2024 | Down from 4.3% in 2010 |
| Education finance | Median education share of public expenditure | 12.6% | Share of public expenditure | 2024 | Down from 14.4% in 2010 |
| Education finance | Countries meeting both spending benchmarks | 41 of 183 | Countries with data | Latest reported coverage | At least 4% of GDP and 15% of public expenditure |
Table analysis
- Primary and secondary enrolment expanded by 327 million students between 2000 and 2024.
- The out-of-school population fell by 33% between 2000 and 2015 but then rose for seven consecutive years, reaching 273 million in 2024.
- The low-income out-of-school rate of 36% was twelve times the 3% high-income aggregate.
- Completion rose at every school stage, but the 2024 rate fell from 88% in primary to 61% in upper secondary.
- The 24-percentage-point increase in upper secondary completion since 2000 was larger than the gains at primary and lower secondary levels.
- Pre-primary participation is sensitive to indicator design: 75% of children at the reference age were in education, but the estimated share with at least one year of actual pre-primary experience was about 60%.
- Tertiary gross enrolment reached 44%, while the graduation ratio was 27% and attainment among ages 25–34 was 24%.
- Education expenditure medians fell slightly between 2010 and 2024 under both measures shown.
- Only 41 of 183 countries with data met both international spending benchmarks.
- The table combines counts, rates, ratios and projections. Values should be interpreted within their stated unit rather than treated as one comparable ranking.
Long-Run Movement in Participation and Completion
Selected global indicators with comparable 2000 and 2024 endpoints.
Selected Education Indicators, 2000 and 2024
Global percentages; each line represents a different indicator
The chart compares endpoint values rather than annual observations. The steepest displayed increase was in tertiary gross enrolment.
Trend analysis
- Tertiary gross enrolment rose by 25 percentage points, from 19% to 44%.
- Upper secondary completion rose by 24 points, from 37% to 61%.
- Lower secondary completion increased by 18 points.
- Primary completion increased by 11 points and reached the highest 2024 value among the displayed completion indicators.
- Youth literacy increased by 6 points, while adult literacy increased by 7 points.
- The endpoint chart does not show periods of acceleration, stagnation or reversal between 2000 and 2024.
| Indicator | 2000 | 2024 | Change | Measure | Coverage note |
|---|---|---|---|---|---|
| Primary completion | 77% | 88% | +11 pp | Completion rate | Global modelled estimate |
| Lower secondary completion | 60% | 78% | +18 pp | Completion rate | Global modelled estimate |
| Upper secondary completion | 37% | 61% | +24 pp | Completion rate | Global modelled estimate |
| Tertiary gross enrolment | 19% | 44% | +25 pp | Gross enrolment ratio | Global aggregate |
| Tertiary graduation ratio | 17% | 27% | +10 pp | Graduation ratio | Global aggregate |
| Youth literacy | 87% | 93% | +6 pp | Literacy rate | Global estimate |
| Adult literacy | 81% | 88% | +7 pp | Literacy rate | Global estimate |
| Youth participation in technical and vocational education | 2.7% | 3.7% | +1.0 pp | Share of ages 15–24 | Global aggregate |
| Adult participation in education and training | 2.0% | 2.4% | +0.4 pp | Share of ages 25–64 | Global aggregate |
Table analysis
- The largest endpoint change was the 25-point increase in tertiary gross enrolment.
- Tertiary graduation increased by 10 points, less than half the increase in gross enrolment.
- The gap between tertiary enrolment growth and graduation growth supports the report’s proposal to place more weight on attainment.
- Upper secondary completion recorded the largest increase among the three completion stages.
- Youth and adult literacy both rose, but adult literacy remained five points below youth literacy in 2024.
- Participation in adult education and training changed by only 0.4 points over the displayed period.
- Percentage-point change is used because the indicators are expressed as rates or ratios.
Late Completion in Low-Income Countries
Late entry and grade repetition create a measurable difference between timely and eventual completion.
Timely and Ultimate Completion Rates
Low-income country aggregates, 2024
Ultimate completion includes learners who finish several years after the expected graduation age.
Chart analysis
- The largest timely-to-ultimate difference was 11 percentage points at primary level.
- The lower secondary difference was nine points.
- The upper secondary difference was five points, but both rates remained below 30%.
- Ultimate completion does not remove exclusion; it identifies learners who finish after a delay.
| Education level | Timely completion | Ultimate completion | Delay gap | Interpretation | Reference year |
|---|---|---|---|---|---|
| Primary | 60% | 71% | 11 pp | Largest displayed late-completion difference | 2024 |
| Lower secondary | 37% | 46% | 9 pp | Almost one in ten complete after the timely window | 2024 |
| Upper secondary | 20% | 25% | 5 pp | Three quarters still do not ultimately complete | 2024 |
Table analysis
- At primary level, counting late completers raises the rate from 60% to 71%.
- At lower secondary level, the ultimate rate remains below half despite the nine-point adjustment.
- At upper secondary level, the adjustment raises completion from one in five to one in four.
- The narrowing delay gap at higher stages partly reflects the smaller population reaching those stages.
Equity Gaps Hidden by Global Averages
Each value shows how many learners in a disadvantaged group complete for every 100 learners in the comparison group.
| Income group | Education level | Comparison | Ratio per 100 | Gap from parity | Reading |
|---|---|---|---|---|---|
| Low income | Upper secondary | Young women per 100 young men | 79 | −21 | Completion is lower among young women |
| High income | Upper secondary | Young women per 100 young men | 106 | +6 | Completion is higher among young women |
| Low income | Upper secondary | Rural youth per 100 urban youth | 30 | −70 | Large location disparity |
| Low income | Primary | Poorest quintile per 100 richest quintile | 40 | −60 | Wealth gap appears at primary level |
| Low income | Lower secondary | Poorest quintile per 100 richest quintile | 20 | −80 | Wealth disparity widens at transition |
| Low income | Upper secondary | Poorest quintile per 100 richest quintile | 13 | −87 | Largest displayed wealth gap |
| High income | Upper secondary | Poorest quintile per 100 richest quintile | 66 | −34 | Wealth disparity remains present |
Table analysis
- The widest displayed disparity is the low-income upper secondary wealth ratio of 13 poorest learners for every 100 richest learners.
- The low-income wealth ratio falls from 40 at primary level to 20 at lower secondary and 13 at upper secondary.
- The rural–urban ratio of 30 in low-income countries is lower than the primary wealth ratio but higher than the two secondary wealth ratios.
- Gender disparity changes direction by income group: the ratio is 79 in low-income countries and 106 in high-income countries.
- A high national completion rate can coexist with gaps by household wealth, location, disability or migration status.
- A ratio near 100 indicates parity, not a high completion rate. Two groups can have equal but low completion.
Access
Access records whether learners can enter an education programme. School availability, admission rules, distance, fees and transport shape this stage.
Equity
Equity asks whether learners facing poverty, rural isolation, disability, displacement or discrimination can participate, progress and complete under fair conditions.
Completion
Completion adds information that enrolment cannot provide. It records whether participation leads to the end of an education cycle.
Where the Headline Indicators Mislead
The report proposes changes to early childhood, out-of-school, equity and tertiary monitoring.
| Indicator area | Headline result | Measurement limitation | Preferred interpretation | Report response |
|---|---|---|---|---|
| Early childhood participation | 75% of 5-year-olds are in education | About 27% of the counted children were already in primary school | Being in education at age five is not the same as having attended preschool | Estimate actual pre-primary experience; reported estimate is about 60% |
| Out-of-school population | 273 million out of school | Administrative and survey systems do not fully cover conflict and displacement | Treat the total as a modelled estimate with known coverage gaps | Integrate humanitarian data for conflict-affected settings |
| Location disparity | Country parity statistics | One in three countries does not report urban–rural disparity | Absence of a reported gap does not confirm equality | Use household surveys and census microdata alongside administrative data |
| Wealth disparity | Country parity statistics | One in two countries does not report disparity by wealth | National averages can conceal large household-level differences | Improve cooperation between education ministries and statistical offices |
| Parity index | Ratio between two population groups | The ratio changes with the underlying completion or enrolment level | Compare countries with similar indicator levels and inspect the direction over time | Retain contextual analysis rather than reading parity as a stand-alone score |
| Tertiary gross enrolment | 44% global gross enrolment ratio | Long programmes, repeat enrolment, age differences and dropout can raise the ratio | Enrolment measures entry and participation, not degree completion | Use attainment among ages 25–29 and delayed attainment among ages 30–34 |
| Tertiary attainment | 24% of ages 25–34 hold a tertiary qualification | Recent expansion appears after a delay because younger students may still be enrolled | Use age-specific attainment together with programme type and age profile | Separate timely and later completion measures |
Table analysis
- The largest numerical revision concerns early childhood: the headline participation rate is 75%, while estimated actual pre-primary experience is about 60%.
- The global out-of-school total may be understated by at least 13 million in the ten conflict-affected countries examined with supplementary data.
- Urban–rural disaggregation has wider country coverage than wealth disaggregation, but both remain incomplete.
- Tertiary attainment among ages 25–34 is about 60% of the gross enrolment ratio observed ten years earlier across countries.
- Indicator reform changes the measured question rather than simply replacing one number with another.
A higher enrolment ratio does not establish that more learners graduate. Participation, progression, completion and attainment should be reported separately.
Equitable Financing in Education Index
The EFE Index measures policy intent and financial effort directed toward disadvantaged learners. It does not measure observed equity outcomes.
Distribution of EFE Index Categories
Share of countries in each financing category
Fewer than one in ten countries are placed in the advanced category. Established is the largest group.
Chart analysis
- 39% of countries are classified as established, the largest category.
- Emerging systems account for 33%.
- Latent systems account for one fifth of countries.
- Only 8% are classified as advanced.
- Established and advanced systems together represent 47% of the country coverage.
| Category | Minimum score | Maximum score | Country share | Financing interpretation |
|---|---|---|---|---|
| Latent | 0 | 6 | 20% | Few or fragmented equity-oriented measures |
| Emerging | 7 | 12 | 33% | Several measures, but uneven coverage or spending |
| Established | 13 | 18 | 39% | Several financing mechanisms operating together |
| Advanced | 19 | 30 | 8% | Systematic equity orientation across education and social protection |
Table analysis
- A country needs at least 19 of 30 points to enter the advanced category.
- The two middle categories contain 72% of the covered countries.
- The classification describes programme design, coverage and spending rather than learner outcomes.
- The share classified as established or advanced rises from 12% in low-income countries to 58% in high-income countries.
| Financing mechanism | Primary recipient | Programme examples | Dimensions scored | Maximum points |
|---|---|---|---|---|
| Transfers to subnational governments | Provinces, regions or districts | Equalization formulas using poverty, rurality or fiscal capacity | Coverage and financial volume | 6 |
| Transfers to schools | Schools | Grants or formulas favouring disadvantaged schools | Coverage and financial volume | 6 |
| Education-budget transfers to students and families | Students and households | Scholarships, fee waivers, transport and textbooks | Coverage and financial volume | 6 |
| School meals | Students | Free or subsidized meals | Coverage and financial volume | 6 |
| Social-protection transfers to households | Households | Cash transfers and child grants linked to education | Coverage and financial volume | 6 |
Table analysis
- All five mechanisms receive equal weight in the 2026 index.
- Each mechanism can contribute up to six points: three for coverage and three for financial volume.
- The total maximum score is 30.
- Countries without transfers to subnational governments are reweighted so that the total maximum remains 30.
- Very broad programme coverage is not automatically scored as stronger targeting when support also reaches non-disadvantaged groups.
A high EFE score indicates that equity-oriented financing mechanisms are present and receive measurable coverage and funding. It does not prove that support reaches the intended learners effectively or that education disparities have already narrowed.
Selected Country Change Records
The report compares countries with similar starting levels and uses 35 case studies. The examples are not a ranking of national education systems.
| Country | Indicator | Start | Latest | Change | Period | Report context |
|---|---|---|---|---|---|---|
| Lao People’s Democratic Republic | Enrolment of 5-year-olds | About 10% | 67% | About +57 pp | 2000–2023 | Expansion of kindergartens, preparatory programmes and community settings |
| Madagascar | Enrolment of 5-year-olds | 10% | 66% | +56 pp | 2000–2024 | Pre-primary integration and expansion of rural community centres |
| Uzbekistan | Participation before primary entry age | 38% | 82% | +44 pp | 2008–2022 | Preschool law, dedicated administration and expanded provision |
| Bangladesh | Primary completion | 34% | 90% | +56 pp | 1990–2024 | Long-run completion estimate |
| Bangladesh | Lower secondary completion | 23% | 74% | +51 pp | 1990–2024 | Long-run completion estimate |
| Cambodia | Primary completion | 34% | 82% | +48 pp | 2000–2020 | Fee removal, school funding, construction and student support |
| Costa Rica | Youth out-of-school rate | 28% | 4% | −24 pp | 2002–2023 | Reduced exclusion among upper-secondary-age youth |
| Costa Rica | Upper secondary completion | 36% | 78% | +42 pp | 2002–2023 | Completion expansion with student support programmes |
| China | Tertiary gross enrolment | 7% | 77% | +70 pp | 1999–2024 | Large expansion in institutions and enrolment places |
| Belarus | Tertiary gross enrolment | 48% | 70% | +22 pp | 1991–2024 | Ratio peaked at 96% in 2013 before declining |
| Chile | Tertiary gross enrolment | Below 40% | Above 100% | More than +60 pp | 2000–2022 | Gross ratio can exceed 100 because it is not limited to the official age group |
Table analysis
- China recorded the largest displayed change, with tertiary gross enrolment rising by 70 percentage points.
- Madagascar and the Lao People’s Democratic Republic each recorded increases of more than 50 points in participation among 5-year-olds.
- Bangladesh’s primary and lower secondary completion estimates rose by 56 and 51 points, respectively, over a longer period beginning in 1990.
- Costa Rica combined a 24-point decline in youth exclusion with a 42-point increase in upper secondary completion.
- Belarus illustrates why current level and direction should be separated: the 2024 ratio remained above its 1991 level but below its 2013 peak.
- Chile’s value above 100% demonstrates that gross enrolment ratios are not bounded at 100.
- Starting years differ by country and indicator, so the change column should not be read as a uniform country ranking.
Peer-Based Comparisons
Among countries starting from similar levels, Mexico reduced its out-of-school rate by more than 20 percentage points more than El Salvador between 2000 and 2024. Sierra Leone increased primary completion by 22 points more than Liberia, while Iraq increased secondary completion by 10 points more than Algeria.
The country studies identify unusually fast movement, stagnation or measurement issues relative to comparable starting points. They do not rank national education systems from highest to lowest quality.
Policy Patterns Tracked by the Report
Long-run expansion is associated with combinations of education, social protection and public-service measures. The report does not present one reform as universally transferable.
System Capacity
Legislation, governance, public finance, teacher planning and stable administration determine whether programmes can operate at national scale over long periods.
Education Supply
School construction, transport, boarding facilities, electricity, distance education and accessible learning environments can reduce geographic and physical barriers.
Household Support
Scholarships, fee waivers, transport subsidies, textbooks, meals and cash transfers reduce direct and indirect participation costs.
Student Progression
Repetition rules, remedial support, early-warning systems, second-chance routes and flexible pathways influence whether enrolled students reach graduation.
Conditions Outside Education
Health, nutrition, women’s employment, migration expectations, public infrastructure, peace and recovery after conflict can alter demand and system capacity.
Long Implementation Periods
Many of the changes documented in the country studies developed over a decade or more rather than within a single project or political cycle.
| Policy indicator | Earlier value | Later value | Period | Scope |
|---|---|---|---|---|
| Average duration of compulsory education | Baseline | +1.2 years | 1998–2023 | Global change |
| Average duration of free education | Baseline | +0.8 years | 1998–2023 | Global change |
| Countries defining inclusion beyond disability | 75% | 82% | 2020–2025 | Countries reviewed through PEER profiles |
| Legislation supporting mainstream placement for learners with disabilities | 17% | 29% | 2020–2025 | Countries reviewed through PEER profiles |
| Countries reporting national targets for at least some SDG 4 indicators | Not used | 80% | Targets reported since 2022 | Eight benchmark indicators |
| Potential national target values that have been set | Not used | 56% | Current 2030 benchmarking cycle | Potential values across participating countries |
Table analysis
- The average legal duration of compulsory education rose by 1.2 years between 1998 and 2023.
- The average legal duration of free education increased by 0.8 years over the same period.
- The share of reviewed countries defining inclusion beyond disability rose by seven points between 2020 and 2025.
- Legislative support for mainstream placement of learners with disabilities rose by 12 points.
- Although 80% of countries have reported at least some national targets, only 56% of all potential target values have been set.
- Legal adoption and target reporting do not establish whether policies are funded, implemented or producing the intended result.
Monitoring Priorities Before 2030
The report’s proposals focus on country targets, wider data use, revised indicators and policy tracking.
Complete National Targets
Countries can connect 2030 targets to their starting levels, historical pace, national plans and public budgets rather than relying only on one universal target.
Combine Data Sources
Administrative records, household surveys, censuses and humanitarian datasets cover different populations. Combining them can reduce blind spots.
Revise Participation Measures
Early childhood indicators should distinguish actual preschool experience from early entry into primary school.
Measure Tertiary Attainment
Age-specific qualification attainment can provide a clearer view of completed tertiary education than gross enrolment alone.
Track Policy Design
Financing formulas, inclusion laws, student support and social protection policies can be documented alongside enrolment and completion outcomes.
Keep Context in Country Comparisons
Starting levels, demographic change, conflict, migration, institutional capacity and reporting quality affect observed movement.
The 2026 edition covers access and equity. The 2027 GEM Report is scheduled to examine quality and learning, while the 2028/29 edition is scheduled to address the relevance of education.
Source and Methodology
UNESCO Institute for Statistics, GEM Report modelled estimates, household survey and census microdata, ILO data for tertiary attainment, humanitarian datasets for conflict-related coverage, and PEER policy profiles.
Most headline global values refer to 2024. Country case studies and policy indicators may use earlier or later available years stated in the relevant table.
No missing country values were estimated for the tables. Only values explicitly reported in the UNESCO sources were used.
Percentage-point changes, shares of the 273 million total and gaps from parity were calculated from the displayed source values.
Counts are reported in millions or billions as published. Calculated shares may be rounded to one decimal place.
Completion rates are modelled estimates based on survey, census and administrative evidence. Out-of-school rates measure the population of official school age not enrolled in education. Gross enrolment ratios can exceed 100 because the numerator may include students outside the official age group. EFE Index categories describe equity-oriented financing design, coverage and financial volume rather than observed learning or completion results.
The publication year, assessment year and reference year are not interchangeable. Enrolment, completion, attainment, literacy, out-of-school rates and financing scores use different populations and definitions and should not be combined into a single education score. Country comparisons describe reported movement and policy context; they do not establish that one policy caused the observed change.