EXECUTIVE SUMMARY
2026 GEM Report:
Access and equity
COUNTDOWN TO 2030
内容提要
2026年全球教育监测报告
教育机会与公平 2030倒计时
--联合国教科文组织全球教育监测报告
Countries will not achieve access for all by 2030, but this does not mean that the global education agenda has failed.
各国虽难以在2030年前完全实现人人享有教育机会的目标，但这并不意味着全球教育议程依然失败。
The three major global education agendas – universal access to primary education declared in 1990; universal completion of primary education in 2000; and universal completion of secondary education in 2015 – increased levels of ambition faster than education system expansion, undermining the credibility of these agendas.
自1990年以来，全球教育议程的雄心——1990年提出的普及初等教育、2000年提出的普及初等教育完成率、2015年提出的普及中等教育完成率——提升速度远超教育系统的实际扩张能力，这在客观上削弱了议程目标的可信度。
Behind the numbers of those out of school is a more encouraging story of surging enrolment. With 1.4 billion students enrolled in school in 2024, enrolment had increased by 327 million, or 30%, in primary and secondary education since 2000. It also increased by 45% in pre-primary and by 161% in post-secondary education.
失学数字的背后，隐藏着一系列令人鼓舞的数据：入学人数激增。2024年，全球中小学在校生总数达14亿，自2000年以来增长了3.27亿，增幅达30%。同期，学前教育入学人数增长45%，高等教育入学人数更是激增161%。
Countries have also transformed their policy approach to education equity and inclusion. Governments support disadvantaged regions and groups, and have leveraged investments in technology, transport, energy and health to expand education access.
各国在促进教育公平与包容的政策层面也发生了深刻转变。政府通过扶持弱势地区和群体，并借助科技、交通、能源和健康等领域的投资，有效扩大了教育机会。
Since 2015, progress in reducing out-of-school rates has slowed across all regions.
自2015年以来，全球各地区在降低失学率方面的进展普遍放缓。
After falling by 33% between 2000 and 2015, the out-of-school population has risen for a seventh year in a row, up 3% since 2015 and reaching 273 million in 2024. This means that one in six children, adolescents and youth worldwide are excluded from education.
在2000年至2015年间下降33%之后，全球失学人口已连续第七年上升，自2015年以来增长3%，至2024年达到2.73亿。这意味着全球每六名儿童、青少年和青年中，就有一人被排除在教育体系之外。
This population is undercounted by at least 13 million if supplementary information from humanitarian sources is used to correct data gaps in the 10 countries most affected by conflict.
这一数据可能被低估。若采用人道主义渠道的补充信息来修正受冲突影响最严重的10个国家的数据缺口，全球失学人口总数至少还要增加1300万。
Progress is possible. Some countries have reduced out-of-school rates by at least 80% since 2000, such as Madagascar and Togo among children, Morocco and Viet Nam among adolescents, and Georgia and Türkiye among youth.
实现进展是可能的。自2000年以来，部分国家已成功将失学率降低了至少80%。例如，马达加斯加和多哥在小学学龄儿童中、摩洛哥和越南在初中学龄青少年中，以及格鲁吉亚和土耳其在高中学龄青年中均取得了显著成效。
At the current rates, we may never get everyone through to the end of secondary school.
按照目前的进展速度，全球可能永远无法实现人人完成中学教育的目标。
More children are completing their education even if the out-of-school rate has stagnated. Since 2000, the completion rate has increased from 77% to 88% in primary, from 60% to 78% in lower secondary, and from 37% to 61% in upper secondary. The pace of increase has been, for instance, one percentage point per year in upper secondary education since 2000.
尽管失学率停滞不前，但完成学业的孩子越来越多。自2000年以来，小学完成率从77%升至88%，初中完成率从60%升至78%，高中完成率从37%升至61%。以高中阶段为例，自2000年以来，完成率年均提升约1个百分点。
At current rates of expansion, the world would achieve 95% upper secondary completion by 2105.
按照这一速度，全球要到2105年才能实现95%的人口完成高中教育。
High rates of children repeating grades have fallen since 2000 by 62% in primary and by 38% in lower secondary education, which explains why out-of-school rates can stagnate, while completion rates improve.
自2000 年以来，小学和初中的留级率分别下降了62%和38%。这解释了为何在失学率停滞的同时，完成率却能有所提高。
Many children still enrol in school late and repeat grades in low- and lower-middle-income countries, meaning that many complete each cycle with several years of delay. The gap between ‘timely’ (within three to five years of official graduation age) and ‘ultimate’ (even later) completion in lower secondary education is four percentage points globally but nine percentage points in low-income countries, a gap that has been growing since 2005.
在许多低收入和中低收入国家，孩子晚入学、留级现象普遍，导致他们完成每个学段时普遍延迟数年。全球范围内，初中阶段“按时完成”（比官方毕业年龄晚不超过三到五年）与“最终完成”（更晚）的差距为4个百分点，而在低收入国家，这一差距高达9个百分点，且自2005年以来持续扩大。
The way to define progress needs to be improved.
衡量进展的方式亟待完善。
While the 2030 Agenda acknowledged that governments should set their own national targets based on their circumstances, little was done in this way, with education a notable exception. Since 2022, 80% of countries have communicated national targets for eight indicators to be achieved by 2030, with progress monitored annually by the UNESCO Institute for Statistics and the GEM Report.
尽管《2030年议程》承认各国政府应根据国情设定国家目标，但实际执行情况寥寥，教育领域尤为例外。自2022年起，80%的国家已公布八项指标的国家目标，计划于2030年前实现，其进展情况由联合国教科文组织统计研究所和全球教育监测报告进行年度监测。
Progress is best understood when comparing countries that started from similar points. For example between 2000 and 2024,Mexico cut out-of-school rates over 20 percentage points more than El Salvador; Sierra Leone increased primary completion rates 22 points more than Liberia; and Iraq increased its secondary completion rate 10 points more than Algeria.
将起点相似的国家进行对比，能更客观地理解进展。例如，2000至2024年间，墨西哥的失学率降幅比萨尔瓦多多出20个百分点以上；塞拉利昂的小学完成率增幅比利比里亚高出22个百分点；伊拉克的高中完成率增幅比阿尔及利亚高出10个百分点。
Monitoring progress in equity is not served well by the parity index, the global indicator, which says more about the progress of the indicator being disaggregated rather than the state of inequality. Conclusions can be drawn but trends need to be analysed in context.
现行全球公平性监测指标（均等指数）存在局限，它更多反映的是被分解指标本身的进展，而非不平等状况本身。结论可以得出，但趋势分析必须结合具体国情。
Some measurement tools need to be adjusted to be more informative.
部分衡量工具需要调整才能提供更多信息。
In pre-primary education, the global indicator, which says that 75% of 5-year-olds are in education, overestimates how many children attended preschool before primary because 27% of those children were already in primary school. This report estimates that only 60% of primary school students had at least one year of pre-primary education.
在学前教育阶段，全球指标显示75%的5岁儿童在接受教育，但这高估了入读学前班的儿童比例，因为其中27%的儿童实际上已进入小学。本报告估算，实际只有60%的小学生曾接受过至少一年的学前教育。
In primary and secondary education, one in three countries do not report disparity by urban–rural location and one in two countries do not report disparity by wealth. In most cases, this reflects the fact that education ministries do not appreciate survey data enough to use them or that countries are reluctant to reveal disparity even if they have the data.
在中小学阶段，三分之一的国家未报告城乡教育差异，半数国家未报告贫富教育差异。这很大程度上源于教育部门对调查数据重视不足，或即便掌握数据也不愿披露差距。
In post-secondary education, the gross enrolment ratio overstates progress because many do not ultimately graduate. The tertiary attainment rate of 25- to 34-year-olds consistently represents only some 60% of the gross enrolment ratio 10 years earlier. The attainment rate of 25- to 29-year-olds should become the basis of monitoring and that of 30- to 34-year-olds a measure of late completion.
在中学后教育阶段，毛入学率高估了进展，因为许多人最终并未毕业。25-34岁人口的高等教育完成率，通常仅相当于十年前毛入学率的60%左右。监测重点应转向25-29岁人口的完成率，并将30-34岁人口的完成率作为衡量延迟完成的补充指标。
There are no simple explanations of long-term progress in access and equity.
入学机会与公平的长期进步，难以用单一因素解释。
Factors outside of education policy can often explain long-term educational expansion, such as rising women’s labour force participation, the prospect of migration, and the peace and stability dividend in countries recovering from conflict.
教育政策之外的因素，如女性劳动参与率提高、移民、以及冲突后国家的和平稳定红利，往往对教育扩张起到重要推动作用。
Experimental evaluations have provided important policy insights, for instance on the importance of health and nutrition interventions for education. But there is also a tendency to pay too much attention to results of these short-term impact studies,which try to suggest ‘what works’ and yet are silent on the robust institutions that matter for policy implementation to sustain educational expansion.
实验性评估为政策制定提供了重要见解，例如健康与营养干预对教育的影响。但学界也存在过度关注短期影响研究的倾向，这类研究虽试图回答“什么有效”，却往往忽略了支撑政策有效执行、保障教育持续发展的坚实基础（即健全的制度）。
No single solution will work. Policy reviews in this report highlight the importance of coherent, context-specific and balanced policy packages that develop institutions, encourage demand, and strengthen the supply of education.
单一解决方案难以奏效。本报告的政策评述强调，关键在于制定一套连贯、因地制宜且均衡的政策组合，以同步推进制度建设、刺激教育需求并加强教育供给。
There have been major policy efforts to improve access.
各国为扩大教育机会付出了重大政策努力。
Since 2000, the share of countries with inclusive education laws has risen from 1% to 24%, while those calling in their laws for children with disabilities to be taught in inclusive education settings has increased from 17% to 29%. The proportion of countries that have adopted a definition of inclusive education has grown from 68% in 2020 to 84% in 2025; of those, the share whose definition extends beyond disability has increased from 51% to 69%.
自2000年以来，制定包容教育相关法律的国家比例从1%升至24%；在法律中明确规定残疾儿童应在包容环境中接受教育的国家比例从17%增至29%。采纳包容教育定义的国家比例从2020年的68%升至2025年的84%；其中，定义范围超越残疾本身的国家比例从51%增至69%。
Between 1998 and 2023, among 158 countries, the share of those with 12 years of compulsory education has increased from 8% to 26%; among 130 countries, the average duration of free education increased from 10 years to 10.8 years.
1998年至2023年间，在158个国家中，实行12年义务教育的国家比例从8%上升至26%；在130个国家中，免费教育平均年限从10年延长至10.8年。
There is a shift towards policies that redistribute resources to improve equity in education.
政策正转向重新分配资源以促进教育公平。
Financing is an important policy area for achieving equitable outcomes in education. The share of countries deploying four financing mechanisms and using their potential to benefit disadvantaged populations in primary and secondary education –transfers to subnational governments, to schools, and to students and households – has increased by 4 to 6 times in the past 25 years. School meal programmes, which started from a higher baseline, have doubled.
财政政策是实现公平教育结果的关键领域。过去25年间，在中小学阶段，综合运用财政转移支付（向地方政府、学校、学生及家庭）来惠及弱势群体的国家比例增长了4到6倍。学校供餐计划的覆盖范围也翻了一倍。
A new index measuring the intended coverage and volume of equity-oriented policies shows, however, that fewer than 1 in 10 countries have a sufficiently strong equity focus.
然而，一项旨在衡量公平导向政策覆盖范围和力度新指数显示，仅有不到十分之一的国家展现出足够强的公平政策聚焦。
In pre-primary education, 54% of countries transfer resources to institutions serving disadvantaged children, 26% transfer resources to families through the education ministry and 55% transfer resources to families through some other ministry.
在学前教育阶段，54%的国家向服务弱势儿童的机构提供资金，26%的国家通过教育部向家庭提供资助，55%的国家则通过其他部门向家庭提供资助。
In post-secondary education, 1 in 3 countries charge no tuition in public universities, almost 1 in 2 countries subsidize student housing, 4 in 10 support transport, and just under 3 in 10 subsidize textbooks.
在高等教育阶段，三分之一的国家公立大学免收学费，近一半的国家提供学生住宿补贴，四成的国家提供交通补贴，近三成的国家提供教科书补贴。
内容来源：https://www.unesco.org/gem-report/en/publication/equity-and-access
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