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1. National strategy

2. Formal education: main policy measures on ELET

3. Addressing ELET through non-formal and informal learning and quality youth work

4. Cross-sector coordination and monitoring of ELET interventions

National strategy

Spain’s national approach to reducing early school leaving (ELET) is centred on the Organic Law 3/2020 For the Modification of the Organic Law of Education (Ley Orgánica 3/2020, de 29 de diciembre, por la que se modifica la Ley Orgánica 2/2006, de 3 de mayo, de Educación, known as “LOMLOE”), which replaced the previous framework (Ley Orgánica 8/2013 para la Mejora de la Calidad Educativa, LOMCE). LOMLOE has introduced key measures to tackle dropout by adapting the school curriculum to student´s needs and promoting greater autonomy of educational institutions.

A significant change under LOMLOE is the consideration of teachers' professional judgment in student promotion decisions (ie decisions on whether students have to repeat courses or not) rather than relying solely on academic grades. 

The law also emphasises early intervention and equity as core principles, including through curricular flexibility and inclusive educational environments.

Recognizing early childhood education as t crucial tool for preventing ELET, more than  21,000 new places have been created in 0–3 education centres since 2021.

In the educational challenges posed by the COVID-19 pandemic, in 2020 Spain launched the PROA + programme (Programa de cooperación territorial para la orientación, avance y enriquecimiento educativo en la situación de emergencia educativa del curso 2020-21 provocada por la pandemia del COVID-19). This territorial cooperation program focuses on educational guidance, advancement, and enrichment, aimed at reducing school leaving, particularly for vulnerable schools.  It initially received €125 million and as of 2024, PROA+ supports over 3,600 schools, and the programme has been extended until 2028.

A major increase in financial support for students was also introduced. The scholarship and grants system has been significantly expanded, with the total budget reaching €2.52 billion in 2023, the largest in Spain’s history. This represents a 45% increase compared 2018. This investment includes increased residence grants and a universal €400 grant for students with specific educational support needs.

LOMLOE also addresses the digital divide and promotes greater technological integration in classrooms, as well as upskilling for teachers in digital competences.

In terms of Vocational Education and Training (VET), Spain adopted a new Law  3/2022 on Vocational Training (Ley Organico 3/2022 de ordenación e integración de la Formación Profesional), which mandates dual education, combining classroom learning with paid work placements. The reform also includes a plan to create 200,000 new VET places and a revision of the National Catalogue of Professional Qualifications (El Catálogo Nacional de Estándares de Competencias Profesionales, CNECP) with an emphasis on sustainability and digitalization.

The National Reform Programme 2023 (Programa Nacional de Reformas de España 2023, PNR) reinforced the importance of early childhood and vocational education as means to improve equity and reduce ELET. Under Objective 3, the government committed to strengthening social and territorial cohesion and increasing investment in youth and education.

In 2023, the Ministry of Education, in collaboration with the OECD and the European Commission, introduced a comprehensive Action Plan to reduce ELET. The plan comprises 44 proposals across five areas of action, including the development of a School Vulnerability Index to identify and allocate resources effectively to schools in need and increase coordination with Autonomous Communities.

Formal education: main policy measures on ELET

The implementation of LOMLOE has progressed in phases from 2021 to 2023, introducing systemic changes aimed at preventing dropout.

2021-2022: 

• Reforms grant schools greater autonomy, modified leadership selection and changes student admission rules.
• New promotion criteria were introduced to provide more flexibility to promote educational development, allowing students in compulsory secondary education (ESO) to progress with two failed courses, if teachers consider it appropriate. Repetition criteria was also capped to a maximum of two years  across basic education, except in final-year ESO.

2022-2023:

• Major curriculum changes were implemented. The  previous categorisation of subjects into core, specific, and freely configurable blocks was removed. The curriculum is now designed around key competencies and assessed through global, continuous, and formative evaluation.
• At Bachillerato level (upper secondary education), new pathways were introduced:
  • Sciences and Technology
  • Humanities and Social Sciences
  • Arts (Plastic Arts, Image and Design, Music and Performing Arts)
  • General Baccalaureate (for flexible combinations)

To support the implementation of LOMLOE, Royal Decree 205/2023 (Real Decreto 205/2023, de 28 de marzo, por el que se establecen medidas relativas a la transición entre planes de estudios, como consecuencia de la aplicación de la Ley Orgánica 3/2020, de 29 de diciembre, por la que se modifica la Ley Orgánica 2/2006, de 3 de mayo, de Educación) was adopted to ensure smooth curricular transitions across education levels. It provides guidance for aligning teaching practices and assessment methods with the new competency-based framework introduced by the reform.

Additionally, the Law 8/2021 on the Comprehensive Protection of Children and Adolescents (Ley Orgánica 8/2021 de protección integral a la infancia y la adolescencia frente a la violencia) reinforces the role of education in protecting minors. It recognizes the educational value of the 0–3 age group and requires that education centres appoint  protection delegate. 

In 2024, Spain approved a reform of the university entrance exam (PAU) (Real Decreto 534/2024), to be implemented from 2025. The new format adopts a competency-based model and standardises assessment across Autonomous Communities, in line with LOMLOE's goals of equity and curriculum coherence.

Addressing ELET through non-formal and informal learning and quality youth work

Addressing ELET through non-formal and informal learning and quality youth work

While most national measures focus on formal education, regional and local authorities also play a significant role in preventing ELET, particularly through informal and non-formal education initiatives.

Examples of such regional programmes include: 

• The 5^th Plan for Educational Success and Prevention of Early School Leaving (Plan de Éxito Educativo y Prevención del Abandono Escolar Temprano en los Centros Educativos Sostenidos con Fondos Públicos de Castilla-La Mancha, PEEPAET) of the Government of Castilla La-Mancha: Beginning in 2022, this plan is composed of 3 different programmes to address ELET, (Prepara-T, Ilusiona-T and Titula-S). These initiatives promote the inclusion struggling in compulsory education and Baccalaureate. The plan is supported by the  European Social Fund Plus (ESF+)
• New Opportunities Programme (Programa Nuevas Oportunidades) of the Government of Catalonia: Targets young people aged 16 to 24 who have not obtained any formal qualifications. It provides personalised pathways to re-engage them in education or vocational training .
• Strategy for the Educational Success 2022-2023 (Estrategia para el Éxito Educativo 2022-2023) of the Government of Murcia: Offers over 50 measures in all cycles of compulsory education (ISCED 0-2). Interventions for students range from vocational orientation and alternative pathways to peer tutoring and mobile apps offering personalised guidance. Since this strategy has been implemented, the school dropout rate in the region. As of 2024, the region reported an ELET rate of 18.2%, down from 19.2% in 2023 and 23.1% in 2017, thanks to targeted programmes such as ‘Convive Team’, ‘Referen-T’ and ‘SupéraTE’, which provide mentoring and personalised academic support.
• The Mentor Schools Programme (Programa de Escuelas Mentores) of the Government of Andalusia: Launched in 2023 pairs experienced schools with those at greater risk of dropout to support peer learning, inclusion, and pedagogical mentoring.”

Cross-sector coordination and monitoring of ELET interventions

The Sectoral Education Conference (Conferencia Sectorial de Educación), comprising the Ministry of Education and the Autonomous Communities, is responsible for monitoring and coordinating actions related to early school dropout. Each region reports its progress and actions through this framework. Joint evaluation mechanisms are also used to assess the impact of national policies, including LOMLOE and the PROA + programme.

The National Reform Programme 2023 (Programa Nacional de Reformas de España 2023, PNR)  also highlights ELET as a strategic priority under Objective 4 on education,  with commitments to the ongoing implementation of LOMLOE and the expansion of scholarships and vocational education.

Additionally, the Educational Support Project (Proyecto Apoyo Educativo), led by the National Center of Innovation and Educational Research (Centro Nacional de Innovación e Investigación Educativa, CNIIE), offers personalised support for students with special educational needs –  including learning difficulties, high intellectual abilities and late system entry – so they can achieve their full potential and complete compulsory schooling.