Romania's education responses to the influx of Ukrainian refugees
Country overview
Sharing a border with Ukraine, Romania has served as both a transit and destination country for displaced Ukrainians since the start of the conflict. As of November 2023, Romania hosts nearly 140,000 refugees from Ukraine. Despite positive measures aiming to ensure the inclusion of Ukrainian students in the national education system, enrolment of Ukrainian children in Romanian schools remained low until May 2023 when Government ordinance no.15/2022, enacted April 26, 2023, made enrolment in education a pre-requisite to gaining access government humanitarian assistance, resulting in a rapid increase in enrolment.
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Policy overview
On March 4, 2022, the Council of the European Union adopted the Council Implementing Decision (EU) 2022/382 in accordance with Article 5 of Directive 2001/55/EC (the Temporary Protection Directive, TPD), setting the groundwork for EU Member States to grant temporary protection to individuals displaced from Ukraine.
In Romania, the TPD was transposed into national law in 2006 by Law No. 122 on Asylum. On February 27, 2022, Emergency Ordinance No. 15 was issued and subsequently amended by Emergency Ordinance No. 20 on March 4, 2022, outlining measures for the domestic implementation of the Directive in response to displacement from Ukraine.
Policy pathway for Ukrainian refugees in Romania
On March 18, 2022, the government of Romania issued Decision No. 367 regarding the establishment of conditions for ensuring temporary protection. The decision states that beneficiaries of temporary protection will be granted a residence permit and issued a personal numerical code by the General Inspectorate for Immigration (GII), in accordance with Law No. 122 and Decision No. 898 on the form and content of residence permits (2011).
Access to schools
The right to education is guaranteed by the Constitution of Romania (1991, rev. 2003), which states that general education is compulsory and free for all. Law 122 grants beneficiaries of temporary protection access to the state education system under the same conditions as Romanians, as well as vocational training and adult education. Emergency Ordinance No. 20 reaffirms that displaced Ukrainian nationals, including individuals who have not registered for protection, have the right to education under the same conditions as Romanian citizens.
As outlined in Order No. 6.127 (2022), Ukrainians must complete a Romanian language initiation course before enrolling as a full-time student, although they may simultaneously attend courses as auditors while completing the language requirement. Students attending as auditors may participate in all educational activities on the same basis as full-time students, and all Ukrainian children may participate in extracurricular activities, even without student or auditor status. Ministerial Order No. 3.363 (2022) states that grade placement will be determined based on age, level of development, and statements regarding former studies.
Safe learning environment
Emergency Ordinance No. 15, as modified by Emergency Ordinance No. 20, states that Ukrainian students have the right to benefit from food services through existing social assistance programs in primary and secondary education, as well as free accommodation in boarding schools and materials including clothing and textbooks. Per Order No. 3.363, Ukrainian students will undergo a health examination and receive a medical certificate before integrating into the educational unit.
Quality learning conditions
Emergency Ordinance No. 15 states that the Ministry of Education is responsible for guaranteeing the inclusion of Ukrainian students in national schools by ensuring sufficient teacher supply. Article 11 states that teaching and counselling services may be carried out by university students or by retired teaching staff as needed to fill gaps in capacity.
Order No. 6.127 states that minors granted protection status have the right to benefit from a Romanian language initiation course. Language courses are held for six hours per week for a minimum of 36 weeks. Courses are organized by age group, with a maximum of 20 participants per class, and students are provided with free textbooks. While participating in the language course or attending courses as students or auditors, Ukrainian learners may benefit from the assistance of school counsellors to overcome adaptation difficulties.
Through Ministerial Order No. 3.363, the Commission charged with assignment of learners to educational units may also determine assignments to institutions for psycho-pedagogical assistance and counselling. The Order reaffirms that Ukrainian minors may benefit from the assistance of school counsellors while attending classes as auditors or participating in extracurricular activities.
In June 2022, Government Emergency Ordinance No. 100 approved a three-year National Plan of Measures for the medium- to long-term inclusion of Ukrainian refugees across sectors. The plan includes actions to improve the quality of education, including through the provision of psycho-pedagogical assistance, intensive Romanian language courses, employment of additional teachers, recruitment of Ukrainian teachers, and continuous teacher training on delivering socio-emotional support to refugee learners.
Access to transitions
For the 2022-2023 and 2023-2024 academic years, guidance issued by the government and the Ministry of Education has allowed Ukrainian students to advance to 9th grade without taking the National Exam (Evaluare Naţională). Issued in May 2022, Emergency Ordinance No. 69 states that Ukrainian nationals may be admitted to the 9th grade without taking the National Exam and allows for enrolment in the 9th grade to exceed the maximum number of places in order to accommodate Ukrainians. Ministerial Order No. 3.961 provided further guidance on the enrolment of Ukrainians in 9th grade for the 2022-2023 academic year. In 2023, Ministerial Order No. 3.684 applied the same provisions for Ukrainians entering the 9th grade in the 2023-2024 academic year.
Certification of learning
At the end of secondary education, all students in Romania must receive a passing grade on the Baccalaureate exam to earn a school leaving certificate. Although no explicit provisions have been made for Ukrainian students, Order No. 4799 (2011) provides for the organization of the Baccalaureate and states that all high school students in Romania may take the exam free of charge twice.
For individuals who have completed studies in Ukraine but do not have documents to prove it, Ministerial Order No. 5.807 (2022) outlines the procedures for certification of learning to facilitate access to the labour market or continuation of studies.
Access to higher education
Emergency Ordinance No. 15 states that the Ministry of Education may increase the capacity of higher education institutions by up to 20 percent for the 2021-2022 and 2022-2023 academic years to accommodate university students from Ukraine. Ministerial Order No. 3.325 permits higher education institutions to recognize and award transferable study credits for university and doctoral students who are unable to present documents proving their studies in Ukraine, and grants Ukrainian students access to state funding for the 2021-2022 and 2022-2023 academic years.
The National Plan of Measures also provides for the allocation of funding to finance the studies of Ukrainian students in state universities, grants subsidies for accommodation and food allowances, and encourages universities to organize counselling, orientation, and integration activities for Ukrainian students.
Ukrainians granted temporary protection may move freely throughout the territory and are granted housing assistance by Decision No. 315 (2022). Law 122 and Emergency Ordinance No. 20 grant beneficiaries the right to work without the need to obtain an employment permit. The Ordinance also stipulates that Ukrainians working in certain fields may submit a declaration to practice an occupation if they do not have documents proving their qualifications, although the provision does not apply to occupations requiring at least 3 years of higher education, including teaching staff. The National Plan of Measures sets out additional measures to support labour market integration, including through subsidies to employers and language and training courses.
Upon the extension of the Directive at the EU level, temporary protection in Romania has been extended until 4 March 2024. While the EU may extend the Directive until March 2025 at maximum, no arrangements beyond 2024 have been announced in Romania, and it remains to be determined how Ukrainians will gain access to legal status in Romania if they are unable to return to Ukraine upon expiration of the Directive.
Data overview
Data on the enrolment of Ukrainian students is collected by the Ministry of Education, with some data for the 2021-2022 academic year published in the Report on the State of Pre-University Education in Romania and the Report on the State of Higher Education in Romania. Data on the results of Ukrainian students on national exams is not publicly available.
The National Employment Agency (Agentia Nationala pentru Ocuparea fortei de Munca, ANOFM) collects and publishes data on the number of Ukrainian citizens who have registered for employment counselling services and received job placements. The General Registry of Employees (Registrul General de Evidenta a Salariatilor, REVISAL) also collects data on the number of Ukrainian citizens who have been issued individual employment contracts.
Enrolment data
Romanian Ministry of Education and Scientific Research (2023)
For all Ukrainian refugee school-aged children in Romania
Barriers: Language barriers, intention to return to Ukraine
Support required: Language classes, transportation, laptops/tablets and internet access
Absorption capacity
Data on the number of spaces available in Romanian schools is not currently available.
Sources
Council of the European Union. 2001. Council Directive 2001/55/EC of 20 July 2001 on minimum standards for giving temporary protection in the event of a mass influx of displaced persons and on measures promoting a balance of efforts between Member States in receiving such persons and bearing the consequences thereof. Source (Accessed 13 June 2023).
Council of the European Union. 2022. Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass influx of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC and having the effect of introducing temporary protection. Source (Accessed 13 June 2023).
Eurostat. 2021. Ratio of pupils to teachers and teacher aides by education level and programme orientation. Source (Accessed 13 June 2023).
Government of Romania. 2011. Hotărâre nr. 898 din 7 septembrie 2011 privind stabilirea formei și conținutului permiselor de ședere, ale documentelor de călătorie, precum și ale altor documente care se eliberează străinilor [Decision No. 898 of September 7, 2011, on establishing the form and content of residence permits, travel documents, as well as other documents issued to foreigners]. Source (Accessed 13 June 2023).
Government of Romania. 2022a. Hotărâre nr. 315 din 5 martie 2022 pentru aprobarea valorii maxime a costurilor aferente cazării în locațiile stabilite de comitetele județene/al municipiului București [Decision no. 315 of March 5, 2022 for the approval of the maximum value of the costs related to accommodation in the locations established by the county/municipality committees of Bucharest]. Source (Accessed 13 June 2023).
Government of Romania. 2022b. Hotărâre nr. 367 din 18 martie 2022 privind stabilirea unor condiții de asigurare a protecției temporare, precum și pentru modificarea și completarea unor acte normative în domeniul străinilor [Decision No. 367 of March 18, 2022, regarding the establishment of conditions for ensuring temporary protection, as well as for the modification and completion of some normative acts in the field of foreigners]. Source (Accessed 13 June 2023).
Government of Romania. 2022c. Ordonanță de Urgență nr. 15 din 27 februarie 2022 privind acordarea de sprijin și asistență umanitară de către statul român [Emergency Ordinance No. 15 of February 27, 2022, regarding the provision of humanitarian support and assistance by the Romanian state]. Source (Accessed 13 June 2023).
Government of Romania. 2022d. Ordonanță de Urgență nr. 20 din 7 martie 2022 privind modificarea și completarea unor acte normative, precum și pentru stabilirea unor măsuri de sprijin și asistență umanitară [Emergency Ordinance No. 20 of March 7, 2022, regarding the modification and completion of some normative acts, as well as for the establishment of some support measures and humanitarian assistance]. Source (Accessed 13 June 2023).
Government of Romania. 2022e. Ordonanță de Urgență nr. 69 din 26 mai 2022 pentru modificarea și completarea Legii educației naționale nr. 1/2011 și prorogarea unor termene [Emergency Ordinance No. 69 of May 26, 2022, for the amendment and completion of the National Education Law no. 1/2011 and the extension of some deadlines]. Source (Accessed 13 June 2023).
Government of Romania. 2022f. Ordonanță de Urgență nr. 100 din 29 iunie 2022 privind aprobarea și implementarea Planului național de măsuri [Government Emergency Ordinance No. 100 of June 29, 2022, regarding the approval and implementation of the National Plan of measures]. Source (Accessed 13 June 2023).
Ministry of Education. 2011. Ordin nr. 4799 din 31 august 2010 privind organizarea şi desfăşurarea examenului de bacalaureat – 2011 [Order No. 4799 of August 31, 2010 regarding the organization and conduct of the baccalaureate exam – 2011]. Source (Accessed 13 June 2023).
Ministry of Education. 2022a. Ordin nr. 3.325 din 2 martie 2022 privind completarea anexei la Ordinul ministrului educației nr. 5.140/2019 pentru aprobarea Metodologiei privind mobilitatea academică a studenților [Order No. 3,325 of March 2, 2022 regarding the completion of the annex to the Order of the Minister of Education no. 5.140/2019 for the approval of the Methodology regarding the academic mobility of students]. Source (Accessed 13 June 2023).
Ministry of Education. 2022b. Ordin nr. 3.363 privind aprobarea componenței Comisiei de coordonare a activității de repartizare a preșcolarilor/elevilor la unitățile de învățământ în care pot desfășura activități educaționale [Order No. 3.363 regarding the approval of the composition of the Commission for coordinating the activity of assigning preschoolers/students to the educational units where they can carry out educational activities]. Source (Accessed 13 June 2023).
Ministry of Education. 2022c. Ordin nr. 3.961 din 6 iunie 2022 pentru aprobarea procedurii de înscriere în clasa a IX-a [Order No. 3,961 of June 6, 2022, for the approval of the enrollment procedure in the 9th grade]. Source (Accessed 13 June 2023).
Ministry of Education. 2022d. Ordin nr. 5.807 din 29 septembrie 2022 privind aprobarea Metodologiei speciale de atestare a studiilor preuniversitare pentru străinii care au obţinut o protecţie internaţională în România [Order No. 5,807 of September 29, 2022 regarding the approval of the special Methodology for the attestation of pre-university studies for foreigners who have obtained international protection in Romania]. Source (Accessed 13 June 2023).
Ministry of Education. 2022e. Ordinul nr. 6.127 din 24 octombrie 2022 pentru aprobarea Metodologiei privind școlarizarea și organizarea și desfășurarea cursului de inițiere în limba română [Order No. 6.127 of October 24, 2022, for the approval of the Methodology regarding schooling and the organization and conduct of the initiation course in Romanian]. Source (Accessed 13 June 2023).
Ministry of Education. 2022f. Raport privind starea învățământului preuniversitardin România 2021 – 2022 [Report on the State of Pre-University Education in Romania 2021-2022]. Source (Accessed 13 June 2023).
Ministry of Education. 2022g. Raport privind starea învățământului superior din România 2021 – 2022 [Report on the State of Higher Education in Romania 2021-2022]. Source (Accessed 13 June 2023).
Ministry of Education. 2023. Ordin nr. 3.684 din 15 februarie 2023 pentru aprobarea Procedurii de înscriere în clasa a IX-a [Order No. 3,684 of February 15, 2023 for the approval of the 9th grade enrollment procedure]. Source (Accessed 13 June 2023).
National Employment Agency. 2022. Situația încadrării pe piața muncii a cetățenilor ucraineni, prin intermediul ANOFM [The employment situation of Ukrainian citizens on the labor market, through ANOFM]. Source (Accessed 13 June 2023).
Parliament of Romania. 1991 (rev. 2003). Constituția României [Constitution of Romania]. Source (Accessed 13 June 2023).
Parliament of Romania. 2006. Lege nr. 122 din 4 mai 2006 privind azilul în România [Law No. 122 on Asylum in Romania]. Source (Accessed 13 June 2023).
UNHCR. 2022. Regional Refugee Response Plan for the Ukraine Situation - Inter-Agency Operational Update: Romania, October 2022. Source (Accessed 13 June 2023).
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UNHCR. 2023b. Romania Multi-Sector Needs Assessment (December 2022). Source (Accessed 13 June 2023).