Summary of Interim Evaluation Report
About the Study
This report reviews the results of one of the key aspects of the preferential policy in the Georgian higher education system—the “Georgian Language Preparatory Educational Program.” This program is intended for Georgian citizens who have graduated from non-Georgian-speaking schools or sectors. Its goal is to increase access to higher education for representatives of ethnic minorities and to promote civic integration.
Potential beneficiaries of the program are enrolled in higher education institutions through a simplified procedure, where they will master the Georgian language over the course of one year. The objective of the program is to ensure that graduates achieve proficiency in the Georgian language, enabling them to smoothly continue their studies in their chosen higher education programs.
The forty-credit (one-year) Georgian Language Preparatory Educational Program can be implemented in all higher education institutions in Georgia, subject to accreditation. A quota is set aside for non-Georgian-speaking students: 5-5% of the total number of students for Azerbaijani-speaking and Armenian-speaking students, and 1-1% for Abkhazian-speaking and Ossetian-speaking students.
A certain number of applicants who achieve the best results in the Unified National Exams will be granted the right to study in the program for free (as of 2024, 200 places are allocated for Azerbaijani-speaking and Armenian-speaking applicants). Upon completion of the one-year program, beneficiaries will be enrolled in their desired higher education programs without the need for entrance exams.
The Georgian Language Training Program has a fifteen-year history in Georgia. Its implementation was based on the challenges identified in 2009 within the framework of the National Concept of Civic Integration, aimed at improving the state language competence of the non-Georgian-speaking population and fostering civic integration.
Since its launch, the program has been part of a broader state policy on civic equality and integration. Its goals are reflected in both the current (2020-2030) and previous versions of the action plans of the State Strategy for Civic Equality and Integration, as well as in the Unified Education Strategy (2021-2030).
Monitoring reports of the program, along with policy documents and studies prepared by independent experts, clearly demonstrate its positive impact on increasing access to higher education for ethnic minorities. However, there is also a clear need for further improvements to the program and better adaptation to the needs of its beneficiaries.
All these documents emphasize that the success of the program is contingent upon a systemic approach, and that its modification and improvement are only possible by considering the successes and challenges encountered in other components of the strategy.
In 2024, the Government of Georgia plans to review the program’s goals and implementation approach in light of the changes that have occurred in the program’s ecosystem over the past fifteen years. This report aims to facilitate the reconciliation of existing opinions about the program and to consolidate the discussion regarding its future.
Research Methodology
The evaluation framework used in this report is based on the Organization for Economic Co-operation and Development (OECD) conceptual model. According to this framework, the Georgian Language Preparatory Educational Program is evaluated across five key aspects: 1) effectiveness; 2) relevance; 3) efficiency; 4) coherence; and 5) sustainability.
The effectiveness component focuses on program outcomes, addressing questions such as: To what extent do the program outcomes meet predetermined objectives? What is the level of interest and engagement in the program across the country? Are there differences in outcomes for various subgroups? Does the program create an equally supportive and engaging environment for beneficiaries with diverse needs and interests?
The relevance component examines the alignment of the program's concept and outcomes with the expectations of the target groups. This involves assessing how the program can be better adapted to meet the contextual challenges and specific needs of these groups.
An interesting aspect of the efficiency component is the evaluation of resource utilization in achieving the program’s objectives. Questions include: How effectively are the program's resources being allocated? Could better results have been achieved with the same resources? What measures could improve value for money given the available resources?
The coherence component assesses the program's integration and linkages with other initiatives. This includes evaluating how complementary and coordinated the program elements are, how well the program aligns with parallel interventions and broader policies, and the extent to which synergies exist among these initiatives.
The sustainability component focuses on strategies for reinforcing and maintaining the program's results over the long term. This involves considering how the ecosystem can be developed in ways that do not compromise the program's enduring outcomes.
In this report, the framework components are categorized into two groups. The components of effectiveness and relevance are utilized to describe program outcomes, while the dimensions of effectiveness, coherence, and sustainability are employed to assess the approaches and strategies for achieving these outcomes.
Ecosystem Approach
When evaluating the preferential policies in the higher education system, particularly the “Georgian Language Preparatory Educational Program,” it is essential to consider the broader context. The analysis logic is based on the premise that the implementation of the program cannot be understood without considering its environmental impact. Therefore, this report examines the factors influencing program implementation within the ecological paradigm, relying on ecosystem models.
In line with the principles of the ecosystem model, the study incorporates the perspectives of direct implementers and beneficiaries of the program, as well as the views and regulatory context of various stakeholders operating both within and outside the education system. This includes insights from representatives of the Ministry of Education, Science, and Youth, its affiliated agencies, other ministries, non-governmental organizations, donor organizations, and relevant strategic framework documents.
The discussion of preferential policies within the higher education system is contextualized in relation to other levels of formal education—such as general and vocational education—and various interventions in the education sector.
Additionally, this report aims to synthesize findings from extensive research literature and monitoring reports on the subject.
MAIN FINDINGS
Curriculum
The content and methodology of the Georgian Language Preparatory Educational Program are not aligned with European standards for language teaching, learning, and assessment.
Outdated Sector Benchmarks: The "General Description of Proficiency Levels of the Georgian Language," based on the six-level CEFR (A1 to C2), was approved in 2020. However, the program’s regulatory framework (Sector Benchmarks) has not been updated since 2017 and requires fundamental revision.
Gaps in CEFR Implementation: The principles of the CEFR and the six-level system are inconsistently applied in teaching and assessment practices. Current methods often rely on outdated grammar-translation techniques instead of a holistic, "can-do descriptor"-based approach.
Lack of Reliable Assessment Tools: There is no valid instrument to assess Georgian language proficiency according to the CEFR’s six levels. While the National Assessment and Examination Centre is developing such tools, they are not yet available.
Fragmented Language Proficiency Data: Evidence from higher, vocational, and general education systems lacks a cohesive framework, making it difficult to collect comparable data or revise policies based on empirical evidence.
Program Access and Quality
Quantitative analysis of the program reveals significant achievements in attracting beneficiaries but highlights disparities among subgroups.
Enrolment Growth: Since the program's inception in 2010, approximately 13,000 beneficiaries have enrolled. Enrolment rates are higher for Azerbaijani-speaking beneficiaries and in urban areas, with steady annual growth.
Limited participation in Post-Secondary Education: While the program serves as a primary pathway into higher education, transition rates among ethnic minority groups remain below the national average:
31% of Azerbaijani-speaking and 23% of Armenian-speaking high school graduates enrol in the program.
Less than 8% of beneficiaries pursue vocational education, and only 1% opt for alternative pathways to university admission.
Over the past five years, transition rates to post-secondary education have been 36% for Azerbaijani-speaking and 30% for Armenian-speaking graduates.
Completion Challenges:
Completion rates are high but declining: 91% for Armenian-speaking and 85% for Azerbaijani- speaking graduate from the program.
A portion of students (8% Azerbaijani-speaking and 4% Armenian-speaking) fail to meet program requirements within a year.
Rising numbers of students with suspended statuses are linked to financial difficulties and the need to work while studying.
Low Participation in Teacher Preparation Programs: Only 5% of beneficiaries pursue teaching careers, limiting the program's potential to address bilingual education needs.
Low Awareness: Awareness of the program and the importance of higher education remains limited, particularly in rural non-Georgian-speaking schools.
Relevance and Impact
Inequitable Funding: Azerbaijani and Armenian-speaking students receive the same number of state-funded seats despite differing cohort sizes. In 2023, 43% of Azerbaijani applicants were admitted, compared to 72% of Armenian applicants.
Rigid Program Duration: The standardized one-year program fails to meet the diverse needs of students with varying initial proficiency levels.
Irrelevant Admission Practices: Uniform quotas (5%) across universities do not reflect demand. Additionally, the current model allows proficient speakers to enrol, limiting access for those who need the program most.
Limited Program Options: Some universities lack quality language programs, while others with strong programs offer limited academic pathways.
Program Structure Mismatch: The one-year duration often does not accommodate students’ varying needs, leaving some underprepared and others progressing too quickly.
Integration Issues: Many students remain isolated both during and after the program, experiencing challenges in academic interactions.
Policy Approach: Integration is viewed solely as minority inclusion, rather than as a mutual process benefiting both minority and majority groups.
Recommendations for Improvement:
State Policy Enhancements:
Raise awareness of CEFR principles and improve their application.
Support bilingual education development and better reintegration initiatives.
Improved Language Teaching and Assessment:
Develop valid tools to assess Georgian proficiency, aligned with CEFR standards, for entry, progress, and final evaluation.
Use data from the planned Georgian language assessment in 2025 to guide program revisions.
Program Structure Revisions:
Adjust program duration to meet students' diverse proficiency levels.
Address gaps in cross-cutting skills development across universities.
Teacher Training Incentives:
Expand access to free teacher preparation programs to strengthen bilingual education capacity.
Integration Support:
Promote best practices across universities and ensure long-term support for academic and social integration.
Strategic Coordination:
Link preparatory program resources with universities' broader missions to enhance teaching quality, research, and societal engagement.