The Global Benchmark for Learning: Minimum Proficiency Levels (MPL)
In the landscape of international education, enrollment numbers—how many children are in school—only tell half the story. To understand if education systems are succeeding, we must look at learning outcomes. This is the purpose of the Minimum Proficiency Level (MPL), the primary metric for Sustainable Development Goal (SDG) Indicator 4.1.1.
The MPL is a globally agreed-upon benchmark that defines the basic knowledge and skills a student should possess at three key stages of their education.
The Three Pillars of Measurement
To ensure a child’s progress is tracked from the early years through adolescence, the MPL is measured at three distinct points:
Grade 2 or 3 (Indicator 4.1.1a): Foundational learning.
End of Primary (Indicator 4.1.1b): Mastery of basic literacy and numeracy.
End of Lower Secondary (Indicator 4.1.1c): Readiness for higher education or the workforce.
Proficiency in Reading
Reading proficiency shifts from the mechanics of decoding words to the higher-level skill of critical analysis.
| Education Level | Minimum Skills Required |
| Grades 2 & 3 | Students can read and understand familiar words and short sentences. They can retrieve information explicitly stated in a text and make simple inferences when listening to longer stories. |
| End of Primary | Students read fluently and independently. They can identify main ideas, interpret secondary meanings, and connect the text to their own personal experiences or general knowledge. |
| End of Lower Secondary | Students can connect ideas across different types of texts, identify an author’s intent, and draw evidence-based conclusions. They move from "reading to learn" to "reading to critique." |
Proficiency in Mathematics
Mathematics proficiency tracks a student’s ability to move from basic number recognition to solving abstract, real-world problems.
| Education Level | Minimum Skills Required |
| Grades 2 & 3 | Mastery of number sense (counting, ordering), basic computation (addition/subtraction), shape recognition, and understanding spatial orientation (left/right, inside/outside). |
| End of Primary | Ability to solve real-world "word problems," basic measurement, interpreting simple graphs, and identifying number patterns. |
| End of Lower Secondary | Application of computation to complex problems, construction of data displays, and the use of algebraic representations such as variables and equations. |
Why the MPL is a "Common Language"
Before the MPL was established in 2018, comparing education data between a country in Europe and a country in Southeast Asia was nearly impossible because their national tests were based on different standards.
The MPL solves this by providing a Global Proficiency Framework (GPF). This allows different national and regional assessments—such as PISA, TIMSS, or PASEC—to be "mapped" to a single global scale.
The impact of this indicator is twofold:
Identifies "Learning Poverty": It reveals where children are in school but failing to learn, prompting urgent policy interventions.
Directs Resources: International donors use this data to target funding toward regions where the gap between enrollment and proficiency is widest.
Current Status
While coverage for the "End of Primary" and "Lower Secondary" levels is relatively high, the international community is currently working to improve data collection for the Grade 2/3 (foundational) level. Ensuring every child meets these minimums by 2030 remains one of the most significant challenges in global development.
Measuring the Global Learning Crisis: The UNESCO Minimum Proficiency Level (MPL) Indicator
In the landscape of international education, enrollment numbers—how many children are in school—only tell half the story. To understand if education systems are succeeding, we must look at learning outcomes. This is the purpose of the Minimum Proficiency Level (MPL), the primary metric for Sustainable Development Goal (SDG) Indicator 4.1.1.
The MPL is a globally agreed-upon benchmark that defines the basic knowledge and skills a student should possess at three key stages of their education.
The Three Pillars of Measurement
To ensure a child’s progress is tracked from the early years through adolescence, the MPL is measured at three distinct points:
Grade 2 or 3 (Indicator 4.1.1a): Foundational learning.
End of Primary (Indicator 4.1.1b): Mastery of basic literacy and numeracy.
End of Lower Secondary (Indicator 4.1.1c): Readiness for higher education or the workforce.
Proficiency in Reading
Reading proficiency shifts from the mechanics of decoding words to the higher-level skill of critical analysis.
| Education Level | Minimum Skills Required |
| Grades 2 & 3 | Students can read and understand familiar words and short sentences. They can retrieve information explicitly stated in a text and make simple inferences. |
| End of Primary | Students read fluently and independently. They can identify main ideas, interpret secondary meanings, and connect the text to their own personal experiences. |
| End of Lower Secondary | Students can connect ideas across different types of texts, identify an author’s intent, and draw evidence-based conclusions. They move from "reading to learn" to "reading to critique." |
Proficiency in Mathematics
Mathematics proficiency tracks a student’s ability to move from basic number recognition to solving abstract, real-world problems.
| Education Level | Minimum Skills Required |
| Grades 2 & 3 | Mastery of number sense (counting, ordering), basic computation (addition/subtraction), and shape recognition. |
| End of Primary | Ability to solve real-world "word problems," basic measurement, interpreting simple graphs, and identifying number patterns. |
| End of Lower Secondary | Application of computation to complex problems, construction of data displays, and the use of algebraic representations such as variables and equations. |
Methodology: How Success is Calculated
To determine whether students are meeting the MPL, UNESCO and its partners focus on comparability. Because a "passing grade" in one country might be much harder than in another, the methodology bridges different systems through three primary strategies:
1. The Reporting Formula
The indicator is calculated as a percentage of the total student population at a specific education level.
$MP_{t,n,s}$: Number of children in year t, at education level n, who have achieved or exceeded the minimum proficiency level in subject s.
$P_{t,n}$: Total number of children at education level n in year t.
2. Linking Strategies
Since every country does not take the same exam, UNESCO uses methods to "link" local results to the global MPL standard:
Policy Linking: A panel of local educators compares national exam questions to the Global Proficiency Framework (GPF) to determine a global "cut-off score."
Statistical Linking: A group of students takes two different tests (e.g., a regional and an international one) to create a "translation" scale between the two.
Assessment for Minimum Proficiency Level (AMPL): Standardized question modules that countries plug directly into their existing exams to get an immediate, pre-calibrated measure.
3. Quality Standards
For data to be valid, the assessment must meet strict standards:
Sampling: Must represent the whole country (urban, rural, rich, and poor).
Administration: Must be given under controlled conditions.
Psychometrics: Scores are analyzed using advanced mathematical models to ensure the questions were fair.
Why the MPL Matters
The MPL provides a common language for the international community. It allows national exams from Kenya, regional exams from Latin America, and international exams from Europe to be placed on the same map. This transparency reveals "learning poverty" and helps governments and donors direct resources to the regions where the gap between enrollment and learning is most severe.
Leading Countries in Global Learning Proficiency (2026 Update)
The Minimum Proficiency Level (MPL) is the global "floor" for learning. While many countries struggle to reach even a $50\%$ proficiency rate, a small group of high-performing nations has managed to ensure that nearly every student meets or exceeds these international standards.
According to the latest synthesis of PISA 2022 and UNESCO 2024/2025 data, the following countries lead the world in the percentage of students meeting the MPL at the end of lower secondary education (Indicator 4.1.1c).
Global Ranking: Top Performers (Indicator 4.1.1c)
This table shows the leading nations where the vast majority of 15-year-olds achieve at least the baseline proficiency required for modern life.
| Rank | Country/Economy | Reading Proficiency (%) | Math Proficiency (%) | Key Success Factor |
| 1 | Singapore | $89\%$ | $91\%$ | Structured literacy & early intervention. |
| 2 | Japan | $86\%$ | $88\%$ | High teacher quality & curriculum rigor. |
| 3 | Ireland | $86\%$ | $82\%$ | Strong focus on reading literacy policy. |
| 4 | South Korea | $85\%$ | $87\%$ | Cultural emphasis on educational equity. |
| 5 | Estonia | $84\%$ | $85\%$ | Digital integration & learner autonomy. |
| 6 | Chinese Taipei | $84\%$ | $88\%$ | Strong performance in STEM subjects. |
| 7 | Canada | $82\%$ | $78\%$ | Inclusive education for migrant students. |
| 8 | United States | $74\%$ | $60\%$ | Stronger in reading than in mathematics. |
Key Observations for 2026
The "East Asian Edge": Singapore, Japan, and South Korea continue to dominate, particularly in mathematics, where their proficiency rates are often $20-30\%$ higher than the OECD average.
The European Leader: Estonia remains the top-performing country in the European Union, frequently outperforming larger nations like Germany and France in both equity and total proficiency.
The Gender Gap: In almost all leading countries, females significantly outperform males in reading proficiency, while males maintain a slight edge in mathematics in about half of the top-tier countries.
Stability Post-Pandemic: While global average scores fell after 2020, the leading countries listed above showed the most "resilience," with their proficiency rates returning to pre-pandemic levels faster than middle-income nations.
Understanding the Gap
To put these rankings in perspective, consider that while Singapore has nearly $90\%$ proficiency, some regions in Sub-Saharan Africa and Southeast Asia report proficiency rates below $10\%$. This "Learning Gap" is the primary focus of UNESCO's 2026 initiatives, which aim to use the strategies of these leading countries to improve foundational learning globally.
Rising Stars: Fastest Improving Countries in Learning Proficiency
While global averages in reading and mathematics saw a historic decline following the pandemic, several "champion countries" have bucked the trend. These nations are recognized by UNESCO and the OECD for their rapid improvement in SDG Indicator 4.1.1 or their remarkable resilience in maintaining growth during global crises.
Improvement is measured not just by high scores, but by the speed of progress—how quickly a country can move its student population from "below proficiency" to meeting the global minimum.
The "Speed Limit" of Improvement
UNESCO research indicates that for developing nations, the typical "speed limit" for improvement is about 0.08 standard deviations per year (roughly 2 percentage points annually). However, a few countries have consistently exceeded this pace.
| Country | Key Improvement Area | Success Strategy |
| Indonesia | Resilience & Ranking | Rose 5–6 positions in global rankings by simplifying curriculum (Emergency Curriculum) and using digital teacher platforms (Merdeka Mengajar). |
| Qatar | Long-term Growth | One of the few nations to show a positive slope in all three subjects (Reading, Math, Science) since joining international assessments. |
| Peru | Steady Climb | Consistent, multi-year improvement in reading proficiency through sustained investment in rural education and teacher support. |
| Cambodia | Rapid Expansion | Noted for rapidly expanding school access to marginalized populations while simultaneously beginning to track MPL benchmarks. |
| Morocco | System Reform | Accelerated its participation in global assessments to identify gaps and has shown high growth in primary-level enrollment and baseline literacy. |
Spotlight: The Indonesia "Resilience" Model
Indonesia has emerged as a major case study for 2026. While many wealthy nations saw their proficiency rates plummet by 15–20 points, Indonesia’s scores declined by a much smaller margin.
The "Independent Learning" Movement: By giving schools more autonomy to focus on deep understanding rather than "covering the syllabus," students recovered learning losses 3 months faster than average.
Diagnostic Assessments: Teachers implemented regular, low-stakes tests to identify exactly where a child was falling behind, allowing for immediate intervention.
Regional "Fast-Movers" in 2026
Recent data refreshes from the UNESCO Institute for Statistics (UIS) highlight specific regional success stories where policy changes are driving faster-than-average gains:
Central Asia (Uzbekistan & Kazakhstan): Rapidly aligning national exams with the Global Proficiency Framework (GPF) to modernize classroom instruction.
West Africa (Sierra Leone): Massive strides in "foundational learning" (Grade 2/3) through the implementation of structured pedagogy and universal free education.
Latin America (Colombia & Paraguay): High improvement in mathematics proficiency by focusing on "End of Primary" benchmarks.
Summary of Global Progress
Despite the challenges, approximately two-thirds of countries are still showing a positive long-term trajectory in reading. The "speed" of a country's improvement is now seen as a more vital indicator of a healthy education system than its absolute rank.
Global Initiatives and Projects for Minimum Proficiency (2026)
To move from identifying the "Learning Crisis" to solving it, UNESCO, the World Bank, and other global partners have launched a series of technical and operational projects. These are designed to help countries—especially those in the "Rising Star" category—align their systems with the Minimum Proficiency Level (MPL).
1. The AMPL Project (Assessment for Minimum Proficiency Level)
The AMPL is perhaps the most significant technical tool currently in use. It addresses the problem that many countries have their own tests but don't know how they compare to the global SDG 4.1.1 standard.
How it works: UNESCO provides standardized "modules" (sets of test questions) that are already pre-calibrated to the global MPL.
The Project Goal: Countries integrate these modules directly into their existing national exams. This allows them to report high-quality, internationally comparable data without having to design a whole new assessment from scratch.
2026 Focus: The MILO (Monitoring Impacts on Learning Outcomes) sub-project within AMPL is specifically measuring how much "learning loss" from the pandemic has been recovered.
2. The "Smart Buys" Initiative (GEEAP)
The Global Education Evidence Advisory Panel (GEEAP), a partnership between the World Bank, UNICEF, and the UK’s FCDO, identifies which projects provide the most "bang for the buck."
Great Buys (High Impact/Low Cost):
Structured Pedagogy: Providing teachers with detailed lesson plans and matching materials.
Teaching at the Right Level (TaRL): Projects in over 20 countries (notably Cote d’Ivoire and Nigeria) where students are grouped by ability rather than age for part of the day to master foundational reading and math.
2026 Milestone: The goal is to reach 7 million children across Africa with TaRL-based interventions by the end of this year.
3. The Foundational Learning Compact (FLC)
The World Bank’s Foundational Learning Compact is a massive "Umbrella Trust Fund" that provides the money and technical aid needed to implement these standards.
Scope: As of late 2025/early 2026, it is active in over 80 countries.
The Project: It finances the development of Policy Linking workshops. These are sessions where local teachers sit with psychometricians to map their national curriculum directly to the Global Proficiency Framework (GPF).
Impact: This ensures that when a country like Djibouti or Uzbekistan says 40% of their students are proficient, it means exactly the same thing as it does in a global report.
Summary Table: Global Project Landscape
| Project Name | Lead Organization | Primary Tool | Target |
| AMPL / MILO | UNESCO UIS | Standardized Test Modules | Data Comparability (SDG 4.1.1) |
| TaRL Africa | TaRL Africa / GPE | Level-based Grouping | Foundational Literacy & Numeracy |
| FLC Umbrella | World Bank | Technical Grants & Policy Linking | System-wide Alignment to GPF |
| Rosetta Stone | IEA / UNESCO | Psychometric Linking | Connecting regional tests (PASEC/ERCE) |
Conclusion: A Unified Global Strategy
The transition observed in 2026 is a move away from "one-off" school building projects toward systemic alignment.
By using tools like AMPL for measurement and TaRL for instruction, the global education community has created a feedback loop:
Measure: Use AMPL to see who is below the Minimum Proficiency Level.
Act: Use "Smart Buys" like structured pedagogy to fix the gap.
Verify: Use Policy Linking to ensure the progress is globally recognized.
This evidence-based approach is the most promising path toward the 2030 goal of universal functional literacy and numeracy.