Turkey - National Education Development Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 8328-TU STAFF APPRAISAL REPORT REPUBLIC OF TURKEY NATIONAL EDUCATION DEVELOPMENT PROJECT APRIL 3, 1990 Country Department I Population and Human Resources Division Europe, Middle East and North Africa Region This document has a restricted distribution and may be used by recipients only in the performance of Its not be  REPUBLIC OF TUXRBYR Currencl Equivalents Turkish Lira (TL) 1,000 - US$ 0.43 US$1.00 - TL 2,300 (November 1989) Principal Acronyms Used BOE Board of Education CRPC Council for Research, Planning, and Coordination ERC Education Resource Center ERDC Education Research and Development Center FRTVC Film, Radio and Television Center HCTEE Higher Council for Teacher Education and Employment ICB International Competitive Bidding MM Man-months MIS Management Information System NEDP National Education Development Program HOE Ministry of National Education OECD Organization of Economic Cooperation and Development PTA Parent-Teachers Association PTC Primary Teachers' College PCU Project Coordination Unit PTESC Primary Teacher Education Steering Committee SPO State Planning Organization STESC Secondary Teacher Education Steering Committee TEC Testing and Evaluation Center TDP Trade Development Program YoK Council of Higher Education Fiscal Year mv January i - December 31  FOR OFFCAL USE ONLY REPUBLIC OF TURKEY NATIONAL EDUCATION DEVELOPMENT PROJECT STAPF APPRAISAL REPORT' Table of Contents Basic Data Loan and Proieot Summary I. SECTORAL BACKGROUND . . . . . . . . . . . . . . . . . . . . . . . I A. Introductior . . . . . . . . . . . . . . . . . . . . . . . . . . 1 B. The Education System .... . . . . . . . . . . . . . . . . . . 2 Primary and Secondary Education . . . . . . . . . . . . . . . 2 Education Administrfttion and Management. . . . . . . . . . . . 4 Training of Education Personnel . . . . . . . . . . . . . . . 4 Education Finance ................... . 6 C. Sectoral lssues ................... . 8 D. Government Plans and Policies for Education Development . . . . 11 E. Bank Strategy for Educational Development . . . . . . . . . . . 13 1I. THE PROJECT .......................... 15 A. Project Origin ........................ . 15 B. Project Objectives ............. ..... ... . 15 C. Project Description ............. ..... ... . 15 D. Detailed Features of the Project . . . . . . . . . . . . . . . . 15 Improving Quality of Primary and Secondary Education . . . . . 15 Improving Quality and Relevance of Teacher Education . . . . . 21 Improving Management Skills and Practices. . . . . . . . . . . 25 1II. PROGRAM COSTS. FINANCING. MaNAGEMENT AND IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . 2 8 A. Program Cost Estimates . . . . . . . . . . . . . . . . . . . . . 28 B. Project Financing .... . . . . . . . . . . . . . . . . . . . 31 C. Project Management and Implementation ... . . . . . . . . . . 32 D. Project Procurement Arrangements ................ . 35 E. Project Supervision and Evaluation ............... . 38 IV. BENEFITS AND RISKS . .... . . . . ...... . . . . . . . . . 38 A. Benefits .... . . . . . . . . . . . . . . . . . . . . . . . . 38 B. Risks .... . . . . . . . . . . . . . . . . . . . . . . . . . 39 V. AGREEMENTS REACHED AND RECOMMENDATIONS . . .. . .. . .. . 39 'This report is based on the findings of an appraisal mission which visited Turkey in October and Niovember of 1989. The mission comprised Messrs. L. Briggs (Sr. Education Specialist and Mission Leader), G. Za'rour (Sr. General Educator), J. Renner (Management Specialist/Cons.), A. Read (Editorial and Distribution Specialist), and A. Buchan (Publications Specialist/Cons.). This document has a restricted distribution and may be used by recipients only in the performance. |of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.|  1. Structure of the Education System. . . . . . . . . . . . . . . 41 2. Education Summary Data: Public and Private. . . . . . . . . . 42 3. Ministry of Education: Organizational Structure . . . . . . . 43 4. Primary Teacher Training Enrollments and Graduates . . . . . . 44 5. Faculties of Education Enrollments and Graduates . . . . . . . 45 6. Trends in Public Education Expenditures. . . . . . . . . . . . 46 7. Education Research and Development Center. . . . . . . . . . . 48 8. Criteria for Selection of Laboratory Schools . . . . . . . . . 49 9. Primary and Secondary Teacher Education Steering Committees. . 50 10. Guidelines for Selection of Faculties of Education . . . . . . 51 11. Implementation Schedule and Action Plan. . . . . . . . . . . . 54 12. Schedule of Estimated Disbursements. . . . . . . . . . . . . . 55 13. Project Organizational Structure . . . . . . . . . . . . . . . 56 14. Technical Assistance Program ..... . ......... . . 57 15. Disbursements by Source of Funding and Semester. . . . . . . . 60 16. Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . 61 MAP: Location of Project Institutions (IBRD. No. 22035) I  REPUBLIC OF TURKEY NATIONAL EDUCATION DEVELOOMENT PROJECT STAFF APPRAISAL REPORT Basic Data (1989) Country Data Per-Capita GNP (1987) US$1,240 Total Population (1989) 54 million Population Growth Rate 2.2% p.a. Total Labor Force (1987) 18.8 million Literacy Rate (% of Adults) 70% School Enrollment and Expenditure Data (1988) Enrollments Level and Total Enrollment as Female as Age-Groups Enrollments X of Aee-Groups % of total Primary (grades 1-5, ages 7-11) 7 million 97 47 Middle (grades 6-8, ages 12-14) 2 million 56 35 Secondary (grades 9-11, ages 15-17) 1.7 million 33 36 Higher (grade 12+, ages 18+) 0.5 million 8 33 VA Public Expenditure on Education (1988) Central government expenditure on education as percent of total government expenditures 12.2 Central government expenditure on education as percent of GNP 2.6 Central government capital expenditure on education as percent of total government capital expenditures 5.9 Central government recurrent expenditures on education as percent of total government recurrent expenditures 7.2 A  REPUBLIC OF TURIKEY NATIONAL EDUCATION DEBVLOPHENT PROJECT STAFF APPRAISAL REPORT Loan and Project Summary Borrower: Republic of Turkey Anount: US$90.2 million Terms: Seventeen Years, including a five-year grace period, at the Bank's standard variable interest rate. Project Description: The proposed project supports the Government's efforts to improve student learning and achievement throughout the country by focusing on policy and operational measures for improving the quality of primary and secondary education, the quality and relevance of teacher education, and t'e effectiveness of management and administration as follows: (a) Quality of Primarv and Secondary Education would be improved by: establishing a framework for reviewing, up- grading, and up-dating curricula, instructional materials, and evaluation procedures on a continuing basis; following through on the first stages of revising and up-dating national curricula and textbooks; strengthening technical capabilities for instructional materials design and development; improving the system for textbook and materials distribution; and strengthening the MOE's testing and evaluation capabilities; (b) Oualitv and Relevance of Teacher Education would be improved by: revising and up- grading pre-service teacher training curricula, textbooks, and instructional materials in the university Faculties of Education; establishing a system for assessing development needs of in-service teachers and other educational personnel; and following through with appropriate training programs; and (c) Effectiveness of Management and Administration in the Ministry of Education would be improved by: establishing a mechanism for strengthening internal communications within the MOE; initiating an MOE management assessment and development program; consolidating administrative units for increased management efficiencies; expanding and improving the MOE management information system (MIS); moving selected aspects of basic planning and decision making to the provincial education directorates; providing training for school administrators; strengthening the MOE National Center for Research anc Development in Vo- Tech Education; and up-grading key staff of the MOE Inspectorate. In the above context, the proposed project would include a number of policy initiatives for strengthening the education system, plus minor renovation, furnishing, and equipping of 200 curriculum laboratory schools for field testing the  ii curriculum and materials to be developed and 53 experimental schools for the pilot computer education program (25 of the latter are included in the curriculum schools); construction and renovation of four education resource centers to assist in the in-service training effort; and equipment for up- dating and expanding the management information system. The project would also include minor renovations and equipping of 25 primary teacher training colleges and 17 university Faculties of Education, along with technical assistance to support the total development effort. Benefits and Risks: Benefits. The proposed project would be the first step in establishing appropriate standards of quality in the education sector to raise the level of human resources as required for achievement of its national development objectives. It would be a major undertaking in institution building and for promoting quality education to enable the country to compete in the World Market. And finally, it would improve and strengthen education services, i.e., extend the school year by about 14%, extend basic education from 5 to 8 years, require primary teachers to be trained at the university level, promote teacher participation in refresher and up-date training, and implement measures to improve cost effectiveness in the education system, including a shift of textbook printing to the private sector, and the gradual delegation of more planning and decision making authority to the provincial levels. Risks. There is the risk of budget allocations not keeping pace with the proposed new emphasis on high quality education. However, the education sector has received an increase in total budget allocations during each of the past three years, the Treasury has indicated that this is a high priority investment project for the Government, and the recurrent costs of the proposed operation are relatively low, so this risk is considered to be minimal. There is a risk that political pressures may make it difficult to Laks appropriate measures for bringing about operational and financial efficiencies in the sector, i.e., declaring teaching positions in some schools redundant where appropriate, re-deployment of teachers and administrators from areas of excess personnel to locations/schools where shortages exist, etc. However, present procedures already recognize the need to provide special incentives to educational personnel to induce them to work in less attractive areas of the country, and hence the risk of political pressure is considered minimal.  iii Estimated Project Costs A/ Local Foreign Total -US$ million------- Improving the Quality of Education 26.7 30.3 57.0 (Curriculum, Textbook, and Materials Development and Evaluation) Improving the Quality of Teacher Education 38.8 25.0 63.8 (Up-grading of Pre-service and In-service Teacher Education) Improving Management Skills and Practices 1.5 14.5 16.0 (Management Assessment and Development and Administrator Training) Base Cost 67.0 69.8 136.8 Physical Contingencies 6.7 7.0 13.7 Price Contingencies 13.3 13.4 26.7 Total Project Costs 87.0 90.2 177.2 a/ Inclusive of taxes and duties which are negligible Financdina Plan: IBRD 0.0 90.2 90.2 Government 87.0 0.0 87.0 Total 87.0 90.2 177.2 Estimated Disbursement IBRD FY 91 92 93 94 2f 29 2E -------------------- US$ million -- ----- Annual 4.6 24.8 28.0 21.6 9.4 1.2 0.7 Cumulative 4.6 29.4 57.4 79.0 88.4 89.5 90.2 Economic Rate of Return: Not Applicable  REPUBLIC OF _TRKEY .2XQJN;L EDUCATION DRVE 0PN5N! PROJ7ECT T. SECTORAL BACGROUN0D A. Introduction 1.01 The Republic of Turkey is a medium to large country with a moderate base of natural resources, a 1989 p-pulation of about 54 million people (53% urban), and a population growth rate of about 2.2% p.a. The Government is in the process of up-grading e.nd strengthening the Country's education system consistent with development efforts in other sectors. The ultimate goal is to have an education system capable of producing young men and women with the broad range of knowledge and skills required to meet its national development objectives. During recent years, particularly within the past two decades, increased emphasis has been placed on establishing a modern education system to include universal primary education, increased access to secondary education, a broader provision of university programs, a teacher training system, and a wide range of vocational and technical education programs to meet the manpower needs of the economy. As a result, by 1989, the national adult literacy rate had reached an estimated 70% (49% of whom are female), enrollment in primary education was virtually universal (estimated 97%), and middle and secondary schools were expanding at a steady pace (the beginning of school year 1988/89 saw the opening of 300 new schools -- an addition of about 150,000 new student places). However, while improve-ents within the sector as a whole are substa.atial, they are less than adequate to meet the Country's overall development needs, and hence quality of education has suffered somewhat. 1.02 Full realization of the country's long-term economic development goals will depend in great measure on a well-educated, highly trained human resource base to conceptualize, organize, plan, and execute the various design, coordination, and management functions required in the development process. Implicit in this spectrum of activities is the need for a highly diversified workforce ranging from semi-skilled to the highest level of professional expertise. The common element for these levels of m..npower development is the need for a solid foundation in general education; i.e., social, numeracy, and literacy skills; critical thinking, analytical, and problem solving abilities; capacity for creative and productive application of information; and an understanding of the environment and its impact on society. Thus, a sound school system, with a strong, high quality general education core, is fundamental to the overall development process. The Government therefore plans to expand its on-going education development program, which durlng the last 4-5 years concentrated primarily on school construction and development of vocational education, to include improvements in quality of general education and overall management of the system. These new elements of thte development program, i.e., education quality and management enhancement, would be accomplished through a proposed National Education Development Project (NEDP) for which World Bank financing has been  - 2 - requested. The proposed prcject has been declared a high priority on the country's national development agenda. 1.03 A few selected characteristics of the country are worth noting, as they have direct implications for the proposed education project.' The labor market, though gradually diversifying, continues to be dominated by the agriculture sector (56X of the employed la)-or force), with industry and services following at about 14% and 29%, respectively. Agriculture's share of the GNP i:i about 17%, with industry and services contributing about 36% and 47%, resp(ctively. The Government has taken measures to rejuvenate the private sector by introducing new technology into manufacturing and commerce, developing small scale industries for increased exports, and increasing productivity of the labor force. While there has been growth in output from certain sectors during recent years, technological innovation and development in each has been limited by the relatively low level of education among the workforce; i.e., with a 56% enrollment rate for the middle school age-group ifn 1987 and a 68% pass/completion rate, less than 38% of today's work force entrants have as much as an eighth grade education. Additionally, with a 33% enrollment of the secondary school age-group (for general and vocational schools combined) and a 71% pass/completion rate, less than 23% of the current labor market entrants have completed secondary education, and only about 9% of the age-group are currently going on for higher education. B. The Education System Primary and Se-ondary Education 1.04 The Country's pre-tertiary public education system (both general and vocational education) is administered by the Ministry of Education (MOE). Vocational education is being developed under other sources of funding, including- Bank financing (Loans 2399-, 2536-, 2776-, and 2922-TU) and, except for as - mince to the National Center for Research and Development in Vo-Tech Educati-:.. (para. 2.39), is therefore not addressed under the proposed project. The system's general education component comprises schools at the pre-school, primary (grades 1-5), middle (grades 6-8), and secondary (grades 9-11) levels (Annex 1). The Government is exterding basic education from 5 to 8 years, thereby combining all primary and middle school education into a unified basic education system (Crades 1-8). School attendance is already compulsory through basic education (Grade 8), but this is not presently enforceable due to the shortage of classrooms. In 1988-89, the general education system included some 54,000 primary and pre-schools with almost seven million students and 227,000 teachers; about 5,700 middle schools with two million students and 42,000 teachers; And 1,450 general secondary schools with about 700,000 students and almost 57,000 teachers (Annex 2). 1.05 General secondary education is provided through a variety of school types, including (in 1988-89): (a) 1,300 general secondary schools with almost 650,000 students; (b) 98 Anatolia Schools (combined middle and general. secondary schools in which mathematics and science are taught in a foreign 'The latest economic information is contained in the Country Brief of 1990.  language - - English, French, or German) with over 45,000 students; (c) seven Science Secondary Schools for grades 9-11 (some with limited boarding facilities to accommodate talented students from outside the immediate vicinity) providing emphasis on matheTnatics and scie-nces for about 1,600 highly selected students expecting to pursue university studies and eventually careers in this area; (d) 28 teachers' high schools (formerly primary teacher t.raining "normal schools" but now serving as general secondary schools providing "pre-teacher-education" elective courses for some lA.,OQ0 students wishing to explore teaching careers); ar.: (e) 10 evening schools with about 3,000 students and 90 teachers. The private schools accounted in 1987-88 for a relatively small portion of the total formal enrollment: pre-primary 5%, primary 1%, middle school 3%, and secondary 41. However, private "prep" schools at the secondary level are just now emerging and rapidly gaining in popularity, mainly in urban areas. 1.06 The Science and Anatolia Schools, while being part of the regular public school system, operate under somewhat different conditions from the other schools. They accept, through highly competitive entrance examinations, only the highest achieving students; special dispensation is given for keeping class sizes small (official policy calls for a student-teacher ratio of 20:1 in these schools); and, due to the prestige of teaching in these schools, they attract and retain teachers who are among the country's finest. The Anatolia sC:ioos accept students upon completion of grade 5 and provide an interim year c,f intensive training in the foreign language used by the respective school, followed by the middle school component (grade 6-8) of the curriculum, and ultimate progression to the secondary level. The Science Schools provide only secondary education (grades 9-11). Students who complete the Anatolia middle school grades may, upon passing the appropriate examination, transfer to one of the Science Secondary Schools if they desire and are accepted. Graduates of the general middle schools also have the right, though less probability, to enter at the upper secondary level of the Anatolia Schools as well as the Science schools. T'he Science and Anatolia Schools combined accommodate about 7% of the total general education enrollment at the secondary level. 1.07 Gross enrollment rates for 1988-1989 (based on known enrollments and approximate age-group population) were: primary - 971 of the age-group; middle school - 56%; and secondary (general and vocational combined) - 33%. Female enrollment averages 43X of the total for the system as a whole (47%, 35%, and 36%, respectively, of primary, middle, and secondary school enrollments). The heavy demand for education at all levels in the larger urban areas, such as Ankara, Istanbul, Izmir, and Bursa, is considerably greater than available capacity, resulting in many classes with as many as 60- 80 students, even for schools operating with two four-hour shifts per day. This is not the case in some of the more remote areas of the country where class size is usually smaller. Schools with high enrollments generally operate in a single grade teaching mode, whereas those with fewer students normally use multi-grade teaching. Many rural schools have been closed recently due to decreasing enrollments as families move to more populous and economically active areas looking for higher paying jobs and better living conditions.  -4- Education Administration and Wanagement 1.08 Admh pistration of Publie Educatoln in Turkey is centralized under the MOE, with each of the 71 provinces maintaining an Education Directorate which reports, officially, through the Provincial Governor to the central Ministry. Upper echelons of management in the MOE include, in addition to the Minister, an Under-Secretary of State, as operational manager of the system, and five Assistant Under-Secretaries responsible for t