world bank policy paper on secondary education: juan manuel moreno world bank september 23, 2005...
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World Bank Policy Paper on Secondary Education:
Juan Manuel Moreno
World Bank September 23, 2005
Seminar on Seminar on
““Expanding Opportunities and Expanding Opportunities and Building Competencies: A New Building Competencies: A New
Agenda for Secondary Education” Agenda for Secondary Education”
Secondary Education: From Secondary Education: From
Weakest Link to Cornerstone Weakest Link to Cornerstone
• The Origins as the Weakest Link
• The Change of Partner
• Access – Quality – Equity
The Strategic Nature of The Strategic Nature of Secondary Education Secondary Education
• Within any given education system, secondary education works as the bridging or articulation bond between primary schooling and tertiary education institutions:
• Secondary education can serve as a set of pathways for students’ progress and advancement…
• Or as the main bottleneck preventing the equitable expansion of educational opportunities.
Secondary Education Secondary Education As a Policy ParadoxAs a Policy Paradox
• Terminal - Preparatory. • Compulsory – Post-compulsory• Basic – Post-Basic• Uniform-diverse• Individual needs and interests - Societal/Labor
market needs• Integrate students and offset disadvantages –
Select and Screen according to academic ability
• Common curriculum for all - Specialized curriculum for some
Political TensionsPolitical Tensions
• While there are strong national and international lobbies for primary or tertiary, there are no such thing for secondary education.
• Reaching political consensus for secondary expansion and reform is much more difficult than for primary or tertiary education.
• As a result, policy choices are more ambiguous, risky and complex.
Secondary Education: Why now?Secondary Education: Why now?
• After primary education, What? Surging demand driven by EFA.
• “Youth-quake” The largest ever cohort of young people. A global risk or opportunity? Need to build/harness their skills
• Primary education is not enough Globalization and knowledge society present new challenges to human capital development
Demand for secondary education is
soaring
Confluence of 3 forces:
Twin ChallengeTwin Challenge
• Develop a mass system of secondary education, with quality and equity
• Improve quality, defined as different institutional responses to an increasingly diverse demand
• Generate effective demand for secondary education among youth
Some Regions are Catching UpSecondary GER by World Region
0
20
40
60
80
100
East Asia ECA LAC MNA SouthAsia
Africa
1980 1990 2001
Education Attaintment Gaps GrowPercentage of Population
With at Least Some Secondary Education
0%
20%
40%
60%
80%
100%
1960 1970 1980 1990 2000 2010Year
Per
cent
age
ME & N Af
Sub-Sah Af
Lat Am/Car
E Asia/Pac
S Asia
Developed
E Europe
Pisa Results for Selected Developing Countries and OECD
0
10
20
30
40
50
60
70
80
90
100
<1 1 2 3 4 5Pisa Proficiency Levels
Cum
ulat
ive
% o
f le
arne
rs
OECD totalPeruIndonesiaBrazilMexicoThailandOECD Average
How the demand for skills is How the demand for skills is changing (I)changing (I)
(Levy and Murnane, 2004)
1.Expert thinking: solving problems for which there are no rule-based solutions, e.g. diagnosing the illness of a patient.
2.Complex communication: interacting with humans to acquire information, to explain it, or to persuade others of its implications for action.
How the demand for skills is How the demand for skills is changing (II)changing (II)
3. Routine cognitive tasks: mental tasks that are well described by logical rules, e.g. maintaining expense reports.
4. Routine manual tasks: physical tasks that can be well described using rules, e.g. counting and packaging pills.
5. Non-routine manual tasks: physical tasks that cannot be well described as following a set of “If-Then-Do rules” – instead, they require optical recognition and fine muscle control.
Demands for Job-Skills is Changing Rapidly
-10
-5
0
5
10
15
Years
Per
cen
tile
Ch
ange
Expert Thinking Complex Communication
Routine Manual
Routine Cognitive
Non-routine Manual
1969 1974 1979 1984 1989 1994 1998
Source: Autor, Levy, and Murnane (2003) “The Skill Content of Recent Technological Change: An Empirical Exploration,” Quarterly Journal of Economics.
PausePauseAsking the right questions!Asking the right questions!
• What percentage of your 16 year old population do you want to master the so-called 21st century skills?
• Which curriculum prepares best for an uncertain future?
Is Sustainable Expansion of Is Sustainable Expansion of Secondary Education Feasible?Secondary Education Feasible?
• Hong-Kong, Korea, Malaysia, Singapore, Taiwan, Finland, demonstrate that it is possible
• And it can be done in a short period of time. Between 1990 and 2000 these countries increased the average years of schooling by more than 4.5 years
• Finland and Korea did it, by decreasing the fraction of the adult population with only primary education and increasing the opportunities for all to attend secondary education
Finland and KoreaFinland and Korea Balanced Expansion of Balanced Expansion of Educational Educational AttainmentAttainment
K O R E AP o p u la tio n o v e r 1 5
1 9 6 01 9 6 0
1 9 8 01 9 8 0
2 0 0 02 0 0 0
8 0 %
3 %
1 7 %
4 9 %
4 2 %
9 %
1 8 %
5 5 %
2 6 %
F IN L A N DF IN L A N DP o p u la tio n o ver 1 5
1 9 6 01 9 6 0
2 0 0 02 0 0 0
1 9 8 01 9 8 0
8 8 %
4 %
8 %
1 1 %
2 4 %
6 6 %
2 2 %
4 8 %
3 0 %
Colombia and BangladeshColombia and Bangladesh Unbalanced Expansion ofUnbalanced Expansion of Educational Educational AttainmentAttainment
C O L O M B IAC O L O M B IAP o p u la tio n o ver 1 5
1 9 6 01 9 6 0
1 9 8 01 9 8 0
2 0 0 02 0 0 0
8 4 %
1 4 %
2 %
7 3 %2 3 %
4 %
6 3 %
2 7 %
1 0 %
B A N G L A D E SHP opu la tion over 15
19601960
20002000
19801980
96%
0.4%
3%
1%
15%
84%
3%
14%
83%
Financial Gaps and ImbalancesFinancial Gaps and ImbalancesFast-growing economies
Countries succeeding in expanding secondary enrollment
Slow-growing economies
Countries not succeeding in expanding secondary enrollment
Per-student spending on secondary students as a ratio of per-student spending on primary students
Per-student spending on tertiary students as a ratio of per-student spending on secondary students
1.4 1.4 2.2 2.6
3.0 3.2 11.0 9.3
Which curriculum prepares best?:Which curriculum prepares best?: Overall Trends in Curriculum Overall Trends in Curriculum
Reform (i)Reform (i)
• Deferring selection and specialization of pupils
• Ability grouping, tracking and streaming may raise the attainment of higher achievers at the expense of low achievers, which, apart from equity concerns, also raises worries about the loss of human and social capital
Which curriculum prepares best?: Which curriculum prepares best?:
Overall Trends in Curriculum Overall Trends in Curriculum Reform (ii)Reform (ii)
• Increasing the status recognition of traditional vocational education, in part by pushing it to the upper secondary level and then to post-secondary level.
• Departing from the disciplinary tradition of curriculum design and development, thus moving to broader curriculum areas, skill centered-approaches, etc., which amount to a more relevant and inclusive secondary curriculum.
The Challenge is to Build up The Challenge is to Build up Meta-cognitive Capital Meta-cognitive Capital and Creative Capital (i)and Creative Capital (i)
Ability to integrate formal and informal learning, declarative knowledge (or knowing that) and procedural knowledge (or know-how)
Ability to access, select and evaluate knowledge in an information-soaked world
Ability to develop and apply several forms of intelligence, beyond strictly cognitive factors
Ability to work and learn effectively in teams
The Challenge is to Build up The Challenge is to Build up Meta-cognitive Capital Meta-cognitive Capital and Creative Capital (ii)and Creative Capital (ii)
Ability to create, transpose and transfer knowledge
Ability to cope with ambiguous situations, unpredictable problems and unforeseeable circumstances
Ability to cope with multiple careers, learning how to locate oneself in a job market, choose and fashion the relevant education and training
Learning to Think and Learning to Learn
The Shifting – and Fading – Frontier The Shifting – and Fading – Frontier between General and Vocational Curriculabetween General and Vocational Curricula
• Reduction in the fragmentation of secondary school curriculum
• The issue nowadays is not so much how to provide vocational skills but how to add basic vocational content to the general curriculum
• Introducing greater diversity in upper secondary education through the development of multi-faceted programs offering alternative pathways for education and training
The Shifting – and Fading – Tension The Shifting – and Fading – Tension between General and Vocational between General and Vocational
Secondary EducationSecondary Education
• Curriculum-based reform of secondary education is prioritizing skills and competencies that go beyond and cut across the traditional general/vocational divide
• Specialized vocational programs are being upgraded; vocational and specialized training elements are a must in Secondary Education if education systems want to retain students in secondary schools
Converging Agendas in the 21st Century
• Educating the citizen
• Training the worker
Access and Quality are not just Access and Quality are not just twin goals but Siamese Twinstwin goals but Siamese Twins
• No country has expanded secondary education without creating the public opinion perception of a quality drop.
• Unchecked expansion can lead to increased inequality, particularly gender and ethnic inequality.
Is It Just Is It Just More of the Same?More of the Same?
• It is not enough to “open doors”.• Changes in the way education
services are delivered.• The implications of Curriculum
differentiation.• Combination of supply and
demand side interventions.• Need to build political consensus
And The Role of the State is And The Role of the State is More Important than EverMore Important than Ever
• Mobilizing financial resources.
• Ensuring political consensus and providing technical leadership and support.
• Creating conditions for alternative providers
• Targeting the poor and excluded groups.
• Monitoring and evaluating service delivery and system quality.
Looking Ahead: Looking Ahead: 3 Key Challenges3 Key Challenges
• Minimizing the inter-country/inter-regional education gap
• Sustainable financing of the expansion
• Address youth needs of relevant secondary education experiences