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The Politics ofTransforming Education inEcuador2006-2017BenRossSchneider,PabloCevallosEstarellas,andBarbaraBruns
Quito,2007 Lima,2012
Outline
1. Ecuador’seducationtransformationinanAndeancontext
2. Whatdriveslearningimprovement?1. Whateducationeconomicsis
tellingus:cost-effectiveinterventions
2. Whatpolicymakersaredoing:system-widereformwithlittleevidencebase
3. Challengesofreformingteacherpolicy– technicalandpolitical
4. HowAndeancountriesaredoingit?5. WhatwecanlearnfromEcuador?
AndeancountriesonLatinAmericaregionaltest2006-2013
492
511
400
420
440
460
480
500
520
2006 2013e
LAaverage*
MathScoresonSecond(SERCE)andThirdRegionalTest(TERCE)
AndeancountriesonLatinAmericaregionaltest2006-2013
517
581
492
511
400
420
440
460
480
500
520
540
560
580
600
2006 2013e
Chile
LAaverage*
MathScoresonSecond(SERCE)andThirdRegionalTest(TERCE)
AndeancountriesonLatinAmericaregionaltest2006-2013
517
581
490
527
492
511
400
420
440
460
480
500
520
540
560
580
600
2006 2013e
Chile
Peru
LAaverage*
MathScoresonSecond(SERCE)andThirdRegionalTest(TERCE)
AndeancountriesonLatinAmericaregionaltest2006-2013
517
581
460
513
490
527
492
511
400
420
440
460
480
500
520
540
560
580
600
2006 2013e
Chile
Ecuador
Peru
LAaverage*
MathScoresonSecond(SERCE)andThirdRegionalTest(TERCE)
AndeancountriesonPISA:2000-2015
250
300
350
400
450
500
550
2000 2003 2006 2009 2012 2015
Chile Peru OECDAverage
MathscoresonPISA
Note:ValuesforPeruinterpolatedfrom2000-2009
WhatisdrivingAndeaneducation
progress?• Cost-effectiveinterventions?
Source:EvansandPopova,WhatReallyWorkstoImproveLearninginDevelopingCountries,2015
Source:Glewwe andMuralidharan,2015
WhatisdrivingAndeaneducation
progress?
• Cost-effectiveinterventions?• Orcomprehensivereformtacklingthecoreissueofteacherquality?
Highquality teachers areproduced by aSystemthat rewards talent andis selective
Effectiveprofessionaldevelopment
Secondaryschool
Teachereducation
Teachinginaschool
Screeningpoint1:Selectivityofentryinto
teacherecucation
Screeningpoint2:Standardsforteacherhiring
PeriodicTeacherperformanceevaluation– retainhighquality,removelowquality
Highqualitypreparationfor
teaching
Goodschoolleaders
HowitworksinFinland,Singapore,Canada,Japan,Korea,Shanghai
Financial (salaries,benefits,trajectory)andprofessionalincentives(qualityofpeers,working
conditions)attracttalentedpeople
Raising teacher quality requires reforming theSystem that producesteachers
Littleornoeffective
professionaldevelopment
Academicallyweakstudents– bottomhalfofhighschool
grads
Academicallyweakpreparation
Noemphasisonpractice/Delinkedfromschools
Teachinginaschool
Noselectivity NoselectivityAutomaticpromotion
JobstabilityNoperformance
evaluation
Largenumberoflowqualityinstitutions
Financial (salaries,benefits,trajectory)andprofessionalincentives(qualityofpeers,working
conditions)notcompetitivewithother
sectors
Non-meritschoolleaders
Howitworksinlow-performingcountries…
Teacherreformistechnicallychallenging
• Bigagenda– multiplereforms,coveringincentives,institutionsandprocessesneedtobepursuedatsametimeandaligned• Capacity-intensive- teacherperformanceevaluation;institutionalaccreditation;effectiveprofessionaldevelopmentallrequireexpertskillandimplementationcapacity• Hardtomonitor- Toaffectstudentlearning,reformsmustaffectteacherpracticeintheclassroom,butthisishardtochange• Slowanddiffusedresults– benefits,intermsofeducationsystemperformance,takeyearstoaccrue
…andpoliticallyconflictual
• Costsofreformareconcentratedonteachersandteacherunions• Increasedaccountability,decreasedjobstability,morevariablepay• Threatstounionstructure(decentralization)orunity(variablecompensation)
• Unionshaveimmensepoliticalpower• Largest,mosthomogeneous,andmostpowerfulunioninmanycountries• Highdisruptivepowerthroughstrikesanddemonstrations• Directpoliticalpowerinfundingcandidatesandvotingbloc
• Notjustalaborassociation• Leadershipoftenpoliticizedandalliedwithpowerfulparties• Maycontrolsignificantrents(e.g.,appointments)• Maybepartofclientelist,machinepolitics• Multiplelayersofinterestssuperimposedonunions
• Qualityreformsaffectalloftheseinterests
Sowhy– andwhen–doesithappen?
• Nosatisfyinganswersfrompoliticalscientists• MaybelessonsfromtheAndeanwave–threepoliticallydistinctcountriesimplementingverysimilarreforms• ParallelinWashingtonDC,whichhasbeenresearched• DeeandWyckoff,2013– within3years,teacherevaluationprogram“shiftedtheentiredistributionofteachersinthedirectionofhigherquality”• Jacobetal,2015– test-basedrecruitmenthasproducedmoreeffectivenewteachers
Policygoalsandinstruments Ecuador2007-15
Chile2004-16
Peru2009-14
WashDC2010
Moreselectiveandhigherqualitypre-serviceeducation(selectionpt.1)
ü ü ü
- Raiseacademicstandardsforadmission ü ü ü - Closelowqualityschools ü ü ü - Createhighqualityteachertraininguniversity ü - Createexitexam ü Higherstandardsfornewteachers(selectionpoint2)
ü ü ü ü
- Test-basedhiring ü ü ü ü - Highersalariesfornewrecruits ü ü ü ü
Individualteacherperformanceevaluation ü ü ü ü - Bonuspayfortopscorers ü ü ü ü - Eliminatejobstability ü ü ü ü
Promotionbasedonskillsandperformance ü ü ü ü - Moreremunerativesalaryscale ü ü ü ü
Higherqualityprofessionaldevelopment ü ü ü ü - Professionalincentives(timeforcollaboration,
morein-servicetraining,higherqualitytraining)
ü ü ü ü
“Andeanwave”ofTeacherPolicyReforms
ThecaseofEcuador’seducationreform
- Senseofcrisis:spendingfellto1%ofGDP;lowestscoresinLACregiononSERCE;teachersworkingonly62%ofcontractualhours.
- Politicalleaderwithamandateandpersonalconviction:RafaelCorrea.
- Resources:oilpricesandeconomicexpansionpermit4-foldincreaseinspending,to5%in2013.
Uniquefeatures
Ecuador:Political
strategies
• Keyreformopponent(teachers’union)wasdefeatedbyCorrea’scommunicationsstrategies.• Noothermajorstakeholderswereinfluential,butparentandstudentinvolvementinschool-leveldecisionsbuiltsupport.• StrongtechnicalteaminMinistryandstableleadershiponly2ministersfrom2006-2013.
1.Moreselective,
andhigherquality,
pre-serviceteacher
education
Whatwasdone?• Minimumstandardssetforteachereducationcurriculum• Mostteachertraininginstituteswerecloseddown• NationalEducationUniversity(UNAE)wascreated
2.Higherstandardsfornewteachers
Whatwasdone?• Entranceteststoapplyforpublicteacherpositions• MinimumscoreinENEStesttoenterteachereducationprograms• Recruitmentcampaign“Iwanttobeateacher”
3.Individualteacher
performanceevaluation
Whatwasdone?• First-timeassessmentofallin-serviceteachers&principals• Economicincentivestothosewhoreceivedbettermarks• CreationofInstituteofEducationalAssessment(INEVAL)
4.Highqualityin-service
professionaldevelopment
Whatwasdone?• Nationaltrainingprogramforin-serviceteachers• Orientationprogramfornewteachers• Mentorshipprogram
5.Restructureteachercareerwithpromotionbasedontestedcompetencies
Whatwasdone?• Entrysalaryincrease• “Meritocratic”careerladder• Moreprofessionalopportunities
Conclusions
Whatworked?• Strongpoliticalleadershipproducedoverwhelmingpublicsupport.• Longtenureofreformersgeneratedcontinuityofreforms.• Teachers’unionoppositiontoreformswasskillfullydeactivated.• Educationreformwascomprehensive.
Whatlooksproblematic?• Top-downreformfailedtobuildabroadercoalitionofcivilsocietysupportandcultivateteacherbuy-in.
• Teacherselectionmechanismsshowedadisconnectbetweenrequisitesandretribution.
• Limitedattentionwasgiventothequalityofkeyactorsoftheeducationsystemotherthanteachers– e.g.,schoolleadersandsupervisors.
• Somesubstantivelyimportantreformsmayproducelittleimpact,astheydonotaddresstheflawstheyweremeanttosolve.
¡Gracias!Thankyou!
• Ongoingresearch• Commentsandsuggestionswelcome:• [email protected]• [email protected]• [email protected];[email protected]
