Rapor No: 77723-TR EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY March 2013 The World Bank Human Development Sector Unit Europe and Central Asia Region Document of the World Bank ECE ENG F baski.indd 1 26.06.2013 11:33 CURRENCY EQUIVALENTS (Exchange Rate Effective November 1, 2012) Currency Unit= TL (Turkish lira) US$1=TL 1.79 ACRONYMS AND ABBREVIATIONS AÇEV Mother and Child Education Foundation (Anne Çocuk EÄŸitim Vakfı) ECA Europe and Central Asia ECD Early Childhood Development ECE Early Childhood Education (or Pre-Primary Education) ERI Education Reform Initiative GDP Gross Domestic Product MoNE Ministry of National Education NGO Non-governmental Organization OECD Organisation for Economic Co-operation and Development ÖBBS Student Achievement Assessment Examination (Öğrenci BaÅŸarılarının Belirlenmesi Sınavı) PISA Programme for International Student Assessment SABER Systems Assessment and Benchmarking Education for Results SPO State Planning Organization (now called the Ministry of Development) SHÇEK Social Services and Child Protection Agency (now closed and converted to Child Services General Directorate under the Ministry of Family and Social Policies) TEED Turkish Early Enrichment Project UNICEF United Nations Children’s Fund Vice President: Philippe H. Le Houérou Country Director: Martin Raiser Sector Manager: Alberto Rodríguez Task Team Leader: Naveed Hassan Naqvi 26.06.2013 11:33 ACKNOWLEDGEMENTS T his report was prepared by a World Bank team led by Naveed Hassan Naqvi (Senior Education Economist) and comprising Emiliana Vegas (Lead Education Economist), Juan Diego Alonso (Education Economist) , Cristobal Ridao-Cano (Country Sector Coordinator, Turkey) , Igor Kheyfets (Economist) , Victoria Levin (Young Professional) , Özgür AvcuoÄŸlu (Junior Professional Associate), Amanda Epstein (Consultant), and Meltem Aran (Consultant). From within the World Bank, helpful guidance, comments, and assistance were also provided by Ulrich Zachau and Martin Raiser (Country Directors, Turkey), Alberto Rodriguez (Education Sector Manager, Europe and Central Asia), Ina-Marlene E. Ruthenberg (Country Program Coordinator, Turkey), and Benjamin Welch (Junior Professional Associate). We thank the report’s peer reviewers Amit Dar (Education Sector Manager, South Asia) , Sophie Naudeau (Senior Education Specialist), and Michelle J. Neuman (Human Development Specialist) for their useful and insightful comments and guidance. Additional comments were provided by Aylin Isik-Dikmelik (Economist) and Paul Cahu (Economist). In addition the team would like to acknowledge the following colleagues for their very valuable insights and contributions: • From the Ministry of National Education: Salih Çelik, Funda Kocabıyık, Ziya Yediyıldız, Filiz TürkmenoÄŸlu , Demet Niron Gören, Demet Uzuner, Ãœnal Akyüz, Tuncay YelboÄŸa, and Kübra Akçam. • From the State Planning Organization: Yılmaz Tuna, Ahmet Alper Ege, Alper Yatmaz, Serdar Polat, Betül Ersin, and Yıldız Yapar. • Ayla Göksel Göçer from AÇEV and Batuhan Aydagül , Işık Tüzün, and AytuÄŸ ÅžaÅŸmaz from the Education Reform Initiative whose review of Turkish literature on early childhood education was a valuable input for this study. ECE ENG F baski.indd 3 26.06.2013 11:33 TABLE OF CONTENTS EXECUTIVE SUMMARY 7 Early childhood education in Turkey 8 Summary of recommendations 10 I. INTRODUCTION 13 II. ANALYTICAL FRAMEWORK FOR EARLY CHILDHOOD INTERVENTIONS 15 The case for early childhood interventions 15 Strengthening ECD policies in Turkey 17 III. AN ANALYSIS OF EARLY CHILDHOOD EDUCATION IN TURKEY 23 Expanding access to ECE 25 Assuring quality and accountability in ECE 29 Encouraging the participatıon of non-governmental actors in ECE 32 Ensuring adequate fınancing of ECE 34 IV. FROM ANALYSIS TO ACTION: A STRATEGY FOR EXPANDING QUALITY EARLY CHILDHOOD EDUCATION IN TURKEY 39 Policy responses and implementation strategies for expanding access 39 Policy responses and implementation strategies for assuring quality and accountability 39 Policy responses and implementation strategies for encouraging the participation of non-governmental actors 40 Policy responses and implementation strategies for ensuring adequate financing 41 Defining a strategy for expanding ECE in Turkey: Lessons from international experience 41 Putting it all together: A proposed strategy for expanding quality early childhood education in Turkey 43 Sequencing the implementation of the ECE expansion strategy 47 REFERENCES 52 ANNEX 1: EARLY CHILDHOOD INTERVENTIONS IN FOUR OECD COUNTRIES 59 Australia: A national ECD strategy and a national quality standard 59 Chile: The dual comprehensive and targeted approach 61 New Zealand: Serving a diverse population through targeted interventions and public-private partnerships 63 Sweden: National standards and local flexibility 64 ECE ENG F baski.indd 4 26.06.2013 11:33 Lessons learned from international experience 66 Lesson 1: Comprehensive versus targeted approaches 66 Lesson 2: National standards and assessments 66 Lesson 3: Flexibility in service delivery 66 Lesson 4: Inter-institutional coordination 67 ANNEX 2: A SNAPSHOT OF EARLY CHILDHOOD DEVELOPMENT INTERVENTIONS IN TURKEY 69 ANNEX 3: REVISIONS TO THE EARLY CHILDHOOD TEACHER EDUCATION CURRICULUM 75 ANNEX 4: EXPENDITURES ON EDUCATION AND EARLY CHILDHOOD EDUCATION AND MONE’S PRE-PRIMARY EXPANSION PLAN 77 ANNEX 5: ASSUMPTIONS ON COSTING THE EXPANSION IN TURKEY’S ECE PROGRAM 83 TABLES Table 1: Benchmarking early childhood development policy in Turkey 20 Table 2: Some preliminary policy options for strengthening ECD in Turkey 21 Table 3: Key statistics on ECE in Turkey 29 Table 4: Benchmarking of ECD services in OECD countries 31 Table 5: Costing the strategy for ECE expansion: coverage for children aged 36-72 months 50 Table 6: Proposed implementation matrix 51 FIGURES Figure 1: Returns on education investments 16 Figure 2: ECD policy goals, actions, and outcome 19 Figure 3: Number of students and increase in enrollment rate in pre-primary education in Turkey, 1997/98-2010/11 26 Figure 4: Pre-primary education gross enrollment rates among children aged 3-5 years 27 Figure 5: Benefit incidence of center-based pre-school and daycare options in Turkey 28 Figure 6: Pre-primary enrollment and human development index by province 28 Figure 7: Per capita social expenditures by age group in Turkey (central government, excluding social security contributions, 2008) 36 Figure 8: Expanding access to ECE 42 Figure 9: Assuring quality and accountability in ECE 43 Figure 10: Encouraging the participation of non-government actors in ECE 44 Figure 11: Ensuring adequate financing for ECE 45 Figure 12: Proposed ECE strategy for Turkey 49 ECE ENG F baski.indd 5 26.06.2013 11:33 ECE ENG F baski.indd 6 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY SMRY 7 EXECUTIVE SUMMARY 1. Over the past decade, Turkey’s disadvantaged than adults. Turkey population has experienced has seen significant improvements significant socioeconomic progress in key health outcomes in the last and demographic changes. The decade 1 and infant and maternal share of the Turkish population living mor tality and life expectancy have in poverty dropped from 27 percent continued to improve and approach in 2002 to 18 percent in 2009, while OECD averages. By contrast, Turkey’s per capita income nearly doubled. The provisions of Early Childhood annual rate of population growth slowed Education (ECE) has lagged significantly (from 1.7 percent in 1997 comparator countries. Turkey’s per to 1.2 percent in 2009), which eased the capita income would suggest an ECE pressure on many social service fronts. enrollment rate of over 60 percent, Nonetheless, Turkey remains one of the but fewer than 30 percent of children fastest growing members of the OECD between the ages of 36 and 72 in terms of population. One-third of the months 2 currently benefit from pre- country’s 75 million residents are under primary education in Turkey. Children the age of 18, of which nearly 7 million from economically disadvantaged are children younger than 5 years old families have less access to ECE than (World Bank, 2011b). children from well-off families. 2. Turkey’s children and youth 3. Early childhood development are increasingly the focus of (ECD) interventions 3 have been policymakers, as they seek to sustain shown to yield many direct and economic growth, increase productivity, indirect benefits to society. First, and ensure equality of opportunity t h e i n t e r ve n t i o n s a r e t h e s i n g l e for all. Among the five strategic goals that the Government of Turkey set 1- Infant mortality rates (IMR) have declined for its Annual Prog ram 2011, the from 28.5 per 1,000 live births in 2003 to 10.1 per 1,000 live births in 2010. Maternal mortality pillar called Strengthening Human ratio (MMR) fell from 61 maternal deaths per Development and Social Solidarity 100,000 in 2000 to 16.4 deaths per 100,000 live features prominently (SPO, 2011). births in 2010 (MOH, 2011a; MOH, 2011b). 2- The ongoing reform under the recently pro- Education, health, and social protection mulgated “4+4+4â€? education law seeks to lower interventions are critical elements within the minimum starting age for grade 1 from 72 this pillar, and improving the welfare months to 66 months. 3- For the purpose of this report, early childhood of children is one of the government’s development (ECD) programs refer to interven- core goals because children continue to tions targeted to children aged between 0 and 72 face a higher risk of being economically months (0 to the child’s 6th birthday, which is usually the age of primary school entry). ECE ENG F baski.indd 7 26.06.2013 11:34 most efficient way for governments EARLY CHILDHOOD to enhance economic productivity EDUCATION IN by investing in children at a time in TURKEY their developmental cycle (from the time of bir th to 6 years old) when 5. In recent years, the Government such investments yield the highest o f Tu r k e y h a s r e c o g n i z e d t h e r e t u r n s. S e c o n d , t h e y p r ov i d e a cr itical role played by early mechanism to enhance equity, as lifecycle investments in achieving focused early childhood interventions e q u i t a b l e g r o w t h . Tu r k i s h targeted at the vulnerable segments policymakers rightly view ECE o f p o p u l a t i o n h a ve b e e n k n o w n e x p a n s i o n a s a way t o h ave a to reduce the intergenerational strong , positive impact on the transmission of poverty. Third, ECD growing young population. This p o l i c i e s c a n g r e at l y i m p r ove t h e inclination is suppor ted by recent personal development and life skills international research, which has shown of young children and increase the that ECE interventions have higher rates opportunities available to them later of return than education interventions in life by, for example, increasing of similar magnitude at later stages rates of childhood sur vival and of the lifecycle. The benefits of such school readiness. Lastly, policies that programs are maximized when the focus on young children can have interventions are targeted to children positive externalities that benefit other from disadvantaged families; thus they members of these children’s families, have the additional effect of reducing as well as society as a whole. inequality of opportunity (Halle et al, 2009 and Heckman, 2008). 4. In this report, “ECD programsâ€? refer to inter ventions aimed at 6. The country has made children between 0 and 72 months considerable strides over the past (0 to 5 years old), while E C E decade in improving the health programs, refer to a subset of ECD and education of children aged inter ventions designed to educate 0 to 5 years old. The government children aged between 36 and 72 recently made ECE (designed to months (3 to 5 years old). 4 educate children aged between 36 and 72 months or 3 to 5 years old) a national pr ior ity by committing to ensur ing univer sal access to 4- In Turkey, children aged between 60 and 72 months are referred to as 5 year olds in kindergarten for children aged between the “National Annual Statistics for Formal 60 and 72 months and to reaching 50 Education, 2012â€? published by MoNE. ECE ENG F baski.indd 8 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY SMRY 9 percent participation in pre-primary aims to enroll an additional 600,000 education for children aged 36 to students in the education system, but 72 months by 2014. These targets nearly half of these students, who a r e p a r t o f a f i ve - y e a r S t r a t e g y are located in the provinces with the Action Plan for ECE prepared by lowest enrollment rates, are not due to t h e D i r e c t o r at e - G e n e r a l o f P r e - be targeted until the last year (2014). school Education in the MoNE dur ing 2009-10 (MoNE, 2010). 5 8. In addition, the Government The government focused initially of Turkey has recently launched on the 32 pilot provinces with the the Strengthening Pre-school highest gross enrollment rates at the Education Project. This project kindergarten level - those with over 50 will pilot community-based models of percent participation in kindergarten. ECE delivery and build the capacity This prog ram has already placed of communities and the MoNE for 135,000 more children in pre-primary monitoring and managing these classrooms in the last year and has models. achieved an average 91 percent gross enrollment rate in these 32 provinces. 9. The Government of Turkey’s desire to expand ECE access is 7. The MoNE plans for ECE in line with inter national best expansion star ts with a focus practice. This report offers on provinces with the highest some options for increasing the enrollment rates. This is based on effectiveness of Turkey’s ECE the rationale that those provinces are s t r at e g y i n t h e c o m i n g ye a r s. less likely than others to need new The repor t endorses the goal of infrastructure, thus making it easier the proposed expansion plan and to accumulate quick gains in reaching provides detailed recommendations enrollment targets. However, this for achieving this ambition in an means that the expansion plan will efficient and equitable manner. By reach the provinces with the lowest identifying and addressing the key enrollment (and therefore the greatest challenges that the gover nment need) last. The overall ECE expansion will likely face in the coming years, the study provides the analytical 5- ECE goals are also set in the 9th Development underpinnings for improving Turkey’s Plan (SPO 2011, par. 584), quoted later in this ECE expansion strategy and proposes document. Laws regulating ECE include the specific policy options for the short Primary Education Law, No. 222; Basic Law of National Education, No. 1739; and the Law on and medium terms. Organization and Duties of Ministry of National Education, No. 3797. ECE ENG F baski.indd 9 26.06.2013 11:34 SUMMARY OF a ) Ta r g e t i n g l o w - e n r o l l m e n t RECOMMENDATIONS provinces. b ) Ta r g e t i n g e c o n o m i c a l l y 10. The recommendations outlined disadvantaged households to ensure in this report can be grouped into equity in access. four broad categories. The first category focuses on ensuring equity ii. Systematically assess and enforce in access to ECE services by targeting national quality standards: To ensure public spending in a prog ressive high quality ser vice provision, the manner, in other words, by targeting government should systematically the disadvantaged groups within the assess and enforce standards on the population. The second encourages the curriculum, infrastructure, teacher government to put systems in place that qualifications, teacher training, teaching will enhance the quality and accountability materials, and educational supplies. in Turkey’s ECE subsector. The third The government should also develop a advises policymakers about how to make system for assessing such outcomes as ECE management more effective by school readiness among ECE students. increasing the involvement of private Some tools for doing this include: and not-for-profit actors in the sector. The last category of recommendations a) School self-evaluations in which describes the levels of financing that will schools would evaluate their own enable ECE programs to achieve Turkey’s performance ever y year against ambitious goals of expanding ECE national standards coverage. b) School external evaluations in 11. The following options are which schools would be evaluated a v a i l a b l e t o t h e G o ve r n m e n t ever y three year s by peer s and o f Tu r k e y f o r i n c r e a s i n g t h e expert groups, including assessing effectiveness of its ECE program: such outcomes as children’s school readiness. i. Target spending in a progressive manner: The ECE expansion strategy will be iii. Involve private and not-for-profit more equitable and will have a greater actors in the ECE system: While the bulk impact if funds allocated to this initiative of services will have to be delivered are distributed progressively. This can by the public sector, the efficiency of be done in two ways: ECE provision can be enhanced by ECE ENG F baski.indd 10 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY 11 involving the private sector and non- iv. Ensure adequate funding for ECE: To governmental organizations (NGOs). achieve this ambitious policy agenda, Non-governmental actors and public- the resources dedicated to ECE will pr ivate par tner ships can suppor t need to be raised from the current level and complement the Government of 0.03 percent of GDP to 0.23 percent of Turkey’s efforts to provide ECE of GDP in 2014. ser vices, deliver targeted suppor t, produce innovative media programs, and conduct external evaluations. ECE ENG F baski.indd 11 26.06.2013 11:34 ECE ENG F baski.indd 12 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY INT 13 I. INTRODUCTION 36 months and 72 months 7 currently 1. Over the past decade, Turkey benefit from ECE in Turkey. Also, has experienced significant significant differences continue to exist socioeconomic progress and between children from economically demographic changes. The growing disadvantaged families and children young population is increasingly from better-off families, thus setting the focus of policymakers in Turkey the foundation for inequalities later on as they seek to sustain economic in life. growth, increase productivity, and ensure equality of opportunity for all. 2. The benefit of ECE programs is Education, health, and social protection maximized when the interventions interventions are critical elements of are targeted to children from the government strategy. As a result disadvantaged families thus they of government effor t, Turkey has have the additional effect of reducing seen significant improvements in key inequality of opportunity in the country health outcomes in the last decade 6 in question (Halle et al, 2009 and and infant and maternal mor tality Heckman, 2008). Recognizing this, and life expectancy have continued to ECE has become a national priority8 improve and approach OECD averages. for Turkey and the government is Investment in Early Childhood committed to achieving universal access Education (ECE) has been shown to kindergarten for children between to have substantial economic and 60 to 72 months old, and 50 percent social returns. Turkey’s provision participation in pre-primary education of ECE has lagged comparator for children aged 36 to 72 months by countries. Turkey’s per capita income 2014/15. The overall ECE expansion would suggest an ECE enrollment rate program aims to enroll an additional of over 60 percent, but fewer than 30 600,000 students in the education percent of children between the ages of system, but half of these students are 7- The ongoing reform under the recently promulgated “4+4+4â€? education law seeks to 6- Infant mortality rates (IMR) have declined lower the minimum starting age for grade 1 from from 28.5 per 1,000 live births in 2003 to 10.1 72 months to 66 months. per 1,000 live births in 2010. Maternal morta- lity ratio (MMR) fell from 61 maternal deaths 8- The ongoing reform under the recently per 100,000 in 2000 to 16.4 deaths per 100,000 promulgated “4+4+4â€? education law seeks to live births in 2010 (MOH, 2011a; MOH, lower the minimum starting age for grade 1 from 2011b). 72 months to 66 months. ECE ENG F baski.indd 13 26.06.2013 11:34 located in the provinces with the lowest 3. This report examines the ECE enrollment rates (and therefore the provision in Turkey, and offers greatest need), which are not due to be policy options for improving and targeted until 2014, the last year of the expanding the ECE system the action plan. future. The report is divided into four sections. Section II presents an analytical framework for analyzing early childhood interventions, section III conducts an in-depth analysis of ECE in Turkey and identifies key challenges, and section IV recommends and outlines proposals for a dual-program strategy for expanding quality ECE in Turkey. ECE ENG F baski.indd 14 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY II 15 II. ANALYTICAL FRAMEWORK FOR EARLY CHILDHOOD INTERVENTIONS 4. This section outlines the case THE CASE FOR for early childhood interventions EARLY CHILDHOOD and introduces a framework for INTERVENTIONS analyzing ECD policies. 9 Four processes occur during the critical 5. There are several arguments early years of a child’s life that have for investing fiscal and a lasting influence on outcomes administrative resources in later on in his or her life- physical ECD. 10 One key argument in favor g rowth and well-being , cognitive of early childhood investments is development, linguistic development, that they have been proven to be and socio-emotional development. more economically efficient than ECD policies and programs can inves t men t s mad e at later stages directly affect these processes to of life. Proper nutrition, cognitive the benefit of both individuals and stimulation, and nur turing care societies. It is important to distinguish during children’s early years have ECD programs from ECD policies. lasting positive consequences “Programsâ€? are specific interventions for their subsequent educational that vary according to their primary at t a i n m e n t , h e a l t h , f e r t i l i t y, a n d objectives (for example, increasing ear nings (Shonkoff and Phillips, c h i l d r e n ’s p h y s i c a l g r o w t h a n d 2000; Cunha and Heckman, 2007; improving their well-being or fostering Heckman, 2006; Cunha et al, 2005; their cognitive or socio-emotional and Carneiro and Heckman 2003). development), coverage (small-scale Conversely, the lack of these inputs or universal), and other characteristics. can ir rever sibly damage a child’s In contrast, “policiesâ€? refer to the potential life trajectory (Heckman and regulatory framework and institutional Masterov, 2007). Although remedial ar rangements for deliver ing ECD interventions are sometimes possible services at the national and/or state after early childhood, investments level, whose goal is to ensure that the in early childhood have better cost- nation’s children have access to quality benefit ratios and higher rates of ECD services. return than those made later in life (Figure 1). 9- See Vegas and Epstein (2011) for a brief analysis of Turkey’s ECD policies benchmarked 10 - This discussion draws heavily on Naudeau et against comparable countries. al (2011). ECE ENG F baski.indd 15 26.06.2013 11:34 RETURNS ON EDUCATION INVESTMENTS FIGURE 1 Return Rates on Early Investment in Human Development Equal Investment into All Ages Pre-school Programs Return per $ invested Opportunity cost of investment r School Job Training PRE SCHOOL POST SCHOOL SCHOOL 0 6 18 AGE Source: Carneiro ve Hackman (2003) 6 . Investments in ECD also childhood interventions can equalize enhance equity in society. The family opportunities for children and reduce environment is central to any child’s the intergenerational grip of poverty and development of skills and abilities, but inequality (Heckman, 2006). economically disadvantaged children frequently do not have access to the 7. Another argument in f avor resources enjoyed by their wealthier o f f o c u s i n g o n E C D r e vo l ve s peers. This disparity leads to the early around key human development emergence of performance gaps between indicators in the areas of health children from different socioeconomic and education that can be most backgrounds and the widening of these easily influenced early in life. The gaps as children grow older (Paxson main causes of child mor tality are and Schedy, 2007, cited in Naudeau et infections, neonatal disorders, and al, 2011). By using public resources to under-nutrition. Therefore, policies put in place a supportive environment aimed at ensuring that children have for the most disadvantaged children, adequate nutrition, health, and hygiene ECD programs can make up for some as well as early cognitive stimulation early family differences. Research are crucial for increasing child survival has convincingly shown that early rates and promoting optimal child health ECE ENG F baski.indd 16 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY II 17 and development (Nadeau et al, 2011). childcare can free household members to In education, maximizing academic participate in other productive activities achievement and school completion such as education or employment. For rates depend, in part, on children’s example, the expansion of Argentina’s ability to learn and relate to others (Hair pre-school programs increased maternal et al, 2006). These non-cognitive skills employment by about 7 to 14 percent such as the ability to work in groups, (Berlinski and Galiani, 2007). In this exercise self-control, and communicate way, ECD can create win-win situations effectively are developed very early in life whereby there is an immediate payoff and play a significant role in influencing in the form of an increase in female school readiness, 11 or the degree to labor force participation and a longer- which a child has been prepared to term return in the form of a healthier, learn and succeed in school (Ackerman more educated, and more productive and Barnett, 2005). Moreover, because workforce. genetic influences can account for only half of the variation in cognitive abilities STRENGTHENING ECD (Fernald et al, 2009), ECD programs POLICIES IN TURKEY have considerable scope to affect children’s cognitive development as well. 9 . Given the imperative for Examples of ECD interventions from i n v e s t i n g i n E C D, t h e Wo r l d around the world have demonstrated Bank has developed an analytical time and again that they yield significant framework for assessing the benefits in terms of later educational extent to which particular ECD achievement. 12 p o l i c i e s a c h i e ve t h e i n t e n d e d developmental outcomes. 8 . F i n a l l y, e a r l y c h i l d h o o d The framework is par t of System programs can generate positive Assessment and Benchmarking exter nalities in ter ms of older Education for Results (SABER). female siblings’ education and SABER-ECD collects, synthesizes, mothers’ labor force participation. and disseminates comprehensive ECD interventions that also provide information on ECD policies around the world. This information enables policy makers and World Bank staff 11- See Naudeau et al (2011:35) for further evidence and detailed development of the school to learn from the different means that readiness argument. countries use to address the same 12- For Bangladesh, see Aboud (2006) for policy challenges related to ECD. To Colombia, see Young (1995), for Argentina, see Berlinski et al (2009), for Turkey, see Kagitcibasi do this, SABER-ECD identified three et al (2001), and for the United States, see core ECD policy goals to assess the Schweinhart et al (2005). ECE ENG F baski.indd 17 26.06.2013 11:34 level of development of an ECD policy 10. Based on evidence from system. 13 The three core SABER-ECD impact evaluations, institutional policy goals are: analyses, and a benchmarking exercise of top-performing systems, a ) E s t a bl i s h i n g a n E n a bl i n g a set of actions, or policy levers, that Environment: This goal refers decision-makers can act upon to to the existence of an adequate strengthen ECD are identified for legal and regulator y framework each policy goal. Taken together, the to support ECD; the availability three policy goals and the eight policy of adequate fiscal resources; and levers comprise a coherent ECD policy the degree of coordination within system, which should lead to the desired sectors and across institutions to outcome of ensuring that all children ensure that services can be delivered have the opportunity to reach their full effectively. potential (see Figure 2). For each policy goal and lever, SABER-ECD classifies b) Implementing Widely: systems by four levels of development, This goal refers to the extent of r a n g i n g f r o m l e s s d e ve l o p e d ( o r coverage (as a share of the eligible “latentâ€?) to emerging, established, and population) and gaps in coverage, fully developed (or “advancedâ€?). ECD as well as the spectrum of programs policies in a country would be classified o f f e r e d . A r o bu s t E C D p o l i c y as “advancedâ€? for all three policy goals should include prog rams in all when one can observe: (a) a solid legal essential sectors (health, nutrition, framework for ECD, sustained financing education, and social protection), for attaining ECD goals, and a high inter-sectoral coordination, and degree of inter-institutional coordination; high degrees of coverage. (b) coordinated interventions in all essential ECD sectors and universal c) Monitoring and Assuring coverage in key ECD services such as Quality: This goal refers to the maternal and child health and preschool d e ve l o p m e n t o f s t a n d a r d s f o r education, resulting in integrated services ECD ser vices, the existence of for all young children (some services systems to monitor compliance universally provided, others tailored to with those standards, as well as the young children’s unique needs); and implementation of systems to monitor (c) information on ECD outcomes at ECD outcomes across children. individual, national, regional, and local levels and well-defined quality standards and mechanisms to monitor compliance 13- For more information, see: http://www.world- with established standards. In a majority bank.org/education/saber. ECE ENG F baski.indd 18 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY II 19 of World Bank client countries, an achieved a comprehensive policy focus “ a dva n c e d â€? l e ve l o f E C D p o l i c y across sectors, but important coverage development is attainable in the medium- challenges remain and are in the process and long-term. In the meantime, the of being addressed. Finally, in the goal framework can be used to identify the of Monitoring and Assuring Quality, key dimensions where a country is falling Turkey has progress to make in the behind this ideal and develop strategies quality of ECD information as well as to address the lagging areas. This exercise in efforts to ensure compliance with the is, by definition, country-specific and quality standards among ECD service should be country-led. providers. 11. Table 1 presents the preliminary 12. In a number of specific findings from the SABER-ECD areas of ECD policy, Turkey can assessment of ECD policy in Turkey. improve policies to move beyond As the analysis suggests, with respect to the Emerg ing and Established the first ECD policy goal (Establishing stages and into the Advanced stage. an Enabling Environment), Turkey has To meet the goal of Establishing an established an adequate legal framework Enabling Environment, attention must f o r E C D, a l t h o u g h c h a l l e n g e s be paid to improving inter-sectoral related to inter-sectoral coordination coordination and finance. Without and finance remain. In the goal of a strong and capable national ECD Implementing Widely, Turkey has authority, the promotion of inter-sectoral FIGURE 2 THREE ECD POLICY GOALS: FROM POLICY ACTION TO OUTCOME Source: SABER-ECD Country Report: Turkey (Vegas et. al,2011). Establishing Legal Framework an Enabling Intersectoral coordination EFFECTIVE ECD POLICIES Environment Finance All children have the Implementing Coverage and programs opportunity to reach Widely Area of focus their full potential Monitoring and ECD information Assuring Quality Quality standards Compliance with standards Policy Goals Policy Levers Outcome ECE ENG F baski.indd 19 26.06.2013 11:34 BENCHMARKING EARLY CHILDHOOD DEVELOPMENT POLICY IN TURKEY TABLE 1 ECD POLICY GOALS LEVEL OF POLICY LEVERS LEVEL OF DEVELOPMENT DEVELOPMENT Establishing an enabling Legal framework Established environment Emerging Intersectoral coordination Emerging Finance Emerging Implementing widely Emerging Coverage and programs Emerging Area of focus Established Monitoring and assuring ECD information Emerging quality Emerging Quality standards Established Compliance with standards Emerging coordination will be difficult. Turkey 13. The Government of Turkey recently has taken a significant positive has made massive strides in the step in this direction by combining the last decade to improve coverage Primary Education General Directorate and programs within the goal of and Pre-Primary Education Directorate Implementing Widely. 14 However, and creating a new Basic Education significant gaps in coverage persist Directorate. This positive initiative based on regional and socio-economic will make policy making for ECD differences. Increased funding and more coherent. Increased financing is attention to marginalized regions and essential to meet the ambitious goals populations is essential to close these the Government of Turkey has set. gaps. Turkey’s ECD program portfolio Significant progress has been made to includes well-established programs improve ECD health, education, and in multiple sectors, including health, social protection in recent years in nutrition, and education. Considerable Turkey, but many programs currently progress has been made to increase are underfunded and consequently preschool enrollment for children aged unable to reach all children in need. 5-6 in the last five years. These efforts According to MoNE, 13,500 qualified could be expanded to include quality and trained preschool teachers are daycare for younger children. Moreover, waiting for jobs. The lack of financing despite a recent upward trend, female to provide sustained salaries for these labor force participation remains well qualified teachers is preventing them from serving children in need. 14 - See Annex 2 for a summary of all ECD interventions in Turkey. ECE ENG F baski.indd 20 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY II 21 SOME PRELIMINARY POLICY OPTIONS FOR STRENGTHENING ECD IN TURKEY TABLE 2 ECD Policy Goals Policy Options for Consideration • Consider developing a comprehensive ECD strategy that integrates and coordinates interventions in different areas, thus providing a clear organizational framework for ECD. Establishing an Enabling • Define the roles and responsibilities of public agencies involved in ECD Environment (including the coordinating body) and also NGOs and the private sector. • Increase funding for ECD to expand coverage, particularly to disadvantaged children. • Expand coverage of ECD interventions, especially for disadvantaged children. • Expand private sector and community partnerships to provide ECD. Implementing Widely • Consider introducing comprehensive ECD programming capable of assessing and meeting the needs of each individual child. • Set clear standards for ECD above and beyond infrastructure. Monitoring and Assuring • Strengthen the quality assurance system to monitor and ensure compliance Quality with these standards. below the OECD average. The high increased public financing, and less cost of childcare services, particularly in stringent infrastructure requirement to urban areas, may limit opportunities for allow more private providers to enter women to re-enter the labor force after the market. childbirth. The Government of Turkey has emphasized policies to increase job 1 4 . Wi t h i n t h e p o l i c y g o a l o f opportunities; 15 measures to increase Monitoring and Quality Assurance, the availability of affordable daycare the introduction of the Family could be highly complementary to these Doctor Scheme, to provide ongoing efforts. A number of channels health care and to monitor young would help to achieve the goal of children’s growth and cognitive expanding affordable daycare, including development, is a notable step scaled-up, low-cost community models, towards ensuring that ECD outcomes are available not just 15 - The Ministry of Family and Social Policy is at the national level but at the working on a project which subsidizes the costs regional, local, and individual child of attending ECE and care facilities for children of working mothers. This project is jointly being level. The program should continue to prepared in partnership with ACEV, TUSIAD be scaled up and the monitoring tools of and the World Bank. ECE ENG F baski.indd 21 26.06.2013 11:34 the Ministry of Health should be further current requirements place too heavy refined to ensure a robust capability an emphasis on infrastructure and to support holistic development and constitute too high a barrier for entry monitoring for all children throughout into the market. Given the significant their early years. Quality standards need for preschool and daycare facilities and compliance are improving in (particularly for children below the age Turkey across different sectors, and of 5), the government may consider less that evolution should continue. The stringent infrastructure requirements str ict infrastr ucture requirements while increasing the focus on learning i m p o s e d o n p r i vat e p r ov i d e r s o f standards and the learning environment daycare could be examined. While in which children are placed. Table 2 some infrastructure requirements are summarizes policy options to strengthen certainly necessary, it is possible that the Turkey’s ECD System. ECE ENG F baski.indd 22 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 23 III. AN ANALYSIS OF EARLY CHILDHOOD EDUCATION IN TURKEY 15. Building on this analysis of health staff, a rate that is consistent Turkey’s ECD policies based on the with Turkey’s per capita income level. SABER-ECD tools, the rest of this ECE provision, by contrast, is much report focuses on four key areas in lower than that predicted by Turkey’s the Government of Turkey’s plan level of development. Turkey’s per to expand ECE coverage. The first capita income would predict an ECE is the government’s commitment to enrollment rate of over 60 percent, implement ECD widely by expanding but fewer than 30 percent of children access to ECE. The second is its goal between the ages of 3 and 5 currently of assuring quality and accountability benefit from pre-primary education in in ECE by putting in place a rigorous Turkey (Figure 4).16 system of monitoring and evaluation. The third is the extent to which the 17. As noted earlier, there are government establishes an enabling good arguments for prioritizing policy environment by encouraging ECE among the different types of non-governmental actors to participate early childhood interventions in in the ECE sector. And the fourth is Turkey. There is evidence that ECE the need to ensure adequate financing helps disadvantaged students bridge the for the expanded provision of ECE in gap that separates them from students Turkey. This section conducts a detailed from better-off families at the time analysis of each of these four policy of primary school entry. In addition, areas and identifies important challenges ECE is the most important tool at the that policymakers will need to address to disposal of governments for ensuring ensure these goals are achieved. school readiness. Therefore, high-quality ECE goes a long way towards creating a 16. Most strategies for cultivating more equitable education system. Every human capital involve tradeoffs so dollar invested in ECE has a much governments need to decide where higher return than a dollar invested at to invest and how to sequence their any other stage of the education system. investments. The latest information These returns include better learning from the Turkey Demographic Health Survey (DHS), 2008 shows that over 90 16- Countries with similar per capita income in percent of births are attended by skilled Eastern Europe and elsewhere have ECE coverage rates two to three times higher than Turkey. ECE ENG F baski.indd 23 26.06.2013 11:34 throughout the educational cycle, higher 18. Recognizing the importance of lifetime earnings, lower long-term social investing early in the lifecycle, the assistance costs, increased probability Government of Turkey has decided to of school g raduation, and several make ECE a national priority and has externalities such as increasing women’s taken initial steps to increase the coverage participation in the labor force. These and improve the quality of ECE in Turkey. benefits are especially high when ECE is The 9th Development Plan (2007-2013) provided to children from economically sets out the government’s ECE goals, disadvantaged families. The importance stating that the “aim of expanding pre- of ECE has been widely accepted and school education, teacher and physical promoted in recent Turkish research. infrastructure requirements will be met, Various studies have been published that education services will be diversified, the document the positive impact that ECE public awareness level will be raised, and can have on early social and cognitive training towards early childhood and development. The most prominent among awareness will be increased.â€? In addition, these include a 2005 report by the Turkish the MoNE prepares a Strategy Action Industr y and Business Association Plan for ECE every five years. In 2009- (TUSIAD) titled Right Star t: Pre- 10, the MoNE outlined its ambitious plan Primary Education in Turkey (TUSIAD, to expand ECE by setting out two targets 2005), various publications of the to be reached by the start of the 2014- Mother and Child Education Foundation 15 school year: (i) universal enrollment (AÇEV), and a 2007 study by the Turkish in kindergarten (for students aged 60 Education Association (TED, 2007), to 72 months old) and (ii) 50 percent as well as numerous academic papers participation in pre-primary education and Master’s theses. 17 Analysts also (for students aged 36 to 72 months old). see ECE as crucial for overcoming the As discussed above, the government developmental barriers faced by children focused initially on the 32 pilot provinces from disadvantaged backgrounds. For with the highest gross enrollment rates at example, GökÅŸen et al (2006) argued the kindergarten level, those with over 50 that pre-primary education can provide percent participation in kindergarten. This critical support for children who are at program placed 135,000 more children in risk of dropping out of school in Turkey. pre-primary classrooms in the last year and has achieved an average 91 percent gross enrollment rate in these 32 provinces. 18 18- These provinces, however, were among the 17- See Beckman and Gürlesel (2005), AÇEV least populated. In 2010-11, the government (2009), and Karip (2007). These and other reached out to 25 additional provinces, though examples are discussed in greater detail in ERI the most disadvantaged (including the city of (2011). Istanbul) were not included in this group. ECE ENG F baski.indd 24 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 25 19. The MoNE plans for ECE increase in all levels of education in the expansion start with a focus country during this five-year period. on provinces with the highest enrollment rates. This is based on 21. Despite this increase in the rationale that those provinces are c o v e r a g e o f E C E i n Tu r k e y, less likely than others to need new par ticipation remains low and infrastructure, thus making it easier inequitably distr ibuted. At 30 to accumulate quick gains in reaching percent, pre-primar y education enrollment targets. However, this means coverage of children aged 3 to 5 years that the expansion plan will reach the old (or 36 to 72 months old) remains provinces with the lowest enrollment far lower than in most countries with (and therefore the greatest need) last. similar levels of per capita GDP such The overall ECE expansion aims to as Mexico and Bulgaria (Figure 4). enroll an additional 600,000 students There are two key reasons behind in the education system, but nearly half this relatively low coverage: first, pre- of these students, who are located in the primary education is not compulsory provinces with the lowest enrollment in Turkey and, second, pre-primary rates, are not due to be targeted until the students are not currently eligible for the last year (2014). student transportation subsidies that are available for other levels of education. EXPANDING ACCESS This low coverage is compounded by TO ECE sharp differences in access between children from different socioeconomic 20. Turkey has made significant backg rounds. Although the most progress in extending the coverage economically disadvantaged families of ECE in the past 20 years, have on average, four more children increasing the number of children than the richest, the richest households enrolled in pre-primary education are 60 times more likely than the former by approximately 800 percent to have at least one child enrolled in (MoNE, 2011). These trends were kindergarten (Aran et al, 2009). In other most dramatic in the past five school words, most children enrolled in ECE years when about 113,000 students were institutions are not those who would added to the system annually, resulting benefit the most from early education in a significant increase in the gross (Figure 5). As a result, children born enrollment rate of children aged between into disadvantaged families beg in 36 and 72 months (see Figure 3). The primary school without any preparation absolute increase in enrollment at this and thus start their educational life level of education was by far the highest lagging behind their better-off peers. ECE ENG F baski.indd 25 26.06.2013 11:34 NUMBER OF STUDENTS AND INCREASE IN ENROLLMENT RATE IN PRE-PRIMARY EDUCATION IN TURKEY, 1997/98-2010/11 FIGURE 3 Source: World Bank (2011a) 45% 1150 Total number of students 48-72 month age group enrollment rate 40% 36-72 month age group enrollment rate 950 35% Students (Thousands) 30% 750 25% 20% 550 15% 10% 350 5% 50 0% 1997-1998 2001-2002 2005-2006 2010-2011 2 2 . Significant provincial as this would generate the highest disparities in enrollments also returns, in terms of both educational persist. The highest enrollment rates attainment and long-term growth and are in Amasya in the Black Sea Region productivity.19 (86.6 percent for 4 to 5 year olds and 59.2 for 3 to 5 year olds) and the lowest 2 3 . F i n a l l y, a s Ta bl e 3 m a k e s in Hakkari in Eastern Anatolia (18.5 clear, the vast majority of ECE percent for 4 to 5 year olds and 12.9 services in Turkey are provided for 3 to 5 year olds) (MoNE, 2011). by gover nment-run public Regrettably these differences in pre- institutions. Within the government, school enrollment are correlated with MoNE pre-schools account for 90 the provinces’ overall level of human percent of ECE enrollments, while pre- development, which implies that these schools run by SHÇEK 20 (the Social disparities will persist over the long Services and Child Protection Agency) term if the status quo remains in effect. If the Government of Turkey wishes to 19- For more information on the geographic close the developmental gap between its disparities in ECE coverage in Turkey, see Beck- man and Gürlesel (2005), AÇEV (2009), Polat provinces, it should consider targeting (2009), and Ural and Ramazan (2007). the scarce resources allocated to 20- While the report was being finalized SHCEK was closed and converted into Child Services ECE to the worst-performing regions General Directorate under the Ministry of Family and Social Policies. ECE ENG F baski.indd 26 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 27 PRE-PRIMARY EDUCATION GROSS ENROLLMENT RATES FIGURE 4 AMONG CHILDREN AGED 3-5-YEARS (PERCENT) Source: World Bank (2011a) MexicoCzech Republic South Korea Germany France Italy Sweden Switzerland 100 Slovakia Netherlands Belarus Austria Pre-Primary Gross Enrollment Rate (%) Norway Japan Cyrprus Australia 80 Bulgaria United Kingdom PortugalSlovenia Greece Canada Finland 60 Panama United States Kazakhstan 40 Guatemala Turkey 20 Saudi Arabia 0 10.000 20.000 30.000 40.000 50.000 GDP per capita (US Dollars) and the special institutions opened under Nonetheless concer ted effor ts will Law 65721 account for only 5 percent be required to ensure resources are of ECE enrollments. Private institutions targeted to economically disadvantaged account for the remaining 5 percent of children across the country and those ECE enrollments, but most of these are provinces with the lowest enrollment located in more affluent areas. rates such as Hakkar i, Van, Urfa, AÄŸrı, and Istanbul. This effort will 2 4 . T h e g ove r n m e n t ’s i n i t i a l require a multi-pronged approach focus on expanding ECE in the 32 with several complementary initiatives provinces with the highest gross delivering additional targeted support enrollment, is a practical approach to vulnerable populations (similar that takes into account the time to the approaches adopted in Chile needed to provide infrastructure and Australia, see Annex 1). Without in the less advanced provinces. an extraordinar y targeted effor t, it will be much harder to raise the 21- Law No. 657 article 191 states that “child ECE enrollment rate in these lagging nurseries and daycare centers can be installed provinces. for civil servants when needed.â€? The principles and procedures of the organization and operation of these centers are determined by the general regulations of State Personnel Presidency in cooperation with the Ministry of Finance and Customs. ECE ENG F baski.indd 27 26.06.2013 11:34 BENEFIT INCIDENCE OF CENTER-BASED PRE-SCHOOL AND DAYCARE OPTIONS IN TURKEY FIGURE 5 Source: Aran et al (2009) 00 .3 800.000 70.000 66 Children in decile, by age group 700.000 60.000 58 689.480 .8 600.000 49 50.000 Households 563.046 500.000 73 40.000 .1 475.785 35 400.000 .4 416.267 436.356 30.000 37 .2 300.000 23 33 07 20.000 .6 200.000 74 15 13 .9 1 1 10 73 45 321.443 268.231 235.987 176.400 325.707 10.000 3. 8. 100.000 2 07 1. 0 0 1 2 3 4 5 6 7 8 9 10 (Poorest) Per capita expenditure deciles Number of children in decile (Ages 4-6) Number of households where at least one child attends kindergarten of preschool (kres) PRE-PRIMARY ENROLLMENT AND HUMAN DEVELOPMENT INDEX BY PROVINCE FIGURE 6 Source: World Bank (2010) Trabzon 92% 90% Kocaeli 77% Rize 85% 80% Sakarya 79% Burdur 86% 70% (60-72 months age group) % Of children in preschool 60% Siirt 57% 50% Adana 44% 40% Van 34% Ä°stanbul 38% Gaziantep 39% Åžanlıurfa 33% 30% y= -0.0029x + 0.7068 Hakkari 29% 20% R2 = 0.2058 AÄŸrı 22% 10% 0% 10 20 30 40 50 60 70 80 High HDI Ranking of Providence in HDI index Low HDI ECE ENG F baski.indd 28 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 29 KEY STATISTICS ON ECE IN TURKEY TABLE 3 Source: MoNE (2011) Type of Institution Students Schools Teachers Classes Student Class Size - Teacher Ratio Number Public institutions Pre-primary classes in primary schools 824,070 22,813 29,758 29,843 28 28 Independent pre-primary institutions 184,545 1,452 7,901 6,854 23 27 Child Protection Agency (SHÇEK) 39,948 1,585 7,608 4,633 5 9 Institutions opened under Law 657 (191) 6,776 118 549 495 12 14 Total public 1,055,339 25,968 45,816 41,825 23 25 Private institutions Pre-primary classes in primary schools 20,710 584 1,041 1,381 20 15 Independent pre-primary institutions 39,769 1,054 1,473 3,100 27 13 Total private 60,479 1,638 2,514 4,481 24 13 All institutions 1,115,818 27,606 48,330 46,306 23 24 As percentage of total Public institutions Pre-primary classes in primary schools 73.9 82.6 61.6 64.4 Independent pre-primary institutions 16.5 5.3 16.3 14.8 Child Protection Agency (SHÇEK) 3.6 5.7 15.7 10.0 Institutions opened under Law 657 (191) 0.6 0.4 1.1 1.1 Total public 94.6 94.1 94.8 903 Private institutions Pre-primary classes in primary schools 1.9 2.1 2.2 3.0 Independent pre-primary institutions 3.6 3.8 3.0 6.7 Total private 5.4 5.9 5.2 9.7 All institutions 100 100 100 100 ASSURING QUALITY AND readiness’ tests in the Turkish system, ACCOUNTABILITY IN ECE the best proxies for the quality of ECE are standards for infrastructure, 25. Turkey has limited data on teaching material, and teacher training. ECE learning outcomes, which Existing evidence shows that there is the indicator that most directly is clearly scope for Turkey to further measures the quality of education. improve the quality of its pre-primary In the absence of such data or of ‘school education. Aran et al. (2009) indicated ECE ENG F baski.indd 29 26.06.2013 11:34 that Turkey met only four out of ten training in general and for pre-primary indicators that benchmark the quality teaching in particular is relatively new in and access of ECD across OECD Turkey and has become one of the key countries. (Table 4) areas slated for reform. Some recent studies (Atay-Turhan et al, 2009 and 26. The quality of ECE in Turkey Haktamir, 2008) have stressed the need can be improved by enhancing to restructure the current system of pre- both the quality of the pre- and in-service training offered to staff in school facilities and the quality of pre-primary education to better enable instruction. A recent study (Göl- them to meet the needs of their students. Güven, 2009) evaluated the quality The revision of the pre-primary teacher of ECE classrooms in a randomly education curriculum in 2006 (Annex selected sample of public and private 3) demonstrated the government’s pre-primar y schools in Istanbul. It commitment to improving the quality concluded that both types of institutions of pre-primary education as well as have significant shortcomings, from to increasing student preparedness physical infrastructure to teacher- for primary education. However, it is pupil interactions, although the study crucial that this revision be followed by found that the private sector handles a systemic evaluation of ECE delivery daily routines and teacher-parent on the ground and its effectiveness in interactions more effectively. Another delivering outcomes such as school study, a qualitative evaluation of the readiness for all children, especially pre-school development process in Kilis those from disadvantaged backgrounds. Province (Özgan, 2009), also found that physical conditions and facilities were 28. An effective way to address inadequate, but in addition it identified concer ns about the quality of the lack of school-family cooperation as pre-school education would be another factor that negatively affects the to institute a reliable monitoring quality of ECE. This lack of cooperation and evaluation system to hold seemed to be due to parents’ limited ECE providers accountable for awareness of the fundamental the services that they deliver. The importance of pre-primary education Directorate-General of Basic Education for children’s cognitive, motor, and is responsible for setting policies and socio-emotional development. standards related to ECE, for monitoring the quality of ECE services, and for 27. The effectiveness of teacher coordinating the various agencies training in pre-primary education responsible for ECE provision. All is yet another concern. Teacher public ECE centers have a mandatory ECE ENG F baski.indd 30 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 31 BENCHMARKING OF ECD SERVICES IN OECD COUNTRIES TABLE 4 Source: Aran et al, 2009 (adapted from UNICEF, 2008) New Zealand Netherlands Denmark Germany Portugal Hungary Slovenia Belgium Sweden Norway Finland Austria Iceland Mexico France Turkey Korea Japan Spain Italy UK Parental leave of 1 year at 50% of salary X X X X X X X A national plan with priority for disadvantaged X X X X X X X X X X X X X X X X X X children Subsidized and regulated child care services for 25% X X X X X X X X X X X of children under 3 Subsidized and accredited early education services X X X X X X X X X X X X X X X for 80% of 4 year-olds 80% of all childcare staff trained X X X X X X X X X X X X X X X X 50% of staff in accredited early education services, X X X X X X X X X X X X X X X educated with relevant qualification Minimum staff-to-children ratio of 1:15 in preschool X X X X X X X X X X X education 1.0% of GDP spent on early childhood services X X X X X X Child poverty rate less than 1% X X X X X X X X X Near-universal outreach of essential child health X X X X X X X X services TOTAL NUMBER OF BENCHMARKS MET 4 3 3 4 4 4 4 4 5 5 5 6 6 6 6 8 8 8 8 9 10 accreditation and registration process 29. Recently MONE’s own auditors that is overseen by the MoNE. There h ave s t a r t e d t o c a r r y - o u t a n is almost no accreditation of private audit of pre-primary education, sector providers of ECE. In addition focusing mostly on compliance with to an updated curriculum for training physical standards for pre-primary pre-school teachers (see Annex C), institutions and classes. 22 There MoNE’s current program for pre-school is, however, little focus on measuring education provides detailed standards outcomes such as ‘school readiness’ of for infrastructure requirements and pre-primary students which can most parameters for facilities for public directly measure the effectiveness of and private ECE institutions, and also general guidance on encouraging 22- This initiative is part of the development of flexibility in program delivery and family a system-wide Quality Management System in education which will aim at improving the quality participation. of education at all levels, including ECE. ECE ENG F baski.indd 31 26.06.2013 11:34 pre-primary education. In addition, as targets the most vulnerable groups by noted in the recent study by MONE et implementing two types of programs: al (2011 a) there is a question mark over protective services for orphans and the effectiveness of the audit system in children in need and preventive services providing feedback to ECE practitioners offered in community venues. on substantive issues, and even their capacity to ensure compliance with 31. Almost all school-based and existing standards. The government center-based ECE ser vices are is already making an effort to address provided by the public sector. While some of these issues through the the private sector provides around 5 MoNE’s “Strengthening the Preschool percent of ECE services and SHÇEK’s Education Project.â€? multi-purpose community centers reach about 40,000 children from ENCOURAGING THE economically disadvantaged households PARTICIPATION OF (less than 4 percent of enrollment), the NON-GOVERNMENTAL center-based ECE programs led by the ACTORS IN ECE MoNE’s Directorate-General of Basic Education currently account for 90 3 0 . A t p r e s e n t , t h r e e c e n t ral percent of all ECE enrollment (Table 3). g o ve r n m e n t a g e n c i e s d e l i ve r Government-led efforts have expanded most of the programs for young significantly in the last five years, largely children in Turkey: the Ministry of driven by a greater recognition of the Health, the MoNE, and SHÇEK.23 importance of pre-primary education The programs run by these agencies that was stimulated by successful cover different aspects of ECD. The public awareness campaigns (such Ministry of Health is responsible for as “7 Is Too Lateâ€?) by the Mother coordinating programs for children and Child Education Foundation in the 0 to 3 age group. The MoNE (AÇEV). As a result of these efforts, coordinates educational programs for pre-school classroom capacity has the 3 to 5 age group through home- been expanded either by reallocating based family training programs run by classrooms within primar y schools the Directorate-General of Non-Formal or by building new pre-schools. The Education and center-based pre-school MoNE champions the expansion of the programs r un by the Directorate- system and mobilizes local government General of Basic Education. SHÇEK funding for ECE. Although the MoNE directly covers infrastructure costs, 23- In addition there are 367 practice kindergartens, and ECE branches in 630 schools under the the priorities of provincial and sub- Vocational and Technical Education General provincial governments also significantly Directorate of MONE. ECE ENG F baski.indd 32 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 33 influence the pace and progress of ECE to shift the responsibility for licensing of expansion. private pre-schools to the MoNE as well. 32. A central authority has not been 34. When it comes to home-based established to oversee pre-service or family training programs, several in-service training of ECE educators public effor ts exist to suppor t in Turkey. Preschool teachers, who are parents as primar y careg ivers appointed centrally by MoNE, require and to foster children’s cognitive a four-year university degree. In July d e ve l o p m e n t a n d m a k e t h e m 2006, a new early childhood teacher school ready. The MoNE implements education curriculum was launched after these programs through the Non- an extensive review and consultation formal Directorate in Adult Education process, with the aim of meeting the aims Centers (with financial suppor t of the European Higher Education Area. from the European Commission) Universities are using this curriculum to and in cooperation with AÇEV and provide pre-service training through their UNICEF. While these programs are an four year programs. In-service training important starting point for expanding is provided to ECE educators mostly by ECE through home-based ser vices government institutions. in Turkey, they cover only about 3.5 percent of children aged 0 to 72 months 33. Although private institutions (World Bank, 2010). Moreover, the receive little public support—either UNICEF program has no cognitive in the form of quality assurance or development component, so it needs to subsidies to defray fees for the poor be complemented by center-based pre- — a few community-driven initiatives school training (Aran et al, 2009). do exist.24 The MoNE supports them in accordance with its declared aim of 35. Encouraging more private diversifying ECE service provision as sector involvement in providing laid out in the 9th Development Plan. ECE ser vices would introduce At present, the MoNE regulates the more flexibility into the system educational content of private pre-schools, and make it easier to adjust to while SHÇEK issues their licenses. In local and individual conditions. the medium term, the government plans Bekman and Gürlesel (2005) pointed 24- A notable example is found in the efforts out that the centralized nature of most of KDEV (an NGO focused on empowering education provision risks failing to women) to establish daycare in poor urban meet the needs of children in different localities; still, their scale is very small. The government’s “Strengthening the Pre-school regions with different conditions. The Education Projectâ€? also pilots community-based authors recommend designing ECE models of ECE service delivery. ECE ENG F baski.indd 33 26.06.2013 11:34 programs to be as flexible as possible of GDP and around 0.6 percent of the because every child has a different pace education budget (see Annex 4). of development, and providing services locally is more likely to match the needs 38. The low absolute and relative of individual students in different parts levels of spending on ECE in Turkey of the country than when services are are closely associated with the provided from the center. distribution of social spending in the public sector, which is skewed 36. The Government of Turkey heavily toward older citizens. Figure faces the difficult challenge of 7 shows that the amount of public social providing ECE services to 600,000 spending (education, health, and social new students over the next three protection) on children aged 0 to 5 years. Some public systems around the years old is far less in per capita terms world, such as the one in Sweden, have than social spending on any age group achieved universal coverage of high- older than 45 years old. quality ECD. Given the magnitude of the challenge in Turkey, the government 39. Due to low levels of public should explore the role of the private spending on the youngest members sector, NGOs, and communities as of society, Turkey’s pre-schools tend complements to public service delivery. to rely heavily on private user fees. Pre-school institutions are known to ENSURING ADEQUATE charge “nutrition feesâ€? that can range FINANCING OF ECE in most schools from TL 50 to TL 200 per child per month depending on 37. Countries around the the region. Compare these fees with a world vary in terms of the level, poverty line for a family of four at TL composition, and methods of 700 per month, and it becomes clear their financing for ECE. In OECD that many economically disadvantaged countries, the average total public and families cannot afford to enroll their private expenditure on pre-primary children in pre-school. education is 0.49 percent of GDP, of which 0.43 percent is public. Most of 4 0 . The problem of low and Turkey’s comparable countries spend i n e q u i t a bl e s p e n d i n g o n E C E about 0.3 to 0.5 percent of their GDP is compounded by the lack of a (and between 5 and 10 percent of their cohesive framework for financing education budgets) on ECE, whereas the system. As was shown in Table Turkey’s ECE spending is only one- 3, the bulk of the ECE system (74 tenth of that level, at only 0.03 percent percent of students and 64 percent ECE ENG F baski.indd 34 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 35 of classes) is made up of kindergarten the Pre-primary and Primary General classes that are mostly held in primary Directorates into a General Directorate education institutions.25 Until recently, of Basic Education. This restructuring is the budget for these kindergarten classes likely to have a positive impact in planning (to pay for teachers’ salaries, teaching and implementing the ECE expansion. materials, and infrastructure maintenance, for example) was not managed by the 41. There is clearly a case to be MoNE’s Directorate-General of Pre- made for greater and more efficient school Education but by a host of other financing of ECE in Turkey. As argued institutions, most notably the Directorate- earlier, investing in early childhood General of Primary Education. This education has higher returns than at any institutional structure had two immediate other level of education, and this has been implications. First, it is very difficult to get demonstrated by empirical evidence from an accurate estimate of ECE investments Turkey’s ECE programs. For example, because of this fragmentation, and, there have been studies (Kağıtçıbaşı et second, the Directorate-General of Pre- al, 2001 and Kağıtçıbaşı et al, 2005) school Education had no control over that have evaluated a set of successful the resources that are used to deliver experiments undertaken by the long- over two-thirds of ECE services, in term Turkish Early Enrichment Project other words, those that are delivered as (TEEP). 26 They found that children kindergarten classes in primary schools. who benefitted from the program were In the latest restructuring of MONE (in more likely those in a control group to late 2011), the government has combined have graduated from high school and even university and were more likely to be employed than their peers. Another 25- In response to a circular named “Expansion recent effort to document the importance of Pre-school Educationâ€? (http://ooegm.meb. gov.tr/donatim/2009-53-genelege.pdf) that was of ECE policies in Turkey was the cost- released by the government in June 15, 2009, benefit study undertaken by Kaytaz provinces increased the pace at which they were (2005). The author found that ECE opening kindergartens within primary schools. It is the governor who usually takes initiative for interventions in Turkey had yielded this and mobilizes resources accordingly. These anywhere between TL 2.1 (low-case kindergartens were opened in empty rooms scenario) to TL 6.3 (upper-case scenario) where suitable. However, libraries, laboratories, for each TL invested. More importantly, and teachers’ rooms were also transformed into kindergartens, so this effort, while expanding ECE, did appropriate some resources that were 26- This project introduced pre-primary legitimately meant for primary schools. It would enrichment programs, both for children and be desirable to replace these makeshift classes mothers, in low-income areas of Istanbul in 1982 with proper pre-primary buildings in the long run and followed children who had participated in the and return these rooms to the primary schools first rounds of the program until adulthood, now for their own use. almost 30 years later. ECE ENG F baski.indd 35 26.06.2013 11:34 PER CAPITA SOCIAL EXPENDITURES BY AGE GROUP IN TURKEY (CENTRAL GOVERNMENT, EXCLUDING SOCIAL SECURITY CONTRIBUTIONS, 2008) FIGURE 7 Source: World Bank (2010) 2.5 2.0 ,000 TL in 2008 1.5 1.0 EDUCATION SOCIAL PROTECTION 0.5 HEALTH 0 5 10 15 20 25 30 35 40 45 50 55 60 65 70 75 80 85 90 Age group (0-90) the author found that programs that 42. There is also a case for provide training to parents as well as thoroughly assessing which funding providing pre-primary education for model would be the best match for children can eventually be up to 30 Turkey. Grun (2008) described five percent more cost-effective than those ways to finance the ECE sub-sector: that just focus on the children (Kaytaz, 2005, p. 29, Table 3.1). Finally, even when a) Central Public Supply - the looking at ECE family training programs government supplies ECE directly by in isolation, analysts have found returns paying itself for the inputs (such as of between 20 percent and almost 600 teachers and buildings) as in France. percent for every TL invested depending on how the programs are designed b) Decentralized Public Supply - the (Yılmaz and Yazıhan, 2010).27 government pays local governments to provide the service, as in Sweden. 27- UNICEF estimates that public investments in such family training programs not only have c) Incentive-based Public Financing high private benefits and prevent participating - the government pays providers, children from falling into poverty later in life but either public or private, to deliver also pay for themselves within roughly 20 years as the participants graduate from the education ECE services with the funds being system, acquire formal sector jobs, and pay taxes. conditional on the providers meeting . ECE ENG F baski.indd 36 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY III 37 the requirements of a quality 43. Considerably more resources assurance mechanism, as in several than are currently allocated to the states of the United States. sector will be needed if Turkey is to achieve its ambitious targets for d) Mixed Model and Market an equitable expansion of ECE. Making - ECE is financed not by Therefore, the government is going to the government but by parents and have to significantly increase its spending NGOs, and the government plays to meet its goal of gradually increasing the role of a convener, bridging the enrollment of children aged 36 to 72 information asymmetries and months from 30 percent (including 68% matching open places with parents, of 5 year olds) in 2011 to 47 percent as in England. (including 100 percent of 5 year olds) in 2014. At the very least, the government e) Demand-side Public Subsidy and will need to raise ECE spending from Private Provision - the government 0.03 percent of GDP to 0.23 percent of g ives generous means-tested GDP to meet this 2014 enrollment target subsidies to parents in the form of while also ensuring quality and equity in vouchers or entitlements so they can ECE provision. Finally, the government pay for private and/or public ECE as needs to choose carefully from the menu in New Zealand. of financing mechanisms described above to maximize the transparency and effectiveness of ECE. ECE ENG F baski.indd 37 26.06.2013 11:34 ECE ENG F baski.indd 38 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 39 IV. FROM ANALYSIS TO ACTION: A STRATEGY FOR EXPANDING QUALITY EARLY CHILDHOOD EDUCATION IN TURKEY 44. For each of the four challenging areas • Targeting low-enrollment provinces discussed above, this section will outline • Targeting poor households to ensure a menu of possible policy responses and equity in access. implementation strategies. For each area, we propose a two-layered implementation POLICY RESPONSES strategy that involves (i) a Core National AND IMPLEMENTATION Prog ram to be led by the central STRATEGIES FOR government and (ii) a Supplemental ASSURING QUALITY AND Provincial Program that will provide ACCOUNTABILITY additional support to ECE in lagging provinces and will be implemented by the 46. The quality of ECE remains provincial governments. a challenge. At present, there is no system in place to measure how well the POLICY RESPONSES ECE system delivers outcomes such as AND IMPLEMENTATION school readiness or to ensure that pre- STRATEGIES FOR schools can be held accountable (Table EXPANDING ACCESS 4). MONE can improve the quality of ECE by more effective monitoring 45. Access to ECE varies by income and enforcement of existing standards in all provinces, with the rich being on curriculum, infrastructure, teacher more likely to access ECE than their economically disadvantaged materials, and educational supplies compatriots (Figure 5). Access also for all new pre-schools or nurser y varies signi cantly between provinces classes. At the same time, these existing (Figure 6), with some provinces having standards should be re-evaluated, much lower enrollment rates than others. and existing institutions should be The ECE expansion strategy would be required to adhere to those standards more equitable and have a greater impact or to commit to a gradual upgrade of if funds allocated to this initiative were those aspects that are falling short of distributed progressively. This could be the standard. In addition, a strati ed, done in two ways: representative sample of students in ECE ENG F bask . ndd 39 26.06.2013 11:34 ECE institutions should be regularly POLICY RESPONSES tested for their school readiness. Finally, AND IMPLEMENTATION all of these initiatives should form part STRATEGIES FOR of a Quality Review System (QRS) ENCOURAGÄ°NG THE like those that exist in Australia and PARTICIPATION OF Sweden (see discussion in Annex 1).28 NON-GOVERNMENTAL This QRS system would be built on ACTORS clear, nationwide standards (for teacher training, age-appropriate educational 47. Given the scale of the challenge, mater ials, and other var iables), there is a need to improve the p e r f o r m a n c e i n d ic at o r s f o r E C E management and provision of ECE. institutions, and de ned expectations This can be done by reaching out to the of outcomes. Progress and performance private sector and communities to help would be measured in two ways: to meet ECE enrollment targets. While the bulk of services will continue to be a) School Self-evaluations-Schools provided by the public sector, making evaluate their own performance every year against national standards and sector and NGOs would increase make the results publically available. the ef ciency of the sector. These actors could complement government b) School External Evaluations efforts by delivering targeted support – Schools are evaluated by peers to schools and students, developing and expert groups at the regional innovative educational TV programs and national level against national and other instr uctional mater ials, standards. This could be done once conducting external evaluations, and every three years, and might include spearheading outreach programs and a sub-sample to be assessed for their information campaigns as well as, where school readiness. One-third of schools appropriate, opening and operating would be randomly chosen each year ECE institutions themselves. Given for an external evaluation, with the that private providers currently account aim of covering all schools every three for only 5.4 percent of pre-school years. In addition, a strati ed and enrollment (Table 3), there is clear representative sample of students from scope for expanding private provision ECE institutions would be regularly alongside the expanded public provision assessed for their school readiness. of ECE services. 28- A similar system is used in Hong Kong (see Poon, 2008). ECE ENG F bask . ndd 40 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 41 POLICY RESPONSES but the public financing AND IMPLEMENTATION implications are dramatically STRATEGIES FOR different for each of these options. ENSURING ADEQUATE The case of Sweden illustrates how a FINANCING country can achieve universal coverage of pre-primary education by increasing 48. As discussed above, the current the amount of resources that it allocates level of spending on ECE in Turkey to ECE. The key advantage of taking is not sufficient to achieve the this kind of comprehensive approach is gover nment’s expansion goals. that it expands coverage quickly, which Spending will have to increase from is one of the Government of Turkey’s 0.03 percent of GDP to 0.23 percent stated goals. On the other hand, the of GDP in 2014 to expand ECE while case of New Zealand illustrates a more also improving quality and increasing targeted approach to ECE in which equity. Also, ECE allocations and one goal was to increase the coverage expenditures should be explicit within of a minority (Mâori) population. The the government budget to ensure most relevant example for Turkey, transparency. however, may be Chile’s program, Chile Crece Contigo (CCC), which DEFINING A STRATEGY takes both approaches simultaneously. FOR EXPANDING ECE The CCC provides a comprehensive IN TURKEY: LESSONS set of services aimed at all Chilean FROM INTERNATIONAL children but also encompasses specific EXPERIENCE interventions that target children from vulnerable families. This dual structure 49. This section presents a strategy may appeal to policymakers in Turkey for expanding ECE in Turkey that whose goal of univer sal coverage draws on lessons lear ned from may need to be paired with a set of international experience. A detailed targeting mechanisms to reach the most analysis of the experiences of a range vulnerable. of other countries in delivering ECE is presented in Annex 1, but there are four 51. Establishing a national standards key lessons that can be learned from and assessment systems for ECE these examples. providers is essential for quality assurance. Australia’s National Quality 50. ECE expansion can be achieved Standard and the Swedish Schools either through a comprehensive Inspectorate are examples of initiatives approach or a targeted approach, that were put in place to ensure that ECE ENG F baski.indd 41 26.06.2013 11:34 EXPANDING ACCESS TO ECE FIGURE 8 Expanding ECE Access Policy Response Implementation Strategy • The rich are more likely • Provide targeted to have access than the support to the poorest • The Core National poor, partly because of 40% of household Program would provide high “nutrition feesâ€? through subsidies of support to the poorest TL 100 per month per 40% of households • Access in some child across all provinces provinces is very low compared to others • Provide targeted • The Supplementary support to lagging, low- Provincial Program enrollment provinces would provide additional support to lagging, low- enrollment provinces ECE ser vices meet the established combining financing and regulation by quality benchmarks. The examples of the public sector with service provision Australia and Sweden provide relevant by the public and private sectors. ECE lessons on how best to institute a services are provided by a wide range monitoring, evaluation, and assessment of government agencies, not-for-profit system that will ensure the quality of organizations, communities, parent Turkey’s ECE services. groups, and public-private partnerships that vary in their size and coverage. 52. Promoting flexibility in service These models of decentralized service deliver y can f acilitate a rapid delivery are good examples of how to expansion of ECE. Although Sweden design an ECE system that provides the has a sound system of quality standards right balance of quality, innovation, and at the national level, it has built in a high accountability. degree of flexibility in how ECE services are actually delivered to beneficiaries at 53. To ensure quality and equity, the local level. In the Swedish system, inter-institutional coordination municipalities are the main providers is essential. All four of the countries of ECE and related services in addition mentioned above rely on some degree to a network of independent schools of coordination among the various and early childhood center s. The actors in their ECE systems. Australia’s New Zealand model goes further by strategy is noted for fostering effective ECE ENG F baski.indd 42 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 43 FIGURE 9 ASSURING QUALITY AND ACCOUNTABILITY IN ECE Assuring Quality and Policy Response Implementation Strategy Accountability •Develop system to evaluate •The Core National Program • Little systemic evaluation or and enforce compliance with would evaluate and enforce enforcement of standards for ECE standards ECE standards curriculum, teachers, training, • Introduce school self- • The Core National Program or supplies evaluations against national would design and fund: • Little focus on outcomes standards • School self-evaluation forms of interest such as school • Contract with expert and plans readiness groups to carry out external • School external evaluation • Few tools to ensure evaluations of pre-schools forms and plans accountability for quality • Make systematic results • School readiness assessments of students’ assessments and schedule school readiness coordination between national in which the national government sets government and regional and local standards and does evaluations and the government. This element combined municipalities deliver services. with an emphasis on partnerships with local communities and families may be PUTTING IT ALL a useful model for Turkey to follow. The TOGETHER: A decentralized New Zealand model also PROPOSED STRATEGY requires a high degree of coordination between the public, private, and not- FOR EXPANDING for-profit sectors from which Turkey QUALITY EARLY can learn lessons when expanding its CHILDHOOD EDUCATION own ECE system. The management IN TURKEY of Chile’s CCC program, the way in which it coordinates between different 54. Stemming from the foregoing ministries and agencies, and its analysis, we propose a strategy for integrated system of monitoring and expanding early childhood education in evaluation all contain valuable lessons Turkey. The suggested strategy (which is for Turkey, as does the Swedish example costed in Table 5) has two components: ECE ENG F baski.indd 43 26.06.2013 11:34 ENCOURAGING THE PARTICIPATION OF NON-GOVERNMENT ACTORS IN ECE FIGURE 10 Encouraging Participation of Policy Response Implementation Strategy Non-Governmental Actors • Enable the private sector • In the Core National • The need to manage the rapid and NGOs to complement Program, the private sector expansion of ECE (700,000 new the public provision of ECE could help with evaluations, students in the system) services assessments, developing media campaigns, delivering • The need to improve quality support to poor children, and and increase equity providing ECE services • The public sector dominates • In the Supplementary ECE provision Provincial Program, private and NGO actors could run outreach and information campaigns (1) a Core National Program led and This inter vention would cost an financed by the central government and average of around 0.1 percent of implemented in all provinces of Turkey GDP annually and is already a and (2) a Supplemental Provincial government priority. Prog ram that provides additional ECE support to lagging provinces and • Intervention B: Targeting support that is implemented by the provincial to economically disadvantaged governments. The four key challenges households by funding “nutrition facing the ECE sub-sector that have subsidiesâ€? for the most economically been identified in this report will be disadvantaged 40 percent of Turkish addressed in these components in the households. If support in the amount following way: of TL 100 per month is provided per child, this intervention would cost Core National Program around 0.05 percent of GDP annually. Recipients could be targeted using a • Inter vention A: Funding proxy means test such as the one that infrastructure, teachers, teaching was used in Turkey’s Conditional Cash supplies, and training in all provinces. Transfer Program (Annex 2). ECE ENG F baski.indd 44 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 45 FIGURE 11 ENSURING ADEQUATE FINANCING FOR ECE Ensuring Adequate Policy Response Implementation Financing Strategy • Carefully cost the • The current comprehensive • A Core National level of funding is expansion strategy Program led by the insufficient to achieve central government the government’s • A Supplementary expansion goals Provincial Program • A holistic ECE targeting low- expansion strategy enrollment provinces needs to be costed • Intervention C: Funding quality provinces. These provinces would and accountability initiatives all be able to select from a menu across Turkey. Initiatives such as of demand-side and supply- school self-evaluations and external side inter ventions to meet their evaluations, random testing of enrollment targets. This menu students for school readiness, and would cost between 0.02 and 0.03 the development of television and percent of GDP and could include: media programs for ECE delivery ( i ) i m p l e m e n t i n g i n f o r m at i o n could cost around 0.01 percent campaigns and outreach to of GDP annually and would families; (ii) hiring extra staff to improve the quality and increase plan or deliver expansion targets; the accountability of ECE service (iii) g iving performance g rants delivery in Turkey. to schools when they reach their targets for increasing enrollments; and (iv) giving performance grants Supplemental Provincial to sub-provinces if they succeed Program in increasing their pre-school enrollments. These options might • Inter vention D: Funding for include: targeting the 20 low-enrollment ECE ENG F baski.indd 45 26.06.2013 11:34 i. R u n n i n g i n f o r m a t i o n expansion strategy. (See Annex 5 for campaigns / outreach to families. the assumptions used in the costing exercise.) ii. Hiring extra staff to plan or deliver expansion targets. Option A (0.18 percent of GDP) iii. Giving performance grants to 57. The Core National Prog ram those schools that meet their targets would consist of interventions A, B, for increasing enrollments. and C and provide infrastr ucture and trained teachers, “nutrition iv. Giving performance grants subsidiesâ€? for the most economically to sub-provinces that succeed in disadvantaged 40 percent of increasing enrollments. households, and funding for initiatives t o i m p r ove q u a l i t y a n d i n c r e a s e 5 5 . The government can accountability. This option would consider any combination of the cost an average 0.15 percent of GDP inter ventions that make up the annually until 2014 (or 3 percent of Core National Program depending the education budget) to implement. o n t h e l e ve l o f t a r g e t i n g t h at The spending on additional classrooms is required and the amount of and teacher s to accommodate the funding that is available. Funding increase in enrollment would require for Intervention D can be provided by ECE spending to increase by more the MoNE at the national level, but the than double its 2009 level, reaching an central government may also choose average 0.07 percent of GDP (and 1.6 to give provincial governments an percent of the education budget). In incentive to allocate additional resources addition to funding extra classrooms to this program by, for example, offering and teachers, the government may matching grants from the center. The want to promote equitable access to ECE services can be delivered by a mix ECE by subsidizing user fees for the of public and private providers. most economically disadvantaged 40 percent of students. Funding these Options for an ECE “subsidiesâ€? would require a further Expansion Strategy 0.05 percent of GDP (and 1 percent of the education budget). Finally, 5 6 . I n t h i s s e c t i o n , we e x p l o r e quality and accountability initiatives some of the combinations of option will cost 0.01 percent of GDP or (0.25 a v a i l a b l e t o t h e G o ve r n m e n t o f percent of the education budget) to Turkey in implementing the proposed implement. ECE ENG F baski.indd 46 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 47 58. The Supplementary Provincial Option C (0.11 percent of GDP) Program would consist of Intervention D that would target the low-enrollment 61. A Core National Program made provinces. It is estimated that the up of interventions A and C (providing total cost of this would be 0.02 to infrastructure and teachers and 0.03 percent of GDP per year (or 0.5 funding for quality and accountability percent of the education budget). initiatives). This option would leave out inter vention B (targeting the 59. Even accounting for all of these most economically disadvantaged 40 costs, Turkey’s spending on ECE would percent of households with “nutrition be around 0.15 percent of GDP, which subsidiesâ€?) and intervention D (the would still be significantly lower than Supplementary Provincial Program the 0.3 percent of GDP that is spent targeting low-enrollment provinces). by its most comparable countries. The Of the options presented here, this one estimated costs for both programs would have the smallest positive impact are detailed in Table 5: Costing the on the most vulnerable children in Strategy for ECE Expansion: Coverage Turkey. for Children Aged 36-72 Months, while the proposed implementation sequence SEQUENCING THE is explained in Table 6: Proposed IMPLEMENTATION OF Implementation Matrix. THE ECE EXPANSION STRATEGY Option B (0.13 percent of GDP) 62. Table 7 lays out a proposed 6 0 . A Core National Program timeframe and sequence for including inter ventions A and implementing the ECE expansion C ( p r ov i d i n g i n f r a s t r u c t u r e a n d strategy. This proposed sequencing is teacher s and funding for quality based on the following principles: and accountability initiatives) and intervention D (the Supplementary i. While targeting low-enrollment Provincial Program). This option would provinces is critical to increase equity leave out intervention B (targeting the in the provision of infrastructure and most economically disadvantaged 40 trained teachers for ECE expansion, percent of households with “nutrition the government has started with subsidiesâ€?) and thus would have less of high-enrollment provinces taking an impact in terms of improving equity into account the time needed for than Option A. infrastructure investments in less developed parts of the country. This ECE ENG F baski.indd 47 26.06.2013 11:34 is a practical approach to sequencing, iii. Developing the quality- but a plan to target disadvantaged enhancing initiatives such as the p r ov i n c e s w i l l s t i l l n e e d t o b e school evaluations, school readiness developed early on to increase assessments, and television equitable access. programs for ECE delivery is likely to take approximately 12 to 18 ii. It is impor tant to develop a months. Once these products are targeting system for identifying the developed nationally, they could be most economically disadvantaged implemented in 18 to 36 months. 40 percent in Turkey based on the targeting system used in the iv. The provincial initiatives are Conditional Cash Transfer Program. likely to require intensive training of This could be achieved within the staff in the provinces. This training next 12 months, after which the could take at least a year, and these ECE “subsidiesâ€? could start being initiatives should not be implemented distributed the following year. until after this has been completed. ECE ENG F baski.indd 48 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 49 FIGURE 12 PROPOSED ECE STRATEGY FOR TURKEY D: Targeted Support to Low-enrollment SUPPLEMENTARY Intensity of Provinces- 15% PROVINCIAL PROGRAM Effort and of ECE Budget Financing C: Innovative Schemes to Improve quality and Increase accountability (5% of ECE Budget) CORE B: Targeted Subsidies for 40% of Poorest Households NATIONAL (25% of ECE Budget) PROGRAM A: Infrastructure and Teachers in all Provinces (55% of ECE Budget) Number of Provinces 0 20 40 60 81 ECE ENG F baski.indd 49 26.06.2013 11:34 COSTING THE STRATEGY FOR ECE EXPANSION: COVERAGE FOR CHILDREN AGED 36-72 MONTHS TABLE 5 Year Education Estimated Core National Program Supplementary Total Spending Enrollment Rates (% of GDP) Provincial Estimated (% of GDP) (%) Program ECE for Low- Spending enrollment (% of GDP) Districts (% of GDP) Infrastructure “Public Subsidiesâ€? National and Teachers for the Most Innovative economically Schemes disadvantaged 40% 60-72 36-72 60-72 36-72 60-72 36-72 Months Months Months Months Months Months 2011 3.8 68 30 0.02 0.03 0.03 2012 4 73 33 0.04 0.06 0.03 0.05 0.01 0.02 0.14 2013 4 84 39 0.07 0.10 0.03 0.05 0.01 0.02 0.19 2014 4 100 47 0.10 0.15 0.03 0.05 0.01 0.02 0.23 AVG 0.07 0.10 0.03 0.05 0.01 0.02 0.18 12-14 ECE ENG F baski.indd 50 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY IV 51 PROPOSED IMPLEMENTATION MATRIX TABLE 6 Core National Program Supplementary Provincial Program Objective To provide essential ECE services for children 36-72 months To provide additional targeted support (85% of total ECE budget) and resources to 20 provinces Response with the lowest ECE enrollment rates Strategy (15% of total ECE budget) Component Ensuring Equity To Ensure Equity in Access for All Income Levels: To Ensure Equity in Access for All Provinces: in Access Within 12–18 months: Each province can choose from among the • Develop the ability to identify and target vulnerable populations following initiatives to increase ECE enrollment: within communities • CCTs to communities Within 18–36 months: • Information campaigns/outreach to families • Encourage vulnerable families to use ECE services by targeting the • Hiring additional staff most economically disadvantaged 40% of families through CCTs, • Giving performance grants to schools information campaigns, and parental education. • Giving performance grants to sub-provinces Improving Within 12-18 months: Quality and • Review and finalize curriculum for ECE Increasing • Set and enforce national standards on ECE for infrastructure, Accountability furnishings, and education supplies for all new schools • Set and enforce national standards for ECE teacher qualifications and expand teacher training for all new teachers • Develop a phased plan to ensure that all existing ECE schools and teachers reach national standards by 2015 • Develop plans and mechanisms for implementing school self- evaluations and external evaluations • Establish baseline data against standards for all schools • Use television and other media to deliver ECE content Within 18–36 months • Implement annual school self-evaluations • Implement three-yearly school external evaluations (carried out randomly on one-third of schools annually, with a built-in, stratified sub-sample of students assessed for their school readiness) Enhancing Retain implementation responsibility in the MoNE at the central Delegate implementation responsibility to Management government level provincial governments Effectiveness Consider various mechanisms for program delivery: Consider various mechanisms for program • Direct provision by the MoNE delivery: • Private provision • Direct provision by the MoNE • Home-based initiatives • Private provision • Television and other media programs • Community provision Providing Dedicate 85% of expanded ECE funding: Dedicate 15% of expanded ECE funding: Adequate • 0.13% of GDP by 2013 • 0.01-0.02% of GDP by 2013 Financing • 0.15% of GDP by 2015 • 0.02-0.03% of GDP by 2015 ECE ENG F baski.indd 51 26.06.2013 11:34 REFERENCES Aboud, F.E. 2006. “Evaluation of an Early Childhood Preschool Program in Rural Bangladeshâ€?. 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Websites Consulted: ACEV: http://www.acev.org/?lang=en UNICEF Country Page for Turkey: http://www.unicef.org/turkey/ut/ut5_2010.html http://www.unicef.org/turkey/pr_2010/ec31.html http://www.unicef.org/infobycountry/Turkey.html ECE ENG F baski.indd 58 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 1 59 ANNEX 1: EARLY CHILDHOOD INTERVENTIONS IN FOUR OECD COUNTRIES This annex presents case studies of and regional in scale and aim to provide early childhood interventions in four each child with the best possible start in OECD countries: Australia, Chile, New life. It is important to note that Australia Zealand, and Sweden. has great diversity of interventions; some prog rams have ver y wide Australia: coverage, whereas others are micro- A National ECD Strategy programs with a specific intervention and a National Quality aimed at a precisely targeted population. Standard In 2009 the national, state, and territory Australia’s total population is estimated gover n men t s o f Au s t ralia jointly at 21.5 million people, of whom 1.37 developed Investing in the Early Years: A million are children aged 0 to 4 years National Early Childhood Development old. Australia performs comparatively Strategy. The aim of this strategy is “to we ll o n som e ind i cat or s of chi ld ensure that by 2020 all children have health and well-being, such as school the best start in life to create a better achievement at 15 years of age and future for them and for the nation.â€? The material well-being. Never theless, strategy is a comprehensive approach significant areas of concern persist, to ECD that focuses on the whole child particularly in relation to the outcomes from the antenatal period to 8 years of indigenous children. In nearly every old in many different dimensions and repor ted categor y of child health acknowledges the various vital roles that and well-being, indigenous children families, communities, organizations, s c o r e m a r k e d l y wo r s e t h a n t h e i r the workplace, and the government all non-indigenous counterparts, and in play in shaping development in early many instances, they are among the childhood. least successful performers in OECD rankings. Australia has developed The strategy identifies seven target a c o m p r e h e n s i ve m o d e l o f E C D outcomes for realizing the strategy’s interventions that are national, state, vision: (i) children are born and remain ECE ENG F baski.indd 59 26.06.2013 11:34 healthy; (ii) children’s environments are accountability, and the continuity nurturing, culturally appropriate, and needed to foster effective decision- safe; (iii) children have the knowledge making and joint planning. The strategy and skills needed for life and learning; also aims to improve the quality of (iv) children benefit from social early childhood education (ECE) and inclusion and are not disadvantaged, care by adopting a National Quality especially indigenous children; (v) Standard. The standard encompasses children are engaged in and benefitting seven quality areas, which “capture from educational opportunities; (vi) aspects critical to the provision of families are confident and have the quality early childhood education and capabilities to support their children’s care and outside school hours care development; and (vii) quality ECD [OSHC] services, including educational services that support the choices made concept and practice, structural quality, by families regarding their participation interactions between educators and in the workforce are provided. The children, and targeting ser vices to strategy also outlines seven elements meet the needs of families and local needed to deliver a comprehensive communitiesâ€? (Council of Australian ECD system with the child placed at Governments, 2009). The seven quality the nexus of need including: (i) support areas are: (i) educational program for children, parents, caregivers, and and practice; (ii) children’s health communities; (ii) responsive ECD and safety; (iii) physical environment; services; (iii) quality and regulation; (iv) (iv) staffing arrangements, including knowledge management and innovation; staff-to-child ratios and qualifications; (v) workforce and leadership (v) relationships with children; (vi) development; (vi) infrastr ucture; collaborative partnerships with families and (vii) governance and funding. and communities; and (vii) leadership Associated with each element are a and service management. number of immediate actions, reforms, and future commitments made by the The quality standard is accompanied Commonwealth of Australia, state, by an updated legal framework and a and territory governments and other system for assessing and rating ECE stakeholders. service providers. The rating system “combines the seven quality areas with The strategy calls for streamlined a five-point rating scale that describes governance mechanisms (including the quality of early childhood education payment and administration) at the and care and OSHC that all families, national, state, and local level, clarified services, and the broader community roles and responsibilities, g reater should expect to find in the diverse ECE ENG F baski.indd 60 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 1 61 childhood education and care settings economically disadvantaged families available across Australiaâ€? (Council of to quality health care, pre-schools, Australian Governments, 2009). The and social protection. Despite this system is designed to yield information significant progress, geographical and about the quality of service provision socioeconomic inequalities persist. by means of independent evaluations While poverty in 2009 affected 15.1 and to foster accountability through percent of the population, it affected partnerships with families and local 24.6 percent of children under the age communities. of 4 (rising to 39.1 percent in rural indigenous areas), which implies that Australia has a strong track record Chile’s youngest people are among of ECD and has an early childhood its most economically disadvantaged infrastructure that already includes groups. Pre-school enrollment has numerous ser vices, inter ventions, i n c r e a s e d d r a m at i c a l l y i n r e c e n t and an effective social safety net. years, with 66.4 percent of children The strategy aims to improve the aged 4 and 5 years old attending pre- coordination of existing efforts, rethink school in 2008. The policy aimed some of the current approaches, and at early childhood - Chile Crece fill gaps to provide a framework that Contigo (“Chile Grows with Youâ€?) - is ensures that all children are given the composed of a diverse set of programs, best possible opportunity to excel in life. including sectoral, cross-sectoral, To this end, the strategy emphasizes the multi-sectoral, and comprehensive most marginalized children, especially interventions. those in rural, indigenous communities. W h e n C h i l e ’s f o r m e r P r e s i d e n t , Michelle Bachelet, was inaugurated Chile: in 2006, she announced that her The Dual Comprehensive administration would prioritize early and Targeted Approach childhood protection and equalize d e ve l o p m e n t a l o p p o r t u n i t i e s f o r Chile has a population of 17 million all Chilean children. Accordingly, a people, of whom some 1.24 million are Presidential Commission conducted under 5 years old. In the last several technical work and extensive decades, successive governments have consultations to lay the foundation implemented a number of important under the CCC for the design and policies that have positively affected implementation of an integrated system yo u n g c h i l d r e n , f o r e x a m p l e , by of social protection for children up to 4 increasing the access of the most years of age with benefits, interventions, ECE ENG F baski.indd 61 26.06.2013 11:34 and social services to ensure that all • Mass education programs (including children reach their full potential in life. awareness campaigns, libraries, and other educational resources). T h e C C C c o o r d i n at e s t h e m a ny sectoral initiatives and programs at • Interactive information channels each stage of a child’s life. The exact (including a dedicated phone line, levels of support and services provided website, and monthly e-newsletter). are determined by each child’s specific needs. Ser vices provided through • Legislative proposals (including the CCC include prenatal and birth improved adoption laws and changes ser vices, daycare and pre-school in maternity and paternity leave). centers, subsidies for children in the most economically disadvantaged 40 A d d i t i o n a l l y, a b i o - p s y c h o s o c i a l percent of families, and monitoring of development support program follows children’s ECD trajectory. The Ministry the development path of all children of Planning (MIDEPLAN, Ministerio who are covered by the public health de Planificación y Cooperación), system (75 percent of Chile’s children). specifically the Executive Secretariat The targeted intervention component for Social Protection, is responsible then provides differentiated support for overseeing the CCC. Several other to the most vulnerable children (Silva, institutions are important strategic 2010). It includes the following services: partners, including the Ministries of Health, Education, and Labor. The • Home visits health sector plays a central role in the • Automatic access to family allowance CCC, providing most of the services • Access to free ECE services through and screening. MIDEPLAN and the nurseries and kindergartens World Bank are working together • Preferential access to public programs to design an integ rated system of • Comprehensive care for children monitoring and evaluation for the CCC. with development delays • Technical aids for disabled children. One of the key aspects of the CCC is its dual str ucture, which brings Thus, Chile’s CCC system is designed together a comprehensive support for to be both comprehensive (to improve all children in the country with targeted the outcomes for all children) and support to the most vulnerable. The targeted (to provide additional support following universal interventions of the to the most vulnerable). While the CCC provide support to all of Chile’s implementation of the CCC in Chile is children: still very much in its early stages, it will ECE ENG F baski.indd 62 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 1 63 undoubtedly provide many lessons for An important component of this system countries considering similar policies. is the Working for Families package introduced in 2004. This package New Zealand: includes a Family Tax Credit, In-work Serving a Diverse Tax Credit, a Minimum Family Tax Population through Credit, and a Parental Tax Credit, with Targeted Interventions the latter two components tailored to and Public-Private support lower-income families. Partnerships The Ministry of Social Development New Zealand is a small nation with (MoSD) oversees child protection in approximately 4.2 million people. New Zealand, with a particular focus According to the 2001 census, on at-risk families. Child, Youth, and approximately 8 percent of the Family is one of the most extensive population is Mâori and 4.5 percent MoSD services and employs more than Pacific Islander. New Zealand boasts 1,300 social workers and approximately near universal rates of literacy and 4,500 caregivers. Child, Youth, and performs well in important human Family also deals with instances of child d e ve l o p m e n t i n d i c at o r s , s u c h a s abuse or neglect, helping more than the infant mor tality rate and life 5,000 children living with caregivers expectancy at birth. It has a collection of and networking with agencies and interventions that aim to provide children communities to coordinate support for and their families with the services and children and their families. tools necessary to excel in life. The New Zealand model of financing When the Labor Party returned to is a public-private partnership that government in New Zealand in 1999, couples public funding and regulation ECD became a top pr ior ity, with with a private delivery system. This an emphasis on ECE. In particular, approach has been successful in reducing disparities between Mâori and establishing a diverse set of services that non-Mâori and between Pacific Islander meet the varying needs of families with and non-Pacific Islander children was young children. given a high priority. Establishing an institutional anchor (or Today New Zealand has an extensive anchors) is essential for coordinating social protection system that uses the different sectors engaged in ECD. a targeted suppor t model to reach In New Zealand, the Ministr y of individuals and families in need of ECD. Education, the Ministry of Health, and ECE ENG F baski.indd 63 26.06.2013 11:34 the MoSD all contribute to the design a l s o p r ov i d e s a n e x t e n s i ve e a r l y and management of ECD policies and intervention system for children with interventions while collectively working special education needs from the time to ensure continuity between the early they are born until they enter primary childhood and primary years. There school. More than 95 percent of eligible is a high level of inter-institutional children use these services prior to coordination within New Zealand’s attending primary school. ECD system. The Early Years Service Hubs developed by the MoSD provide N g â H u a r a h i A r at a k i : A 1 0 - Ye a r families with a single point of access to Strategic Plan for Early Childhood information and a range of integrated Education aims to provide quality ser vices offered by the Ministries ECE to all children regardless of of Education, Health, and Social their circumstances by increasing Development (among other ministries participation, enhancing the quality and organizations) prior to a child’s of ECE ser vices, and promoting birth and up to school entry. c o l l a b o r a t i ve r e l a t i o n s h i p s. T h e ECE curriculum model, Te Whâriki, ECD interventions in New Zealand provides a theoretical basis, goals, and are operated directly by government philosophies for practice, promotes ministries and agencies, not-for-profit shared understanding and language, and organizations, communities, parent provides a framework for assessing early groups, or some combination of public- childhood education in New Zealand. private partnerships. These interventions can be as small in coverage and design as the Young Parents’ Breastfeeding Sweden: Group (which underscores the impact a National Standards and grassroots group can have on improving Local Flexibility ECD in a specified area with very little funding) or as large, comprehensive, and Sweden’s population of 9 million people complex as Well Child Services. enjoys one of the highest standards of living in the world, and as a result, Since the early 1990s, participation in young children in Sweden have access ECE has increased dramatically to reach to a wide range of quality services to near-universal levels. Although some support their growth and development. indigenous populations (specifically the Sweden consistently ranks in a number Mâori) have lower enrollment rates than of international indexes as one of the top the national average, this gap has been countries in which to live as a mother, significantly reduced and is now close woman, or a child. It has implemented a to parity. The Ministry of Education dynamic collection of varied, thorough ECE ENG F baski.indd 64 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 1 65 ECD interventions that are supported Since 1998, pre-schools have had their by public policy and constitute one own curriculum, national goals, and of the world’s most extensive social guidelines defined by the Ministry of protection systems. Education and Science. The health sector works closely with pre-school Sweden is only one of three countries in interventions to deliver selected health the world that has made ECE and care services. The pedagogical principles of for young children a legal right. ECD the curriculum are based on the idea policy development—for childcare and that pre-school is to be fun, secure, pre-school in particular—has been a and instructive for all enrolled children. priority in Sweden for many years and Within these frameworks, municipalities is regularly discussed in the political decide how activities are to operate, arena. Not surprisingly, Sweden sets subject to the inspections and approval the international standard for high- of the Swedish Schools Inspectorate level ECD policy development and has (SSI). achieved near-universal attendance in early childhood education and care. The SSI is a national agency established in 2008 with three areas of Sweden’s pre-school system has three responsibility: specific and differentiated interventions; pre-school services, family daycare • Educational inspection homes, and open pre-schools. Most • Investigation of complaints children are enrolled in pre-school • Approval of independent schools. ser vices, which operate year round and accommodate between 15 and The SSI ensures that independent, 20 students per class. Family daycare municipally operated pre-schools homes are more common in rural areas, are subject to regular super vision complementing pre-school services by a n d t h e m at i c q u a l i t y e va l u at i o n . offering smaller class sizes for students Municipalities are allowed to charge with unique needs. Open pre-schools, a reasonable fee for each intervention an alternative to conventional pre- in the pre-school system. This fee is schools, target the children of stay-at- usually nominal and in most areas is home parents who wish to accompany related to the family’s income and the their children to school. In the 2007 child’s attendance. In return, each school year, slightly more than 85 “municipality must draw up a quality percent of all children from 1 to 5 years report at municipal level with regard were enrolled in the pre-school system to all municipally-r un pre-school in Sweden. activities, school-age child care, and ECE ENG F baski.indd 65 26.06.2013 11:34 school activities. Every school must structure ought to be studied closely draw up a quality report at operational by Turkey’s polic ymaker s, whose levelâ€? (Swedish Schools Inspectorate, goal of universal coverage may need 2009). In this way, the Swedish pre- to be paired with a set of targeting school system is able to combine the mechanisms to reach the most enforcement of national standards with vulnerable. a high degree of local flexibility. Lesson 2: National LESSONS LEARNED Standards and Assessments FROM INTERNATIONAL EXPERIENCE The cases of Australia and Sweden both offer valuable lessons for instituting Several lessons can be learned from sound quality standards in ECE. these international experiences that are Australia’s National Quality Standard relevant for Turkey’s ECE program. and the Swedish Schools Inspectorate are examples of policies and institutions Lesson 1: put in place by the respective Comprehensive versus governments to ensure that the services Targeted Approaches provided in ECE meet the established quality benchmarks. When scaling up The case of Sweden illustrates a their country’s ECE coverage, Turkish c o u n t r y ’s a b i l i t y t o e x p a n d t h e policymakers should study the examples amount of resources devoted to early of Australia and Sweden closely to childhood inter ventions to achieve institute the systems of monitoring, universal coverage. This comprehensive evaluation, and assessment that are approach has the advantage of quickly essential for ensuring high-quality ECE scaling up coverage, which is one of service provision. the Government of Turkey’s stated goals. On the other hand, the case of Lesson 3: Flexibility in New Zealand offers a more targeted Service Delivery intervention, in which one goal was to increase ECE coverage of a minority While a sound system of quality (MÄ?ori) population. The most relevant standards must be set at the national example for Turkey, however, may be level, Sweden allows for a high degree the dual comprehensive and targeted of local flexibility in how ECE services support offered by Chile’s Chile Crece are actually delivered to beneficiaries. Contigo (CCC) program. This dual In the Swedish system, municipalities ECE ENG F baski.indd 66 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 1 67 are the primary providers of ECE and CCC program, the mechanisms for related services in addition to a network coordinating the initiatives of different of independent schools and early ministries and agencies, and CCC’s childhood centers. The New Zealand integrated system of monitoring and model goes further by combining public evaluation all contain valuable lessons financing and regulation with private for Turkey, as does the Swedish example ser vice provision. Early childhood of having the central government set services are delivered by an extensive standards and conduct evaluations while network of government agencies, not- the municipalities deliver the services. for-profit organizations, communities, parent groups, and public-private partnerships that vary in their size and coverage. Turkish policymakers might study these models of decentralized service delivery to design a system that provides the right balance of quality, innovation, and accountability in ECE. Lesson 4: Inter-institutional Coordination All four national systems described above rely on some deg ree of coordination among various actors. Australia’s strategy is noted for fostering effective coordination between national government and regional and local government. This strength, along with an emphasis on partnerships with local communities and families, can serve as a model for Turkey as it rolls out its own ECE strategy. The decentralized New Zealand model also requires a high degree of coordination between the public, private, and not-for-profit sectors from which Turkey can draw lessons when scaling up its own system. The m a n a ge m e nt o f t he C hilean ECE ENG F baski.indd 67 26.06.2013 11:34 ECE ENG F baski.indd 68 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 2 69 ANNEX 2: A SNAPSHOT OF EARLY CHILDHOOD DEVELOPMENT INTERVENTIONS IN TURKEY Turkey presently has numerous ECD describe and categorize the selected programs at the national, state, and ECD interventions in Turkey using the municipal levels, including sectoral, SABER-ECD program typology. It cross-sectoral, and multi-sectoral is important to note that these figures interventions. Annex Figure 2.1 groups offer only a snapshot of the numerous selected ECD programs by type of inter ventions that are operating in intervention, while Annex Figure 2.2 the country. These interventions were presents their coverage by age group. selected on the basis of their relevance Annex Table 2.2 and Annex Table 3.1 and availability of information. ANNEX FIGURE 2.1 SELECTED ECD INTERVENTIONS IN TURKEY Food fortification Coordinated interventions across multiple Childhood wellness and sectors growth monitoring Comprehensive Parenting messaging Immunizations integrated into health Complexity of institutional arrangements Micronutrients and education for pregnant programs for Multi- women and young young children Sectoral children Family training Breastfeeding programs promotion Public Cash transfers condutional on preschools Cross- enrollment for ECD Prenatal Sectoral services Healthcare Programs for OVCs Programs for Sectoral Children with special needs Focus Areas - Mechanisms Spesific sector w/inputs Multiple sectors, spesific Comprehensive regular Single sector from other sector programs for targeted or monitoring. Some universal universal populations services, with tailored interventions ECE ENG F baski.indd 69 26.06.2013 11:34 COVERAGE OF VARIOUS EARLY CHILDHOOD DEVELOPMENT PROGRAMS BY AGE GROUP, TURKEY ANNEX FIGURE 2.2 Source: World Bank (2010) Child Development Phase Intervention Coverage of Age Group Prenatal Pregnancy Monitoring, MOH (2004) ~80% Immunizations - DPT, MoH (2004) ~90% Infancy (0-18 months) Growth and Pysco-Social Monitoring - Family Doctors, MoH (2008) <10% Parent training, MONE (2008) <1% 100% Private day-care centers, nurseries and community driven models (2008) <1% coverage Toddler and post toddler line (18-36 months) Parent training, MONE (2008) ~3% Growth and Pysco-Social Monitoring - Family Doctors, MoH (2008) <10% SHÇEK Community Centers (2008) <2% Preschools (Months 36-72) Home-based MOCEP -for 6 year group only, MONE (2008) ~6% Private preschools (2008) ~1% Public preschools & kindergartens -for 48-72 month group, MONE (2008) ~30% 0% 20% 40% 60% 80% 100% ECE ENG F baski.indd 70 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 2 71 CATEGORIZATION OF SELECTED ECD PROGRAMS IN TURKEY: THE FAMILY DOCTOR SCHEME AND PUBLIC PRE-SCHOOLS ANNEX TABLE 2.1 ECD Intervention The Family Doctor Scheme Public Pre-schools Category Sectoral Sectoral To provide health care and to monitor To increase children’s school readiness Primary policy objective young children’s growth and cognitive and psychosocial development. Pregnant women are assigned to family Children are provided with pre-school education Brief description doctors who monitor children’s health and in classrooms attached to public primary development throughout early childhood. schools. The family doctor is responsible for the child’s • Increasing cognitive stimulation health and development from the mother’s • Increasing school readiness pregnancy through the child’s first six years, • Developing pre-literacy and pre-numeracy Areas / mechanisms of intervention including the following: skills. • Immunization • Growth monitoring • Tracking cognitive and psycho-social indicators The pilot was launched in Bursa in 1996 There has been a rapid expansion in pre- and implemented in 54 provinces in Turkey, school access in recent years. In 2010-11, the Coverage / access reaching 8.3% of children aged 0 to 72 months enrollment rate for 48- to72-monthgroup in 2009. Coverage expanded to all 81 provinces reached 43%. in Turkey by the end of 2010. The Ministry of Health oversees the program The MoNE General Directorate for Basic Education through three directorates: Mother and Child is centrally responsible for the program’s Health, Primary Health, and Mental Health. curriculum and expansion. Public pre-school Institutional arrangements Family doctors are responsible for immunizing classes are built inside existing basic education and monitoring the growth of all children in schools or in separate buildings. A pre-primary their jurisdiction and receive payments for education program has been approved by the families in their jurisdiction. Board of Education on 23 July 2012. Teachers’ salaries are centrally financed by the MoNE. Infrastructure is funded by project Family doctors receive a per capita incentive financing or local government financing. High Financing / cost-effectiveness payment based on the number of families in private user fees prevent the economically their jurisdiction. disadvantaged from accessing these schools (TL 50-200 “nutrition feesâ€? are charged in different regions). Service providers Family doctors at the local level MoNE-appointed pre-school teachers (4-year university graduates) The Ministry of Health has adopted a Standards focus mainly on building and computerized monitoring tool capable of tracking infrastructure requirements. Standards all children in Turkey, starting with the pregnancy lacking on education programs and practices. of the mother. The database should be able to Inspection of centers is infrequent and often Monitoring and quality assurance serve as a child-centered development policy inspectors lack an ECD background. mechanisms tool to track children and respond to those with lagging indicators across sectors. Family doctors are given some specialized training in ECD and the Integrated Management of Childhood Illness (IMCI) to participate in the program. Expanding the system depends on financing for Challenges for scaling up the The program was expanded nationwide by the infrastructure and teacher costs. The requirement interventions and for improving end of 2011. to hire only four-year university graduates service delivery increases the salary bill and may make expansion more difficult. ECE ENG F baski.indd 71 26.06.2013 11:34 SELECTED ECD INTERVENTIONS IN TURKEY: KEDV WOMEN AND CHILD CENTERS AND FAMILY TRAINING PROGRAMS ANNEX TABLE 2.2 Private Community Initiatives ECD Intervention (KEDV Women and Child Centers Model) Category Cross-sectoral Provide affordable daycare of good quality in poor neighborhoods. Primary policy objective Organizes women into economic cooperatives to operate small businesses and creates Brief description Women and Child Centers to provide affordable daycare for working mothers. Areas / mechanisms of A community-driven model of privately provided center-based daycare. intervention Coverage / access Unknown ECD experts at KEDV train local mothers to serve as “neighborhood mothersâ€? and Institutional arrangements facilitate the hiring of pre-school teachers. KEDV helps them to establish centers. Women members are responsible for the continued financing and management of the centers. The costs of the daycare center are paid by members using a sliding scale based on the Financing / cost-effectiveness ability to pay. Service providers Trained “neighborhood mothersâ€? and pre-school teachers Quality assurance mechanisms Unknown Challenges for scaling up and The centers become self-sustaining after the initial set-up of facilities and programs by improving service delivery KEDV staff. Increased funding is required for program expansion ECE ENG F baski.indd 72 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 2 73 > ANNEX TABLE 2.2 Family Training Programs Cross-sectoral Program objectives vary from increasing school readiness to family training to improving children’s cognitive development. Programs vary but are mostly home-based, providing parents with strategies to help children develop in the home environment The Mother and Child Home Education Program (MOCEP) targets mothers of 6-year-old children who have had no pre-school education and will soon start first grade. Groups of 20 mothers attend three- hour sessions each week for 25 weeks at adult education centers. The Father Training Program targets fathers with children aged 2 to 10 and encourages them to engage with their children. The My Family Program (sponsored by UNICEF) trains mothers but does not include cognitive development. The Directorate-General has been organizing a variety of Mother and Child Education Programs since 1993 for children aged 0 to 6. Through these programs, 5,529 courses reaching 951,406 families in 74 provinces have been delivered. The total number of children reached annually through all family training programs is estimated to be a little more than 2 million. The Family Education Course Program(for families of children between the ages of 0 and 18) is being put into practice starting from the 2010-11 academic year. The program will be implemented by the MoNE and other official institutions/ associations, municipalities, and NGOs in collaboration with the MoNE. Eight thousand copies of the educational materials for participating children and families have been printed and dispatched to the provinces. Municipalities and relevant organizations have received child education material (CEM), brochures, posters, flyers, promotional CDs, and short films to be aired on national TV channels. Parenting programs are administered by the Ministry of Education through the Non-formal Directorate in Adult Education Centers. Financed by the European Commission; delivery is by AÇEV, UNICEF, and other partners. A cost-benefit analysis in Turkey found home-based programs to be highly cost-effective, with a benefit- cost ratio of 8:1 for MOCEP. Each program is managed differently and uses different service providers. MOCEP is implemented by teachers and master trainers who are permanent staff members at Public Education Centers. Several independent evaluations of MOCEP reported that it had positive effects for both mothers and children, was cost-effective, could be implemented on a large scale, and could offer flexible targeting to reach different segments of society and children at risk. An evaluation that followed MOCEP participants over 22 years found that program participants were more likely to complete high school and university and to be employed than non-participants. There are also regular field visits by master trainers. As part of the “The Family Education Course Program,â€? 54 trainers chosen by the MoNE, SHÇEK, and the Ministry of Justice were selected to train educators to take charge of the program. Under the aegis of 2010 In-service Training, 890 teachers were trained to implement the Family Education Program in public education centers. Programs are financed within a series of adult education programs; earmarked financing specifically for Parenting Programs is necessary to clarify annual budgets. ECE ENG F baski.indd 73 26.06.2013 11:34 CATEGORIZATION OF SELECTED ECD PROGRAMS IN TURKEY: CONDITIONAL CASH TRANSFER PROGRAM AND SHÇEK COMMUNITY CENTERS ANNEX TABLE 2.3 ECD Intervention Conditional Cash Transfer SHÇEK Community Centers (CCT) Program Category Multi-sectoral Multi-sectoral To provide a social safety net for families To provide families and young children in with young children in the most economically disadvantaged communities with a variety of Primary policy objective disadvantaged 6% of the population to services. promote positive family behavioral change with respect to education and health. The CCT includes pregnancy allowances to Multi-purpose centers delivering services economically disadvantaged families, as well as to disadvantaged communities, including Brief description allowances given to poor families in return for vocational training, childcare, family training, regular health checks on their pre-school-aged and counseling. children. Areas / mechanisms of intervention A direct cash transfer given at the local level. Protective and preventive services for children in need offered through community centers. The CCT is targeted to the poorest 6% of 81 centers nationally, reaching an estimated families with young children in Turkey. An 40,000 children (but very limited coverage in Coverage / access estimated 3 million children are reached relation to need and demand). annually. The General Directorate of Social Assistance SHÇEK manages the Community Centers and Institutional arrangements manages the program. Local foundations Family Counseling Programs nationwide. select recipients at the local level. Conditional Cash transfer per child (0-6 years) Lack of funding limits the program’s expansion. is 30 TL per month (conditioned on periodic health center visits - MOH’s vaccination calendar) Financing / cost-effectiveness Pregnancy conditional cash transfers are; if women give birth at the hospital: 70 TL if women go to the doctor for monthly regular check-ups they get paid 30 TL per month after birth 30 TL per month for two months Service providers Local philanthropic committees oversee the Center-based delivery of services. transfers under the CCT program. Quality assurance mechanisms Unknown. The amount of funding distributed to Coverage is currently very limited compared to Challenges for scaling up the beneficiaries is a relatively small. The selection need. interventions and for improving process for recipients is somewhat subjective, service delivery and the criteria for selection can be applied unevenly. ECE ENG F baski.indd 74 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 3 75 ANNEX 3: REVISIONS TO THE EARLY CHILDHOOD TEACHER EDUCATION CURRICULUM PREVIOUS EARLY CHILDHOOD TEACHER EDUCATION CURRICULUM (1998) ANNEX TABLE 3.1 Source: Atay-Turhan et al (2009) ECE ENG F baski.indd 75 26.06.2013 11:34 CURRENT EARLY CHILDHOOD TEACHER EDUCATION CURRICULUM (IMPLEMENTED 2006) ANNEX TABLE 3.2 Source: Atay-Turhan et al, 2009 ECE ENG F baski.indd 76 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 4 77 ANNEX 4: EXPENDITURES ON EDUCATION AND EARLY CHILDHOOD EDUCATION AND PROGRESS IN PRE-PRIMARY ENROLLMENT PUBLIC AND PRIVATE EXPENDITURE ON PRE-PRIMARY EDUCATION FOR CHILDREN AGED 3 TO 6 IN 2005 (PERCENTAGE OF GDP) ANNEX TABLE 4.1 Country Public Private Total Australia 0.07 0.03 0.1 Austria 0.42 0.13 0.55 Belgium 0.58 0.01 0.59 Canada 0.2 n.a. 0.2 Czech Republic 0.43 0.03 0.46 Denmark 0.65 0.15 0.81 Finland 0.34 0.03 0.38 France 0.65 0.03 0.67 Germany 0.4 0.14 0.53 Hungary 0.73 0.07 0.79 Ireland 0.39 n.a. 0.39 Italy 0.39 0.05 0.44 Korea, Rep. of 0.05 0.11 0.16 Mexico 0.52 0.08 0.61 Netherlands 0.37 0.01 0.38 Norway 0.84 0.18 1.02 Portugal 0.3 n.a. 0.35 Sweden 0.52 0 0.52 United Kingdom 0.45 0.02 0.47 United States 0.38 0.11 0.49 Average 0.434 0.07 0.495 Source: OECD (2006) p. 247, Table 5.4, quoted in Naudeau et al (2011) p. 180, Table 4.2 A-2 ECE ENG F baski.indd 77 26.06.2013 11:34 TOTAL PUBLIC EXPENDITURE ON EDUCATION AND PRE-SCHOOL EDUCATION IN 2004 (PERCENTAGE OF GDP) ANNEX TABLE 4.2 Country Total Education Pre-primary Pre-primary as % of Total Education Expenditure Education Expenditure Expenditure Spending 10% and above Moldova 4.2 0.8 19 Mongolia 5.7 1.0 17.5 Belarus 5.8 1.0 17.2 Bulgaria 4.4 0.6 13.6 Hungary 6.3 0.8 12.7 Slovak Republic 4.1 0.5 12.2 Guyana 5.8 0.6 10.3 France 6.0 0.6 10 Spending 5-10% Slovenia 6.1 0.6 9.8 Chile 4.1 0.4 9.8 Israel 7.5 0.7 9.3 Kuwait 7.6 0.7 9.2 Seychelles 5.7 0.5 8.8 Croatia 4.6 0.4 8.7 Spain 4.6 0.4 8.7 Mexico 5.9 0.5 8.5 Czech Republic 4.8 0.4 8.3 Germany 4.8 0.4 8.3 Argentina 3.6 0.3 8.3 Italy 4.9 0.4 8.2 Romania 3.7 0.3 8.1 Azerbaijan 3.7 0.3 8.1 Costa Rica 5.1 0.5 7.8 Poland 6.6 0.5 7.6 Paraguay 4.3 0.3 7 El Salvador 2.9 0.2 6.9 Barbados 7.6 0.5 6.6 Kyrgyz Republic 4.6 0.3 6.5 Peru 3.1 0.2 6.5 Iceland 8.2 0.5 6.1 Jamaica 5.3 0.3 5.7 Netherlands 5.5 0.3 5.5 Estonia 6 0.3 5 Portugal 6 0.3 5 ECE ENG F baski.indd 78 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 4 79 Country Total Education Pre-primary Pre-primary as % of Total Education Expenditure Education Expenditure Expenditure Spending 1-5% and above Greece 4.3 0.2 4.7 Finland 6.6 0.3 4.5 Norway 7.6 0.3 3.9 Switzerland 5.1 0.2 3.9 Canada 5.4 0.2 3.7 Tajikistan 2.9 0.1 3.4 Bolivia 6.7 0.2 3 Nepal 3.4 0.1 2.9 New Zealand 7.3 0.2 2.7 Korea, Rep. of 4.6 0.1 2.2 Mauritius 4.7 0.1 2.1 Australia 4.9 0.1 2 Lao PDR 2.5 0.05 2 Colombia 5.1 0.1 2 Kenya 7.1 0.1 1.4 Benin 3.3 0.04 1.2 Malaysia 8.5 0.1 1.2 Spending less than 1% Congo Rep. 4.4 0.03 0.7 Nicaragua 3.2 0.02 0.6 South Africa 5.5 0.02 0.4 Senegal 4.1 0.01 0.2 Jordan 5.0 0.01 0.2 Source: Naudeau et al (2011) ECE ENG F baski.indd 79 26.06.2013 11:34 MONE’S UNIVERSAL PRE-SCHOOL PROGRAM FOR 5 YEAR OLDS - COVERAGE PLAN BY PROVINCE AND YEAR ANNEX TABLE 4.3 5 year olds enrollment rate in the 32 provinces included in the piloting of compulsory kindergarten education in 2010 Year Province 5 year olds cohort 5 years old Enrollment rate of population students the 5 year olds enrolled 2010 SÄ°NOP 2,521 2,567 100% 2010 NEVÅžEHÄ°R 4,522 4,525 100% 2010 AMASYA 4,285 4,324 100% 2010 ARDAHAN 1,896 1,781 100% 2010 BURDUR 3,271 3,402 100% 2010 KARAMAN 3,871 4,028 100% 2010 KÃœTAHYA 7,261 7,447 100% 2010 ÇANAKKALE 5,075 4,872 96% 2010 SAMSUN 17,875 16,943 95% 2010 GÄ°RESUN 5,175 4,884 94% 2010 TRABZON 10,492 9,892 94% 2010 MUÄžLA 11,010 10,326 94% 2010 ARTVÄ°N 2,004 1,846 92% 2010 RÄ°ZE 4,293 3,933 92% 2010 ISPARTA 5,480 5,017 92% 2010 BARTIN 2,207 2,019 91% 2010 KARABUK 2,747 2,484 90% 2010 KIRÅžEHÄ°R 3,018 2,727 90% 2010 KIRIKKALE 3,733 3,356 90% 2010 BÄ°LECÄ°K 2,614 2,344 90% 2010 UÅžAK 4,656 4,130 89% 2010 BAYBURT 1,140 969 85% 2010 TUNCELÄ° 866 726 84% 2010 YALOVA 2,563 2,138 83% 2010 KIRKLARELI 3,686 3,071 83% 2010 ESKÄ°ÅžEHÄ°R 9,121 7,509 82% 2010 EDÄ°RNE 4,286 3,516 82% 2010 BOLU 3,463 2,812 81% 2010 DÃœZCE 5,099 4,105 81% 2010 GÃœMÜŞHANE 1,818 1,408 77% 2010 ÇANKIRI 2,327 1,551 67% 2010 KÄ°LÄ°S 2,728 1,810 66% ECE ENG F baski.indd 80 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 4 81 5 year olds enrollment rate in the 25 provinces included in the piloting of compulsory kindergarten education in 2011 Year Province 5 year olds cohort 5 years old Enrollment rate of population students the 5 year olds enrolled 2011 HATAY 29,092 29,089 100% 2011 MERSÄ°N 27,165 27,212 100% 2011 DENÄ°ZLÄ° 13,497 12,804 95% 2011 ELAZIÄž 8,745 8,043 92% 2011 MUÅž 10,881 9,884 91% 2011 NÄ°ÄžDE 6,131 5,441 89% 2011 YOZGAT 7,592 6,646 88% 2011 SAKARYA 13,067 10,756 82% 2011 ANTALYA 30,555 25,076 82% 2011 ÅžANLIURFA 47,719 38,333 80% 2011 AFYONKARAHÄ°SAR 11,253 8,973 80% 2011 BALIKESÄ°R 13,440 10,449 78% 2011 MANÄ°SA 18,625 14,476 78% 2011 AYDIN 12,878 9,989 78% 2011 ERZÄ°NCAN 3,008 2,304 77% 2011 MALATYA 12,768 9,767 76% 2011 KOCAELÄ° 25,049 19,006 76% 2011 TOKAT 9,254 6,879 74% 2011 BÄ°NGOL 5,269 3,894 74% 2011 ÇORUM 7,466 5,413 73% 2011 SIVAS 10,065 7,182 71% 2011 OSMANÄ°YE 9,181 6,475 71% 2011 AKSARAY 6,811 4,640 68% 2011 SÄ°Ä°RT 8,563 5,646 66% 2011 BÄ°TLÄ°S 8,183 4,744 58% ECE ENG F baski.indd 81 26.06.2013 11:34 5 year olds enrollment rate in the 14 provinces to be included in the piloting of compulsory kindergarten education in 2012 Year Province 5 year olds cohort 5 years old Enrollment rate of population students the 5 year olds enrolled 2012 Ä°ZMÄ°R 50,191 39,380 78% 2012 TEKÄ°RDAÄž 11,389 8,527 75% 2012 ORDU 9,632 6,799 71% 2012 KONYA 35,721 25,201 71% 2012 ERZURUM 15,009 9,704 65% 2012 IÄžDIR 3,959 2,554 65% 2012 ZONGULDAK 8,105 5,160 64% 2012 KASTAMONU 4,548 2,880 63% 2012 KAYSERÄ° 22,123 13,717 60% 2012 ANKARA 68,788 40,438 59% 2012 DÄ°YARBAKIR 37,243 20,929 56% 2012 BURSA 38,536 21,537 56% 2012 KAHRAMANMARAÅž 21,354 11,916 56% 2012 ADANA 37,283 20,279 54% 5 year olds enrollment rate in the 10 provinces to be included in the piloting of compulsory kindergarten education in 2013 Year Province 5 year olds cohort 5 years old Enrollment rate of population students the 5 year olds enrolled 2013 VAN 26922 22682 84% 2013 KARS 6525 4048 62% 2013 ADIYAMAN 12352 7552 61% 2013 BATMAN 13761 6685 49% 2013 MARDÄ°N 19,227 8900 46% 2013 SIRNAK 12934 5950 46% 2013 Ä°STANBUL 206866 91101 44% 2013 GAZÄ°ANTEP 40861 17384 43% 2013 AÄžRI 13946 4476 32% 2013 HAKKARÄ° 6928 1933 28% NEW STUDENTS TO BE ENROLLED (ESTIMATES BASED ON MONE’S PLAN) ANNEX TABLE 4.4 Year New students to be enrolled (3-5 year olds). 2011 18,962 2012 94,704 2013 202,290 2014 284,416 ECE ENG F baski.indd 82 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY ANX 5 83 ANNEX 5: ASSUMPTIONS ON COSTING THE EXPANSION IN TURKEY’S ECE PROGRAM Our assumptions about the estimated Although these training costs were not cost of the expansion of pre-school immediately taken on by the MoNE ser vices in Turkey are based on a in the pre-school budget, we included modification of model used by Aran them for the sake of completeness in et al (2009). The key features of the the analysis. In reality, these costs would modified model are as follows: be borne by the budgets for higher education rather than by the budget of i. We started out by looking at the the Directorate-General of Pre-school cur rent coverage of pre-school Education. programs using MoNE (2011) data. iv. The salary of a full-time MoNE pre- ii. We assumed the investment costs school teacher is TL 2,333 per month of independent pre-school buildings and the cost of master teachers (usta with five classrooms to be TL 572,000 öğretici) who serve as contract teachers and equipment expenditure TL 60,000 is TL 1,476. For the expansion, we per school (with five classrooms). We assumed that the teachers would come assumed that building a classroom in from a mix of both categories, so an an existing primary school would cost average teacher’s salary was assumed to around 70% of the cost of the average be TL 1,900 per month. These salaries cost of building one in an independent are paid out for 12 months per year in pre-school. In the model, we assumed the model (which may overestimate the (in-line with current enrolment shares) costs of the contract teachers’ salaries). that the 2/3rd of the expansion would v. We assumed the operating costs accommodated by building classrooms (such as heating and utilities) of the in existing primary schools, and the rest kindergartens to be around TL 800 per will be provided places in in newly built month. We multiplied these costs by 12 independent pre-school buildings. months in the year as well. iii. For teacher training, we added a vi. We calculated the costs of food cost of TL 920 per year and assumed subsidies by assuming that only the a four-year training period for teachers. bottom 40 percent of students would ECE ENG F baski.indd 83 26.06.2013 11:34 benefit from the subsidy. “Nutrition feesâ€? charged by public schools range from TL 50 to TL 200 per child per month. We assumed TL 100 per month per child as the cost of the subsidy (which may have resulted in an underestimate). vii. We assumed that the total cost of the Secondar y/Innovative program would be half of the total cost of the food subsidy for the most economically disadvantaged 40 percent of students. viii. In the analysis, current expenditures were added to the previous year’s current expenditures since each added teacher would need to work in preceding years to increase the pre- school enrollment rates. We calculated total current expenditures by adding up the cumulative current expenditures for each preceding year. ECE ENG F baski.indd 84 26.06.2013 11:34 EXPANDING AND IMPROVING EARLY CHILDHOOD EDUCATION IN TURKEY 85 ECE ENG F baski.indd 85 26.06.2013 11:34 ECE ENG F baski.indd 86 26.06.2013 11:34