93709 Kuwait Education Program Achievement Report December 2014 SCHOOL EDUCATION QUALITY IMPROVEMENT PROGRAM Table of Contents 04 Executive Summary 09 Project Overview 14 Project Achievements 21 Lessons Learned Disclaimer: The findings, interpretations and conclusions expressed herein are those of the authors and do not necessarily reflect the view of the World Bank Group, its Board of Directors, or the governments they represent. Acknowledgments The PAR team was led by Ghassan Alkhoja, Senior Social Protection Specialist, and the report was prepared by Samira Halabi, Education Specialist. Invaluable support was provided by Maryam Abdullah, Operations Analyst, and Farah Al-Shamali, Team Assistant. The team would like to thank Dr. Mariam Al-Wutaid for the support provided throughout the TCP and during the development of this report. In addition, we would like to acknowledge the following individuals and groups for their participation in the development of the report: Kuwaiti Ministry of Education World Bank Team Mr. Shahram Paksima, Education Specialist; H.E. Dr. Nayef Al-Hajraf, former Minister of Education Dr. Mariam Al-Wutaid, Undersecretary, Ministry of Education Mr. Ahmed Dewidar, Senior Education Specialist; (MoE) Mr. Jeffrey Waite, Lead Education Specialist; Dr. Ridha Al-Khayat, Director, National Center for Education Mr. Sami Ben Daamech, Senior Operations Officer; Ms. Development (NCED) Maryam Abdullah, Operations Analyst; Dr. Khaled Al-Rushaid, Assistant Undersecretary, MoE Ms. Farah Al-Shamali, Team Assistant; Dr. Saud Al-Harbi, Assistant Undersecretary, MoE Ms. Hala Bishara, Team Assistant; Ms. Abla Al-Essa, MoE and education consultants: Mr. Tom Cassidy; Mr. Ian Ms. Samiha Al-Sherida, MoE McLellan; Ms. Paula Lacerna; Ms. Lorena Meckes; Ms. Leonor Cariola and Mr. Alex Crisan. Ms. Nazik Al-Houari, NCED Ms. Alaa Al-Shaheen, NCED Ms. Sara Portman, NCED The team is grateful to Mr. Bassam Ramadan, World Bank Kuwait Principals, Assistant Principals and Curriculum Teams, MoE Country Office Manager, for his support and advice. Photo Credits: Ministry of Education 3 Executive Summary BACKGROUND  In cooperation with the World Bank, Kuwait’s  Capturing the accomplishments of this intensive Ministry of Education and National Center for effort and documenting lessons learned are valuable Education Development have been engaged in a practices that can serve to inform future programs multi-year integrated modernization program that of education development in Kuwait and elsewhere. addresses critical issues in Kuwait’s education The intent of the Program Achievement Report system: curricular reform, the development of (PAR) is to qualitatively and retrospectively take national assessment systems, improvement of stock of major achievements and highlight lessons school leadership, and creation of professional learned during the Education Technical Cooperation standards. These areas were selected based on a Program (2010-2014). The PAR can also serve as a conceptual framework that identified the key reform guide for structuring and organizing future pillars. The overall objective of the program is to cooperation programs. improve the quality of schools and education in Kuwait. 4 Executive Summary PROGRAM ACHIEVEMENTS (2010-2014) 1. The Kuwaiti MoE adopted an integrated approach to 3. The ability of MoE and NCED to mobilize and reform based on a comprehensive conceptual motivate teams at all levels to lead, advocate for framework. The cohesive package included and embrace change was strengthened. Staff were components at the heart of education quality: empowered to serve as positive change agents, curriculum development and enhancement, forming communities of learning and practice to effective school leadership, strengthening NCED and lead knowledge transfer within teams. national assessment capacity and developing National Education Standards. 4. Grades 1-12 curricula for 12 subjects were completely modernized for primary and 2. Technical capacity and ownership amongst MoE and intermediate stages/levels. The integrated NCED staff was strengthened so as to carry out and curriculum is competences and standards-based as lead component-related tasks. Over the course of well as child-centered. In addition, key curriculum the project and across components, 805 individuals documents were developed, including a National participated in training provided as part of the Curriculum Framework, Implementation and Technical Cooperation Program. Communications Plans and Teaching Plans. 5 Executive Summary PROGRAM ACHIEVEMENTS 5. School leadership practices in 48 pilot schools were 6. MESA, a national assessment system based on transformed. School leadership teams adopted international best practices, was developed at participatory and team-based approaches to NCED and successfully implemented for three planning and decision-making. School leadership consecutive years in grades 5, 9 and 12. was re-conceptualized and reorganized with new and improved administrative procedures. New job 7. Content and performance standards for teachers, descriptions were created to clearly define roles school leaders and students were developed in and responsibilities for the principal and assistant collaboration between MoE, NCED, teachers, principals. Teams and teachers were trained on the principals, civil society, Kuwait Teachers' Society use of data for decision-making, community private sector representatives and academics. engagement and outreach and planning for success. 6 Executive Summary LESSONS LEARNED 1. Sustained, high-level political commitment and 5. The allocation of adequately skilled and qualified support to the reform process are necessary for numbers of human resources is necessary for real impact to occur. Key decisions were stalled at effective implementation. Staff turnover due to critical moments in the program’s trajectory, limiting retirement or other reasons led to “lost” capacity its potential for positive impact. and the need to retrain replacements, sometimes delaying implementation. 2. Management oversight structures and implementation arrangements should be 6. The absence of a clear and widely communicated established, clarified and communicated in advance mandate from MoE on intended uses of MESA and to facilitate project operations (i.e. Steering and National Education Standards led to the Coordination Committees) underutilization of the MESA results. 3. Clear, complete and frequent communication 7. Issues with the quality of language translation amongst stakeholders, across and within project delayed project progress. The WB team relied on teams, and with the public is necessary for ensuring international experts being aided by translation and smooth implementation. interpretation to overcome the language barrier. The translation and back-translation of materials 4. Gaining buy-in from relevant stakeholders by affected turn-around time for documents and the developing a shared vision would facilitate the quality of the end product. implementation of reforms. 7 Preface In cooperation with the World Bank, Kuwait’s Ministry leadership at MoE, NCED and WB; 2) project team of Education and National Center for Education leads at MoE, NCED and WB and 3) project team Development have been engaged in a multi-year, members, including curriculum and assessment integrated modernization program that addresses teams, school principals and assistant principals. critical issues in Kuwait’s education system: curricular Interviewees were asked to describe their experiences reform, the development of national assessment with the TCP and probed on what they felt had been systems, improvement of school leadership, and successfully achieved and what challenges they creation of professional standards. As the current encountered. Common themes emerging from the phase of the program comes to an end, capturing the discussions were identified and synthesized. accomplishments of this intensive effort and Preliminary findings were shared with key documenting lessons learned are valuable practices counterparts for validation and comments. that can serve to inform future programs for education development in Kuwait and elsewhere. In addition to interviews and focus groups, observations of working group and curriculum As such, the intent of the Program Achievement development sessions were conducted. Relevant Report (PAR) is to qualitatively and retrospectively documents were collected and reviewed for reference, take stock of major achievements and highlight including Education TCP project documents, progress lessons learned during the Education Technical reports and Aide-Memoires as well as a review of Cooperation Program (TCP) (2010-2014). The PAR can major project deliverables for each component. also serve as a guide for structuring and organizing future cooperation programs. Unlike a program The report is organized into three sections: Section 1 evaluation, the PAR aims to capture stakeholder provides a background to the origins and development perspectives and experiences rather than just answer of the TCP; Section 2 describes the major milestones questions about effectiveness and efficiency. reached; and Section 3 outlines the lessons learned and includes suggestions to be considered in terms of The main method used to collect data was interviews planning for future partnerships. and focus groups with key stakeholders involved with the TCP that included 1) current and former senior 8 Project Overview section 01 9 Project Overview The School Education Quality Improvement Technical Cooperation Program (SEQI TCP) between the Kuwaiti Ministry of Education (MoE), National Center for Educational Development (NCED) and World Bank (WB) began in 2010 with the goal of improving education quality through the development and modernization of four key areas: curriculum, school leadership, assessment and educational standards. Building upon earlier successful WB-MoE cooperation, the 2010-2014 TCP was based upon a comprehensive conceptual model. World Bank support across the four components included training and technical assistance for the key program activities. “We have momentum for change in education.” —Senior MoE leader section 01 10 Integrated Model for TCP KUWAIT MoE/NCED/WB TECHNICAL COOPERATION PARTNERSHIP CONCEPTUAL MODEL Reform Pillars CONCEPTUAL MODEL Intended Outcomes QUALITY CURRICULUM Curriculum Development and KUWAIT EDUCATION DEVELOPMENT FRAMEWORK Enhancement Secondary Diversification Internationally Competitive Students Math and Science Time on Task N Student Achievement EFFECTIVE TEACHING AND A INSTRUCTIONAL IMPROVEMENT Outcomes Enhanced School Leadership LEADERSHIP T Teacher Certification/Licensing I Professional Development A O Teacher Supply/Deployment QUALITY EFFECTIVE S N CURRICULUM TEACHING QUALITY LEARNING S Based on A ENVIRONMENT Qualified Internationally E Challenging and L Special and Inclusive Education Learning Competitive Students Instructional Resources and S STUDENT motivated Standards ACHIEVEMENT Settings (including ICT as a tool for S OUTCOMES teachers S learning) M T SYSTEM EFFECTIVENESS E QUALITY LEARNING A Education Indicators Internal Efficiency N ENVIRONMENT N and T with ICT as a tool D Evidence-Based Comprehensive Student for learning) Assessment A Decision Making for MESA, TIMSS, PIRLS R System Improvement National Education Standards Learning D & Accountability Teaching S Leadership School Environment Effective Schools Supported by Engaged NOTE: Bolded sub-headings above & Efficient Educational System are confirmed for WB partnership  The World Bank commits to putting enhanced resources, locally as well as regionally and globally, to provide the highest quality technical assistance and support PREREQUISITES AND  On their side, MoE and NCED (whose role and responsibilities require clear definition) will need to commit to having in place a set of prerequisites for success, including the IMPLEMENTATION  needed staffing resources, and dedicate the needed staff time to meet the challenge of an expanding program, and a complex reform process. The new phase of the TCP will require an enhanced program and project management structure , which need to be based on (i) a sound monitoring and evaluation system at REQUIREMENTS all levels; (ii) results frameworks and operational plans to establish, guide, and track progress; and (iii) greatly enhanced governance structures, including clarity on the respective roles of MoE and NCED in the overall reform implementation process.  A key feature of the new TCP will be an emphasis on coordination across all teams involved in the reform process, taking a more integrated planning approach to delivery of outcomes and results. This need could be served by the establishment of a dedicated program management or implementation unit at the system level to report to senior management and coordinate the work of project teams for the reform pillars (which would coordinate the work of their project task teams) 11 Summary of World Bank Support to TCP Activities  Training of 12 MoE subject expert teams (approx. 130 members) on modern Curriculum curriculum development for Primary and Intermediate stages. Development and  Completion—with MoE—of Kuwait National Curriculum Framework, Implementation Plan and Communications Plans for National Curriculum Reform and “Teaching Enhancement Plans” for all three stages (Primary, Intermediate and Secondary).  Creation of new competences-based national curricula and standards for 12 Primary stage subjects.  Creation of new competences-based national curricula and standards for 12 Intermediate stage subjects.  Technical reports analyzing MoE textbook policies and sample of Primary stage textbooks.  Technical support for school leadership policy reforms on school restructuring, job descriptions, administrative procedures, and the teacher career ladder for MoE and Developing the Civil Service Commission. Effective School  Development of the Kuwait National School Leadership Framework which identifies Leadership five school leadership domains, guides selection and the training of new principals and forms the basis for professional standards.  Program management support of the national School Leadership Pilot in 48 government schools, which included all three stages (Primary, Intermediate and Secondary) and for both genders.  Delivery of three training workshops and field support for over 400 School Leadership Pilot personnel from the General Supervision Department and supervisors, principals, teachers, vice principals and heads of departments.  Completion of the Year 1 Evaluation of the Pilot Program for New School Leadership and Management. section 01 12 Summary of World Bank Support to TCP Activities (Cont.)  Ongoing technical support for the National Education Standards Executive Committee. Developing National  Ongoing technical support for the National Education Standards Coordination Education Standards Committee.  Creation of writing and review teams for Teacher and Leadership Standards, and twelve groups in charge of Curriculum Standards for the Primary and Intermediate stages.  Development of “General Standards” for teachers, school leaders and all twelve Primary stage subject curricula and Grades 5 and 9 (end of key stage) Performance Standards.  National consultations on Teacher and Leadership Standards with local, regional and national stakeholders (i.e. Kuwait University and College of Basic Education at the Public Authority for Applied Education and Training).  Implementation support on “General Standards” for teachers and school leaders in the 48 pilot schools. Strengthening the  Technical proposal for the design of a stand-alone national center for assessment and evaluation. National Center for  Technical assistance for MoE and NCED staff for project training in five work streams: Education Development test management, test administration and development, field operations, data – National Assessment management and analysis and the dissemination of test results (MESA stands for MESA Mathematics, English, Science and Arabic).  Intensive implementation support for the delivery of three MESA national learning assessments (Grade 5 in 2012, Grade 9 in 2013 and Grade 12 is ongoing until December 2014) including support for work in all five technical streams.  Technical report assessing the status of Kuwait’s policies on comprehensive student assessment.  Rapid assessment of NCED’s organizational capacity and the delivery of the presentation to NCED leadership and senior Assessment Unit staff on policy options for the future of Assessment Unit development. section 01 13 Program Achievements section 02 14 Program Achievements OVERALL 1. One of the major successes was the adoption of an integrated approach to reform, based upon a conceptual model jointly developed by MoE, the World Bank and NCED. The comprehensive, strategic approach indicated MoE’s significant commitment to reform. The cohesive package included components at the heart of education quality: curriculum development and enhancement, effective school leadership, strengthening NCED and national assessment capacity and developing National Education Standards. Unlike previous initiatives that were piecemeal and disjointed, the TCP promoted collaboration and communication across departments within the MoE; and between MoE “In general, we are much and NCED. better than we were four years ago.” —Senior MoE official section 02 15 2. Technical capacity and ownership amongst MoE team strongly felt that their skills had developed and NCED staff was strengthened. The through the training, as did MESA teams. The lead development of national cadres with exposure to assessment expert, who expressed confidence in and training on best practices in curriculum NCED’s ability to run the assessment, noted a development, effective school leadership, significant improvement over time in the team’s standards development and national student technical skills, in addition to improvements in assessments is noteworthy. In total, training was organization, planning and budgeting functions. provided to 805 individuals at the MoE and NCED, The director of NCED also echoed this observation. including school leadership staff, curriculum The table below summarizes the number of staff experts, test item developers and standards trained by component: writers. Teams across project components demonstrated increased technical capacity to both lead project activities and perform project tasks as Numbers of TCP participants trained by component they took on increasing responsibilities for implementation. International consultants noted Component # of staff trained significant improvement in the quality of technical Curriculum Reform 130 work, documents and materials produced by National Assessment 34 project teams. A curriculum expert noted that the National Education Standards 35 subject teams, made up of 130 individuals, were School Leadership 606 “committed and serious.” Focus group discussions TOTAL 805 held with subject leads of the curriculum reform section 02 16 3. The TCP enhanced MoE and NCED’s abilities to mobilize and motivate teams at all levels to lead, advocate for and embrace change. The implementation of TCP activities often required additional effort from MoE and NCED teams, who demonstrated a real desire for and ability to serve as positive change agents. The organic formation of communities of learning and practice as well as transfer of knowledge within teams was remarkable and noted by both international experts and the teams themselves. In describing principals participating in the SLP Pilot, “[their] commitment and enthusiasm for embracing change and doing the best that they can with what they have is outstanding across all schools.” (School Leadership Program Evaluation Report, 2014). section 02 17 4. The TCP mobilized national teams who The work undertaken included a review of and collaborated for the complete modernization of recommendations for curriculum sector policies existing Grades 1-12 curriculum for all twelve and architecture that included organizational re- subjects. The new curriculum is based upon sound structuring, the revision of textbooks and teaching theoretical principles whilst adopting an integrated and learning materials as well as provision of in- and child-centered approach with specified service teacher preparation. learning activities. On the positive aspects of the new curriculum, subject leads commended the move away from memorization towards the development of competences and skills and the integration of subjects. Teams also noted that the competences and standards-based curriculum has the potential to transform Kuwaiti education if implemented with fidelity. In addition to grade and subject specific curricula, the curriculum revision process included the development of key curriculum reform documents, including a National Curriculum Framework, Implementation and Communications Plans and Teaching Plans. section 02 18 5. The TCP enabled the transformation of school management practices in pilot schools. The 48 schools taking part in the School Leadership Program (SLP) Pilot underwent significant improvements to the policies, processes and practices of school leadership. New job descriptions were created to clearly define roles and responsibilities for the principal and assistant principals. School leadership was re-conceptualized and reorganized with new and improved administrative procedures and the beginnings of a career ladder system were put in place. School leadership teams and teachers were trained on the use of data for decision-making, community engagement and outreach and planning for success. Pilot schools now use participatory and team-based “The use of data in schools approaches for planning and decision-making and represents a major change relationships with parents and other community in thinking.” members are stronger. Principals participating in the SLP Pilot welcomed the increased autonomy — Team Lead, WB they have been given to manage their schools and expressed readiness to be held accountable for their decisions. section 02 19 6. The establishment of a national assessment 7. Content and performance standards for teachers, system housed at NCED is one of the TCP’s major school leaders and students have been developed achievements. Knowledge of the “how-to” for the in collaboration between MoE, NCED, teachers, administration of a national student assessment principals, supervisors, Kuwait Teachers' Society, has increased dramatically. MESA was successfully civil society, private sector representatives, and implemented for three consecutive years for academics. These standards articulate what school Grades 5, 9 and 12. A strong foundation is in place leaders, teachers and students should know and be that will allow for the continuous development of able to do. Nationally adopted standards have the national assessment policies and practices, potential to ensure better accountability, improve including tailoring and refining the assessment professional practice and enhance the public profile more specifically towards the national needs of and standing of the teaching profession. policymakers, practitioners and the public. section 02 20 Lessons Learned section 03 21 Lessons Learned 1. The TCP saw six different administrations take the human and material resources allocated to office during a 4-year period. The constant reform are used effectively and efficiently, the MoE transition made decision-making at the most should ensure that dialogue between partners is senior level difficult, stalling decisions at key sustained throughout changes in senior leadership moments in the program’s trajectory. Sustained, and large multi-year reform initiatives such as the high-level political commitment and support to TCP can withstand political shifts. the reform process is necessary for real impact to occur. High-level support and clearly 2. Management oversight structures and communicated national political commitment and implementation arrangements should be continuity is critical from the outset for both policy established in advance to facilitate project reforms and project design as well as for the operations. Clear mandates for steering and sustainability of reform efforts. Key policy and coordination committees, agreement amongst program decisions were stalled at critical moments teams on the coordination process, division of with negative consequences including delayed labor, and modality of support were lacking in implementation and demoralized teams. For the early stages of the TCP. Implementation example, at the time of the focus group discussion arrangements that specify the roles and with curriculum teams, it was unclear whether the responsibilities of all parties were not always MoE would move forward with curriculum clear and milestones for measuring project implementation after the allocation of significant progress were not in place. Project management time and resources. The uncertainty regarding next tools such as Monitoring and Evaluation steps disincentivized the teams that had dedicated Frameworks, Project Implementation Plans and much time and effort to the development of new Results Frameworks could be jointly used by WB materials to continue the process. To ensure that and MoE teams to evaluate progress and authorize further project activities. section 03 22 3. Clear, complete and frequent communication is 4. Buy-in from relevant stakeholders and developing critical for all program stages: a) among a shared vision are important through all stages in stakeholders (MoE, WB and NCED); b) across and the project cycle but with different purposes for within project teams; and c) with the public. each stage. For example, within the MoE, sharing Almost all program stakeholders expressed that a the vision of the TCP across all departments, and common, shared vision was not communicated not just those directly concerned, would reduce clearly to all. For example, curriculum reform the burden on schools and staff from competing teams expressed concerns on the lack of ministry initiatives. In the SLP Pilot, the lack of communication about the new curriculum and felt district-level support in the early stages limited the that promotion about the new curriculum via the impact of the program as district officials were media and parents would prepare the public for unsupportive of changes until the final stages of the forthcoming change. A lack of consistent and the Pilot. Supervisors responsible for supporting regularized information-sharing across project the work of principals, teaching staff, district-level teams hindered collaboration. The preparation of a data and planning officers as well as others well-designed communications strategy would be a working between the ministry and schools should key step in future programs and facilitate the have been more closely involved. MoE and school continuous monitoring of perceptions, needs and staff and the wider public, more generally, could expectations amongst all parties. have been better informed and engaged in the curriculum modernization process so as to ensure a smooth transition for implementation. section 03 23 Lessons Learned 5. The allocation of adequately skilled and qualified working groups led to turnover amongst team numbers of human resources is necessary for members before teams became fully operational. effective implementation. The suboptimal In MESA, subject specialists that can lead item allocation of human resources and structural development within NCED are needed as the constraints in recruitment and hiring led to delays availability of seconded MoE staff to work with in project implementation. Project continuity was NCED continuously was limited. sometimes jeopardized by staff turnover. On the WB side, the size and strength of the Bank team 6. The absence of a clear and widely communicated did not match program scope and requirements in mandate from MoE on intended uses of MESA the initial stages and was later adjusted to better and National Education Standards led to the meet the program’s needs. In the SLP Pilot, for underutilization of the MESA results. Similarly, example, despite the skill, commitment and the lack of clarity on intended future uses of dedication of the MoE/SLP Project Management standards has limited implementation and further Team, its current size is inadequate to ensure on- technical development. Collaboration between going effective and efficient implementation in all NCED and MoE should include developing a joint pilot schools so as to include greater capacity for strategy guided by a common vision and shared technical/educational, logistical and administrative priorities. support. In the early stages of the curriculum team’s work, the allocation of staff who had competing core responsibilities to labor-intensive section 03 24 Lessons Learned 7. Qualitative issues in the provision of technical assistance delayed project progress. Because Arabic-speaking specialists were not always available for the provision of technical assistance or training, the WB team relied on other international experts being aided by translation and interpretation to overcome the language barrier. The translation and back-translation of materials affected turn-around time for documents and the quality of the end products. Kuwaiti project teams noted the importance of not just language but also the adaptation of training material and workshop content to the Kuwaiti educational context. MoE and NCED teams valued even more structured guidance and mentorship from the WB in the form of more frequent interactions with expert teams, operational manuals and implementation guidelines. section 03 25