A Comparative Study of Saudi Arabia and Qatar Sarah Yamani

The Fletcher School Online Journal for issues related to Southwest Asia and Islamic Civilization Spring 2006

Toward a National Education Development Paradigm in the Arab World: A Comparative Study of Saudi Arabia and Qatar Sarah Yamani

explore such issues through a comparative case Introduction study of two countries in the Persian Gulf: Saudi Arabia, and Qatar. By examing the historical,

cultural, economic and political contexts, this study In today’s knowledge-crazed world, aims to address why one country developed a education is the cornerstone of human comprehensive education reform system while the development. While it is doubtful that education other chose a more cautious approach. can stand alone in achieving this goal, it is certainly one of the most instrumental factors. The acquisition of knowledge gives humans a sense of Education Development and the Arab World freedom—the power to think—that in turn becomes a means to develop other types of Since September 11, 2001, the Arab world has freedom, including freedom of speech, freedom of been exposed to great scrutiny. Education has association, and freedom of political and economic become a critical issue in defining a state of decline 1 participation. Therefore, it is not surprising that that exists in many Arab countries. While this part many countries have identified education as one of of the world is historically known as the cradle of the main priorities for developing their societies. scientific discovery and learning, it has largely More importantly, education is a universal concern failed to keep up. Even though Arab countries for both developing and developed countries. spend a higher percentage of GDP on education Developing countries continually aspire to than any other developing region, the 2002 Arab modernize their education systems, and developed Human Development Report stated that countries pursue the adoption of the best education educational achievements in the Arab countries as reforms and structure for their systems. In the end, a whole were still considered modest when all countries hope to gain from their education compared to the rest of the world and even when 2 systems more effective citizens who can be compared to other developing countries. productive participants, domestically and abroad, Moreover, the Report estimated that in markets and communities. approximately 40 percent of adult Arabs are To understand how modernization efforts in illiterate, two-thirds of whom are women. While education can work in one country, one must look the 2002 Report emphasized the deficient at the foundations of an education system, how that qualitative nature of education systems in the Arab system has evolved, and whether it can modernize World, the 2003 Report highlighted that Arab within its present context. This paper seeks to countries, “lack[ed] an integrated vision of the 3 Sarah Yamani, Fletcher MALD 2005. Sarah Yamani is a education process and its objectives.” native of Mecca, Saudi Arabia. She has worked within the Furthermore, the report stated that the quality of UN system at United Nations Conference on Trade and education excludes quantitative resources and Development and United Nations Educational, depends more on organizational aspects of the Scientific and Cultural Organisation. She is currently educational process, or means of delivery and an education policy advisor with the RAND Corporation evaluation. In addition to the region’s growing in Qatar, revising the country’s national education knowledge gap, amongst the educated elite, regime. roughly one-fourth of all university graduates,

emigrate to other countries, creating a large brain training to meet the future needs of the labor 6 drain. market. The need for higher education institutions in The Evolution of the Saudi and Qatari the country has been heightened since September Education Systems 11, because many Saudi students have been rejected visas to study in the U.S. Additionally, the following reform initiatives were also adopted: Prior to modern education, Saudi Arabia and Qatar, like their neighboring Gulf countries, • A new process of evaluating and assessing the followed a traditional form of education called Saudi school curriculum by eliminating any Kuttab. Students in Kuttab schools learned through possibly offensive language that promotes rote memorization, hate and intolerance towards the West from studying Quranic verses Saudi textbooks. The government claims that Although women in and religious principles. only 5 percent (some reports say 15 percent) of Beginning in the 1950s, a Saudi Arabia remain the curriculum has been deemed more formal education prohibited from holding inappropriate or disturbing and that the system was adopted in material has been ‘updated’ and ministerial positions, a Saudi Arabia and Qatar. ‘modernized’.7 The men’s education woman has been • The creation of student councils in public system in both countries schools in an effort to educate young Saudis recently appointed as was divided into three “about civic responsibilities and participatory dean of Qatar’s Arab stages: the primary stage 8 (six years), intermediate governance”.

Open University stage (three years), and • Opening up private higher education to secondary stage (three foreign investment, as well as encouraging the years). Girls’ education was also included and establishment of private higher education funded by each respective government. institutions. Recently, the Arab Open University (AOU) has opened a campus in Today, the education policy in Saudi Arabia 9 aims to promote the “belief in One God, Islam as Jeddah. The student body is comprised of the way of life, and Muhammad as God’s 25,000 students in three undergraduate 4 Messenger.” Similarly, and according to the programs. The university offers Qatari Ministry of Education, Qatar’s education correspondence courses in computer science, policy builds on two notions: that Islam is Qatar’s information technology, English language, national religion and that Qatar’s constitution is the business administration and teacher training. 5 Dr. Maha Abdullah Orkubi was appointed country’s source for laws and regulations. Dean of the University on October 2003, the In Saudi Arabia, there are eight major first Saudi woman to ever hold a senior universities, where five of them accept both male academic position. and female students. In Qatar, the major public • English language instruction: classes have higher education institution is Qatar University, been introduced to the sixth grade (instead of which is currently undergoing major reform efforts the seventh grade) in order to improve English to meet its government’s objectives of raising skills at the intermediary and secondary school academic qualifications and efficiency to confront levels. This has been complemented with the forces of modern change. teacher-training programs to increase the amount of English teachers. Educational Reform Initiatives at the National • Teacher training programs: The government Level has introduced two pilot programs, one in Jeddah and the other in Riyadh, for training teachers on innovative teaching methods. Saudi Arabia • Expansion of technical and vocational education Over a year ago, the Interior Minister stated • Class Server Project: the Ministry of Education that the aim of the Saudi educational reform efforts and Microsoft Arabia have recently signed a is to enhance Islamic values and respect for the Memorandum of Understanding (MOU) to opinions of others. He denied reports that Saudi bring improved Information, Computer and Arabia was under pressure from the United States Communications Technologies (ICT) education to change the national curriculum. In addition, he to schools under Microsoft’s ‘Partners in said that the aim of Saudi education reform is to 10 Learning’ global initiative. The agreement place more emphasis on scientific and technical

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includes teacher training, an e-learning 1. Autonomy: for schools and teachers in gateway, a digital curriculum and data center. choosing their staff, teaching methods, and • For girls’ education colleges, the government approaches in dealing with the needs of has launched pilot programs in distance individual students and parents, all within a learning through the Internet in an effort to framework of international curriculum empower professional women and university standards graduates in Saudi Arabia with requisite skills, 2. Accountability: through a transparent including information technology. The assessment system that would hold all school government has also started a training leaders, teachers and parents responsible for program for academic staff on WebCT the success of students programs for e-learning. 3. Variety: in schooling alternatives, encouraging schools to engage in different types of Qatar instructional programs 4. Choice: for parents in selecting schools that Education for a New Era they think best suits their children

In an effort to transform Qatari schools into a Supreme Education Council: Structure and Functions world-class education system, the Qatar has developed a groundbreaking education reform The organization responsible for overseeing initiative known as Education for a New Era. The the goals of Qatar’s education reform initiative is only one of its kind in the Arab world, this the Supreme Education Council (SEC). This body initiative has been praised worldwide as a was developed by Emiri decree 37 in November revolutionary advance. Led by the Emir of Qatar, 2002 (six months after the inauguration of the plan) Sheikh Hamad bin Khalifa al-Thani, Education for and has been instrumental in the reform’s a New Era (ENE) began in development and implementation process. The While Qatar was May 2001 and took a members of the SEC were all chosen from Qatar’s supported critical step towards the top leaders in government, business, and success of the larger social, academia. internationally for economic, and political In addition to overseeing the progress of the giving autonomy to reform efforts currently reform effort, the SEC directs the work of three taking place in Qatar. critical sub-bodies: the Education Institute (dealing independent schools, The only short term with curriculum standards and teacher training), Saudi Arabia would objective of ENE is to the Evaluation Institute, and the Higher Education build a “modern, world- Institute. The SEC is also working with the Ministry probably be watched class public school of Education to ensure the inclusion and carefully if it chose to system” that will provide establishment of new independent schools across the Qatari children with the entire Qatari school system. do the same the “best education Qatar has also requested assistance from 11 possible.” The long term international sources of expertise such as the Rand- goal is to “prepare future generations to be Qatar Policy Institute, as well as Australian and productive members of Qatari society and the British institutions. It has also signed an agreement 12 with a New Zealand-based education service world at large.” This transformation includes provider to help mentor Qatari schools through a changing the existing rigid, centralized, and low- 13 performing education system into a modern, process of modernization and decentralization. decentralized (self-managed) and effective one. The two key elements of this reform initiative The Qatar Foundation for Education, Science and are building new government-funded Community Development ‘Independent Schools’ and establishing annual student assessment and surveys to help monitor Sheikh Hamad bin Khalifa al-Thani and his student learning and performance. Every wife, Sheikha Mozah bint Nasser al-Misnad, were Independent School must establish curriculum not satisfied with the higher education system in standards in Arabic, English, math, and science Qatar for their children. Instead of sending them while complying with periodic financial abroad, however, they dreamed of creating world- requirements. class education close to home. They envisioned a Education for a New Era reflects four critical university that would provide their children, as principals that underlie the reform effort: well as all Qataris, a full range of courses including information technology, Islamic Studies, business, medicine, and music. That vision turned into

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reality with the creation of the Qatar Foundation Despite the establishment of new for Education, Science and Community transnational partnerships, development of Development, deemed the most innovative Education City’s 10 million square meter site is not education project ever seen in the Gulf. due to be completed until 2008. While there is no The Foundation was established by Sheikh accurate cost figure for the Foundation, some Hamad bin Khalifa al-Thani in 1995 as a non-profit estimates put the project at over $300 million. private organization aiming to support the Moreover, the government has made it clear that it development of quality human resources through would allocate a centers of excellence in education, research, and significant portion of its A review was ordered technology. As noted by Sheikha Mozah, GDP to research and chairperson of the Foundation: “The sharing of development and of all Saudi textbooks knowledge, ideas and values is the noblest way to specifically to Education for evidence of transcend barriers. In this sense, globalization is City. the architect, which constructs academic bridges Other institutions at extremism; five percent 14 across cultural and geographical landscapes.” Education City include: was deemed The Foundation defines its vision, philosophy, Qatar Academy, a school 15 questionable by objectives, and mission as follows: devoted to the promotion of critical thinking; the authorities and • Visions: to develop and utilize human potential Academic Bridge discarded. For • Philosophy: People are the most valuable asset Program, which prepares of a nation secondary school example, some • Objective: To upgrade scientific and artistic graduates for enrollment textbooks replaced the in the Foundation’s capabilities and direct them towards term jihad, a term the good of society American universities; • Mission: to foster centers of excellence which the Social Development defined by many as develop people’s abilities through investment Center, which mobilizes holy war, with tadhiya, in human capital, innovative technology, state efforts in the service of of the art facilities, and partnerships with elite society; and the Science a less incendiary word organizations thus raising the competency of and Technology Park, meaning sacrifice people and the quality of life. which aims to become the hub for technology To achieve its objective of upgrading scientific research and development. One of the most and artistic capabilities for the good of society, and important institutions at Education City is the to accomplish its vision of developing “human Rand-Qatar Policy Institute, which provides potential,” the Qatar Foundation has established a research, technical development, and training for number of affiliated organs which are quasi- analysts in the region. This in turn translates into independent and linked through the Foundation policy decisions and implementation efforts related in the fields of education, health, and community to education development. development. In addition, the Foundation’s Education City is constantly developing new Education City campus, inaugurated in 2002, hosts areas of expertise, inviting excellent institutions, leading U.S. colleges, educational organizations, and creating an environment that is research and research centers. This integrated educational driven. One of its ongoing projects, for example, is environment aims to encourage interaction the Specialty Teaching Hospital, a modern medical between the existing educational and recreational center devoted to training medical students with facilities on-site, in addition to those envisaged the latest technology in medicine. Moreover, the within the new academic and medical areas of the Foundation intends to offer liberal arts courses, as University. Sheikha Mozah calls the Education well as graduate education. This futuristic 16 Education City seeks to make Qatar the education City, “an engine of change for Qatar.” center of the Middle East and one of the most Overall, Education City has formed a developed and knowledge-based societies in the partnership with leading U.S. colleges, including world. Virginia Commonwealth University for arts degrees, Texas A&M University for engineering, Cornell’s Weill Medical College, and Georgetown Saudi Arabia and Qatar and their Structural University, which joined in the fall of 2004. The Differences American universities control admission standards, employ their own faculty, and Even though both Saudi Arabia and Qatar determine the curriculum. appear to follow the human capital theory that education leads to greater economic participation,

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they chose different paths-- or perhaps were led to Even though Qatar is also a Muslim country, it different paths–in developing their education has no religious institutional attachments that reform initiatives. While Qatar followed a dictate or influence its internal affairs. Therefore, sweeping reform targeting public schools, Saudi Qatar, unlike Saudi Arabia, has more flexibility to Arabia focused on “fixing” curriculum language, introduce reform efforts such as the ambitious vocational and technical training, and internet- Education for a New Era and the Qatar Foundation. focused programs. Importing U.S. universities, for example, has Overall, both countries initiated modern created little to no internal opposition in the education systems about the same time, shared country, despite having received some criticism similar education policy objectives, and later from conservative groups in Saudi Arabia. exercised the political will to reform their education In addition to Wahhabi institutional control systems. Why, then, has over the Saudi education system, the Saudi regime Since the conservative Saudi Arabia not opted for is currently facing internal instability. In support of a more comprehensive Bin Laden’s extremism, al-Qaeda factions have religious establishment educational reform engaged in violent and deadly suicide bombings controls the whole initiative comparable to over the past two years, targeting Western that of Qatar’s Education compounds in protest of the government’s friendly Saudi educational for a New Era? The relations with the United States. This wave of system, from primary answer lies in the aggression has led the Saudi government to take structural differences— immediate measures to halt further terrorist to university level, the political, geographic, attacks. While Qatar experienced a suicide government cannot demographic, economic, bombing last year, instability in Saudi Arabia is and social—that exist much more pronounced. Following Qatar’s simply undertake between the two footsteps with comprehensive reforms would only sweeping monarchies. worsen internal tensions. modernization efforts Generally speaking, Saudi Arabia has become infamous as the Saudi Arabia and Qatar home of 15 among the 19 hijackers in the with regards to share many socio- September 11 attacks. As a result, the Saudi education reform economic and political education system was attributes. They are both subjected to worldwide absolute monarchies; both scrutiny. Reports claimed Why, then, has Saudi acquire their wealth from oil and gas revenues; that the religious Arabia not opted for a both identify themselves as Muslim and Arab; and curriculum, and in some more comprehensive both are conservative societies. In addition, both extreme cases that Islam countries historically aligned with the British itself, preached hate, educational reform against Ottoman control, and today both are intolerance, and terrorism. initiative comparable to important allies of the United States. Saudi officials such as the Structural and contextual differences, Education Minister that of Qatar’s however, also make each country very distinct: denied such allegations: Education for a New First, Saudi Arabia holds a critical position among “If that was the case, all of Arab and Muslim states as the guardian of the holy the millions of Saudis who Era? The answer lies in mosques in Mecca and Medina, two of the holiest were educated in the the structural cities of Islam. Thus, Saudi Arabia will continue to system would be 17 differences— political, preserve its religious image and uphold the committing these acts.” principles of Islam. Additionally, the Saudi regime A review was ordered of geographic, has a deep relationship with the religious Wahhabi all textbooks for evidence demographic, institution that feeds its legitimacy. Any hasty of extremism; five percent moves by the al-Sauds to disengage from the were deemed economic, and social— Wahhabi religious right would be tantamount to questionable by that exist between the political suicide. And since the conservative authorities and discarded. religious establishment controls the whole Saudi For example, some two monarchies educational system, from primary to university textbooks replaced the level, the government cannot simply undertake term jihad, a term defined by many as holy war, sweeping modernization efforts with regards to with tadhiya, a less incendiary word meaning education reform. In order to avoid internal sacrifice. instability, the monarchy can only take careful This reformed curriculum would not have moderate steps that would not threaten the taken place were it not for the external pressures conservative nature of its society. facing the Saudi-Wahhabi education system.

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However, many Saudi officials have blamed Qatar can afford to use a big part of its government outsiders for unfairly criticizing the focus on expenditure on education reform, while at the religion in the education system. In comparison, same time maintaining its other larger reform Qatar has not faced the same external scrutiny and efforts. therefore has been able to successfully craft its ENE Country size is also an important program around modern reforms and initiatives. characteristic to note when understanding either While Qatar was supported internationally for Qatar or Saudi Arabia’s capability to adopt giving autonomy to independent schools, Saudi educational reforms. Qatar', for example, is Arabia would probably approximately equal to two large cities in Saudi Even though Arab be watched carefully if it Arabia. Moreover, while Qatar’s main city and chose to do the same. capital is Doha, Saudi Arabia has 13 regions and at countries spend a Social factors also least five major cities. In devising a broad reform higher percentage of contribute to the initiative, Saudi Arabia has to take into divergence of the two consideration that it would have to spend extensive GDP on education than countries’ education amounts of capital, provide more teacher training any other developing systems. Both Saudi and textbooks, and build more schools. In addition, Arabia and Qatar are a national educational reform initiative in Saudi region, the 2002 Arab conservative societies. But Arabia would have to assume that not all its public Human Development while Saudi Arabia has schools are at the same stage of development. maintained conservative Therefore, a comprehensive plan would have to Report stated that beliefs regarding women, follow pilot programs. educational Qatar has encouraged achievements in the women to participate in Conclusion the political, economic,

Arab countries as a and educational spheres. The Saudi government has undoubtedly As mentioned above, whole were still begun to implement modern educational reforms Qatar not only opened the in the last few decades. The oil boom, for example, considered modest door for women to vote, created a welfare society and transformed the but it has also permitted when compared to nomadic nature of Saudi Arabia into an women to run for Council industrialized nation. Its education system, other developing positions and hold however, is not developing at a pace fast enough to ministerial posts. Today, a countries adapt to the rapid changes currently taking place woman serves as Qatar’s in the competitive global economy. Minister of Education. Additionally, out of the While Saudi Arabia cannot mirror Qatar’s SEC’s seven board members, three are very Education for a New Era, Saudi education reform educated and influential Qatari women. The initiatives can and should follow Qatar’s Emir’s consort, Sheikha Mozah, has also built a educational initiatives, vision, and progress. In distinguished image for herself through her efforts undertaking reform, Saudi Arabia can only follow in Education City, while becoming the face of a gradual approach that reflects the needs of its education reform efforts across the Arab World. society. At the same time, an educational system Although women in Saudi Arabia remain should keep up with the demands of globalization prohibited from holding ministerial positions, a and the examples of more developed nations in woman has been appointed as dean of Qatar’s their approach to education and knowledge-based Arab Open University. Nevertheless, there are still societies. many conservative aspects inherent in Saudi In the end, these will not be quick endeavors, Arabia’s religious society where men and women and it will be necessary for governments and are not permitted to interact in work areas, decision makers to think long-term. The rate of permitting skeptics to question whether Saudi return for investing in human capital development Arabia is ready for a legitimate modernization in is long and drawn out. However, principles such as education reform. those embodied within Education for a New Era - Another difference between the two countries autonomy, accountability, variety and choice - is population size. Saudi Arabia has approximately could prove instrumental to Saudi Arabia, with its 24 million more inhabitants than Qatar. Moreover, large geographic and socio-ethnic scope. Also, the GDP per capita in Qatar is much higher than decentralization efforts, including transferring that of Saudi Arabia. Thus, Qatar has an economic control from the national ministerial level to the advantage over Saudi Arabia, which places it in a school level, are important to give schools the better position to undertake comprehensive reform chance to manage themselves and exercise initiatives at the national level. In other words, autonomy while simultaneously introducing new

Spring 2006 – Sarah Yamani 7 levels of administrative efficiency and academic The views and opinions expressed in articles are strictly superiority. the author’s own, and do not necessarily represent those of Al Nakhlah, its Advisory and Editorial Boards, or the Program for Southwest Asia and Islamic Civilization (SWAIC) at The Fletcher School.

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1 Sen, Amartya. Development as Freedom. New York: Anchor Books (1999). 38-40. 2 Arab Human Development Report: Creating Opportunities for Future Generations. UNDP, 2002, 6 3 Arab Human Development Report: Building a Knowledge Society. UNDP, 2003, 54 4 Saudi Ministry of Education website: http://www.moe.gov.sa/openshare/moe/index.htm (accessed April 14, 2005) 5 Ministry of Education website: http://www.moe.edu.qa/Arabic/index.shtml (accessed April 8, 2005) 6 “Educational Reform not under Foreign Pressure, Says Naif.” Arab News, January 22, 2004. 7 Political and Economic Reform in the Kingdom of Saudi Arabia (2004). 8 Ibid, 6 9 The AOU has branches in Jordan, Bahrain, Lebanon and Egypt. 10 AME Info: http://www.ameinfo.com/45893.html (accessed April 14, 2005) 11 SEC website: http://www.english.education.gov.qa/ 12 Dr. Sheikha: “Education Reform Critical to Qatar’s Development,” see SEC website 13 Qatar Widens NZ to Help Modernize System. See SEC website. 14 Qatar Foundation website http://www.qf.edu.qa/rs.htm (accessed April 13, 2005) 15 Qatar Foundation website http://www.qf.edu.qa/rs.htm (accessed April 13, 2005) 16 The Pearl Newsletter at http://www.qatarembassy.net/news/QatarNews6.pdf 19 17 “Qatar Reshapes its Schools, Putting English over Islam: Conservatives See Reform as Extension of US Influence in Gulf.” Washington Post Foreign Service. February 2, 2003, p A20. Online at Supreme Education Council website.