amma* Economic Development Institute Iy;>U of The World Ban k Public Disclosure Authorized The Dynamics of Education Policymaking Public Disclosure Authorized Case Studies of Burkina Faso, Jordan, Peru, and Thailand Wadi D. Haddad with the assistance of TerriDemsky Public Disclosure Authorized Public Disclosure Authorized EDI DEVELOPMENT POLICY CASE SERIES Analytical Case Studies * Number 10 EDI DEVELOPMENT POLICY CASE SERIES ANALYTICAL CASE STUDIES - No. 10 The Dynamics of Education Policymaking Case Studies of Burkina Faso, Jordan, Peru, and Thailand Wadi D. Haddad with the assistance of Terri Demsky The World Bank Washington, D. C. (C 1994 The International Bank for Reconstruction and Development / THE WORLD BANK 1818 H Street, N.W. Washington, D.C. 20433, U.S.A. All rights reserved Manufactured in the United States of America First printing May 1994 The Economic Development Institute (EDI) was established by the World Bank in 1955 to train officials concerned with development planning, policymaking, investment analysis, and project implementation in member developing countries. At present the substance of the EDI's work emphasizes macroeconomic and sectoral economic policy analysis. Through a variety of courses, seminars, and workshops, most of which are given overseas in cooperation with local institutions, the EDI seeks to sharpen analytical skills used in policy analysis and to broaden understanding of the experience of individual countries with economic development. Although the EDI 's publications are designed to support its training activities, many are of interest to a much broader audience. EDI materials, including any findings, interpretations, and conclusions, are entirely those of the authors and should not be attributed in any manner to the World Bank, to its affiiiated organizations, or to members of its Board of Executive Directors or the countries they represent. Because of the informality of this series and to make the publication available with the least possible delay, the manuscript has not been edited as fully as would be the case with a more formal document, and the World Bank accepts no responsibility for errors. Some sources cited in this book may be informal documents that are not readily available. The material in this publication is copyrighted. Requests for permission to reproduce portions of it should be sent to the Office of the Publisher at the address shown in the copyright notice above. The World Bank encourages dissemination of its work and will normally give permission promptly and, when the reproduction is for noncommercial purposes, without asking a fee. Permission to copy portions for classroom use is granted through the Copyright Clearance Center Inc., Suite 910, Rosewood Drive, Danvers, Massachusetts 01923, U. S. A. The backlist of publications by the World Bank is shown in the annual Index of Publications, which is available from Distribution Unit, Office of the Publisher, The World Bank, 1818 H Street, N.W., Washington, D.C. 20433, U.S.A., or from Publications, Banque mondiale, 66. avenue d'1ena, 75116 Paris, France.. Wadi D. Haddad is senior adviser for human development in the World Bank's Office of the Regional Vice President for Africa. Terri Demsky is a consultant specializing in education. Library of Congress Cataloging-in-Publication Data Haddad, Wadi. The dynamics of education policymaking: case studies of Burkina Faso, Jordan, Peru, and Thailand / Wadi D. Haddad with the assistance of Terri Demsky. p. cm.-(EDI development policy series. Analytical case studies; no. 10.) Includes bibliographical references. ISBN 0-8213-2660-0 1. Education and state-Developing countries-Cross-cultural studies. 2. School management and organization-Developing countries-Decision making-Cross-cultural studies. 3. Educational change-Developing countries-Cross-cultural studies. 1. Demsky, Terri, 1952- . 11.Title. Itt. Series. LC98.H33 1994 379.1'5'091724-dc2O 93-34335 CIP Contents Foreword v Preface vii Part I: The Analytical Setting 1. Framework for Education Policy Analysis 3 Part II: Country Cases 2. Policymaking in Peru: Synoptic with Revolutionary Ideology 33 3. Policymaking in Jordan: From Incremental to Synoptic 72 4. Policymaking in Thailand: From Issue Specific to Strategic 120 5. Policymaking in Burkina Faso: Synoptic with External Influence 178 Part III: Synthesis 6. Conclusions 249 Selected References 261 iii Foreword Since 1985 the Economic Development Institute of the World Bank has given the highest priority to training for the improvement of policymaking in poor countries. Before that, EDI's training courses and most of its training materials were concerned with the analysis and management of investment projects. This change in priorities reflected a similar change of emphasis in World Bank lending operations where the success of projects was found to be dependent upon policy reforms at the sectoral level as well as economywide. Bank lending became increasingly conditional upon policy reforms. The development of new curricula meant that new training materials were also needed; and the new subject matter required new thinking about teaching methods and the form that training materials should take. It is one thing to teach the techniques of the economic analysis of projects and project management and quite another to teach policy analysis. In the latter case, formal economic analysis must also take into account the historical context in which decisions are made. Decisions depend not only on economic analysis in a narrow sense but also on the political leverage of those who are affected by the decisions, such as different socioeconomic groups and institutions, or government cadres. A country's stage of development and its culture, including its political style, usually feature prominently in the decisionmaking process. In short, development policy analysis is an attempt to apply the tools of economics and other social sciences to policymaking in a practical and effective manner. The skills required for this kind of decisionmaking are often best acquired by analyzing case studies either real or simulated. This book is the result of one of EDI's first experiments in devising training materials for development policy analysis. It has been tested several times in the classroom and has been revised to reflect the experience of teachers and participants. Amnon Golan Director Economic Development Institute ,. Preface This book examines how educational development happens. It analyzes the actions of policymakers and the decisions they make regarding educational change; but it does not stop there. Although the point of decision is an important one, equally important are the activities preceding it (analysis, generation of options, bargaining, and so forth) and following it (implementation, assessment, and possible redesign), as well as the other participants in the process (the consumers and providers of educational services). In order to capture this process of decisionmaking the book introduces an analytical framework that unravels the predecision and postdecision activities. To provide a clearer understanding of the process, the framework is applied to case studies of policymaking in four countries. Part I serves as the conceptual framework for the book. It offers a consolidated model of policymaking that places analytical rationality (the process) within the political and administrative realm of policymaking (the actors). Because this model presents only a snapshot taken at the moment a decision is made, it is supplemented by another framework that details the actual process of policymaking. In Part 11, the conceptual framework is used as a guide for the analysis of decisionmaking in Peru, Jordan, Thailand, and Burkina Faso. The case studies are not historical records of educational developments in these countries. They do, however, simulate the dynamics of policymaking by recreating real situations and describing real events, people, and issues as they pertain to the decisionmaking process. Part III analyzes the lessons to be learned from these studies and identifies the factors that contribute to successful policymaking. This book can be valuable to both the student of policy analysis as well as the development practitioner. First, it can be used to assess existing country policies within the context of environmental variables such as the country's socioeconomic situation, national perceptions about policy problems and policy "rationales." Second, it can be applied to evaluate projected policies, through a process of defining parameters of the environment, predicting outcomes of different policy options, and assessing the chances for the successful implementation of policy vii viii Preface decisions within the country's elasticity for change. Finally, the book can be used for training purposes. A series of learning modules derived from these studies have been used in seminars at the World Bank for orienting country education officers in policy analysis. Many people have contributed to the preparation of this manuscript. I would like to acknowledge the contribution of David Davies and Stephen Heyneman who originally identified the need for such a study and facilitated it. I am particularly indebted to Louis Goodman for his contribution to the conceptual framework and the case study on Peru and for his constructive critique of my ideas and interpretations. Others who assisted in the research and writing of this book include Jerald Hage (chapter 1), Kathleen Gorman (chapter 2), and