Centre for Public Policy PROVIDUS presents the third annual report on education in Latvia. This report focuses on education reforms, describing ways for effective implementation that would direct the country’s transformation into a knowledge-based economy. The report outlines the role a well-organised policy-making process can play in ensuring successful introduction of reforms. The Executive Summary presents the perspective of PROVIDUS concerning the problems in Latvian education system and possible solutions. The individual articles reflect the views of their authors and may not coincide with the views of PROVIDUS. The respective contributors bear responsibility for the content of their articles. Editors Indra Dedze, Centre for Public Policy PROVIDUS Stephen Heyneman, Vanderbilt University, Tennessee, USA Ivars Austers, University of Latvia Evita Lune, Stockholm School of Economics – Riga The manuscript has been prepared and designed at Nordik Publishing House, printed in “Preses nams.” ISBN 9984–751–59–7 Contents Introduction 7 I. Minority Education Reform Evija K¬ave, Inese Íüpule, Brigita Zepa. Dual-Stream Schools – Assessment of an Example 22 of Bilingual Eucation Ineta Kristovska, Astra Visocka. Minority Schools and the Education Reform of 2004 34 II. Pre-School and Primary School Education Efficiency Linda Krümale. Salary System and Motivation of Comprehensive School Teachers in Riga 45 Aina Vilciña, Gunårs Kurloviçs, Sarmîte Vîksna, Ingrîda Muraßkovska. Primary Education 53 Opportunities for Children outside the Educational System Ieva Strode, Zanda Ulnicåne. Introduction of Christianity and Ethics to Pupils of Grades 1–3: 66 What is the Message? Mårîte Seile, Jana Lejiña. Pre-School Institutions in Latvia 78 III. Higher Education and Life-Long Learning Andris Millers. Study Agreement 88 Rita Kaßa. Bridging the Gap to Higher Education for Low-Income Youth 95 Aija Kalniña. Financing of Adult Education in Latvia 102 Appendices 110 Introduction Executive Summary To achieve rapid progress, Latvia should: 1. Develop a system of education that creates knowl- In 2004 Latvia became a member of NATO and the edge on how to use capable, competitive human EU. These achievements have opened new opportuni- capital. ties but raise new questions about Latvia’s place in these 2. Develop an economic environment, which pro- organizations and its role in the context of new global motes the use of knowledge and the development economics, in which knowledge starts to exceed the of entrepreneurship. importance of traditional production factors. In 2003 the 3. Develop a system of innovations, which encour- growth of Latvian GDP was on the order of 7.4%. On ages universities, research centers and enterprises the other hand, the GDP per capita in Latvia remains the to develop new products and services. lowest in Europe. This report will address the question of 4. Promote an information society, which ensures ef- how, over the long term, Latvia can economically live fective dissemination and exchange of information. up to the potential offered by its acceptance as a new 5. Develop a multicultural (i.e., harmonious, mutu- European nation. ally tolerant, pluralistic) and multilingual society. The ability of society to master, create, disseminate 6. Provide basic education to all youth, developing a and effectively apply knowledge is an essential prereq- flexible security system for those who have drop- uisite for the country’s competitiveness. The Report on ped out from the school (second-chance education). Global Competitiveness indicates that currently Latvia is ranked 42nd among 75 countries.1 Will reforms taking Since regaining independence our education system place in Latvia’s education at present promote the devel- has changed – it has disentangled itself from the uniform opment of a competitive society? Is the process of Soviet heritage where all pupils had access to the same reforms far-sighted and oriented towards the increase of resources and curricula and has shifted to a system more prosperity of society? appropriate for a democratic society with diverse teach- At present Latvia is working to meet the requirements ing/learning resources and methods. However, we are in of the Bologna declaration in higher education, it has the middle of a reform of minority schools. We have created a system of academic and professional degrees, experienced a reform of the evaluation system, intro- compatible with the demands of education systems of ducing non-grade assessment in primary school2 and other European countries. The higher education quality changing from a five-point to ten-point evaluation sys- assessment system was established in the mid 1990s. tem in secondary school. Two years ago, obligatory Latvia is trying to reorient its research potential towards preparation for primary school was introduced for five- national and European priorities to facilitate a more and six-year-olds. Standardized, centralized examina- active involvement of researchers in solving economic, tions have been gradually developed and this year all cultural and social problems. secondary school graduates in most cases will be 1 WEF(2001–2002). 2 At the moment, there are discussions concerning the need to re-introduce the 10 point system and to abandon non-grade assessment in primary school. However, both systems are used currently. 7 Introduction enrolled in higher education institutions on the basis of system. The conception has set goals, has developed a the results of these examinations and they will not have strategy and has indicated the necessary funding to at- to pass additional entrance examinations. We are tain these aims. Unfortunately, instead of implementing expecting an introduction of new teaching standards. the set goals, instant changes are demanded. For exam- Reform of the universities is waiting its turn. Public dis- ple, one objective had been an increase of teachers’ cussion has turned to reforming the criteria underlying salaries. Salaries were intended to change starting from teachers’ pay scales. September 2003, to reach a level when teachers would Experience shows that some reforms are introduced receive two minimal salaries for one teaching load. more successfully than others. Some are received posi- Unfortunately, this was not implemented as schedule tively by the public, while others are met with great and in February 2004, when the opposition voted this resistance. In spite of good intentions, policy makers often principle into the Law on Education, it precipitated a make decisions in great haste and have expectations for government resignation. Only in the summer of 2004 policy implementation which can be deeply unrealistic. when the changes in the budget were discussed, the issue Sometimes decisions made in the spring are expected to of teachers’ salaries became one of the priorities of the be implemented by autumn. This was the case with the new government and the necessary finances were found. reform of bilingual education of 1999, the introduction The MOES has offered several innovations which were of compulsory pre-school education of 2002 and the not envisioned in the approved conception. The non-grade obligatory choice between Religion Studies and Ethics assessment system, which had functioned in the elemen- starting with September 2004. These reforms gave little tary school for ten years, was abolished and a ten-point time for schools, teachers and local governments to scale was introduced. The reform of education content adjust to the new requirements and often precipitated and the introduction of new standards were postponed for adverse public reaction, not to the content of the reform a year thus hindering the approval of the respective sam- per se but to the suddenness of the expected changes ple plans of the lessons and the development of syllabuses and the lack of discussion and consensus surrounding and new textbooks. The compulsory choice between Reli- the policy change, and the underlying aims. gion Studies and Ethics was introduced at the first grade While it is true that education needs constant im- level. Other rapid changes in the education system were provement, how can we ensure that education reforms planned and they all have something in common. can be effectively implemented and hence direct society They had not been included in the Conception of towards a knowledge economy? Are there common the Education Development. principles that ensure the success of the political process They had been prepared in a hurry without con- in initiating change? This report will discuss how a well- sulting either the education experts or those to organized process of policy management can lead to whom these decisions refer. successful introduction of reform. Schools were provided with little information about impending changes Sometimes strong objections emerged from the A Quality policy making process public. In some instances these stemmed from the poorly defined formulations in the Law on The directions and sustainability of the education sys- Education, from the rules pertaining to teaching tem of Latvia are defined in the Conception for Latvian language in minority secondary schools, or Education Development 2002–20053. This is already the from the improvement of teachers’ salaries accord- third document since Latvia’s regained independence, ing to certain categories. which has developed a vision on the education system. The suggested changes often lacked a long-term However, this is the first conception approved at a higher strategic vision. It was not clear what system of edu- level, by the Cabinet of Ministers and thus it should bet- cation our decision-makers wanted to see after five ter ensure a continuity in the system of the political or ten years. changes. The aim of this conception is to increase the quality of education, to ensure equal access to educa- In order to better understand the policy-making proc- tion, as well as to increase the financial efficiency of the ess, it can be divided into four stages. During the first 3 Approved by the Cabinet on 17.06.2002. 8 Introduction stage, politicians make commitments to a particular ricula of bad quality, ill-trained teachers and as a result policy.