HRD OP Implementation Manual

IPA TurkeY

HRD OP Implementation manual - ANNEXES

VERSION: MANUAL : 3.0 – AUG. 10, 2010

ANNEX :3.0 – AUG. 10, 2010

Annex
F 03

INSTRUMENT FOR PRE-ACCESSION ASSISTANCE

HUMAN RESOURCES DEVELOPMENT COMPONENT

OPERATION IDENTIFICATION SHEET

1. Title of the Operation:Increasing Enrollment Rates Especially For Girls-2 (IERFG-2)

2. Operating Structure: Ministry of Labour and Social Security - EU Coordination Department

3. Organisation Responsible for the Implementation of the Operation: Ministry of National Education- Directorate General for Vocational and Technical Education;

Senior Representative of the Operation Beneficiary (SROB):

Salih ÇELİK (Deputy Undersecretary)

Address: Millî Eğitim Bakanlığı,

Atatürk Bulvarı, Bakanlıklar

Ankara, Türkiye

Tel: 0312 – 418 6979

Fax: 0312 – 425 3315

e-mail:

4. Compatibility and coherence with the Operational Programme

4.1 Title and number of the Programme:

Human Resources Development Operational Programme (HRD OP) – CCI No. 2007TR05IPO001

4.2 Title of the priority axis

To enhance investment in human capital by increasing the quality of education, improving the linkage between education and the labour market, and raising enrollment rates at all levels of education, especially for girls.

4.3 Title of the measure

To increase enrollment rates particularly for girls with a view to developing female human resources and access to labour market

5. Description of the Operation

5.1 Contribution to the achievement of the Operational Programme:This operation will contribute to the second priority axis of the Human Recourses Development Operational Programme (HRD OP) which is “To enhance investment in human capital by increasing the quality of education, improving the linkage between education and the labour market and raising enrollment rates at all levels of education, especially for girls”. Specifically, the operation will directly contribute to the implementation of the measure 2.1 of the HRD OP which aims at “To increase enrollment rates particularly for girls with a view to developing female human resources and access to labour market” with emphasis on vocational training and increasing awareness of the importance of girls education.

The primary concern of the operation will be providing contribution to the efforts aimed at closing the gap between enrollment rates of boys and girls and increasing girls’ enrollment rates in provinces with lowest enrollment figures and highest drop-out or long term absence rates. Through the operation, an improvement in the knowledge and motivation of girls in the least developed parts of the country is expected to be realized,which is supposed to lead to a more effective integration into the labour market in the long-term,as aimed by the HRD OP under the above mentioned priority axis.

As the operation considers education as a means to increase labour force participation levels of women in the long-term, its thematic focus will be the enrollment of the girls especially in secondary education, particularly to VET, which will help to ease their entry into the labour market. Such an attempt will also help to achieve the overall objective of HRD OP, i.e. to support the transition to a knowledge-based economy capable of sustainable economic growth with more and better jobs and greater social cohesion.

5.2 Overall Objective:The overall objective of this operation is to enhance investment in human capital by increasing the quality of education, improving the linkage between education and the labour market and raising enrollment rates at all levels of education, especially for girls.

5.3 Operation Purpose:The aimof this operation is to contribute to increasing enrollment rates at all levels of education but particularly for girls in secondary education (especially VET) and decrease drop out and long term absence rates.

5.4 Location(s):The location of the operation will cover 43 provinces of the 12 NUTS II regions. However a more specific approach will be employed with respect to three components.

As for the service component, the focuswill be 15 provinces; Muş (TRB2), Ağrı (TRA2), Şanlıurfa (TRC2), Bitlis (TRB2), Şırnak (TRC3), Van (TRB2), Siirt (TRC3), Mardin (TRC3), Bingöl (TRB1) Diyarbakır (TRC2), Batman (TRC3), Kars (TRA2), Hakkari (TRB2), Erzurum (TRA1), Iğdır (TRA2) ) in the 12 NUTS II regions.

(These provinces are selected according to latest available educational statistics which demonstrate that these provinces have the most significant problems in terms of enrollment, drop out and long term absence rates. The details of the selection are provided below.)

Supply will be provided for 8 provinces; Şanlıurfa (TRC2), Şırnak (TRC3), Siirt (TRC3), Mardin (TRC3), Hakkari (TRB2), Erzurum (TRA1), Batman (TRC3), Bitlis(TRB2).

(In these provinces which reflect a combination of low level of enrollment and high level of drop out or long term absence, the Provincial Employment and Vocational Education Boards have issued proposals for opening pensions to existing vocational high schools. Also, the feedbacks from the region stress that the continuity of education is not provided because of reasons such astradition, seasonal work, earlymarriage and families have a demand for their girls to go to vocational high schools with boarding facilities. Availability of buildings has also been used as selection criteria.)

Grant Scheme will be allocated to 12 NUTS II provinces.

(The statistical data show data demonstrate that 12 NUTS II provinces have a bigger problem compared to average of Turkey. Detailed data are provided below.)

5.5 Duration:23months

5.6 Target group(s):

• Students, particularly girls who has dropped out or are under the risk of dropping out of education;
• Students, particularly girls at the age of secondary education, who cannot access education due to cultural obstacles;
• Parents of girls who are not willing to send their children to school and/or cannot afford it;
• Teachers, especially those providing psychological and vocational guidanceto students;
• Educational and administrative staff of YİBOs and boarding schools;
• Members of relevant social partners.

5.7Description of the Operation and background:

Turkey has a young population with nearly 20 million students at all levels of education. With such a high rate of youngpopulation, it is highly possible to have problems in terms of schooling rates and drop outs. The aim of this operation is to contribute to the mitigation of suchproblems, with a particular reference to the education of girls.

Enrollment Rates

Regarding primary education,a significant way has been achieved in enrollment rates. Turkey-wide net schooling rateis[1] 98.41 % in 2010-2011 education year. This rate is slightly lower for girls (98.22 %) than boys (98.59 %). On the other hand, a more specific analysis demonstrate that the gap between boys and girls in accessing the education still exist to some extent.According to e-school data, approximately 128.000 children of enrollment age are not enrolled to primary education. 46% of these children live in 12 NUTS II regions, 74% percent of whom are girls.

However, at secondary education level, it is seen that Turkey has still a dramatic problem in terms of schooling. Turkey-wide net schooling rate is 69.33 % in 2010-2011 education year. This rate is far lower for girls (66.14 %) than boys (72.35 %). In addition to the low levels of net schooling, the figures imply severe problems regarding inequality between genders. It is seen that particularly at the secondary education level, the enrollment rates constitute a significant problem.

Moreover, the data states that schooling rates for girls at secondary education are lower in the 12 NUTS II regions, however, within the 12 NUTS II, some provinces have lower enrollment rates. The Table 1 shows the provinces with the lowest enrollment rates in primary education and the table 2shows the provinces with lowest enrollment rates in the secondary education.

Table 1:Lowest Net Enrollment Rates in Primary Education in 12 NUTS II regions (%)
Total / Male / Female
1 / Muş / 98.06 / 97.32 / 98.84
2 / Ağrı / 97.77 / 97.22 / 98.35
3 / Bitlis / 95.50 / 95.89 / 95.08
4 / Şanlıurfa / 97.34 / 97.99 / 96.66
5 / Van / 95.29 / 96.29 / 94.25
6 / Şırnak / 97.02 / 97.47 / 96.54
7 / Siirt / 97.09 / 97.35 / 96.80
8 / Mardin / 96.78 / 96.84 / 96.72
9 / Bingöl / 95.35 / 95.87 / 94.80
10 / Diyarbakır / 98.53 / 98.66 / 98.39
11 / Kars / 96.45 / 96.79 / 96.10
12 / Batman / 97.76 / 97.78 / 97.74
13 / Hakkâri / 92.38 / 92.06 / 92.72
14 / Erzurum / 96.80 / 96.77 / 96.82
15 / Iğdır / 97.78 / 98.44 / 97.08
Source: MoNE statistics, 2010-2011 [2]
Table 2:Lowest Net Enrollment Rates in Secondary Education in 12 NUTS II regions (%)
Total / Male / Female
1 / Muş / 31.91 / 39.33 / 23.85
2 / Ağrı / 30.76 / 37.07 / 23.77
3 / Bitlis / 38.43 / 48.20 / 27.77
4 / Şanlıurfa / 36.59 / 44.15 / 28.64
5 / Van / 36.68 / 43.48 / 29.40
6 / Şırnak / 38.10 / 46.00 / 29.62
7 / Siirt / 40.85 / 50.57 / 30.57
8 / Mardin / 45.24 / 53.97 / 36.23
9 / Bingöl / 48.67 / 56.55 / 40.63
10 / Diyarbakır / 48.52 / 55.30 / 41.38
11 / Kars / 45.80 / 48.26 / 43.15
12 / Batman / 50.82 / 58.18 / 43.10
13 / Hakkâri / 51.71 / 59.50 / 43.48
14 / Erzurum / 52.59 / 60.23 / 44.54
15 / Iğdır / 54.92 / 55.67 / 54.13
Source: MoNE statistics, 2010-2011

It is seen that the 15 pilot provinces selected for service component have significantly low rates of enrollment in secondary education. Table 3 shows the individual data regarding enrollment rates in provinces and position of these provinces within the 12 NUTS II regions in terms of enrollment to secondary education. The column 2 in the table demonstrates the enrollment rates in the general secondary education, the column 3 demonstrates the enrollment rates in vocational and technical secondary education and the column 4 covers a calculation of the data in the second and third columns.Analysis of these three rates shows that the selected provinces have the lowest enrollment rates, lower than 50 % in total (column 3), and there is need of urgent treatment.

Table 3: Enrollment rates of girls to secondary education in 2010/11 school year according to school types
Schooling rates in General Secondary Schools
(%) / Schooling rate in Secondary Vocational and TechnicalSchools (%) / Schooling rate of General Secondary-Vocational and TechnicalSecondary Schools in total (%)
1 / Mardin / 23.17 / 13.06 / 36.23
2 / Muş / 7.37 / 16.48 / 23.85
3 / Siirt / 18.26 / 12.31 / 30.57
4 / Bitlis / 13.22 / 14.55 / 27.77
5 / Kars / 30.99 / 12.16 / 43.15
6 / Şanlıurfa / 16.59 / 12.04 / 28.64
7 / Şırnak / 18.70 / 10.92 / 29.62
8 / Van / 18.12 / 11.28 / 29.40
9 / Erzurum / 27.03 / 17.51 / 44.54
10 / Batman / 32.90 / 10.20 / 43.10
11 / Ağrı / 14.61 / 9.17 / 23.77
12 / Diyarbakır / 31.28 / 10.10 / 41.38
13 / Bingöl / 20.21 / 20.43 / 40.63
14 / Hakkâri / 26.52 / 16.96 / 43.48
15 / Iğdır / 35.19 / 18.94 / 54.13
16 / Bayburt / 30.60 / 27.02 / 57.62
17 / Erzincan / 40.80 / 33.51 / 73.31
18 / Ardahan / 27.82 / 28.78 / 56.60
19 / Tunceli / 64.90 / 13.29 / 78.19
20 / Elazığ / 48.45 / 21.05 / 69.50
21 / Malatya / 53.14 / 22.11 / 75.25
22 / Adıyaman / 37.30 / 20.92 / 58.22
23 / Gaziantep / 36.25 / 17.70 / 53.95
24 / Kilis / 25.73 / 40.06 / 65.79
25 / Hatay / 38.78 / 24.82 / 63.61
26 / Kahramanmaras / 31.99 / 24.72 / 56.70
27 / Osmaniye / 43.76 / 29.74 / 73.50
28 / Cankırı, / 28.94 / 39.64 / 68.58
29 / Kastamonu / 33.45 / 34.87 / 68.32
30 / Sinop / 40.86 / 30.24 / 71.10
31 / Kayseri / 47.74 / 27.14 / 74.87
32 / Sivas / 36.87 / 30.01 / 66.88
33 / Yozgat / 23.87 / 33.05 / 56.92
34 / Amasya / 35.38 / 44.67 / 80.05
35 / Corum / 36.66 / 28.74 / 65.40
36 / Samsun / 39.19 / 28.88 / 68.07
37 / Tokat / 31.02 / 30.96 / 61.97
38 / Artvin / 37.40 / 44.06 / 81.46
39 / Giresun / 31.83 / 45.11 / 76.94
40 / Gumushane / 24.08 / 37.54 / 61.62
41 / Ordu / 33.91 / 32.73 / 66.64
42 / Rize / 42.55 / 43.84 / 86.39
43 / Trabzon / 40.79 / 37.34 / 78.13
Source: MoNE statistics, 2010-2011

Drop-outs and long term absence

According to statistical data contained in Education Monitoring Report 2010 of Education Reform Initiative, 90.000 of students between age of 6-13 who are not enrolled in a school. Another data employed by the Report also states that 233.956 student did not enroll in 2010-2011 year. Particularly in secondary education, the problem becomes even bigger. According to the “Education Monitoring Report 2009” of the same institution, 26% of boys and 50% of girls between the ages of 15-19 in Turkey, neither work nor go to school. This problem becomes bigger when the issue of long term absence (absence for more than 20 days) which is not included in these data are considered. Drop outs during the secondary education, data of which are provided below, should also be added to the picture. All data shows that the problem is more dramatic in the 12 NUTS II regions. The data below shows the figures of pilot provinces and general picture of 12 NUTS II regions.[3]

Table 4: Total Student and Female StudentDrop-out Rates in Formal Secondary Education in 12 NUTS II regions (%)
Total / Female
1 / Muş / 6 / 3
2 / Ağrı / 10 / 7
3 / Bitlis / 8 / 5
4 / Şanlıurfa / 10 / 6.5
5 / Van / 9 / 5.5
6 / Şırnak / 7.5 / 4
7 / Siirt / 9 / 6
8 / Mardin / 8.5 / 4.5
9 / Bingöl / 9 / 6
10 / Diyarbakır / 8 / 4
11 / Kars / 10 / 6
12 / Batman / 8.5 / 5.5
13 / Hakkâri / 10 / 6
14 / Erzurum / 8 / 6
15 / Iğdır / 11 / 8
16 / Bayburt / 8 / 6.5
17 / Erzincan / 7.5 / 6
18 / Ardahan / 6 / 5
19 / Tunceli / 6 / 3
20 / Elazığ / 8 / 5.5
21 / Malatya / 6 / 4
22 / Adıyaman / 9 / 5.5
23 / Gaziantep / 10 / 7
24 / Kilis / 10 / 5
25 / Hatay / 10 / 7
26 / Kahramanmaraş / 9 / 7
27 / Osmaniye / 7 / 6
28 / Çankırı / 6.5 / 5.5
29 / Kastamonu / 6 / 4
30 / Sinop / 6 / 5
31 / Kayseri / 8 / 6
32 / Sivas / 8 / 6
33 / Yozgat / 9 / 6
34 / Amasya / 6 / 6
35 / Çorum / 9 / 7
36 / Samsun / 8 / 6
37 / Tokat / 8.5 / 7
38 / Artvin / 5 / 4
39 / Giresun / 6 / 4.5
40 / Gümüşhane / 6 / 4
41 / Ordu / 6 / 4
42 / Rize / 7 / 4.5
43 / Trabzon / 6 / 4
Source: Approximate Numbers from Education Reform Initiative’s Study on Basic Education Indicators in 81 Provinces deriving from MoNE statistics and reflect figures of 2009-2010

When the figures of MoNE 2010-2011 Annual Statistics Book are analyzed, it is seen that the rate of school leavers after primary school (who does not continue formal education) is very high.

Table 5: Difference between Primary School Graduates and Secondary Education New Enrollment
Primary School Graduates / Secondary Education New Enrollment / Difference / Percentage
Male / Female / Male / Female / Male / Female / Male / Female
Türkiye / 627637 / 558300 / 535451 / 462606 / 92186 / 95694 / 14,68 / 17,14
Ağrı / 5369 / 3411 / 3520 / 2291 / 1849 / 1120 / 34,43 / 32,83
Batman / 6158 / 5155 / 4933 / 3495 / 1225 / 1660 / 19,89 / 32,20
Bingöl / 2691 / 1991 / 1980 / 1496 / 711 / 495 / 26,42 / 24,86
Bitlis / 3678 / 2345 / 2485 / 1429 / 1193 / 916 / 32,43 / 39,06
Diyarbakır / 17009 / 13094 / 12533 / 9104 / 4476 / 3990 / 26,31 / 30,47
Erzurum / 7786 / 6495 / 5621 / 4184 / 2165 / 2311 / 27,80 / 35,58
Hakkari / 2962 / 2387 / 2522 / 1795 / 440 / 592 / 14,85 / 24,80
Iğdır / 2002 / 1742 / 1488 / 1416 / 514 / 326 / 25,67 / 18,71
Kars / 3046 / 2617 / 1883 / 1629 / 1163 / 988 / 38,18 / 37,75
Mardin / 8717 / 6936 / 6144 / 4397 / 2573 / 2539 / 29,51 / 36,60
Muş / 4223 / 2838 / 2719 / 1750 / 1504 / 1088 / 35,61 / 38,33
Şanlıurfa / 17672 / 10730 / 12346 / 7991 / 5326 / 2739 / 30,13 / 25,52
Siirt / 3492 / 2682 / 2273 / 1517 / 1219 / 1165 / 34,90 / 43,43
Şırnak / 5085 / 3542 / 3422 / 2279 / 1663 / 1263 / 32,70 / 35,65
Van / 12062 / 7850 / 7793 / 5367 / 4269 / 2483 / 35,39 / 31,63
(Figures are derivedfrom MoNE Statistics 2010-2011 and formed by comparing the number of Graduates from primary school in 2009-2010 schooling year and new enrollments in the beginning of 2010-2011 schooling year.)

This problem looks even more severe when it is remembered that regulations in Turkey do not address dropping-out but only deal with non-attendance. According to the regulations, non-attendance, even if continuous, is not a cause for dismissal. Therefore, many of the children who have actually dropped out still appear to be registered intheir schools as long as they remain within the mandated age limit. This makes it impossible to determine the exact dimensions of the drop out problem in Turkey and renders solution oriented efforts intractable. For this reason, it is also right to consider the rates of absenteeism in understanding the issue of drop out in Turkey.

Table 6: Percentages of Absenteeismin Primary, General Secondary and VET for Female and Male Studentsin 15 pilot provinces
Primary Education / General Secondary / VET
Female / Male / Female / Male / Female / Male
1 / Muş / 18.2 / 21.1 / 24.0 / 33.9 / 27.2 / 45.9
2 / Ağrı / 18.2 / 20.4 / 23.5 / 36.7 / 28.6 / 42.2
3 / Bitlis / 14.7 / 12.9 / 25.3 / 36.5 / 27.8 / 41.8
4 / Şanlıurfa / 31.1 / 30.6 / 20.3 / 32.9 / 22.8 / 42.3
5 / Van / 19.0 / 20.6 / 22.1 / 32.8 / 25.5 / 46.3
6 / Şırnak / 15.1 / 18.9 / 21.2 / 33.7 / 31.3 / 47.4
7 / Siirt / 13.3 / 12.7 / 19.9 / 37.0 / 18.1 / 42.0
8 / Mardin / 15.0 / 15.5 / 20.1 / 34.8 / 21.3 / 37.3
9 / Bingöl / 10.6 / 9.7 / 22.2 / 35.3 / 24.4 / 40.1
10 / Diyarbakır / 13.5 / 14.5 / 19.0 / 33.6 / 27.4 / 45.6
11 / Kars / 13.7 / 17.0 / 18.9 / 32.8 / 13.7 / 17.0
12 / Batman / 10.9 / 14.0 / 20.1 / 33.2 / 18.2 / 35.0
13 / Hakkâri / 12.2 / 14.0 / 32.9 / 42.6 / 41.5 / 47.6
14 / Erzurum / 13.6 / 15.0 / 20.4 / 35.7 / 22.0 / 44.5
15 / Iğdır / 17.6 / 22.9 / 21.8 / 38.9 / 24.5 / 46.4
Percentagesare taken from Education Reform Initiatives Study on Education Indicators of 81 Provinces and indicate figures of 2010-2011

Long-term absence, especially of seasonal agricultural workers’ children is another problem to be dealt with. Supporting these children’s education and providing a continuity of their educational life will provide an impetus for decreasing school drop-outs. This support need tobe particularly in form of compensation or supportive courses.

Thus, ensuring that students complete the whole education program without any kind of drop-out or non-attendance should be considered as a primary issue.

Employment

The effect of inequality in enrollment rates on unemployment is clearly demonstrated by labour force statistics. According to the TURKSTAT labour force statistics 2010, the labour force participation rate for women (27.6 %) is far below the rate for men (70.8 %), and similarly, employment rate for women (24.0 %) is almost half of employment rate for men (62.7 %). When it comes to the labour force participation rates with respect to status of education, it is observed that the higher is the level of education, the higher is the rate of labor force participation, for both sexes. However, the rates for women are dramatically low compared to men as demonstrated in the table below.

Table 7: Labour Force Status by Educational Attainment-July 2010
Level / Secondary / Vocational and Technical (Secondary) / Post-Secondary / Higher Education
2010 July / LFP (%) / Unemployment (%) / LFP (%) / Unemployment (%) / LFP (%) / Unemployment (%) / LFP (%) / Unemployment (%)
Total / 51,3 / 15,3 / 67,6 / 12,4 / 48,4 / 9,7 / 77,8 / 11,5
Female / 29,6 / 24,4 / 41,2 / 21,5 / 25,4 / 9,1 / 70,0 / 16,1
Male / 68,9 / 12,2 / 82,7 / 9,8 / 70,8 / 9,9 / 83,4 / 8,8
Source: Figures derived from TURKSTATEmployment-Labour Force Statistics

It is evident from the table that labour force participation rate for women is dramatically lower than that of men for all levels except higher education. However, the unemployment rate for women is almost doubling that of man for secondary or higher school graduates. This is due to different patterns behind labour force participation and unemployment which are determined by social/cultural values and character of labour market. When the problem of non-registered employment is considered, which affects uneducated more, this table appears more dramatic.

Physical Environment

As regards the educational environment, themain problem areas are the distance between students who live in remote (usually rural) parts of the country and the schools and the lack of capacity in available schools and lack boarding facilities. These problems prevent further possible increases in the enrollment rates. Most of the families in the region who live especially in rural areas neither have sufficient income to cover transportation costs nor can they give up the additional income generated by their children who work (formally or informally) instead of going to school. The other dimension of the problem, lack of capacity and quality in available schools and boarding facilities, becomes more urgent when considering the fact that the parents do not have the motivation to send their children to school. This negative attitude of the parents should change by increasing low demands for schools and boarding facilities in the near future. For this reason, within the context of this operation, promoting the present boarding capacity seems as the best option in order to increase the attractiveness of such facilities, in parallel with the expected impact/results of the operation.

The aforementioned schooling and attendance figures in secondary education clearly demonstrate that 43 provinces in 12 NUTS II regions has a bigger problem compared to the rest of the country, certain areas/provinces within 12 NUTS II regions need further attention. The selected 15 provinces which will be in the focus of this project have even lower schooling rates for girls in secondary education than the average rate for the provinces in the 12 NUTS II regions.

A significant reason behind low schooling rates in the region, together with the cultural barriers and economic problems, is the lack of physical capacity in the boarding schools which results either in:

a) Over-loaded classes and dormitories in some parts of the region which are also in poor physical condition, which cause the non-acceptance of girls/students during the admissions or

b) Poor physical conditions in boarding schools which deter and discourage families from sending their children to these schools, which cause operating under capacity in some cases.

Making VET more attractive particularly for girls

While containing some activities for primary education, this operation will be focused on especially secondary education since the low schooling rates ofgirls in secondary education in whole Turkey turns into a more severe case in 12 NUTS II regions. On the other hand, the level of interest/demand for different types of secondary schools (general secondary and vocational-technical secondary schools) rises as another challenge. MoNE statistics show that graduates of primary education, who do not leave education, tend to enroll in general secondary schools rather than vocational and technical schools, as observed in the Table 3 above. These statistics demonstrate the need for an efficient vocational guidance in primary schools.

In addition, in 2010-2011 education years, only 43.62 % of nearly 4.750.000 students in secondary level were enrolled in vocational and technical secondary schools while the rest (56.38 %) wereenrolled in general secondary schools according to MoNE statics.