100150 Turkey   SABER Country Report WORKFORCE DEVELOPMENT 2012        Dimensions  Status 1. Strategic Framework The Government of Turkey has demonstrated strong leadership and a  vision for workforce development (WfD) that has benefited from an effective advocacy of the business community. The country has taken some modest steps towards fostering a demand-led approach, such as institutionalizing employer engagement at the local level and conducting assessments of national economic prospects and skills implications for a few key sectors. Legislation and agreements exist to promote coordination amongst WfD stakeholders, but strategic coordination efforts face implementation challenges. 2. System Oversight The rating reflects the challenges in ensuring efficiency and equity of  funding for WfD. Turkey has established institutions for setting occupational standards, defined a qualifications framework, and specified regulations for testing and certification, but the number of occupational standards established and the testing and certification mechanisms lag behind.  3. Service Delivery Few measures are in place for quality assurance of training provision. All  training providers are required to report administrative data which are occasionally used to assess institutional performance, but there are no explicit targets, and financial or non-financial incentives for performance are limited. Though some steps were taken to strengthen the links between training institutions and industry (i.e. UMEM project), such links are mostly limited to industry internships and training for trainees. Public access to data on labor market outcomes is still limited and gathered through a few ad hoc skills-related surveys or evaluations of specific targeted programs.  TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Tableofcontents  ExecutiveSummary............................................................................................................................... ........................3 1.Introduction............................................................................................................................... ...............................4 2.CountryContext............................................................................................................................... .........................6 3.KeyFindingsandPolicyImplications...................................................................................................................... 11 4.AligningWorkforceDevelopmenttoKeyEconomicandSocialPriorities.............................................................. 14 SocioeconomicAspirations,PrioritiesandReforms........................................................................................... 14 SABERͲWfDRatingsontheStrategicFramework............................................................................................... 16 ImplicationsoftheFindings............................................................................................................................... .20 5.GoverningtheSystemforWorkforceDevelopment.............................................................................................. 21 ........................................................................................................................... 21 OverallInstitutionalLandscape SABERͲWfDRatingsonSystemOversight........................................................................................................... 23 ImplicationsoftheFindings............................................................................................................................... .27 6.ManagingServiceDelivery............................................................................................................................... .......28 OverviewoftheDeliveryofTrainingServices.................................................................................................... 28 SABERͲWfDRatingsonServiceDelivery............................................................................................................. 29 ImplicationsoftheFindings............................................................................................................................... .33 Annex1:Acronyms............................................................................................................................... ......................34 ........................................................................................................ 35 Annex2:TheSABERͲWfDAnalyticalFramework ..................................................................................................... 36 Annex3:RubricsforScoringtheSABERͲWfDData .......................................................................................................................... 45 Annex4:ReferencesandInformants Annex5:SABERͲWfDScores............................................................................................................................... ........48 Annex6:AuthorshipandAcknowledgements............................................................................................................ 49    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 2 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  ExecutiveSummary Startingfromearly2000s,theTurkisheconomyhasbeengrowingsteadilyexceptduringtheglobalfinancialcrisisof2007Ͳ 09,accompaniedbyanincreaseinproductivity.Turkey’soverallpopulationisyoung,anditsworkingͲagepopulationhas increased by over 10 percent during the last decade. This demographic transition in the labor force offers both opportunitiesandchallenges.ThefindingsoftheSABERWfDexerciseandthisreportsuggestthatimprovingrelevantskills andemployabilityisbecomingoneofthemostimportantstrategicobjectivesofthegovernmentandtheprivatesector, whichconsideraskilledandactiveworkforcetobeavitaltoolforgrowth.Anumberofstepsarenowbeingtakenbyall actors, and, when fully implemented, they have the potential to significantly improve workforce development (WfD) in Turkey. The study benchmarked levels of support for WfD in Turkey and identified measures that have helped to progress WfD withintheframeworkofhumancapitaldevelopment.Thestudytakesadvantageofanewdiagnostictool(SABERͲWfD)to assessTurkey’sWfDfor2012.ThetoolisapartoftheWorldBank’sinitiativeonSystemsAssessmentforBetterEducation Results (SABER), focusing on several policy domains including WfD. Three broad functional dimensions of WfD policies were assessed based on a wide range of primary and secondary evidence: strategic framework; system oversight; and servicedelivery. Key WfD reforms have been championed by the Turkish government as the driving force of economic development, humandevelopment,andsocialinclusion.Between2010and2012,thegovernmenthasincreaseditseffortstostrengthen thelinkbetweenemploymentandvocationaleducationandtraining(VET)withthehelpofanactionplan.Severaltargeted trainingprogramsfortheunemployedfromdifferentgroupsofsocietyhavebeenintroducedaftertheeconomiccrisesin 2008Ͳ2009,andawiderangeofambitiousprojectshavebeeninitiatedtoimprovetheskillsofthecurrentandpotential laborforce(workers/unemployed,andstudents). Thegovernmenthasincreasedtheallocationsforrelatedministriesandagenciesto enable them toachievethedesired objectives.Inordertoencouragefinancialcontributionsfromemployersandtheprivatesector,thegovernmenthasalso beenworkingonlegislativearrangementstofacilitatepartnershipsbetweentrainingprovidersandemployers. Regarding diversifying pathways, the government has developed a wide range of training programs using a modular systemforvocationalandtechnicaleducation(mostlyatthesecondarylevel)sothatstudentscanfollowflexiblepathways for skills acquisition. Moreover, the government started working on improving the quality and relevance of training programs,andtakingstepstoimprovethepublicperceptionofVETthroughjointpublicawarenessinitiatives/campaigns withtheprivatesectorandNGOs.DespiteinitiativestoenhancethepublicimageofVET,asof2012itwasunclearwhether thecertificatesobtainedfromthevocationalandtechnicalhighschoolsandvocationalcollegeswillbedirectlyrecognized bytheNationalQualificationsFramework. Althoughawiderangeofpublicandprivateactorsareactiveintrainingprovision,atthetimeoftheanalysis,fewmeasures are in place for quality assurance. Furthermore, the existence of explicit performance targets for public institutions and availabilityofincentivesinplaceforperformancearedebatable. The government makes efforts to improve the country’s WfD system. However, it is not easy for WfD stakeholders to evaluatetheeffectsofdifferentprogramsanddevelopnewinitiatives.Thegovernmenthasbeenabletodefinemostof theproblemscorrectlyandinatimelyfashion(i.e.thelackofefficientcoordinationbetweenWfDstakeholders,andthe importanceofnonͲstateWfDstakeholders’participationindecisionmaking).Thesedeficiencieshavebeenaddressedin policydocuments,butsolidstepsstillneedtobetakentoensurethattheyarefullyimplemented. Turkeyhasadequatecapacityfordatacollection,andhasbeenabletodevelopstrongMIS/ITsystems.However,thepoor collaboration among WfD stakeholders may result in duplication of effort in data collection and evaluation, insufficient monitoringandevaluation,andincompletedecisionͲmaking. As a result of the latest reform initiatives, the quality, coverage, and efficiency of the Turkish WfD system may improve significantly.Buttheseeffortsmustbecarefullyimplemented(withimmediatefineͲtuninginterventionswhennecessary) anddocumentedindetail.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 3 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  1.Introduction1 other achievements, the SVET program resulted in the establishmentoftheVocationalQualificationsAuthority AlthoughTurkeyexperiencedprosperousgrowthduring and the development of modular education programs the early and midͲ2000s, similar success could not be withanemphasisonproficiencyandspecialization.Also, achievedinincreasingtheemploymentrate.TheTurkish in 2010 the government initiated a combined approach economy, which had already started to slow down in to enable such alignment through the Action Plan for 2007,wasseverelyaffectedbytheglobaleconomiccrisis Strengthening the Linkages between Employment and in 2008, and the global financial turmoil led to a sharp TechnicalVocationalEducationandTraining(TVET). contraction starting in the last quarter of 2008. The recoverybeganinthelastquarterof2009andwasrapid, AnalyticalFramework withgrowth reaching9percentin2010and8.5percent in2011. Toinformpolicydialogueontheseimportantissues,this report presents a comprehensive diagnostic of the Despitearemarkableupturnafterthecrisis,theTurkish country’s WfD policies and institutions. The results are labor market continued to be characterized by based on a new World Bank tool designed for this persistently low employment rates—particularly among purpose. Known as SABERͲWfD, the tool is part of the womenandtheyouth—andlowlaborproductivity.Since World Bank’s initiative on Systems Approach for Better 2009,employmentgrowthhasaveraged5.5percentper Education Results (SABER)2 whose aim is to provide annum, a very high rate by any standard. Nonetheless, systematicdocumentationandassessmentofthe policy lessthanhalfoftheworkingͲagepopulation(15Ͳ64year and institutional factors that influence the performance olds)wasemployedasofmidͲ2012(WorldBank2013b), of education and training systems. The SABERͲWfD tool and 35% of the young population is neither employed encompasses initial, continuing and targeted vocational norineducation(OECD,2013). educationandtrainingthatareofferedthroughmultiple The reaction of the Government of Turkey to the channels, and focuses largely on programs at the undesirable labor market figures was to rely on Active secondaryandpostͲsecondarylevels. Labor Market Programs (ALMPs) to (i) equip the labor The tool is based on an analytical framework3 that forcewiththequalitiesrequiredbythelabormarketina identifies three functional dimensions of WfD policies short period of time; (ii) give the unemployed andinstitutions: professionalexperienceandworkdiscipline;(iii)support thosewhowishtoestablishtheirown business;and (iv) (1) Strategic framework, which refers to the praxis of fill the existing and potential vacancies in the labor highͲlevel advocacy, partnership, and coordination, market as quickly as possible. A structural typically across traditional sectoral boundaries, in transformation was initiated in 2008 with the provision relation to the objective of aligning WfD in critical of required resources from the Unemployment areastoprioritiesfornationaldevelopment; Insurance Fund to the Turkish Employment Agency  (ISKUR) as part of a series of arrangements known as (2) SystemOversight,whichreferstothearrangements EmploymentPackages. governing funding, quality assurance4 and learning pathwaysthatshapetheincentivesandinformation Successful development of the workforce requires a signals affecting the choices of individuals, technical and vocational education and training (TVET) employers, training providers and other systemthatisalignedwiththeneedsofthelabormarket. stakeholders;and The “Strengthening Vocational and Technical Education  andTrainingProject”(SVET),launchedin2005,aimedto (3) Service Delivery, which refers to the diversity, address the mismatch between education and training organization and management of training provision, programs and the needs of the labor market. Among bothstateandnonͲstate, that deliverresultsonthe  1 3  The analysis was conducted in 2011Ͳ2012 period, and the findings of this ForanexplanationoftheSABERͲWfDframeworkseeTanetal2013. 4 reportreflectstheWfDsituationinTurkeyasof2012. Inthereport,externalqualityassuranceisdiscussedasapartofthesystem 2 FordetailsonSABERseehttp://www.worldbank.org/education/saber;for oversight. The internal quality assurance, which is exercised by providers, is acronymsusedinthisreport,seeAnnex1. explainedundertheservicedeliverydimension. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 4 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  ground by enabling individuals to acquire marketͲ ImplementingtheAnalysis andjobͲrelevantskills. Information for the analysis is gathered using a Taken together, these three dimensions allow for structuredSABERͲWfDDataCollectionInstrument(DCI). systematicanalysisofthefunctioningofaWfDsystemas The instrument is designed to collect, to the extent a whole. The focus in the SABERͲWfD framework is on possible, facts rather than opinions about WfD policies the institutional structures and practices of public and institutions. For each Topic, the DCI poses a set of policymakingandwhattheyrevealaboutcapacityinthe multiple choicequestions whichareansweredbasedon system to conceptualize, design, coordinate and documentary evidence and interviews with implement policies in order to achieve results on the knowledgeable informants. The answers allow each ground. Topic to be scored on a fourͲpoint scale against Each dimension is composed of three Policy Goals that standardized rubrics based on available knowledge on correspond to important functional aspects of WfD global good practice (See Figure 2).6 Topic scores are systems (see Figure 1). Policy Goals are further broken averaged to produce Policy Goal scores, which are then down into discrete Policy Actions and Topics that reveal aggregated into Dimension scores.7 The results are moredetailsaboutthesystem.5 finalized following validation by the relevant national counterparts,includingtheinformantsthemselves. Figure1:FunctionalDimensionsandPolicyGoalsinthe SABERͲWfDFramework Figure2:SABERͲWfDScoringRubrics  Source:Tanetal.2013. Therestofthisreportsummarizesthekeyfindingsofthe SABERͲWfD assessment and also presents the detailed results for each of the three functional dimensions. To puttheresultsintocontext,thereportbeginsbelowwith abriefprofileofthecountry’ssocioeconomicmakeup. Source:Tanetal.2013    5 7 SeeAnnex2foranoverviewofthestructureoftheframework. Since the composite scores are averages of the underlying scores, they are 6 SeeAnnex3fortherubricsusedtoscorethedata.Asinothercountries,the rarely whole numbers. For a given composite score, X, the conversion to the data are gathered by a national principal investigator and his or her team, categoricalratingshownonthecoverisbasedonthefollowingrule:1.00чX basedonthesourcesindicatedinAnnex4;andtheyarescoredbythe World ч1.75convertsto“Latent”;1.75<Xч2.50,to“Emerging;”2.50<Xч3.25, Bank’sSABERͲWfDteam.SeeAnnex5forthedetailedscoresandAnnex6for to“Established;”and3.25<Xч4.00,to“Advanced.” alistofthoseinvolvedindatagathering,scoringandvalidationandinreport writing. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 5 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  2.CountryContext 2007,growthbeganweakeningandtheTurkisheconomy was badly affected by the global financial crisis in 2008, Turkey is an upperͲmiddle income Muslim country with withanegativeimpacton exportsandamassive capital apluralistseculardemocracy.Ithaslongbeenamember outflow. Turkey was among the 10 percent hardestͲhit ofinternationalorganizations(i.e.OECD,andNATO),aGͲ countries in 2009, but it was also one of the quickest to 20 member country from its establishment, and a bounce back. The recovery was rapid, with growth candidatestateforEUmembershipfrom1999. reaching9percentin2010and8.5percentin2011 (see Turkey hasa populationof73.6million people (in2012) Figure4). and a perͲcapita GDP of $10,524 (in 2011), which is  Figure4:TurkeyandOECDAnnualGrowthRates significantly lower than the OECD average of $36,994, butismuchhigherthanits2002level. 12 %Change Turkisheconomy 10 8 Turkey experienced erratic and fragile growth in the 6 1990s, with high inflation rates and public deficits, but 4 2 following the crisis in 2001, a successful period of 0 macroeconomic stability and high growth commenced. Ͳ2 During this period, inflation fell significantly along with Ͳ4 Ͳ6 realinterestrates,asaresultofimprovementsinpublic 2003 2004 2005 2006 2007 2008 2009 2010 2011 finance and important structural reforms, namely the OECDAverage Turkey enactment of the Public Financial Management and Source:WorldBank,2013a  Control Law, Public Procurement Law and Banking Law; establishment of regulatory and supervisory boards in The EU is Turkey’s main trade partner. Turkey’s total theenergy,telecommunication,andagriculturesectors; foreign trade volume was 48.5% of GDP in 2011 and hit introduction of strategic planning in public institutions; an allͲtime high for exports at $135 billion. However, and initiation of social security and universal health Turkeystillimportsfarmorethanitexports,withenergy insurancereforms. (oilandnaturalgas)continuingtobethechiefimportfor Turkey,comprisingaquarterofallimports.Machineryis Figure3:SectoralGrowthRates both a large import and export item. Manufactured goods like iron, steel and plastic, as well as woven or 15.0% knitted articles, make up over a quarter of all exports 10.0% (seeFigure5). 5.0%  Figure5:ForeignTradein2012byEconomicClassification 0.0% Ͳ5.0% Ͳ10.0% ͵ͲΨ 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 ʹͷΨ GDPatpurchasersprices Agriculture š’‘”–• ʹͲΨ Industry Services,etc ’‘”–• Source: OwnCalcullations ͳͷΨ  ͳͲΨ  ͷΨ From 2002 to 2007, the Turkish economy grew at an ͲΨ ƒ—ˆǤ ƒ…Š‹‡”› ‹•…Ǥ —‡Ž•ƒ† Š‡‹…ƒŽ• ‘‘†ƒ† ”—†‡ –Š‡” average rate of 6.8% per annum. Industry and services ‘‘†• ƒ—ˆǤ —„”‹…ƒ–• ‹ƒŽ• ƒ–‡”‹ƒŽ• ”–‹…Ž‡• sectors defined the overall growth trend, while the agriculturalsectordisplayedadifferentgrowthpath(due Source:Turkstat,2013a to agricultural shedding, negative climatic conditions,   productionvariations,etc.)(seeFigure3).Startingin SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 6 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  DemographyandLaborForce  Turkey’s population has been growing at an annual rate OECD average of 0.63% (OECD Factbook). The country of1.1%(asof2011),whichismuchhigherthanthe nowhasthethirdlargestpopulationinEurope.  Table 1:Population(MainIndicators)  Indicator(1000people) 2004 2005 2006  2007 2008 2009 2010 2011 2012  Population 66,379 67,227 68,066 68,901 69,724 70,542 71,343 72,376 73,604  15+Population 47,544 48,359  49,174 49,994 50,772 51,686 52,541 53,593 54,724 YouthPopulation(ages15Ͳ24) 11,840 11,757 11,670  11,583 11,490 11,513 11,548 11,534 11,574  Laborforce 22,016 22,455 22,751 23,114 23,805 24,748 25,641 26,725 27,339   ͲMen 16,348 16,704 16,836 17,098 17,476 17,898 18,257 18,867 19,147 ͲWomen 5,669 5,750 5,916  6,016 6,329 6,851 7,383 7,859 8,192  ͲYouth 4,474 4,436 4,365 4,364 4,381 4,454 4,426 4,529 4,422   LaborForceParticipationRate(%) 46.3 46.4 46.3 46.2 46.9 47.9 48.8 49.9 50.0 ͲMen 70.3 70.6  69.9 69.8 70.1 70.5 70.8 71.7 71.0  ͲWomen 23.3 23.3 23.6 23.6 24.5 26.0 27.6 28.8 29.5  ͲYouth 37.8 37.7 37.4 37.7 38.1 38.7 38 39.3 38.2   Source:Turkstat,2013    Turkeyhasthehighestratioofyoungtototalpopulation Despite its young population, overall labor force in Europe, with 51% being below 30 years old, and 34% participation in Turkey is low, and has always been below20.The15–24yearͲoldgroupconstitutes11.5%of behind the level of developed countries. In 2010, the thepopulationand17%ofthetotallaborforcesupplyin laborforceparticipationofthe15–64yearͲoldgroupwas Turkey. In 2011, the share of the population aged 65+ 51.9%inTurkeyand71.0%intheEU(Eurostat,2010). was4%inTurkey,whereastheOECDaveragewas14.8% (Turkstat,2012). Table2:Population(InternationalComparison,2010) MiddleͲIncome HighͲIncome Indicator Turkey Countries Countries Populationgrowthrate(annual%) 0.69 0.58 1.25 YouthDependencyRatio(%ofworkingagepopulation) 30.82 25.80 38.96 0Ͳ14agepopulation(%share) 21.67 17.31 26.36 15Ͳ64agepopulation(%share) 70.3 67.1 67.65 65+agepopulation(%share) 8.0 15.57 5.97  TurkeydoesnotperformaswellastheEUintermsofthe Turkey experienced remarkable growth between 2002 employment rate (46.3% against 64.2%). This is mainly and2007–averaging6.8%peryear–butitdidnotresult due to low female labor force participation and in increased employment, which overall grew at only employment levels. In 2010, women’s labor force 1.2%peryear.Increasing totalfactorproductivityinthe participation and employment rates were 30.2% and same period, as a result of structural reforms, also 26.2% in Turkey, while in the EU they were 64.5% and limitedtheincreaseinemployment. 58.2%,respectively.    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 7 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012    Table 3:Employment(MainIndicators) Indicator   2004 2005 2006 2007 2008 2009 2010 2011 2012 Employment(1000People) 19,632 20,067 20,423 20,738 21,194 21,277 22,594 24,110 24,821  ͲMen 14,585 14,959 15,165 15,382 15,598 15,406 16,170 17,137 17,512 ͲWomen 5,047 5,108 5,258 5,356 5,595 5,871 6,425 6,973 7,309  ͲYouth 3,554 3,554 3,533 3,493 3,484 3,328 3,465 3,697 3,647 EmploymentRate(%) 41.3 41.5 41.5 41.5 41.7 41.2 43 45 45  ͲMen 62.7 63.2 62.9 62.7 62.6 60.7 62.7 65.1 65.0 Ͳ  Women  20.8 20.7 21.0 21.0 21.6 22.3 24 25.6 26.3 ͲYouth 30.0 30.2 30.3 30.2 30.3 28.9 30 32.1 31.5 Source:  Turkstat,2013   The services sector dominates sectoral employment in Figure6:LaborForcebySector(%ofEmployedAge15+) Turkey. The employment level of this sector started 60% rising from 2000, as Turkey’s economy began to shift 50% 40% away from agricultural production, with employment in 30% agriculture declining in favor of services (see figure 6). 20% Since 2001, the increase in employment in the services 10% 0% sector has nearly matched the decrease in agricultural 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 employment, while industry and construction have Agriculture Industry remainedconstant.Theshareofemploymentinservices Construction Services increasedfrom38%in1990to56%in2011. Source:Turkstat,2013b   Unemployment has remained around 10% in the last broughtrapiderosioninemployment.Joblossesandthe decade,withtheexceptionof2009,whentheeconomic increase in labor force participation triggered a hike in crisishitemploymenthard.In2008,themostimportant theunemploymentrate,whichpeakedinFebruary2009. effects of the global crisis were observed in the Turkish Youth unemployment has been much higher than the labor market. Rapidly shrinking global demand overall unemployment rate (9.6% above overall (specifically in the EU, Turkey’s main trade partner) unemployment from 2004 to 2011). As a result of the stunted manufacturing, especially in the industrial crisis, youth unemployment reached 25.3% in 2009 sector, and the decrease in manufacturing, as well beforefallingbackto18.4%in2011. assustaineduncertaintiesabouttheglobaleconomy, Table4:Unemployment(MainIndicators)  Indicator 2004 2005 2006 2007 2008 2009 2010 2011 2012 Unemployed(1000People) 2,385 2,388 2,328 2,376 2,611 3,471 3,046 2,615 2,518 ͲMen 1,762 1,746 1,671 1,716 1,877 2,491 2,088 1,730 1,635 ͲWomen 622 642 658 660 734 979 959 885 883 ͲYouth 919 881 832 871 897 1.126 961 832 775 UnemploymentRate(%) 10.8 10.6 10.2 10.3 11.0 14.0 11.9 9.8 9.2 ͲMen 10.8 10.5 9.9 10.0 10.7 13.9 11.4 9.2 8.5 ͲWomen 11.0 11.2 11.1 11.0 11.6 14.3 13 11.3 10.8 ͲYouth 20.6 19.9 19.1 20.0 20.5 25.3 21.7 18.4 17.5 Source:Turkstat,2013  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 8 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Table5:LaborForceandEmployment(InternationalComparison) MiddleͲIncome HighͲIncome Indicator Year Turkey Countries Countries Laborforceparticipation(%) 2009 68.55 60.72 46.8 Laborforceparticipation,women(%) 2009 59.25 52.16 24 Laborforceparticipation,men(%) 2009 77.8 69.63 69.6 Unemploymentrate(%shareoftotalemployment) 2009 8.0* 8.04 14.0 Employmentrate(%15+population) 2010 64.68 55.79 43.3 Employmentratewomen(%15+femalepopulation) 2010 55.98 48.1 24 Employmentratemen(%15+malepopulation) 2010 73.39 63.8 62.7 Agriculture(%shareoftotalemployment) 2010 31.42 3.38 25 Agriculturewomen(%shareoffemaleemployment) 2010 9.3** 2.4 42.5 Industry(%shareoftotalemployment) 2010 26.3 24.01 20 Industrywomen(%shareoffemaleemployment) 2010 18.9** 12.3 15 Services(%shareoftotalemployment) 2010 42.19 72.18 55 Serviceswomen(%shareoffemaleemployment) 2010 71.7** 85.0 42.5 NonͲagriculturalfemaleemployment(%shareofnonͲagr.emp.) 2010 44.6* 46.46 21.8 Source:Turkstatannualstatistics,WorldBankWorldDevelopmentIndicators,2007,2010 *datafrom2006,**datafrom2007  being enrolled in primary schools in 2012. With the Although youth are becoming more educated and recent legal amendment in 2012, secondary education skilled, over half (52%) of the working age population alsobecamecompulsory.Thus,compulsoryeducationis (WAP) still has less than basic education (see Figure 7), now composed of three 4Ͳyear segments of primary, accounting for 64% of the jobless and 65% of the lowersecondary,anduppersecondary. informally employed. BetterͲeducated adults are more likely to participate in the labor force (80% of college Figure7:Educationleveloftheworkingagepopulation graduates, less than 50% of those without a high school 57 60 52 diploma, and only 20% of illiterate adults) (World Bank, Total Men Women 50 43 2013b). 40 Around 650,000 new people make it into the nonͲ 30 22 23 agricultural labor force in Turkey per year. For Turkish 19 17 19 17 20 firms to stay competitive in a global market, the ‘skills 10 12 9 10 bar’ofnewgraduates(aswellastheexistinglaborforce) 0 has to increase. However, recent studies suggest that Lessthanbasic Basic Secondary College there are indications of a mismatch between the skills Source:WorldBank,2013b profile of youth and the skills demanded by employers  (McKinsey,2012).Infact,56%ofemployersinTurkeysay they cannot find workers with the right skills (EBRDͲ WorldBankBEEPS,2008). Turkey has taken measures to improve the quality and accessibility of education for many years. In 1997, targeted steps were taken with the implementation of legislation that increased compulsory schooling to 8 years. This has helped Turkey reach universal schooling attheprimarylevel,with98%ofschoolͲagedchildren SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 9 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  test scores (i.e. Program for International Student Figure8:AverageOECDandTurkeystudent Assessment Ͳ PISA, and Trends in International 520 MathematicsandScienceStudyͲTIMMS),whichshowa 500 narrowing of the gap between the performance of Turkish students and the average performance of Meanscore 480 460 students from OECD countries (see Figure 8). 440 Notwithstanding this improvement, some challenges 420 remain, and the performance of Turkey’s average 15Ͳ 400 yearͲold is still one full year behind the OECD average 380 (WorldBank,2013c). Science Science Science Math Math Math Reading Reading Reading TheLifelongLearningStrategywasdevelopedin2006to provide individuals with education outside the school system. In 2008 it also started to make extensive use of 2006 2009 2012 Active Labor Market Programs (ALMPs) to (i) equip the OECD Turkey laborforcewiththeskillsrequiredbythelabormarketin Source:OECD ashortperiodoftime, (ii) providetheunemployedwith  professional experience and work discipline, (iii) give Reforminitiativesfocusedalsooneducationoutcomes— support to those who wish to establish their own including curriculum reform, phased modernization of business,and(iv)filltheexistingandpotentialvacancies teachingandlearningmaterialsandpractices,astronger inthelabormarketasquicklyaspossible. focus on measuring learning outcomes through largeͲ The next section contains a substantive summary of the scale national and international assessments, and SABERͲWfD findings and their policy implications by enhanced monitoring and evaluation systems. The taking the summary of the country context into results of these initiatives are reflected in international consideration.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 10 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  3.KeyFindingsandPolicyImplications some positive, yet modest steps by institutionalizing employer engagement at the local level. However, the This chapter highlights findings from the assessment of lackofadequatemonitorŦngofincentivesforemployers Turkey’sWfDsystemasof2012basedontheSABERͲWfD toupgradeskillsposesachallengeintermsofmeasuring analytical framework and tool. The focus is on policies, the real life implications of the assessments. Legislation institutions and practices in three important functional andagreementsamongststakeholdersexisttopromote dimensions of policymaking and implementation— coordination,andnumerouscommitteesandworkshops strategic framework, system oversight and service have been convened; however, strategic coordination delivery. Because these aspects collectively create the efforts face implementation issues and rarely lead to operational environment in which individuals, firms and meaningfulprogress. training providers, both state and nonͲstate, make decisionswithregardtotraining,theyexertanimportant Figure9:Turkey’sDimensionͲLevelScores influence on observed outcomes in skills development. Strong systems of WfD have institutionalized processes and practices for reaching agreement on priorities, for collaboration and coordination, and for generating routinefeedbackthatsustaincontinuousinnovationand improvement. By contrast, weak systems are characterizedbyfragmentation,duplicationofeffortand limitedlearningfromexperience. The SABERͲWfD assessment results summarized below provide a baseline for understanding the current status of the WfD system in the country, as well as a basis for discussing ideas on how best to strengthen it in the comingyears. Overview of the SABERǦWfD Assessment Results  Figure 9 shows the overall results for the three Functional Dimensions in the SABERͲWfD framework.8 For the Strategic Framework dimension Turkey is rated  attheEstablishedlevelofdevelopment,whilethescore for System Oversight and Service Delivery is at the Source: based on analysis of the data collected using the SABERͲ WfD questionnaire. Note: See Figure 2 for an explanation of the Emerging level. The findings suggest that Turkey’s scaleonthehorizontalaxis. policies and institutions for WfD do not differ a lot in termsofperformanceandefficiencyalongthepathfrom IntermsofSystemOversight,Turkeyreceivesanoverall policyconceptualizationtoimplementation. emergingrating.Theratingisjustbelowtheestablished Turkey’s score at the established level for Strategic level, and can be upgraded if some developments are Framework reflects strength in terms of setting the observed. The rating, mainly, reflects the challenges in strategic direction, but some gaps in regard to fostering strengthening the efficiency and equity of funding ademandͲledapproachandstrengtheningcoordination. mechanisms of the different governmental agencies The most positive finding was the awareness on the undertaking WfD activities. Turkey has established economic prospects that can be developed through institutions for setting occupational standards, and improvingskills. Government’sleadershipandvisionfor specified regulations for qualifications framework, WfD is visible and there is effective advocacy of the testingandcertification,butthenumberofoccupational business community on this matter. Turkey has taken standards established and the steps taken towards a functioning testing and certification mechanism lag  8 SeeAnnex6forthefullresults. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 11 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  behind as of 2012. Although there are established WfD policies and institutions in the country, both pathwaysforTVETatthesecondaryandpostͲsecondary government and nonͲgovernment leaders should level, the certifications gained at this level do not yet exercise sustained advocacy for WfD, and rely on directlyrelatetotheNationalQualificationsFramework. routine, institutionalized processes to collaborate on an There exists a clear policy attention is given to economyͲwideWfDpolicyagenda. recognitionofpriorlearning,however,thearticulationof ThemainbodyfortheTurkishWfDstructureistheBoard skillscertificationisatinfancylevel. of Vocational Education (BVE), composed of the WhileTurkeyisattheemerginglevelwithregardstothe representatives of related ministries, public institutions ServiceDeliverydimension,theratingforthisdimension and agencies, employers and workers. But reaching a is comparably lower than the other two dimensions. mutual agreement between all parties at the BVE has More specifically, although a wide range of public and proven to be highly unlikely. Government agencies private actors are active in training provision, public generallyprefertooperatewithintheclearscopeoftheir institutions provide the bulk of the training. organizational mandate, and nonͲstate stakeholders are Furthermore, few measures are in place for quality lessvocalandseldomheard.Itcanbe,nevertheless,said assurance,andtherearenoexplicitperformancetargets, thatindustryandNGOsparticipateinthepreparationof financial or nonͲfinancial incentives for performance. educationalprogramsthroughtheirrepresentatives.The Though some steps were taken (i.e. UMEM Project) to strong organizational boundaries make it particularly strengthen the linkages between training institutions hard for Turkey to establish a major apexͲlevel body for andindustry,suchlinkagesaremostlylimitedtoindustry WfDtoensureinstitutionalizedandsustainedleadership internships and training for trainees; industry experts and coordination, but improved communication, rarely have a role in influencing the curricula of training coordination,andcollaborationamongstakeholderscan programs and have no role in providing input for the stillbeachievedwithintheexistingstructurebydefining standardsoffacilities.Lastly,alltrainingproviders,state clear and measurable targets for each stakeholder, and and nonͲstate, are required to collect and report basic undertakingclosemonitoringofthesetargets. administrative data, which are occasionally used to As regards System Oversight, Turkey has benefited a assess institutional performance as well as to analyze greatdealfromtheEUalignmentprocess,andmanaged systemͲleveltrendsandissues.However,sourcesofdata to establish clear and attainable standards for different on labor market outcomes are still limited to a few adͲ aspects of WfD by developing a national qualifications hoc skillsͲrelated surveys or evaluations of specific framework. However, cooperation on strategic targetedprograms,andpublicaccesstodataislimited. initiatives that may exemplify the fostering of linkages PolicyImplicationsoftheFindings between employment and education & training is limited. Over the past decade Turkish governments have made concerted efforts to establish strong linkages between More information on the supply, demand (of firms) and education & training and employment, but the Turkish labor market returns of technical, cognitive and labormarketstillsuffersfromamismatchbetweenlabor behavioral skills in Turkey is needed, with a view to demandandskillssupply. helping inform future policy making. Turkey has the capacity to collect relevant data, but needs to improve Appropriate strategic WfD priorities and measures are the evaluation of such data and use the information clearly set and accompanied by wellͲformulated effectively. In this respect, Turkey needs to strengthen implementation plans, budgets and routine monitoring. theevidencebaseneededfordesigningpoliciesinthese However,actualimplementationofthosestrategiesand areas,compilingdataandinformationandsharingthem plans still has a long way to go before the intended with key actors and stakeholders. With the strong outcomesareachieved.Thesuggestedactionsdiscussed leadership of the government and the support of in this report are aimed at initiating a constructive international institutions (i.e., OECD, World Bank, EU), dialoguearoundfurtherimprovingTurkey’sWfDsystem, Turkey can establish a fully functioning system for particularly the implementation of the government’s evidenceͲbased policy making. As Turkey has been strategies and plans. SABERͲWfD findings imply that for partnering with such institutions for a long time, it may strengthening the Strategic Framework dimension of benefit from the international best practices identified SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 12 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  bytheseinstitutionsinstructuredandcontinuousglobal certified. However, as of 2012, Turkey should clarify andregionalanalyses. whether the certificates obtained from vocational and technical high schools and vocational colleges will be To ensure the sustainability of funding from both public directly recognized by the NQF, and whether VET and private sources, the efficiency and equity of the graduates will be asked by the VQA to renew their system may be improved through (1) incorporating into certifications in the coming years. Reconciliation of the the funding mechanism efficiency criteria such as the outputs of the education system with the requirements jobͲplacement rate of training providers, and (2) to be determined by the NQF is a priority. Efficiency in periodically reviewing the outcomes of the funding funding can be improved by increasing the schooling mechanism. The government is seeking contributions rates, providing adult workers with more opportunities fromtheprivatesectorforthefundingofWfDactivities. forfurthertraining,andinvestinginearlyeducation. Accompanying the decentralization of decisionͲmaking for WfD activities, partnerships at the local level should Grantingautonomytopublicinstitutionsisoneapproach beprioritizedandincentivizedmorestrongly.Duringthe taken by various countries to improve the performance last decade Turkey has successfully established new ofpublicinstitutionsintermsofServiceDelivery.Turkey institutions through which testing and certification of couldconsideranapproachtothemanagementofpublic occupational qualifications can be undertaken, but the training institutions that combines incentives and transition to the new system is ongoing as of 2012. As autonomy, as was done in the school grants program Turkey develops its own National Qualifications under the Secondary Schools project, where school Framework (NQF), building links between the NQF, the administrationswereallowedtouseallocatedresources formal education system and prior (mostly nonͲformal) forprocurementofgoodsandservices. learningwillbeamajorchallenge. Integratingindustryandexpertinputintothedesignand ForTVETstudents,Turkeyhasbeenworkingtoestablish delivery of public training programs would be an flexible pathways for skills acquisition as well as important step in the Turkish WfD system, as almost all improving public perception of TVET through efficient industry and training institutions are willing to use of information seminars, career days, collaborate with the related government agencies. entrepreneurship conferences, lifelong learning Turkeymayboostsystemperformancebystrengthening seminars,establishmentofVETInformationCenters,etc. the nature of the links between public training The Ministry of National Education’s (MoNE) National institutionsandindustrypartners,andbetweentraining Career Information System portal is a useful tool for and research institutions. Currently, examples of such generalandTVETstudentsandgraduatesastheypursue partnershipsarelimited. a career. TVET streams at the secondary level may be In TVET, MoNE has efficient systems for evaluating further enhanced to establish flexible pathways to performance. For example, Turkey has developed university (6th level) and postͲsecondary vocational competency based and modular VET curricula, and school (5th level) courses. Turkey may also benefit from improvements in the quality of the vocationalͲtechnical international experience by giving VET students secondary education curricula were identified through opportunities to choose academically or vocationally an Assessment of the Beneficiaries of the Curriculum orientedprogramsattheuniversitylevel. Reform of the Secondary Education Project. The study, In order to facilitate lifelong learning through skills undertaken in 2012 and aimed at assessing the certification and recognition of prior learning, most secondaryeducationcurriculainTurkey,wasconducted certificatesfortechnicalandvocationalprogramswould through an analysis and comparison of the existing and need to be recognized by the NQF. The Vocational previous curricula, and a field survey. The revised Qualifications Authority (VQA) has been promoting curriculaweregenerallyjudgedappropriatewithrespect recognitionofpriorlearningwithinthecontextofthelaw to the dimensions of teaching, learning process, no 5544. Starting from 2009, applicants thinking they measurement and evaluation, but a clearly defined haveadequateoccupationalproficiencyinarelatedfield philosophy and learning theory underlying the curricula and the minimum eligibility conditions can to take the reformwasfoundtobelacking. exams of accredited certification agencies to get SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 13 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  4. Aligning Workforce Development to Key FiveͲyear Development Plans constitute the main strategicvisionandobjectivesofTurkey.The8th(2001Ͳ EconomicandSocialPriorities 2005), 9th (2007Ͳ2013), and 10th Development Plans WfD is not an end in itself but an input toward broader (2014Ͳ2018) have underlined the overall scope of WfD objectives – of boosting employability and productivity; undertheEmploymentandWorkingLife,andEducation of relieving skills constraints on business growth and chapters, in line with the macroeconomic situation and development;andofadvancingoveralleconomicgrowth growth projections. Developing a skilled labor force has and social wellbeing. This chapter briefly introduces beenacommongoalofalldevelopmentplans. Turkey’s socioͲeconomic aspirations, priorities and The legal framework for general and vocational & reforms before presenting the detailed SABERͲWfD technicaleducationhasbeenchangedfromtimetotime findings on Strategic Framework and their policy to incorporate the strategic priorities and key reforms implications. (seeBox1fordetailsofthemainlegislation). SocioeconomicAspirations,Prioritiesand The main apexͲlevel body of the Government in TVET is Reforms the Board of Vocational Education (BVE), which was established by the Vocational Education Law. It Over the last three decades, Turkish governments have comprises representatives from government, been giving utmost importance to WfD reforms to employees, employers and other social partners. After achieve and sustain economic development, human the amendment of the Vocational Education Law in development, and social inclusion. The governments 2001, MoNE issued a new regulation in 2002 (no: havecontinuedtheEUalignmentprocess,andamended 2002/55) regarding implementation of the law, which mostofthelawsinlinewiththeEUacquis,andreliedon focused on establishing a suitable environment and anexportbasedgrowthmodelfocusingontheEUasthe frameworkforbettervocationalandtechnicaleducation maintradingpartner. ineveryregionofthecountry.Theregulationfocusedon theimportantroleoftheProvincialVocationalEducation Box1–MainWfDLegislation Boards in aligning education and employment activities  attheprovinciallevelwithallstakeholders. x PrimaryEducationandTrainingLaw(No.222,established in1961,amendedin1997withLawno.4306) The government’s increasing interest in initiating key  WfD reforms led to the development of several x National Education Prime Law (No. 1739, established in important strategy documents: MoNE’s VET Action Plan 1973,amendedin1997withLawno.4306)  (2008Ͳ2012), MoNE’s Lifelong Learning Strategy x HigherEducationLaw(No.2547establishedin1981) Document (2009Ͳ2013), MoNE’s Strategic Plan (2010Ͳ  x VocationalEducationLaw(No.3308,establishedin1986, 2014),theIndustryStrategyDocument(2010Ͳ2014),and amendedin2001withLawno.4702) MoNE’sVETStrategyDocument(2013Ͳ2017).9  x Vocational Qualification Authority Law (No. 5544, Theconfluxoftheselawsandstrategydocumentssetout establishedin2006) Turkey’s WfD reform agenda, which was aimed at (i) . improving the quality and accessibility of education for x PrivateEducationInstitutionsLaw(No.5580,established the whole population so as to build a competent labor in2007)  force, and (ii) strengthening the link between education  and employment to boost economic development. To strengthen completion rates and develop skills suitable  9  After 2012, a Vocational and Technical Education Strategy Document and vertical and horizontal transfers, and the promotion of cooperation in R&D Action Plan (for the 2014Ͳ2018 period) was developed with the participation activities; 2) “Building Capacity in VET”, which covers competencies in VET, ofallrelevantstakeholdersunderthecoordinationofMoNE.Aimingtodefine national occupational standards, education programs in line with relevant the necessary policies, measures and actions to create a rational and proficiencies, vocational and career guidance, and quality assurance; 3) “VET implementable VET system in Turkey, the Strategy is structured over three andEmployment”,whichfocusesonimprovingthebasicskillsofVETstudents main axes: 1) “Accessibility of VET”, which covers issues of awareness of the and graduates, facilitating workplaceͲbased training, further enhancing importanceandaccessibilitytoVETamongthepublic(includingdisadvantages creativity, innovation, occupational safety and security, and domestic and groups), the development of transparent and flexible pathways to ensure internationalmobilityoftheworkforce. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 14 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  for the labor market, the Government has focused on Vocational Education in 2010. The Action Plan was improving vocational education and training (VET) preparedunderthecoordinationoftheMinistryofLabor through various projects and programs that target key and Social Security (MoLSS), and it is still operational. It areassuchaslinkswiththelabormarket,teacherquality aims at (i) providing vocational and technical training in and curriculum design. Specific projects include accordance with the requirements of the labor market, Strengthening the Vocational Education and Training (ii) strengthening the relationship between education System (SVET) Project (2002Ͳ07), Modernization of andemployment,(iii)establishingaclearunderstanding VocationalEducationandTraining(MVET)Project(2003Ͳ of lifelong learning in the labor market, and (iv) 06), and Improving Human Resources through increasing the employability of the workforce by way of Vocational Education and Training (IKMEP) Project eliminating occupational illiteracy (see Box 2 for further (2008Ͳ10), Increasing the Schooling of Girls Project KEP details). (2011Ͳ2013), Strengthening School to Work Transition Box2 – Prioritiesof the Action Plan for Strengtheningthe Project Ͳ SOS (2010Ͳ2012), Applied Training in Hotel LinkagesbetweenEmploymentandVocationalEducation management and Tourism Project ͲWEST (2011Ͳ2012), Project for Maritime Training and Related 1. Drawingupthenationalqualificationsframework,  Recommendations(METALS)(2011Ͳ2013),Adaptationof 2. Updating andbringing the curricula into conformity with ECVET Credit Transfer System in Rail Systems Operation thenationaloccupationalstandards, Project (RAILVET) (2011Ͳ2013), Developing Vocational  3. Making periodical analyses and assessments of the SkillsProject(MESGEP)(2011Ͳ2015).10 requirementsofthelabormarket,  Inlinewiththeprioritiesdefinedbythegovernment,the 4. Improving the vocational and technical training Vocational Qualifications Authority (VQA) was environment, raising the quality of the teachers and established in 2006 with the task of determining the designinganewschooladministrationsystem, national qualifications based on the occupational  5. Accreditation of vocational education and training standards in technical and vocational fields, and institutions, implementing activities related to audit, measurement  andassessment,andcertification.ThemaindutyofVQA 6. Cooperation in the implementation of instruments is to establish and operate the “national vocational developed by the EU regarding mobility, qualifications qualificationssystem”. andvocationaleducation,  7. Strengtheningcooperationinraisingtheeffectivenessof Though developing a skilled labor force has been a vocationalskillscourses, common goal of all development plans and the main  strategy documents, the economic crisis in 2008 made 8. Developingincentivemechanismsfortheemploymentof the government prioritize its efforts towards increasing vocational and technical education graduates and labor force participation and employment, as well as Vocational Qualification Certificate holders; and improving labor productivity. The government providingincentivesforthemtostarttheirownbusiness, including by eliminating inconsistencies in the legislation responded to the crisis with a series of arrangements forthestartͲupofbusinesses, known as “employment packages”, which included  monetary incentives for firms to keep the current 9. Improving cooperation within the scope of the workers on the payroll and recruit new ones. The memorandum on cooperation and understanding in the MinistryofLaborandSocialSecuritywasgiventhemain field of vocational knowledge, guidance and counseling services. responsibility for implementing the employment packages and the Turkish Employment Agency (ISKUR) assumedthefinancingresponsibility. The recovery that started in the second quarter of 2009 (asaresultofboththerecoveryofinternationalmarkets Maybethemajorsteptakenbythegovernmentinrecent and the positive effects of the employment packages), years was the establishment of an Action Plan for broughtdowntheunemploymentratefrom14%in2009 Strengthening the Linkages between Employment and to 11.9% in 2010 and 9.8% in 2011. To maintain the  10  An additional project for “Improving the Quality of VET in Turkey” was launchedinlate2012withanimplementationscheduleoftwoyears. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 15 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  momentum, the government amended the relevant PolicyGoal1:SettingaStrategicDirectionforWfD legislationforlabormarkets—withthebundledLawsNo. Leaders play an important role in crystalizing a strategic 6111 (2011), and No. 6287 (2012)—to improve the vision for WfD appropriate to the country’s unique capacity of the relevant institutions to implement the circumstances and opportunities. Their advocacy and employmentpackages. commitment attract partnership with stakeholders for the common good, builds public support for key SABERǦWfDRatingsontheStrategic prioritiesinWfD,andensuresthatcriticalissuesreceive Framework due attention in policy dialogue. Taking these ideas into IntheSABERͲWfDframework,theroleofWfDinrealizing account,PolicyGoal1assessestheextenttowhichapexͲ Turkey’s socioͲeconomic aspirations materializes level leaders in government and in the private sector through actions to advance the following three Policy provide sustained advocacy for WfD priorities through Goals: (i) setting a strategic direction for WfD; (ii) institutionalizedprocesses. fostering a demandͲled approach in WfD; and (iii) Turkey is rated at the Established level on setting a ensuring coordination among key WfD leaders and strategic direction for WfD, with an overall score of 3.0. stakeholders. The ratings for these Policy Goals are This score implies a sustained advocacy for WfD at the presentedandexplainedbelow,followedbyareflection top leadership level, through articulating a strategic ontheirimplicationsforpolicydialogue. direction (3.0), and maintaining a strategic focus and Based on data collected by the SABERͲWfD decisions by the WfD champions (3.0). The rating is not questionnaire, Turkey receives an overall rating of 2.9 at the advanced level because, even though the (Emerging) on the Strategic Framework dimension (see government has exercised sustained advocacy for WfD, figure10).Thisscoreistheaverageoftheratingsforthe the business community’s involvement in setting a underlyingPolicyGoalsrelatingto:(i)SettingaDirection strategicdirectionhasbeenlimited.Thegovernmenthas for WfD (3.0); (ii) Fostering a DemandͲled Approach to taken specific action on various strategic WfD priorities WfD (2.8); and (iii) Strengthening Critical Coordination through a range of interventions, but these are not well for WfD (3.0). The explanation for these ratings on the integrated and their monitoring has been conducted Policy Goals and their implications follow below. The through adͲhoc, rather than routine and systematic scoresreflectthefactthatTurkeyhasbeensuccessfulin reviews. articulating a strategic direction for WfD, in fostering a Advocacy for WfD to support economic development demanddrivenapproachtoWfDandincoordinatingthe comes from the government’s strategic focus and rolesandactivitiesofWfDactors. decisionsbyWfDchampionsfromthepublicandprivate Figure10:SABERͲWfDRatingsoftheStrategicFramework sectors. The Council of Ministers is the driving force in Dimension setting the strategy, but there is no single institution responsible in Turkey for WfD issues. Over the last decade,governmentleadershaveenjoyedthebenefitof asinglepartygovernmentelectedforconsecutiveterms, thus providing ample opportunity for exercising sustained advocacy for WfD. The support from nonͲ government leaders made collaboration on the WfD policy agenda possible for selected industries or economic sectors, but the advocacy exercised by the  nonͲgovernment champions for WfD activities has been Note: see figure2 for an explanation of the scale on the horizontal adͲhocandmainlyprojectbased. axis. Source: based on analysis of the data collected using the SABERͲWfDquestionnaire. As a result of the national consensus on improving the qualityoftheworkforce,thegovernmentreactivatedthe  BVEin2001 atthecentrallevel(throughLawno.4702).   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 16 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Provincial Vocational Education Boards (PVEBs) 11 that PolicyGoal2:FosteringaDemandǦledApproachto were established in all the 81 provinces (in accordance WfD withLawno:3308,dated1986)weregivenamandateto Effective advocacy for WfD requires credible tackletheissueatthelocallevel.Representativesofthe assessments of the demand for skills, engagement of private sector and trade unions participated in the BVE employers in shaping the country’s WfD agenda and meetings at the central level, the PVEB meetings in the incentives for employers to support skills development. provinces, and the Sectoral Committee meetings of the Policy Goal 2 incorporates these ideas and benchmarks VQA (as well as the board meetings of ISKUR), and thesystemaccordingtotheextenttowhichpoliciesand contributedtothedecisionͲmakingprocess. institutional arrangements are in place to: (i) establish Project based advocacy helped in the establishment of clarity on the demand for skills and areas of critical key institutions for WfD as well. As a result of studies constraint; and (ii) engage employers in setting WfD initiated under the SVET project, the VQA was prioritiesandenhancingskillsͲupgradingforworkers. establishedin2006toleadtheprocessofestablishingan TurkeyisratedattheEmerginglevelforFosteringa NQF, occupational standards, and structures for the testingandcertificationofskills.VQAhasstartedsetting DemandͲled Approach to WfD with an average score of thestandardsforahighqualityworkforce,withfrequent 2.8. The scores for the policy topics vary as follows: (i) interaction with the private sector and employee overall assessment of economic prospects and skill associations. implications (4.0), (ii) identification of critical skills constraints in priority economic areas (3.0), (iii) Although Turkey has managed to establish a solid recognitionoftherolesofemployersandindustry(3.0), framework and key institutions for WfD, monitoring of (iv)provisionofskillsͲupgradingincentivesforemployers the implementation of the specific actions related to (2.0),and(v)monitoringofincentiveprograms(2.0). strategicWfDprioritieshasbeenmainlythroughadͲhoc reviews. One example is MoNE’s comprehensive VET The high score for “overall assessment of economic Workshop of 2012. Conducted with the participation of prospects and skill implications” reflects the fact that all stakeholders, including representatives of relevant both the government and other WfD stakeholders governmentagenciesandtheprivatesector,academics, conduct routine assessments of the country's economic and NGOs, the workshop focused on defining problems prospects and skill implications for key growth sectors, in the implementation of policies and programs, but no based on multiple data sources. A number of rigorousfollowͲupwasinitiatedthereafter. employment studies have been conducted independently on the links between employment and Private sector WfD champions have also initiated education, with the findings being reflected in the activities, such as Koç Holding’s ‘Vocational School is a preparationofthenationalemploymentstrategy. National Matter’ Project, implemented between 2006 and 2013 in 250 secondary VET schools, covering 8,000 In 2002, the Government initiated the fiveͲyear SVET students. The project provided financial support, project with support from the EU to design a new internshipsincompanies,andcoachingservices,withthe national vocational standards system developed in aim of promoting the VET system through raising cooperation with the industrial sector and other social awareness and developing a good model for more partners. SVET aimed to create (i) institutional qualified and skilled VET graduates. The scope of the development programs that provide high quality project was expanded before closing, and responsibility educationforschooladministratorsandteachers,and(ii) for project implementation was transferred to the a new certification system to ensure consistency in the PrivateSectorVolunteersAssociation. training standards (OECD 2007) (see Box 3). Under the SVET project, systematic monitoring of the demand for  skills, qualifications and competencies in the provincial labor market was initiated through a Labor Market and  SkillsNeedsSurveybetween2005and2006.  11 ProvincialVocationalEducationBoardsweremergedwithProvincial EmploymentBoardsin2008withLawno:5763. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 17 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  The SVET project was followed by the Modernization of Box3ͲSVETͲStrengtheningtheVocationalEducation Vocational EducationandTrainingProject (MVET,2003Ͳ andTrainingSystemProject 06), which included initiatives to improve VET teacher quality, such as the introduction of VET teacher The SVET Project has been implemented in a total of 145 competencies; development of modular curricula based pilot institutions in 30 provinces of Turkey, with the aim of on competencies; seminars on studentͲcentered establishing a more advanced vocational education and educationandbasicskillsinselectprovinces;andquality training (VET) system that meets EU standards. Within the assurance based on the European Network System frameworkoftheproject,whichhasabudgetof58.2million (OECD,2013). Euros, various activities are conducted, ranging from developing training standards and VET modules to training In2010,tobalancedemandandsupplyinthejobmarket, school principals, teachers, and students, and establishing the Specialized Occupational Development Centers VET Information Centers. More than 5000 modules (UMEM) Project was initiated to design and implement developedwithintheframeworkofSVETresultedinawind VET programs in line with the demands of the private ofchangeinallthevocationaleducationinstitutions.There sector. 12 A formal assessment has been conducted by were also training activities organized as part of SVET. academics and thinkͲtanks (TOBB University and the Schoolandtrainingcenterprincipalsandteachersattended trainingcoursesoncurriculumandmoduledevelopmentas Economic Policy Research Foundation of Turkey— wellasondissemination.Around15,000teachersofformal TEPAV) under the UMEM project, and labor market and nonͲformal VET institutions, as well as general high needsanalyseswereimplementedin19pilotprovinces. schools in the project's 30 pilot provinces including their Identification of critical skills constraints in priority subͲprovinces, participated in the training. More than economic sectors is at an emerging stage in Turkey. The 20,000 people participated in the training activities organizedwithintheframeworkoftheproject.Theproject governmentorWfDstakeholderstendtoidentifycritical provided the pilot institutions with the opportunity to skillsconstraintsinpriorityeconomicsectorsonthebasis cooperate and exchange knowledge with similar ofadhocassessments.In2012,MoNEevaluatedtheVET institutions established in the EU. Accordingly, around system and identified the key problems through a 1,500 people including school and training center comprehensive VET Workshop with the participation of managers, teachers, students and social partners visited all stakeholders, including representatives of relevant 100partnerinstitutions. governmentagencies,theprivatesector,academics,and  NGOs. The critical skills constraints were defined as the lack of relevant skill building activities under training employment boards. Employers are also represented in programs, insufficient onͲtheͲjob training activities, and provincial employment and VET boards, and provide limitedchancesforthestudentstomeetwithexpertsin feedback to the labor market analyses of ISKUR. An theirfield(MoNE,2012a).Unfortunately,suchinitiatives example of the role played by employers and industry havenotbeensustained,andthereisstillnounifiedand can be seen in the annual labor force training programs standardizedprocesstoidentifyskillsconstraintsamong that the provincial ISKUR Directorates prepare. These differentsectors. programsandanychangestothemmustbeapprovedby thePEVEBs.Employersandindustryrepresentativesare The roles of employers and industry are clearly representedintheseboardsandarepartofthedecision recognized, bringing Turkey to an established level. making process. However, employers’ and industry’s Employers help define WfD priorities on a routine basis contact with the government at the central level takes and are making some contributions in selected areas to place on an adͲhoc basis. While government agencies address the skills implications of major policy decisions. almostalwayscollectthecommentsandcontributionsof As for the role of employers and industry in defining nonͲgovernment WfD stakeholders on the plans and strategic WfD priorities, employer organizations share programs, and their implementation, the relevant their demands and priorities with local authorities by ministries almost always take the final decisions, participatinginregularmeetingsofprovincialVETand  12  More than 160 thousand people across the country’s 81 provinces have thousand of the participants who successfully completed the program were been trained under these programs between 2011 and 2014. About 95 employedasofJune2014 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 18 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  (usually) without taking the suggestions of other theMoLSS,developsoccupationalstandardsandlaysthe stakeholdersintoaccount. groundwork for the vocational accreditation processes, during which it works with national institutions such as WhiletheGovernmentstartedrelyingmoreonALMPsin the Turkish Accreditation Board and Turkish Standards 2008 to upgrade the skills of the unemployed, no Institute. incentiveshaveyetbeenprovidedtoformalandinformal sector employers to develop and upgrade the skills of In addition to these, the Council of Higher Education theiremployees. (CoHE) is a fully autonomous institution responsible for the planning, coordination, governance and supervision PolicyGoal3:StrengtheningCriticalCoordination of higher education (including postͲsecondary VET forImplementation programs). Ensuring that the efforts of multiple stakeholders Box 4 – Specialized Vocational Training Centers Ͳ UMEM involved in WfD are aligned with the country’s key Project socioeconomicprioritiesisanimportantgoalofstrategic coordination. Such coordination typically requires UMEM is a unique public, private, and university leadership at a sufficiently high level to overcome partnership project, aiming to provide vocational courses barrierstocrossͲsectororcrossͲministerialcooperation. and onͲtheͲjob programs for the unemployed in line with Policy Goal 3 examines the extent to which policies and theskillneedsofthelabormarket. institutionalarrangementsareinplacetoformalizeroles ThepartnersoftheUMEMprojectaretheMinistryofLabor and responsibilities for coordinated action on strategic andSocialSecurity,MinistryofNationalEducation,Turkish priorities. Employment Agency, Union of Chambers and Commodity Exchanges (TOBB), and TOBB University of Economics and Turkey is rated at the Emerging level for Strengthening Technology. CriticalCoordinationforWfDwithascoreof3.0,andthe scores for all the components of this policy goal got the Courses for the unemployedare designed accordingto the requirements of the private sector, which is positioned at same score: (i) role of government and ministries (3.0), the center of the Vocational Training system through the (ii) role of nonͲgovernment WfD stakeholders (3.0), and ChambersofIndustryandCommerce. (iii)coordinationfortheimplementationofstrategicWfD measures(3.0). UMEM Project also focuses on capacity building for conducting effective labor market analyses, as well as for Therearenumerousgovernmentministriesandagencies designingandimplementingemploymentandVETpolicies. that have legallyͲdefined roles and responsibilities for Local labor market analyses are being conducted for the WfDinTurkeybuttheirmandatesoverlapinafewareas. first time in Turkey under UMEM. Labor market needs Coordination of WfD strategies and programs occurs analyses were implemented in 19 pilot provinces. UMEM through BVE which has sometimes faced difficulties in has a very flexible structure (like the ALMP activities) that improving communication and enhancing collaboration allowsfirmsto: amongministriesandagencies. x getinvolvedinthecreationofthecoursecurriculum x choosethetraineestheywanttoemploy MoNEisthecentralauthorityforprimaryandsecondary x gettheirownforementobetrainersforthecourses, education. Vocational training policies and activities are x observetraineesduringtheentireprocess mostlycarriedoutbyMoNEwithintheframeworkofVET x provideinͲhousetraining Law(No.3308),whichcameintoforcein1986.TheLaw As of January 2012, 10,445 firms had had 50,870 interns; No. 4702 of 2001 amending the VET Law brought 1,987 courses had started, with 35,001 unemployed changestothesystem,establishingnewandstronglinks applicants;29,247traineeshadparticipatedinthecourses; forcoͲoperationwithindustryandcommerce and 17,842 of them had graduated from 1,434 of the courses.Successfulgraduateswereemployed. MoLSSandtheMinistryofDevelopmentalsocoordinate institutional strategies and prepare longͲterm While the target population of each of these agencies is development plans at the national level. The Turkish defined, their responsibilities may overlap when the EmploymentAgency(ISKUR)isanaffiliatedinstitutionto target population is moving to the territory of another the MoLSS, implementing the unemployment insurance agency or when they implement projects together (i.e. fundandALMPactivities.VQA,whichisalsoaffiliatedto SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 19 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  the UMEM project that ISKUR, MoNE’s Vocational and The EU alignment process has been very beneficial for Technical Education General Directorate and LifeͲLong Turkey to establish clear and attainable standards for Learning General Directorate implemented together – different aspects of WfD (i.e. developing a national seeBox4). qualifications framework), but still more information is needed on the supply of and demand (from firms) for In Turkey, no nonͲgovernment WfD stakeholder has a technical, cognitive and behavioral skills in Turkey so as legally defined role or responsibility. Arrangements to help inform future policy making. Turkey needs to clarifying the roles of nonͲgovernment WfD actors may strengthen its processes to compile and share data in help establish an environment for coordination among ordertogenerate astrongevidence basisforthedesign all stakeholders. Their roles, responsibilities and of WfD policies. Turkish institutions (both public and coordination mechanisms with government are defined private) have adequate capacities for collecting and tosomeextent,butthestrongcontrolofthegovernment evaluating data, and they have conducted inͲdepth agencies over the WfD system remains. SWOT analyses studies where a large amount of valuable data was of several reform initiatives and supporting documents collected (e.g. Determining Human Resource Needs of underline the lack of effective coordination between Turkey, SETA, 2012). Turkey should be able to stakeholders as a weakness of the system, but policy institutionalize these data collection mechanisms, recommendationsstilldonotincludeactivemeasuresto conduct its own evaluation of such data, and share the include nonͲgovernmental stakeholders in decision collected data with internal and external stakeholders makingandimplementation(MoNE,2013). for further analysis, thereby cultivating an environment Strategic WfD measures are accompanied by an for evidenceͲbased policy making. These efforts can be implementation plan and budget, but coordination in enhanced through integrated Labor Market and implementationandmonitoringofprogressoccursonan EducationalManagementInformationSystems. adͲhocbasis. Inconnectionwithsucheffortstoimprovedataanalysis, ImplicationsoftheFindings Turkey may consider further enhancing its cooperation with international institutions (i.e. OECD, World Bank, SABERͲWfD findings imply that strengthening of the EU) to be a part of structured and continuous global or Strategic Framework dimension of WfD policies and regional analyses that can be used in the policyͲmaking institutionsinthecountryrequiresbothgovernmentand process. The European Center for the Development of nonͲgovernmentleaderstoexercisesustainedadvocacy Vocational Training, for example, uses the detailed forWfD,and relyonroutine,institutionalizedprocesses analyses conducted by member countries for policy tocollaborateonaneconomyͲwideWfDpolicyagenda. development. As a part of the EU alignment process, The BVE continues to be the main body in the WfD Turkey can make better use of these mechanisms and structure; it takes decisions on the issues of experiences. implementation of VET programs at all formal, nonͲ   formal,andapprenticeshipeducationinstitutions.While BVE’s decisions are notified to MoNE, other institutions prefer to operate in their own territories to fulfill their own mandates rather than implementing a wider program under the direction of MoNE. Restating BVE's role as the apexͲlevel body for WfD to ensure institutionalized and sustained leadership and coordinationmaynotbeapriorityforTurkeyduetothe publicadministrativestructureandstrongorganizational boundaries; however, improved communication, coordination,andcollaborationamongstakeholderscan be achieved within the existing structure by defining clear and measurable targets for each stakeholder, and undertakingclosemonitoringofthesetargets. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 20 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  5. Governing the System for Workforce education; and the General Directorate for Apprenticeship and NonͲFormal Education was Development restructured as the LifeͲLong Learning (LLL) General An important function of WfD authorities is to foster Directorate, which is in charge of nonͲformal education efficient and equitable funding of investments in and apprenticeship training. MoNE also oversees Public workforce development, to facilitate effective skills Education Centers, which provide educational activities acquisition by individuals and to enable employers to conducted outside of formal education institutions. meet their demand for skilled workers in a timely These centers not only provide continuing vocational manner. The objective is to minimize systemic education and training (CVET) to people older than 17, impedimentstoskillsacquisitionandmismatchesinskills but also offer socioͲcultural courses and activities supply and demand.  This chapter begins with a brief including literacy courses.ISKUR, which isaffiliatedwith description of how the WfD system is organized and the MoLSS, is also responsible for ALMPs, and its governed before presenting the detailed SABERͲWfD activities are directed towards the employed and findings on System Oversight and their policy unemployed. implications. The processes for establishing occupational standards, OverallInstitutionalLandscape the NQF, structures for testing and certification of skills and the responsibility of training accreditation are Several bodies assuming different responsibilities for governed by the Vocational Qualifications Authority each segment of WfD (see Figure 11). Initial Vocational (VQA). Education and Training (IVET) is provided at the secondary education level by Vocational and Technical The European Qualification Framework (EQF), which HighSchoolsandmultiͲprogramhighschools,whichare consistsof8referencelevels13,wasmodelledasapartof directlygovernedbyMoNE. Turkey’salignmentprocesswiththeEU,andcompetency based modular VET curricula have been developed in The Vocational and Technical Education Directorate of accordance with these reference levels. The first 4 MoNE (Girls Technical, Boys Technical GDs, Trade and referencelevelsoftheEQFarehandledbyMoNEandthe Tourism Education GD and Health Affairs Department) rest are under the responsibility of CoHE. VQA, which were merged under Vocational and Technical General was assigned the role of national coordination unit for Directorate in 2011 which is in charge of formal the EQF, handles all 8 reference levels. VQA also works Figure11:TurkishWfDSystem together with MoNE and CoHE as a coordinator institutiontoimprovetheNQF. Governance at the sector level remains weak as the sectorstrategieshavebeenupdatedveryfrequently,and independently by each of the stakeholders, which has madeithardertoaddresstheneedsoftheeconomyina holistic manner. Though a strategic approach was initiated in 2011 with the Action Plan for Strengthening the Linkages between Employment and Vocational Education(displayedinBox2),theplanisnotsupported by either an agreed timeframe or adequate human and financial resources. The overall WfD system still falls under the mandate of several ministries and public agencies regulated by different laws; decisions are fragmentedacrosstheBoardofEducation(forsecondary level vocational education), the BVE (for VET training), Source: Author’s construction  13 Level6referstothebachelor’sdegreeinfouryearuniversityprograms. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 21 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  and CoHE (for community college and university level Vocational enrolment at the secondary education level training). has been growing in recent yearsbut, due to the lack of prestige and the lower quality of education associated Few actions are taken by the aboveͲmentioned withthissector,fewstudentschooseVETvoluntarilyas stakeholders to implement common strategies that are an alternative to general education (even for the approvedbyBVE,whichhasnotbeenabletoeffectively Anatolianvocationalschools).Thoughmechanismsexist coordinateimplementationofsupplysidepoliciesatthe to change programs during upper secondary education, sectorallevel.Thereisacriticalneedtoreviewrolesand oncestudentsjointhevocationalandtechnicalstreams, responsibilities to ensure a clear division of labor and it isvery hard forthem to change their fields ofstudy in complementarity among government agencies in terms higher education asthe pathways within the systemare of policymaking, funding, accreditation, quality control, limited. curriculum development and hiring/upͲskilling of trainers. FundingforMoNEcomesfromgeneraltaxation,whichis allocated to the Ministry, its high schools and training As of 2012 there are several types of upper secondary centers through annual budgeting. Institutions affiliated schools Ŧn Turkey (see Box 5). Students tend to choose with MoNE are governed through a centralized and more prestigious and rewarding programs both in hierarchical governance structure, with limited general and vocational education (i.e. science and participationfromcivilsocietyandemployers.InTurkey, Anatolian upper secondary schools), as well as publiceducation spendingiscomposedofthebudgetof prestigious private schools. Students take a MoNE, universities, other institutions, and comprehensive test at the end of 8th grade. The test municipalities; and the spending of ISKUR on ALMPs is results and students’ academic performance are taken keptseparately.Thestateplaysaleadingroleinfunding into consideration when placing them in science, the education system in Turkey, and public spending on Anatolian, and/or prestigious private upper secondary education has increased steadily over the last decade schools.Thisselectionprocessthatstreamsstudentsinto (from3.3%ofGDPto3.9%ofGDP).However,Turkeystill different types of upper secondary schools according to spendstheleastamongOECDcountries,whichspendon their abilities is likely to have an effect on their average around 5% of their GDP on education) (TEPAV, subsequentacademicachievement. 2012). Box5–DifferentSchoolstructuresinUpperSecondary14 General • GeneralHighSchools(public&private) Figure12:PublicEducationSpending(2012) • AnatolianHighSchools(public) 2% • ScienceHighSchools(public&private) • Other High Schools (military, police, fine arts & sports, open 10% education,multiͲprogram)  Vocational(public) 19% • TechnicalHighSchools • AnatolianVocationalHighSchools • IndustrialVocationalHighSchools 69% • AgriculturalVocationalHighSchools • AnatolianMeteorologicalVocationalHighSchools • AnatolianCadastralVocationalHighSchools MoNE Universities • CommercialVocationalHighSchools(+Anatolian) OtherInstitutions Municipalities • AnatolianHealthVocationalHighSchools • Anatolian Hotel Management and Tourism Vocational ͒High Source:MoFstatistics Schools  • AnatolianMassCommunicationsVocationalSchools    14  MoNE passed an internal mandate on April, 2014, to simplify the school varietyin VET,andmergedtheVETschoolsunderSpecialVETAnatolianHigh SchoolsandVocationalDistantLearningHighSchool. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 22 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Around 70% of public education spending is channeled funding;(ii)assuringrelevantandreliablestandards;and throughMoNE(aroundTL40billionin2012),while19% (iii) diversifying pathways for skills acquisition. The goes directly to the universities (around TL 10 billion) ratings for these Policy Goals are presented and (see Figure 12). MoNE’s departments in charge of TVET explained below, followed by a reflection on their receive around 17% of the total budget allocations of implicationsforpolicydialogue. MoNE (14% for VET, and 3% for LifeͲLong Learning). BasedondatacollectedbytheSABERͲWfDquestionnaire Teacher salaries account for around 75% of the public Turkey receives an overall Emerging rating (2.5) for budget, while goods and services take another 15% and SystemOversight(seeFigure13). capitalexpenditure10%. Figure 13: SABERͲWfD ratings of the “System Oversight” Public expenditure on education started to grow after dimension 2005, with annual per capita public expenditure on educationincreasinginrealtermsby7.4%till2012.Asa result,by2012,Turkeyspentalmost80percentmoreon education per capita in real terms compared to 2004. ThoughtheratioofpubliceducationexpendituretoGDP continuestofollowanupwardtrend,Turkeyhasnotyet achieved equality in education. The expenditure per student was only about half the amount in less developed regions of Turkey, principally in the southeastern and eastern regions (World Bank, 2005;  ETF, 2011). After conducting an efficiency analysis of Note: see figure 2 for an explanation of the scale on the horizontal axis. public spending in primary and secondary education in Source:basedonanalysisofthedatacollectedusingtheSABERͲWfD Turkey, OECD reported that Turkey did not obtain the questionnaire. expected results from combined public and private spending on education (OECD, 2007). While the total of Thisscoreistheaverageoftheratingsfortheunderlying policy goals, and it misses an Established rating due to publicandprivateeducationspendingasaproportionof thelowscoreofoneofpolicytargets:ensuringefficiency GDP was approximately 7% in 2005, the bulk of household expenditure on education was spent on andequityoffunding(2.3).Otherpolicygoalsunderthis privatetutoringinpreparationforuniversityandcollege dimension are rated as Established: assuring relevant entranceexaminations(WorldBank,2005). and reliable standards (2.6), and diversifying pathways for skills acquisition (2.7). The explanation for these ISKUR receives funds from the general budget and the ratingsandtheirimplicationsfollowbelow. Unemployment Insurance Fund (UIF), which consists of Policy Goal 4:  Ensuring Efficiency and Equity in contributions from employers (50%), employees (25%) Funding and the state (25%). Starting from 2009, ISKUR's budget allocations were significantly increased in order to WfDrequiresasignificantinvestmentofresourcesbythe improve the quality and quantity of ALMP programs, government,householdsandemployers.Toensurethat with around 30% of the UIF’s previous year’s premium these resources are effectively used it is important to revenues now being used for WfD activities under examine the extent to which policies and institutional ISKUR’s control each year. The total funds for ISKUR’s arrangements are in place to: (i) ensure stable funding vocational training programs were increased to TL 1.5 foreffectiveprogramsininitial,continuingandtargeted billion in 2012 (from TL 12 million in 2003). In 2012, VET; (ii) monitor and assess equity in funding; and (iii) ISKURspentaroundTL1.12milliononALMPs. fosterpartnershipswithemployersforfundingWfD. Turkey is rated at the Emerging level on Policy Goal 4. SABERǦWfDRatingsonSystemOversight The rating reflects the challenges in strengthening the The SABERͲWfD framework identifies three pertinent efficiency and equity of the funding mechanisms of the PolicyGoals correspondingtooversight mechanisms for different governmental agencies undertaking WfD influencing the choices of individuals, training providers activities.Thesechallengesarecounterbalancedthrough and employers: (i) ensuring efficiency and equity in the stability of the funding mechanisms, the frequent SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 23 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  largeͲscaleprojects designed toaddresstheinequalities quality of providers and making them accountable for within the system, and the willingness of the public resultsthroughperformanceͲbasedcontracts. sectortoincreasetheparticipationoftheprivatesector. In addition to efficiency, equity is another important The ratings for each specific topic under this policy goal requirement that should be fulfilled by government vary between 2.0 and 3.0 and they are presented in agencies when allocating public funds to various WfD detailinAnnex2andAnnex5. activities. In Turkey, for IVET and CVET activities, no The government relies on routine budgeting processes, formalreviewhasbeenconductedontheimpactofWfD based largely on the previous year’s budget, to funding on the beneficiaries of the training programs. determine funding for IVET and CVET institutions and Yet, for the IVET programs there is a concern that the programs. Funding of the governmental agencies that quality of the public institutions that provide education provide WfD activities is quite stable in Turkey. Both and training activities is not consistent across the MoNE, CoHE, and ISKUR receive allocations from the country. Measures are taken frequently by the central government for their ongoing activities. In government to address this issue, one of the most addition, ISKUR spends approximately 30% of the important being the Support to Human Development previous year’s premium revenues of the UIF for its through Vocational Education and Training Project, ALMPs. Allocations to institutions from general taxation which was implemented by CoHE in collaboration with arelargelybasedonthebudgetofthepreviousyear,the MoNE.Thegovernmenthasalsotakenconcertedaction numberofenrolledstudents/trainees,andtheprofileof to overcome inequalities through largeͲscale programs the population groups served. While this ensures the and investment projects focusing on regional stability of funding, other criteria that could improve development such as the East Anatolia Development efficiency, such as program completion rates or jobͲ Project. ISKUR has also designed special ALMPs for placementratesamonggraduates,arehardlyused. peoplethatneedspecialpolicies(disadvantaged)suchas former convicts, people with disabilities and people On the other hand, the government determines livinginlessdevelopedareas(i.e.SoutheasternAnatolia) recurrent funding for IVET and CVET through a formal topromoteequityinservicedelivery. processofapplicationandapprovalinvolvingmaŦnlythe personnel costs funding for CVET includes government In order to ensure the financial contribution of support for programs that foster onͲtheͲjob training for employers and the private sector, the government SMEs.Thegovernmentagenciesproduceannualreports facilitates partnerships between training providers and onIVETandCVET,butwithinareasonabletimelag. employers. The partnerships usually take place at the national level, in line with the current structure of the The level of monitoring and enhancing of equity in WfD activities in Turkey, which are mainly administered fundingfor trainingvaries forIVET,CVETandALMP. For by central governmental organizations in Ankara. many years, the reviews on the impact of funding on Employersareinvitedtocontributetothecontentofthe training beneficiaries have focused mostly on training training and to the development of standards and outcomes.Arigorousimpactevaluationofthevocational curricula. training courses of ISKUR was conducted between 2010 and 2011. ISKUR used the results of the evaluation, as Policy Goal 5:  Assuring Relevant and Reliable well as the lessons from international experience, to Standards further strengthen its training programs and services. The WfD system comprises a wide range of training These improvements included: (i) improving the providers offering courses at various levels in diverse relevanceofskillstraining;(ii)puttingmoreemphasison fields.Aneffectivesystemofstandardsandaccreditation behavioralskills;(iii)encouragingamorecomprehensive enables students to document what they have learned job search and expanding employment services; (iv) and employers to identify workers with the relevant shiftingthefocusofresourcesandattentiontowardthe skills.ForPolicyGoal5itisthereforeimportanttoassess hardͲtoͲemploy rather than the most educated the status of policies and institutions to: (i) set reliable jobseekers;and(v)increasingtheshareofISKURcourses competency standards; (ii) assure the credibility of skills contracted out to private service providers and testing and certification; and (iii) develop and enforce increasing competition among them, while ensuring the SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 24 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  accreditation standards for maintaining the quality of timeisneededtoincreasethenumberofoccupationsfor trainingprovision. which standards are established and connections to the NQFareformed. TurkeyscoresattheEstablishedlevel(2.6)forthisPolicy Goal.Theratingsforeachspecifictopicunderthispolicy VQA is also responsible for testing and subsequent goalvarybetween2.0and4.0andtheyarepresentedin certification of national competencies which are detail in Annex 2 and Annex 5. The highest ranking is preparedbasedonoccupationalstandards.Certification giventoskillstestingformajoroccupations(4.0).15 has been ongoing from 2009. Certification agencies authorizedbyVQA(accreditedinlinewithTSENISO/IEC The country has established the institutions for defining 17024 standards) can hold theoretical and empirical occupational standards, setting a qualifications examinations to the applicants who have adequate framework,andspecifyingandenforcingregulationsfor occupational proficiency in a given field. The applicant testing and certification. Yet, these institutional should meet the minimum eligibility conditions to take arrangements do not function at a desirable pace, and the exams. Successful applicants are provided with VQ the number of occupational standards established and certificates within the context of National Qualification steps taken towards a functioning testing and Framework. While the Regulation for Occupational certificationmechanismlagbehind. Proficiency Testing and Certification governs these After its establishment, the VQA started developing proceduresandprinciples,in2012,however,thetesting occupation standards and national competencies. The and certification was still in its infancy in Turkey, as it policy dialogue on occupation standards, national existed for only six occupations, and certificates are not competenciesandtheNQFcurrentlyengagesnumerous requiredforpractitionersoftheoccupations. stakeholders through institutionalized processes. The Accreditationoftrainingprovidersandtrainingprograms NQFcoversafewoccupationsandalimitedrangeofskill is not mandatory, as VQA is yet to introduce relevant levels. VQA has signed protocols with relevant regulations. VQA aims to accredit all institutions and stakeholders for the development of over 700 programs that provide training based on national occupationalstandards.Bytheendof2012,351ofthem competencies. In the near future independent were published in the Official Gazette for accreditation institutions authorized by the VQA will implementation.16 Numerous stakeholders are engaged undertake voluntary accreditation using national in setting competency standards for major occupations. accreditation standards. The law no: 5544 specifies the Foreachoccupation,VQAauthorizesemployer/industry establishment of a quality assurance system within the occupations, labor unions and/or professional NQF,butthesystemhasnotbeenestablishedasof2012. occupational bodies to develop competency standards, which are evaluated by sector committees and finalized In sum, Turkey does have institutions through which by the Board of the VQA. Thus, the process for testing and certification of occupational qualifications establishing occupational standards is participatory in can be undertaken. However, these institutions are Turkey. While labor unions and professional operatingatatimewhenthesystemisstillintheprocess occupational bodies participate in the development of ofbeingestablished.Bothprofessionaldocuments,such competency standards, the number of employer asoccupationalstandards,andlegaldocuments,suchas representatives has been much higher. Some training regulations,arecurrentlybeingprepared.Morepolitical providers offer programs utilizing competencyͲbased leadership and investment are required to hasten these curriculaalignedtotheagreedstandards. processes,completetheinfancyperiodandenteramore mature phase for standardͲsetting, testing and On the other hand, Ŧn 2012 there were concerns about certification. the pace of this process and the number of occupations for which standards established by the VQA can be  implemented. VQA also works on the NQF, which is  preparedinlinewiththerequirementsoftheEQF.More  15  Please see Annex 3: Rubrics for Scoring the SABERͲWfD Data for the definitionofstandards. 16 Thisnumberis572asofNovember2014. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 25 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Policy Goal 6:  Diversifying Pathways for Skills programs,buttheirsuccesslevelislow when compared Acquisition with the graduates of Anatolian and science secondary In dynamic economic environments workers need to schools. In 2011, more than 50% of the graduates of acquirenewskillsandcompetenciesaswellaskeeptheir private general high schools, science and Anatolian high skillsupͲtoͲdatethroughouttheirworkinglives.Theyare schoolsenrolledinanundergraduateprogram,whilethe best served by a system of initial and continuing overall success rate for vocational school graduates was educationandtrainingthatpromoteslifelonglearningby 6%(Seetable6). offering clear and flexible pathways for transfers across Thegovernmenthasalsoaimedatimprovingthequality courses, progression to higher levels of training and and relevance of programs, and has undertaken joint access to programs in other fields. For those already in public awareness initiatives/campaigns with the private theworkforce,schemesforrecognitionofpriorlearning sectorandNGOstoimprovethepublicperceptionofVET are essential to allow individuals to efficiently upgrade through information seminars, career days, their skills and learn new ones. Policy Goal 6 therefore entrepreneurship conferences, lifelong learning evaluates the extent to which policies and institutions seminars and establishment of VET Information Centers are in place to: (i) enable progression through multiple undertheImprovingtheQualityofVETinTurkeyProject learning pathways, including for students in TVET (METEK). The share of students in VET programs in the streams; (ii) facilitate the recognition of prior learning; total number of students in secondary education has and (iii) provide targeted support services, particularly increased from 36% in 2005Ͳ2006 to 44% in 2011Ͳ2012; amongthepeoplethatneedspecialpolicies. thissuggeststhattheseinitiativeshaveworkedwell,yet TurkeyscoresatanEstablishedlevel(2.7)forPolicyGoal the initiatives were not subject to a formal review for 6. The ratings for each specific topic under this policy theirimpactondiversifyinglearningpathways. goalvarybetween2.0and3.0andtheyarepresentedin Thegovernmenthasalsodevelopedamodularsystemin detailinAnnex2andAnnex5. vocational and technical education (mostly at the The NQF mapping is process is different than the secondary level) so that students can design flexible recognition of prior learning, as it focuses on the supply pathways for skills acquisition. MoNE has recently side, while the latter gives attention on the individual launchedtheNationalCareerInformationSystemportal learnerandhisorherpriorlearningneedstobechecked, forcareerguidanceandcounselingservices.Thissystem mappedandcertified. will be used for career planning purposes for all VET students and all individuals who are interested in Although there are established pathways for TVET at participatinginVETprograms.  secondary and postͲsecondary level, the certifications gainedatthislevelcurrentlydonotdirectlyrelatetothe NQF.ISKURhassomeprogramsforthepeoplethatneed special policies and has started to offer job consultancy services in 2012, which is an important component of careerdevelopmentsupport. In Turkey, vocational education at the secondary level starts after eight years of primary and secondary schooling and is offered in various vocational and technical high schools (see Box 5 for details). Graduates of these schools can pursue formal skills acquisition beyond the secondary level without having to pass the regularuniversityentranceexamination,butoptionsare limitedtomostly2Ͳyearvocationalorientedprogramsin the postͲsecondary level colleges or 4 year programs serving as continuation of their own domain. Graduates of secondary VET schools can also take the central universityexaminationtoenterfourͲyearundergraduate SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 26 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Table6:ApplicantstoTertiaryEducationͲ2011 job placements for participants. The experiences of PostͲ ISKURcanbetakenintoconsiderationforasystemͲwide Undergrad. Secondary evaluation. Applicant Programs(%) Programs  (%) Turkey may benefit from the experiences of other GrandTotal* 1,759,403 20 14 countries such as Singapore, which have successfully Total Applicants (HighSchool)** 1,199,956 25 9 redirected VET students to academic or vocational GeneralHigh(public) 768,400 21 10 programs,includingattheuniversitylevel.InSingapore, Gen.High(private) 30,027 56 3 sizable investments in a highͲquality TVET system over Anatolian 166,587 55 2 the years, coupled with sustained attention to the Science 8,742 61 0 employability of graduates, have lowered social Total Applicants resistance to TVET programs that the less academically (Vocational)** 533,512 6 27 Teachertraining*** 25,935 59 1 inclined students enter after 10 years of general Commerce 87,150 4 38 schooling(Law,2008). Technical 49,621 12 33 To provide support services for skills acquisition by Industry 161,664 2 33 workers,jobseekersandthedisadvantaged,Turkeymay HotelM.&Tourism 10,300 16 30 * 184,690 of the applicants were enrolled in open education (distance support a comprehensive menu of services for further learning)programs(10%) occupational and career development, including online ** Total applicants includes the new graduates from various general and resources.ISKUR’sALMPsfordisadvantagedpeoplesuch vocational schools and students that were enrolled in an undergraduate programinthepreviousyears as former convicts, people with disabilities and people ***Teachertrainingprogramsatthetertiarylevellast4years livinginlessdevelopedareas(i.e.SoutheasternAnatolia) Source:MoNE,2012b canbeexpandedtothebeneficiariesofsocialassistance. Although there are initiatives to enhance the public In order to facilitate lifeͲlong learning through image of VET, especially at secondary and postͲ articulationofskillscertificationandrecognitionofprior secondarylevels,itwasunknownasof2012whetherthe learning, most certificates for technical and vocational certificates obtained from the vocational high schools programs should be recognized by the NQF, and andvocationalcollegeswillbedirectlyrecognizedbythe policymakers should pay sustained attention to the NQF. There is an immediate need to reconcile the recognitionofpriorlearningandprovidethepublicwith outputs of the education system with the requirements comprehensive information on the subject. Developing alreadydeterminedoryettobedeterminedbytheNQF VocationalSkillsProject(MESGEP)canbegivenasagood and to address recognition of prior learning, which example. currentlyreceiveslimitedpolicyattention. There is strong justification for increased public ImplicationsoftheFindings investment in preͲprimary, primary and secondary education, as early failings in the Turkish education Monitoring and enhancing equity in funding for training system make later remediation difficult. Efficiency in may not be easy for MoNE due to its highly centralized funding mechanisms can be attained best when systems. However, ISKUR has continued to introduce opportunities for early education are caught, as reformstoaddresssome ofthe challengesin enhancing remediation is costly, and full remediation is often equity and efficiency in funding for training. With the impossible. In addition, the system should also provide planned amendments in ISKUR’s regulation defining the adult workers with more opportunities for further proceduresandprinciplesforALMPs,ISKURwillcontinue training. selecting the service providers on the basis of specific qualityandperformancecriteriaaswellasthecost.The Turkey’s WfD strategies are targeted at achieving new regulation will assign more weight to quality in the efficiency gains, but policy makers should be patient by selection of providers and introduce modules to the waitingfortheoutcomesofthecurrentreforminitiatives training programs to increase employability. The beforeinitiatingnewones. regulationwillalsorequiretrainingproviderstoprovide   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 27 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  6.ManagingServiceDelivery courses.InGrades11&12,studentsspendmostoftheir timeonOnͲtheͲJobTrainingactivities.Effortshavebeen Training providers, both nonͲstate and government, are made to improve the quality of infrastructure, the main channels through which the country’s policies equipmentandtrainingmaterialsinVETschools,aswell in WfD are translated into results on the ground. This astheteachers. chapter therefore provides a brief overview of the composition of providers and the types of services TheTurkishhighereducation(tertiary)systemconsistsof available in the system before presenting the detailed universities and higher technology institutes (ISCED 5AͲ SABERͲWfD findings on Service Delivery and their policy B, 6).17 Universities and higher technology institutes are implications. divided into two groups in regard to administration and financingaspublicandprivate(foundation)universities. OverviewoftheDeliveryofTraining All higher education institutions are affiliated to Services universities/ higher technology institutes, with the exception of some vocational schools at the postͲ Turkey’s VET programs are primarily operated under secondary level that are run by foundations (ISCED 5B). MoNE and consist of formal and nonͲformal education PostͲsecondaryVETschoolsimplement2Ͳyearprograms aimedatprovidingtrainingandeducationinlinewiththe leading to an associate degree and the graduates of demands of the labor market to enhance skills and secondaryschoolscancontinuetosuchprogramstoget employability.  The vocational education system graduated as a technician and they may then pursue includes: (i) Vocational and technical high schools further higher education by satisfying necessary providing training in more than 130 occupations and conditions. leading to the qualification of specialized worker and technician; (ii) Apprenticeship training, which is a NonͲformal education is delivered by MoNE’s Public combination of mainly practical training provided in Education Centers. During the economic crisis in 2008, enterprises and theoretical training provided in the government gave ISKUR primary responsibility for vocational education centers; and (iii) Informal implementing ALMPs. The number of ISKUR’s ALMP education, which is provided primarily through participants increased from 30,000 (in 2008) to 464,000 vocationaleducationcenters. (in2012),representingalmostoneͲfifthoftheregistered unemployed. In2012uppersecondaryVETschoolsinclude9thto12th gradesandcoverages14–17.AnatolianVocationalHigh ISKURitselfhasbeenimplementing10differenttargeted Schools employ foreign language preparation classes in training programs for the unemployed from different compliance with the objectives of the curriculum, and groups of society such as those from Southeastern natural science and mathematics can be taught in a Anatolia,women,thedisabled,convicts,exͲconvictsand foreignlanguage. entrepreneurs (see Figure 14). In addition to ALMPs, ISKUR has increased the coverage and quality of its Formal VET comprises vocational and technical high services by introducing Job and Vocational Counsellors, schools that offer training in over 130 occupations, and and linking receipt of social assistance benefits to make up 45% of the total secondary school enrollment. registrationinISKUR. Following secondary education, some VET graduates applyfortertiaryeducationprograms,withthemajority ISKUR has been working together with VQA to improve ofthoseadmittedbeingplacedin2ͲyearpostͲsecondary the quality of training through the development of the (associate)or4Ͳyeardistanceeducationprograms. national vocational qualification system and, more recently, through the selection of training providers on Upper secondary VET schools offer courses under a the basis of specific quality and performance criteria. A varietyofbranchessuchasindustry,services,andsocial new regulation (to be published after 2012) will services. Notwithstanding the diversity of school types introduce a number of initiatives to improve the andbranches,the9thgradesofallsecondaryeducation effectiveness of vocational training, including: (i) the institutionsteachthesame(common)generaleducation addition of new modules to training programs to  17  ISCED is the framework developed by UNESCO and used to compare tool used to produce accurate data that reflect educational priorities and statisticsontheeducationsystemsofcountriesworldwide.Itisanimportant policies. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 28 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  improve the employability of participants (e.g., job quality and relevance. Among state providers a key search skills, interview techniques, and basic skills); (ii) concern is their responsiveness to the demand for skills rewards for job placement performance and from employers. Striking the right balance between accreditationbytheVocationalQualificationInstitution, institutional autonomy and accountability is one when awarding contracts to providers; and (iii) an approach to address this concern. Policy Goal 7 takes increased job placement rate requirement for jobͲ these ideas into account and benchmarks the system guaranteedcourses. according to the extent to which policies and institutional arrangements are in place to: (i) encourage Figure14:ISKUR’sActiveLaborMarketPrograms and regulate nonͲstate provision of training, and (ii) foster excellence in public training provision by combiningincentivesandautonomyinthemanagement ofpublicinstitutions. Figure 15: SABERͲWfD Ratings of the Service Delivery Dimension  SABERǦWfDRatingsonServiceDelivery The Policy Goals for this Dimension in the SABERͲWfD framework focus on the following three aspects of service delivery: (i) enabling diversity and excellence in Note:seefigure2foranexplanationofthescaleonthehorizontalaxis. training provision; (ii) fostering relevance in public Source: based on analysis of the data collected using the SABERͲWfD questionnaire. training programs; and (iii) enhancing evidenceͲbased accountability for results. The ratings for these three TurkeyisratedattheEmerginglevel(2.2)forPolicyGoal Policy Goals are presented below and are followed by a 7. The ratings for each specific topic under this policy reflectionontheirimplicationsforpolicydialogue. goalvarysignificantlybetween1.0(forreviewofpolicies Based on data collected by the SABERͲWfD towards nonͲstate training provision) and 4.0 (for scope questionnaire, Turkey receives an overall rating of and formality of nonͲstate training provision). These Emerging (2.4) for the Service Delivery Dimension (see ratingsarepresentedindetailinAnnex2andAnnex5. Figure 15). This score is the average of the ratings for e AdiversityofnonͲstateprovidersisactiveinthetraining underlying Policy Goals: (i) enabling diversity and market, despite few government incentives to excellence in training provision (2.2); (ii) fostering encourage nonͲstate provision. While most of these relevance in public training programs (1.8); and (iii) providersareregisteredandlicensed,fewmeasuresare enhancing evidenceͲbased accountability for results in place for quality assurance. With regard to public (2.6). The explanation for these ratings and their training provision, the government grants limited implicationsfollowbelow. autonomy to the institutions. There are, however, no PolicyGoal7:EnablingDiversityandExcellencein financial/nonͲfinancialincentivesforperformance. TrainingProvision NonͲstate provision of training is regulated by the Because the demand for skills is impossible to predict government. A diversity of nonͲstate providers offer withprecision,havingadiversityofprovidersisafeature training and all of them have to be registered and of strong WfD systems. Among nonͲstate providers, the licensedinlinewithLawno:5508.Allprivateandpublic challenge is to temper the profit motive or other trainingprovidersaregenerallysubjecttothesamerules program agendas with appropriate regulation to assure and regulations. However, private training providers (i) SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 29 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  havetorenewtheirregistrationandlicenseregularly;(ii) material, equipment and other needs to the central areexpectedtoreporttoWfDauthoritiesregularly;and authorities for annual budget preparation and are (iii) are subject to regular audits. Private training allowedtopurchasetrainingmaterialsandotherinputs. providers failing in these audits may be placed under Theseinstitutionsarealsopermittedtogenerateincome observation/probation or their licenses to operate may through revolving funds. However, as of the 2011Ͳ2012 be suspended. With regard to the scope of nonͲstate schoolyear,only585outof5,456VEThighschoolshave training provision, nonͲprofit, forͲprofit, domestic and a functional revolving fund and less than 2 percent of foreignprovidersareallowedtooffertraining.Whilethis students in public VET high schools participate in the creates a highly diverse mix of providers, it has not activities of revolving funds. Additionally, these schools resultedin the creationof anoverarchingassociationof do not have any say on the introduction and closure of privatetrainingproviders. programs, admission processes, or staff recruitment, replacement or remuneration. MoNE manages all of The government provides a range of financial and thesefunctionscentrally. nonfinancial incentives to encourage private training provision. However, these incentives form part of a In addition to MoNE affiliated IVET and CVET programs, wider incentive scheme, and are not solely directed to ISKUR has been implementing vocational training education. The government has recently launched a courses for the unemployed. These include vocational voucherschemeforprivateIVETprovidersestablishedin training courses for employees, the disabled, convicts organizedindustrialzones.Theseinstitutionsareeligible and exͲconvicts, as well as community benefit working to enroll students who are receiving tuition subsidies (public works) programs, entrepreneurship training from the government. However, the scope of this programs, onͲtheͲjob training programs, a regional schemeiscurrentlyverylimited.MoNEofferssomenonͲ developmentproject(calledGAPII)inthelessdeveloped financial incentives for private training providers: (i) it areas of Southeastern Anatolia (which includes conducts the registration, licensing and inspection of vocational training courses, OJT and entrepreneurship these institutions and informs them regularly of any programs),andtheUMEMProject. relevant legal developments; and (ii) it recognizes The introduction of new programs follows a relatively certificates and diplomas issued by these institutions. complexprocess.Everyyear,ProvincialEmploymentand Private training providers are also able to participate in Vocational Education Boards (PEVEBs) present to ISKUR national training/WfD decisionͲmaking bodies/agencies provincialofficestheirplansforthetrainingprogramsto by invitation or via associations of private education be implemented in line with the labor market needs institutions;andareeligibletocompeteforgovernmentͲ analyses in the coming year and employers’ requests. fundedtrainingcontracts. ISKUR’s General Directorate and provincial offices Limited measures are in place to assure the quality of evaluatetheseneeds,the performance oftheprograms privatetrainingprovision.Thereisnosystematicprocess implementedinpreviousyears,andtheprioritiesintheir for reviewing the policies on private training provision. action plans, and agree on the programs for the coming Despite recent attempts, such as the Internal Audit year. However, other factors such as availability of Report of the Management Process of Vocational and training providers and financing also determine the Technical Education, it is not possible to state that such introductionofnewprograms. initiativeshavehadanyimpactoncurrentpolicies. Similarly,assessmentofsystemͲwideresourceutilization Mechanisms to incentivize good performance of public and staffing, consultation with relevant stakeholders, training institutions are almost nonͲexistent. However, labor market analyses and evaluation of the MoNE declares its overall target for the desired WfD performance of each training course by provincial outcome, (i.e. enrollment rate in VET institutions) in its directorates inform the decisionͲmaking process annual performance programs in line with its strategic regardingclosureofprograms. plan.Thus,MoNEdoesnotemploymultipleperformance ISKUR prepares its annual performance programs and indicatorsregardingWfD. targets in line with its strategic plan. Specific targets Public training institutions operating under MoNE have includeenrollment,graduation,jobplacementratesand limited autonomy in decisionͲmaking. They report their trainee satisfaction. However, there is no incentive or SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 30 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  reward mechanism for ISKUR to achieve these targets. on the issues of implementation of vocational and ISKUR has autonomy regarding the introduction and technical education programs at all formal, nonͲformal closure of programs as well as the procurement of andapprenticeshipeducationinstitutions.VQAdecisions services from public and private training institutions. arereportedtoMoNE. Subcontracting institutions are bound by contractual Industry provides inputs on an informal basis into the requirements. design of program curricula for publicly funded Policy Goal 8:  Fostering Relevance in Public programs. Links between industry and IVET and CVET TrainingPrograms institutions operating under MoNE are not extensive, andpredominantlytaketheformofindustryinternships Public training institutions need reliable information on ortrainingcourses.However,therearealsorarecasesof current and emerging skills demands in order to keep industry participation in governance or advisory bodies, theirprogramofferingsrelevanttomarketconditions.It industry training for instructors, donation of industry is therefore desirable for public training institutions to equipmentand/orsupplies,provisionofscholarshipsfor establish and maintain relationships with employers, trainees, and industry participation in the design of industry associations, and research institutions. Such curricula and assessment of trainees. Still, it is not partners are a source of both information about skills possible to state that industry experts have any competencies and expertise and advice on curriculum influential role in determining the standards of public design and technical specifications for training facilities IVET and CVET programs. Links between these training andequipment. Theycan alsohelpcreateopportunities institutionsandresearchinstitutionsarenonͲexistent. for workplace training for students and continuing professional development for instructors and Therecruitmentofthedirectorsandinstructorsofthese administrators. Policy Goal 8 considers the extent to institutions is defined by explicit standards with legal which arrangements are in place for public training regulations; however, these standards are only providersto:(i)benefitfromindustryandexpertinputin marginally different from those that regulate thedesignofprogramsand(ii)recruitadministratorsand recruitment for general education institutions. The instructorswithrelevantqualificationsandsupporttheir standards do not contain any requirements regarding professionaldevelopment. professional experience in industry. Furthermore, participation in inͲservice training or professional Turkey is evaluated at the Emerging level (1.8) of developmentactivitiesfordirectorsaswellasinstructors development for Policy Goal 8. The ratings for each of IVET institutions is only mandatory as an annual inͲ specifictopicunderthispolicygoalvarybetween1.0and service training activity at the end of each school year. 2.75.TheseratingsarepresentedindetailinAnnex2and DirectorsandinstructorsarefreetojoinotherinͲservice Annex5. trainingcoursesandprofessionaldevelopmentactivities Informalandsporadiclinksexistbetweenpublictraining organizedbyMoNEorotherstakeholders,buttheseare institutions and industry, with limited involvement of voluntaryandparticipationisnotencouraged. industry in curriculum design and the specification of The state of postͲsecondary colleges operating under standards for training facilities. Links between public CoHE is no different from IVET and CVET institutions in trainingprovidersandresearchinstitutionsarerare.The terms of the links with industry, inͲservice training and low score also reflects the fact that previous industry professional development, and requirements regarding experience is not a criterion for the recruitment of recruitment.Itmaybeclaimedthatformallinksexistvia instructors and administrators of public training VQA, but these links are available only for some of the institutions. Furthermore, despite formal provision of institutions and mostly in the form of industry opportunities for professional development, instructors internships or training courses. There are explicit often face practical difficulties in accessing such standards regulating recruitment, but these standards opportunities. do not contain a requirement regarding professional Formal links between training institutions and industry industryexperienceandinͲservicetraining. are primarily embodied in VQA, which comprises Regarding ALMP activities conducted by ISKUR, the representatives of ministries, public institutions, PEVEBs in all 81 provinces constitute the formal link agencies, employers and workers. VQA takes decisions SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 31 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  between training institutions and industry. PEVEBs’ Public and private training providers operating under primaryaimistomobilizelocalfacilitiesandresourcesby MoNE report specific data, and MoNE publishes annual providing collaboration and peerͲlearning between activity reports and statistical yearbooks including different institutions and organizations. PEVEBs offer administrative data and graduation statistics. While the important mechanisms and have the potential to latest school year for which systemͲwide IVET data are produce “local solutions for local problems” through available is 2012Ͳ2013, for CVET institutions operating social dialogue. Thus, most of the training institutions under MoNE, the latest school year for which such data have formal links with industry. These links are most areavailableis2010Ͳ2011. prevalent in regard to governance and advisory issues, MoNE occasionally conducts surveys regarding IVET assessmentoflabormarketneeds,andcollaborationon activities. For example, it has conducted evaluations of industry commissioned projects. Moreover, industry occupationalcoursesinVETprogramsandofEUfunded experts contribute informally to the design of curricula programsforthedevelopmentofVETcenters.However, for training programs in some institutions, but they do these studies cannot be considered impact evaluation nothaveany influenceon facilitystandards.Institutions analyses. accredited by MoNE examine the facilities where the trainingprogramswillbeheldandevaluatewhetherthey MoNE has also been operating an eͲgraduate project to haveadequatestandards. monitortheemploymentperformanceofVETgraduates from public vocational and technical secondary Policy Goal 9:  Enhancing EvidenceǦBased education institutions from 2001 onwards through a AccountabilityforResults tracerstudysupportedbyanelectronicplatformforthe Systematicmonitoringandevaluationofservicedelivery registration of graduates and employers. As of 2012 the are important for both quality assurance and system system has reached 65,000 VET graduates and 6,600 improvement. Accomplishing this function requires employers willing to recruit VET graduates through gathering and analyzing data from a variety of sources. targeted questionnaires and individual registration on The reporting of institution level data enables the the website database. Graduates are asked about their relevant authorities to ensure that providers are labor market experiences and employers about the deliveringonexpectedoutcomes.Suchdataalsoenable training quality of graduates, so that the vocational theseauthoritiestoidentifygapsorchallengesintraining schoolscanadjustbettertoemployerexpectations.The provisionorareasofgoodpractice.Additionally,periodic resultsachievedbytheprojectarepromising,thoughstill surveys and evaluations of major programs generate limited, and the outreach of this program can be complementary information that can help enhance the expanded to the whole target group. The results of the relevanceandefficiencyofthesystemasawhole.Policy 2009 tracer study show that 33% of graduates were Goal9considerstheseideaswhenassessingthesystem’s employed at the time of the survey, and 53% of the arrangements for collecting and using data to focus employed graduates found their jobs through social attention on training outcomes, efficiency and networks, while only 1.2% used ISKUR services. innovationinservicedelivery. Information gathered through this program is publicly TurkeyisattheEmerginglevel(2.6)forPolicyGoal9.The availablebut,asdataentryisvoluntary,thesystemdoes ratingsforeachspecifictopicunderthispolicygoalvary notincludeinformationaboutallgraduates. between 2.25 and 2.75. These ratings are presented in The data reported by public and private training detailinAnnex2andAnnex5 providers,aswellasthoseobtainedviasurveys,areused All training providers, state and nonͲstate, are required to provide feedback to institutions, identify good to collect and report basic administrative data that are practices and innovations, and inform the design of occasionally used to assess institutional performance as policies for systemͲlevel improvements in service wellasanalyzesystemͲleveltrendsandissues.However, delivery.However,suchdataarerarelyusedtoimprove sourcesofdataonlabormarketoutcomesarelimitedto program and system performance for IVET and lifeͲlong a few adͲhoc skillsͲrelated surveys or evaluations of learningoperations.Publicandprivatetrainingproviders specifically targeted programs. Public access to data is operating under ISKUR are also required to report limited. specificdata.ISKURpublishesannualactivityreportsand statistical yearbooks including administrative data, SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 32 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  graduation statistics, job placements and client as training and research institutions, remain informal, feedback. Additionally, ISKUR publishes very detailed and do not always lead to joint decision making. MoNE monthlystatisticsonemploymentincludinginformation underlines the need for the active participation of all on ALMP programs. These data are provided Ŧn WfD stakeholders in decisionͲmaking processes and the coordinationwiththeSocialSecurityInstitutionandthey definition of education and training outputs together include only formal employment figures. The data with related industry representatives (MoNE, 2013). collectedfromtrainingprovidersareevaluatedbyISKUR, Oncefullrealizationofsuchplansisachieved,Turkeywill and used as an input to the strategic planning process. have an advanced level of development for service Annualperformanceevaluationreportsarepreparedfor delivery. thestrategicobjectives,plannedactivities,andspending. In TVET, MoNE has efficient systems for evaluating its ISKURalsoconductsoccasionalsurveys,mostnotablyfor performance. For example, Turkey has developed UMEM, implements projects and an impact evaluation competency based and modular VET curricula, with studies for its VET courses (i.e. the study conducted improvements in the quality of the vocationalͲtechnical together with the World Bank). Data collected via secondary education curricula being evaluated through surveys and impact evaluations also contribute to the an Assessment of the Beneficiaries of the Curriculum allocationofbudgetappropriations.Regardingtheuseof Reform of the Secondary Education Project, undertaken data to monitor and improve program and system in 2012. The revised curricula were generally judged performance, ISKUR has been implementing an EUͲ appropriate with respect to teaching, learning process, funded project (Strengthening of Public Employment and measurement and evaluation dimensions, but a Services) to improve its data collection capacity and clearly defined philosophy and learning theory capability. An institutional performance evaluation will underlyingthecurriculareformwasfoundtobelacking. be held in accordance with the M&E system under this project. Turkey has adequate tools and data for evidenceͲbased policy making in TVET, which is another sign of a ImplicationsoftheFindings developed service delivery function. Related agencies Grantingautonomytopublicinstitutionsisoneapproach keep administrative data, conduct timely research, and taken by various countries to improve the performance build efficient collaboration with research institutions ofpublicinstitutions(i.e.SingaporeInstituteofTechnical and thinkͲtanks. However, the sharing and utilization of Education, which was constituted as a statutory board data at all stages of policy making, implementation and undertheMinistryofEducation).TheTurkishauthorities monitoringarestillnotatdesiredlevels.Theimportance shouldconsiderthepossibilityandbenefitsofcombining ofexpandingtheuseofpolicyͲrelevantdataforfocusing incentives and autonomy in the management of public providers'attentionontrainingoutcomes,efficiencyand training institutions. MoNE successfully implemented a innovationisbeingunderlinedbypolicymakers,andthis school grants program under the Secondary Schools isreflectedinstrategicplans. project, where school administrations were given full All WfD stakeholders should be vocal and continue autonomy to use allocated resources for the expressing the need to establish strong mechanisms for procurementofgoodsandservices(excludingstaffing). data sharing and improve cooperation. In order to Integratingindustryandexpertinputintothedesignand monitor overall performance of the WfD system as well delivery of public training programs would be an as the individual agencies, the structure of government important step in the Turkish WfD system (especially in agencies should be more transparent. As research TVET). In Turkey, formal links exist between almost all institutions and thinkͲtanks are at the forefront of traininginstitutions,andindustryiswillingtocollaborate developing,adapting,andintroducingnewproductsand with the related government agencies, but public services,Turkeymaybenefitfromtheiractivitiestogain traininginstitutions’linkswithindustrypartners,aswell usefulinsightsintothefuturedemandforskills.18  18  The METEK Project, launched in 2012 by MoNE’s VET General Directorate, guideline; a pilot reaching out campaign about quality standards in 21 aims to improve the quality of VET through several mechanisms: a selfͲ provinces;andtheestablishmentofaQualityDevelopmentDepartmentunder evaluation guideline, which has been implemented in 60 pilot schools at the MoNE’sVETGeneralDirectorate. secondary and postͲsecondary levels; a quality development strategy and action plan, which was accompanied by a quality management standards SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 33 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Annex1:Acronyms  ALMPs ActiveLaborMarketPrograms BVE BoardofVocationalEducation CoHE CouncilofHigherEducation CVET ContinuingVocationalEducationandTraining DCI DataCollectionInstrument EQF EuropeanQualificationFramework EU EuropeanUnion GDP GrossDomesticProduct IKMEP ImprovingHumanResourcesthroughVET ISKUR TurkishEmploymentAgency IVET InitialVocationalEducationandTraining LLL LifeͲLongLearning MoD MinistryofDevelopment MoLSS MinistryofLaborandSocialSecurity MoNE MinistryofNationalEducation MVET ModernizationofVocationalEducationandTraining NGO NonͲGovernmentalOrganization NQF NationalQualificationsFramework OECD OrganizationforEconomicCoͲoperationandDevelopment PVEB ProvincialVocationalEducationBoards PEVEB ProvincialEmploymentandVocationalEducationBoards PIAAC ProgramfortheInternationalAssessmentofAdultCompetencies PISA ProgramforInternationalStudentAssessment SABER SystemsAssessmentforBetterEducationResults SME SmallandMediumEnterprises STEP SkillstowardEmploymentandProductivity SVET StrengtheningtheVocationalEducationandTrainingSystem TEPAV EconomicPolicyResearchFoundationofTurkey TOBB UnionofChambersandCommodityExchanges TVET TechnicalVocationalEducationandTraining UIF UnemploymentInsuranceFund UMEM SpecializedOccupationalDevelopmentCenters VET VocationalEducationandTraining VQA VocationalQualificationsAuthority WfD WorkforceDevelopment    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 34 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Annex2:TheSABERͲWfDAnalyticalFramework   PolicyGoal PolicyAction Topic SettingaStrategic Provide sustained advocacy for WfD at the top G1_T1 AdvocacyforWfDtoSupportEconomicDevelopment StrategicFramework G1 Direction leadershiplevel G1_T2 StrategicFocusandDecisionsbytheWfDChampions Overall Assessment of Economic Prospects and Skills Dimension1 Establish clarity on the demand for skills and areas of G2_T1 Implications Fosteringa criticalconstraint G2_T2 CriticalSkillsConstraintsinPriorityEconomicSectors G2 DemandͲLed G2_T3 RoleofEmployersandIndustry Approach Engage employers in setting WfD priorities and in G2_T4 SkillsͲUpgradingIncentivesforEmployers enhancingskillsͲupgradingforworkers G2_T5 MonitoringoftheIncentivePrograms G3_T1 RolesofGovernmentMinistriesandAgencies Strengthening Formalize key WfD roles for coordinated action on G3_T2 RolesofNonͲGovernmentWfDStakeholders G3 Critical strategicpriorities Coordination for the Implementation of Strategic WfD Coordination G3_T3 Measures G4_T1 OverviewofFundingforWfD Recurrent Funding for Initial Vocational Education and G4_T2 Provide stable funding for effective programs in initial, Training(IVET) continuing and targeted vocational education and RecurrentFundingforContinuingVocationalEducationand EnsuringEfficiency G4_T3 training TrainingPrograms(CVET) G4 andEquityin Recurrent Funding for TrainingͲrelated Active Labor Funding G4_T4 MarketPrograms(ALMPs) Monitorandenhanceequityinfundingfortraining G4_T5 EquityinFundingforTrainingPrograms Facilitate sustained partnerships between training G4_T6 PartnershipsbetweenTrainingProvidersandEmployers institutionsandemployers SystemOversight Competency Standards and National Qualifications Dimension2 Broaden the scope of competency standards as a basis G5_T1 Frameworks fordevelopingqualificationsframeworks G5_T2 CompetencyStandardsforMajorOccupations G5_T3 OccupationalSkillsTesting Establish protocols for assuring the credibility of skills AssuringRelevant G5_T4 SkillsTestingandCertification testingandcertification G5 andReliable G5_T5 SkillsTestingforMajorOccupations Standards G5_T6 GovernmentOversightofAccreditation G5_T7 EstablishmentofAccreditationStandards Develop and enforce accreditation standards for Accreditation Requirements and Enforcement of maintainingthequalityoftrainingprovision G5_T8 AccreditationStandards G5_T9 IncentivesandSupportforAccreditation Promote educational progression and permeability G6_T1 LearningPathways throughmultiplepathways,includingforTVETstudents G6_T2 PublicPerceptionofPathwaysforTVET Diversifying Facilitate lifeͲlong learning through articulation of skills G6_T3 ArticulationofSkillsCertification G6 PathwaysforSkills certificationandrecognitionofpriorlearning G6_T4 RecognitionofPriorLearning Acquisition Provide support services for skills acquisition by G6_T5 SupportforFurtherOccupationalandCareerDevelopment workers,jobͲseekersandthedisadvantaged G6_T6 TrainingͲrelatedProvisionofServicesfortheDisadvantaged G7_T1 ScopeandFormalityofNonͲStateTrainingProvision G7_T2 IncentivesforNonͲStateProviders EncourageandregulatenonͲstateprovisionoftraining EnablingDiversity G7_T3 QualityAssuranceofNonͲStateTrainingProvision G7 andExcellencein G7_T4 ReviewofPoliciestowardsNonͲStateTrainingProvision TrainingProvision G7_T5 TargetsandIncentivesforPublicTrainingInstitutions Combine incentives and autonomy in the management G7_T6 AutonomyandAccountabilityofPublicTrainingInstitutions ServiceDelivery ofpublictraininginstitutions Dimension3 G7_T7 IntroductionandClosureofPublicTrainingPrograms G8_T1 LinksbetweenTrainingInstitutionsandIndustry Integrateindustry andexpertinputintothedesignand G8_T2 IndustryRoleintheDesignofProgramCurricula deliveryofpublictrainingprograms G8_T3 IndustryRoleintheSpecificationofFacilityStandards FosteringRelevance G8_T4 LinksbetweenTrainingandResearchInstitutions G8 inPublicTraining Recruitment and InͲService Training of Heads of Public Programs Recruit and support administrators and instructors for G8_T5 TrainingInstitutions enhancing the marketͲrelevance of public training RecruitmentandInͲServiceTrainingofInstructorsofPublic programs G8_T6 TrainingInstitutions Enhancing G9_T1 AdministrativeDatafromTrainingProviders Expand the availability and use of policyͲrelevant data EvidenceͲbased G9_T2 SurveyandOtherData G9 for focusing providers' attention on training outcomes, Accountabilityfor Use of Data to Monitor and Improve Program and System efficiencyandinnovation G9_T3 Results Performance  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 35 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012  Annex3:RubricsforScoringtheSABERͲWfDData FunctionalDimension1:StrategicFramework Policy LevelofDevelopment Goal Latent Emerging Established Advanced Visible champions for WfD Some visible champions Government leaders exercise Both government and nonͲ are either absent or take provide adͲhoc advocacy for sustained advocacy for WfD with government leaders exercise no specific action to WfD and have acted on few occasional, adͲhoc participation sustained advocacy for WfD, and advance strategic WfD interventions to advance from nonͲgovernment leaders; rely on routine, institutionalized priorities. strategic WfD priorities; no their advocacy focuses on processes to collaborate on wellͲ arrangementsexisttomonitor selected industries or economic integrated interventions to and review implementation sectors and manifests itself advance a strategic, economyͲ forWfD progress. through a range of specific wide WfD policy agenda; interventions; implementation implementation progress is progress is monitored, albeit monitored and reviewed through throughadͲhocreviews. routine, institutionalized G1:SettingaStrategicDirection processes.    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    36 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012   FunctionalDimension1:StrategicFramework Policy LevelofDevelopment Goal Latent Emerging Established Advanced There is no assessment of Some adͲhoc assessments Routine assessments based A rich array of routine and the country's economic exist on the country's on multiple data sources robustassessmentsbymultiple prospects and their economic prospects and exist on the country's stakeholders exists on the implications for skills; their implications for skills; economic prospects and country's economic prospects industryandemployershave some measures are taken to theirimplicationsforskills;a and their implications for skills; a limited or no role in address critical skills widerangeofmeasureswith theinformationprovidesabasis defining strategic WfD constraints (e.g., incentives broad coverage are taken to for a wide range of measures prioritiesandreceivelimited for skills upgrading by address critical skills with broad coverage that support from the employers); the government constraints; the government address critical skills government for skills makes limited efforts to recognizes employers as constraints; the government upgrading. engage employers as strategic partners in WfD, recognizes employers as strategicpartnersinWfD. formalizes their role, and strategic partners in WfD, provides support for skills formalizes their role, and ApproachtoWfD upgrading through incentive provides support for skills schemes that are reviewed upgrading through incentives, G2:FosteringaDemandͲLed andadjusted. including some form of a levyͲ grant scheme, that are systematically reviewed for impact and adjusted accordingly.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    37 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012   FunctionalDimension1:StrategicFramework LevelofDevelopment PolicyGoal Latent Emerging Established Advanced Industry/employers have a Industry/employers help define Industry/employers help define Industry/employers help define limitedornoroleindefining WfD priorities on an adͲhoc basis WfD priorities on a routine WfD priorities on a routine basis strategic WfD priorities; the and make limited contributions to basis and make some andmakesignificantcontributions government either provides addressskillsimplicationsofmajor contributions in selected areas in multiple areas to address the no incentives to encourage policy/investment decisions; the toaddresstheskillsimplications skills implications of major skills upgrading by government provides some of major policy/investment policy/investment decisions; the employers or conducts no incentives for skills upgrading for decisions; the government government provides a range of reviews of such incentive formal and informal sector provides a range of incentives incentives for skills upgrading for programs. employers; if a levyͲgrant scheme for skills upgrading for all allemployers;alevyͲgrantscheme exists its coverage is limited; employers;alevyͲgrantscheme with comprehensive coverage of incentive programs are not with broad coverage of formal formal sector employers exists; systematically reviewed for sector employers exists; incentive programs to encourage Implementation impact. incentive programs are skills upgrading are systematically systematically reviewed and reviewed for impact on skills and adjusted; an annual report on productivity and are adjusted the levyͲgrant scheme is accordingly; an annual report on G3:StrengtheningCriticalCoordinationfor publishedwithatimelag. thelevyͲgrantschemeispublished inatimelyfashion.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    38 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012  FunctionalDimension2:SystemOversight Policy LevelofDevelopment Goal Latent Emerging Established Advanced The government funds The government funds IVET, The government funds IVET, CVET The government funds IVET, CVET IVET, CVET and ALMPs CVET(includingOJTinSMEs)and (including OJT in SMEs) and ALMPs; (including OJT in SMEs) and ALMPs; (but not OJT in SMEs) ALMPs; funding for IVET and funding for IVET is routine and fundingforIVETisroutineandbased based on adͲhoc CVET follows routine budgeting basedonmultiplecriteria,including oncomprehensivecriteria,including budgeting processes, but processes involving only evidence of program effectiveness; evidence of program effectiveness, takes no action to government officials with recurrentfundingforCVETrelieson that are routinely reviewed and facilitate formal allocations determined largely formal processes with input from adjusted;recurrentfundingforCVET partnerships between by the previous year's budget; key stakeholders and annual reliesonformalprocesseswithinput training providers and funding for ALMPs is decided by reporting with a lag; funding for from key stakeholders and timely employers; the impact of government officials on an adͲ ALMPs is determined through a annualreporting;fundingforALMPs funding on the hoc basis and targets select systematic process with input from is determined through a systematic beneficiaries of training population groups through key stakeholders; ALMPs target process with input from key programs has not been various channels; the diverse population groups through stakeholders; ALMPs target diverse recentlyreviewed. government takes some action various channels and are reviewed population groups through various to facilitate formal partnerships for impact but followͲup is limited; channels and are reviewed for between individual training the government  takes action to impactandadjustedaccordingly;the providers and employers; recent facilitate formal partnerships governmenttakesactiontofacilitate reviewsconsideredtheimpactof between training providers and formal partnerships between funding on only trainingͲrelated employers at multiple levels training providers and employers at indicators (e.g. enrollment, (institutional and systemic); recent alllevels(institutionalandsystemic); completion), which stimulated reviews considered the impact of recent reviews considered the dialogue among some WfD funding on both trainingͲrelated impact of funding on a full range of G4:EnsuringEfficiencyandEquityinFunding stakeholders. indicators and labor market trainingͲrelated indicators and labor outcomes; the reviews stimulated market outcomes; the reviews dialogue among WfD stakeholders stimulated broadͲbased dialogue and some recommendations were among WfD stakeholders and key implemented. recommendations were implemented.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    39 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012   FunctionalDimension2:SystemOversight Policy LevelofDevelopment Goal Latent Emerging Established Advanced Policy dialogue on A few stakeholders engage in Numerousstakeholdersengageinpolicy All key stakeholders engage in policy competency adͲhoc policy dialogue on dialogue on competency standards dialogueoncompetencystandardsand/or standardsand/orthe competency standards and/or and/or the NQF through the NQF through institutionalized NQFoccursonanadͲ the NQF; competency institutionalized processes; competency processes;competencystandardsexistfor hoc basis with standards exist for a few standardsexistformostoccupationsand mostoccupationsandareusedbytraining limited engagement occupations and are used by are used by some training providers in providersintheirprograms;theNQF,ifin of key stakeholders; some training providers in their programs; the NQF, if in place, place, covers most occupations and a competency their programs; skills testing is covers some occupations and a range of wide range of skill levels; skills testing for standards have not competencyͲbased for a few skill levels; skills testing for most most occupations follows standard been defined; skills occupations but for the most occupations follows standard procedures, is competencyͲbased and testing for major part is mainly theoryͲbased; procedures, is competencyͲbased and assessesboththeoreticalknowledgeand occupations is certificates are recognized by assesses both theoretical knowledge practical skills; robust protocols, mainlytheoryͲbased public and some private and practical skills; certificates are including random audits, ensure the and certificates sector employers but have recognized by both public and private credibility of certification; certificates are awarded are little impact on employment sector employers and may impact valued by most employers and recognized by public andearnings;theaccreditation employment and earnings; the consistently improve employment sector employers of training providers is accreditation of training providers is prospects and earnings; the accreditation only and have little supervised by a dedicated supervised by a dedicated agency in the of training providers is supervised by a impact on office in the relevant ministry; relevant ministry; the agency is dedicatedagencyintherelevantministry; employment and private providers are required responsible for defining accreditation the agency is responsible for defining earnings; no system to be accredited, however standards with stakeholder input; accreditation standards in consultation is in place to accreditation standards are standards are reviewed on an adͲhoc with stakeholders; standards are G5:AssuringRelevantandReliableStandards establish not consistently publicized or basis and are publicized or enforced to reviewed following established protocols accreditation enforced; providers are some extent; all providers receiving and are publicized and routinely standards. offered some incentives to public funding must be accredited; enforced; all training providers are seekandretainaccreditation. providers are offered incentives and requiredaswellasofferedincentivesand limited support to seek and retain supporttoseekandretainaccreditation. accreditation. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    40 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012   FunctionalDimension2:SystemOversight Policy LevelofDevelopment Goal Latent Emerging Established Advanced Students in technical and Students in technical and Students in technical and vocational Studentsintechnicalandvocationaleducation vocational education have vocational education can only education can progress to vocationallyͲ can progress to academically or vocationallyͲ few or no options for progress to vocationallyͲ oriented programs, including at the orientedprograms,includingattheuniversity further formal skills oriented, nonͲuniversity university level; the government takes level; the government takes coherent action acquisition beyond the programs;thegovernmenttakes someactiontoimprovepublicperception on multiple fronts to improve public secondary level and the limited action to improve public of TVET (e.g. diversifying learning perception of TVET (e.g. diversifying learning governmenttakesnoaction perception of TVET (e.g. pathwaysandimprovingprogramquality) pathways and improving program quality and to improve public diversifying learning pathways); andreviewstheimpactofsucheffortson relevance, with the support of a media perception of TVET; some certificates for technical an adͲhoc basis; most certificates for campaign) and routinely reviews and adjusts certificatesfortechnicaland and vocational programs are technical and vocational programs are such efforts to maximize their impact; most vocationalprogramsarenot recognized in the NQF; few recognizedintheNQF;alargenumberof certificates for technical and vocational recognized in the NQF; qualifications certified by nonͲ qualifications certified by nonͲEducation programs are recognized in the NQF; a large qualifications certified by Education ministries are ministries are recognized by formal number of qualifications certified by nonͲ nonͲEducation ministries recognized by formal programs programs under the Ministry of Education ministries are recognized and are not recognized by under theMinistry ofEducation; Education, albeit without the granting of grantedcreditsbyformalprogramsunderthe formal programs under the policymakers pay some credits;policymakersgivesomeattention Ministry of Education; policymakers give Ministry of Education; attention to the recognition of to the recognition of prior learning and sustainedattentiontotherecognitionofprior recognitionofprior learning prior learning and provide the providethepublicwithsomeinformation learning and provide the public with receives limited attention; publicwithsomeinformationon on the subject; a formal association of comprehensive information on the subject; a the government provides the subject; the government stakeholders provides dedicated national organization of stakeholders practically no support for offerslimitedservicesforfurther attention to adult learning issues; the providesdedicatedattentiontoadultlearning further occupational and occupational and career government offers limited services for issues; the government offers a career development, or development through standͲ further occupational and career comprehensive menu of services for further training programs for alone local service centers that development, which are available occupational and career development, G6:DiversifyingPathwaysforSkillsAcquisition disadvantagedpopulations. arenotintegratedintoasystem; through an integrated network of including online resources, which are training programs for centers; training programs for available through an integrated network of disadvantaged populations disadvantaged populations receive centers; training programs for disadvantaged receiveadͲhocsupport. systematic support and are reviewed for populations receive systematic support with impactonanadͲhocbasis. multiͲyear budgets and are routinely reviewedforimpactandadjustedaccordingly. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    41 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012   FunctionalDimension3:ServiceDelivery Policy LevelofDevelopment Goal Latent Emerging Established Advanced There is no diversity of Thereissomediversityintraining There is diversity in training There is broad diversity in training training provision as the provision; nonͲstate providers provision; nonͲstate training provision; nonͲstate training providers, system is largely operate with limited government providers, some registered and most registered and licensed, operate comprised of public incentives and governance over licensed, operate within a range with comprehensive government providers with limited or registration, licensing and quality of government incentives, incentives, systematic quality assurance no autonomy; training assurance; public training is systematic quality assurance measures and routine review and provision is not informed provided by institutions with measures and routine reviews of adjustment of government policies by formal assessment, some autonomy and informed by government policies toward nonͲ toward nonͲstate training providers; stakeholder input or some assessment of state training providers; public public providers, mostly governed by performancetargets. implementation constraints, providers, mostly governed by management boards, have significant Provision stakeholder input and basic management boards, have some autonomy; decisions about training targets. autonomy; training provision is provision are timeͲbound and informed informed by formal analysis of byformalassessmentofimplementation implementation constraints, constraints;stakeholderinputanduseof stakeholder input and basic a variety of measures to incentivize targets; lagging providers receive performance include support, rewards support and exemplary andperformanceͲbasedfunding. G7:EnablingDiversityandExcellenceinTraining institutionsarerewarded.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    42 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012  FunctionalDimension3:ServiceDelivery Policy LevelofDevelopment Goal Latent Emerging Established Advanced There are few or no attempts to Relevance of public training is Relevance of public training is Relevance of public training is fosterrelevanceinpublictraining enhanced through informal links enhanced through formal links enhanced through formal links programs through encouraging between some training between some training between most training links between training institutions,industryandresearch institutions,industryandresearch institutions,industryandresearch institutions, industry and institutions, including input into institutions, leading to institutions, leading to significant research institutions or through the designofcurriculaandfacility collaboration in several areas collaboration in a wide range of setting standards for the standards; heads and instructors including but not limited to the areas; heads and instructors are recruitment and training of are recruited on the basis of design of curricula and facility recruited on the basis of heads and instructors in training minimum academic standards standards; heads and instructors minimum academic and institutions. andhavelimitedopportunitiesfor are recruited on the basis of professional standards and have TrainingPrograms professionaldevelopment. minimum academic and regular access to diverse professional standards and have opportunities for professional regularaccesstoopportunitiesfor development, including industry G8:FosteringRelevanceinPublic professionaldevelopment. attachmentsforinstructors.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    43 TURKEYۣWORKFORCEDEVELOPMENT   SABERCOUNTRYREPORT|2012  FunctionalDimension3:ServiceDelivery LevelofDevelopment Policy Goal Latent Emerging Established Advanced There are no specific data Training providers collect and Training providers collect and Training providers collect and collection and reporting report administrative data and report administrative and other report administrative and other requirements, but training there are significant gaps in data (e.g., job placement data (e.g., job placement providers maintain their own reporting by nonͲstate providers; statistics, earnings of graduates) statistics, earnings of graduates) databases; the government some public providers issue and there are some gaps in and there are few gaps in does not conduct or sponsor annual reports and the reporting by nonͲstate providers; reporting by nonͲstate providers; skillsͲrelated surveys or impact government occasionally most public providers issue most public providers issue evaluations and rarely uses sponsorsorconductsskillsͲrelated internal annual reports and the publicly available annual reports data to monitor and improve surveys;thegovernmentdoesnot government routinely sponsors and the government routinely systemperformance. consolidatedatainasystemͲwide skillsͲrelated surveys; the sponsorsorconductsskillsͲrelated database and uses mostly governmentconsolidatesdataina surveys and impact evaluations; administrative data to monitor systemͲwide database and uses thegovernmentconsolidatesdata andimprovesystemperformance; administrative data and in a systemͲwide, up to date the government publishes information from surveys to databaseandusesadministrative information on graduate labor monitor and improve system data, information from surveys market outcomes for some performance; the government and impact evaluations to trainingprograms. publishes information on monitor and improve system graduate labor market outcomes performance; the government fornumeroustrainingprograms. publishes information on graduate labor market outcomes for most training programs online. G9:EnhancingEvidenceͲbasedAccountabilityforResults SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS    44 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Annex4:ReferencesandInformants References EBRDͲWorld Bank (2008), Business Environment and Enterprise Performance Survey (BEEPS),. http://data.worldbank.org/dataͲcatalog/BEEPS European Training Foundation (2011), Flexicurity Analysis of the Labour Market in Turkey, http://www.etf.europa.eu/webatt.nsf/0/1A7DEF4E58F42D41C12579440040803B/$file/Flexicurity_Turkey.pdf Gonand,F.,Joumard,I.andPrice,R.,(2007),‘Publicspendingefficiency:Institutionalindicatorsinprimaryandsecondary education’,OECDEconomicsDepartmentWorkingPapersNo543,Paris. Law, S.S., (2008), Vocational Technical Education and Economic Development: The Singapore Experience,͸ in Lee Sing Kong,GohChorBoon,BirgerFredriksenandTanJeePeng(eds.).TowardaBetterFuture.EducationandTrainingfor Economic Development in Singapore since 1965. Washington D.C.: World Bank and International Institute of Education,Singapore. McKinsey&Company (2012), Education to Employment: Designing a System that Works, McKinsey&Company. http://mckinseyonsociety.com/educationͲtoͲemployment/report/ MoNE,(2012a),VocationalEducationandTrainingWorkshopReport,Antalya MoNE,(2012b),NationalEducationStatistics–FormalEducation,2010Ͳ11,Ankara MoNE, (2013), Vocational Education and Training Strategy Document and Action Plan (Draft) 2013Ͳ2017, General DirectorateofVocationalEducationandTraining,Ankara OECD, (2013), Education at a Glance, Turkey Country Note, Paris. http://www.oecd.org/edu/Turkey_EAG2013%20Country%20Note.pdf SETA,FoundationforPolitical,Economic,andSocialResearch,(2012),Türkiye’nin7nsanKaynaŒŦnŦnBelirlenmesi,Ankara Tan,J.P,KiongHockLee,AlexandriaValerio,andJoy YooͲJeungNam(2013),“What MattersinWorkforce Development: AFrameworkandToolforAnalysis,”EducationDepartment,WorldBank(mimeo) TEPAV,EconomicResearchFoundationofTurkey(2012),FinancialMonitoringReporton2012BudgetofTurkey,Ankara. Turkstat,TurkishStatisticalInstitute(2013),AnnualStatistics Turkstat,TurkishStatisticalInstitute(2013a),ExportsbySITCRev.3[ForeignTradeDataAggregateTable]. Turkstat, Turkish Statistical Institute (2013b), Labor Force Status of 15Ͳ24 Age Group. [Labor Force Survey Aggregate Table]. World Bank (2005), Turkey Education Sector Study: Sustainable pathways to an effective, equitable, and efficient educationsystemforpreschoolthroughsecondaryschooleducation,ReportNo32450ͲTU,Washington,DC. WorldBank(2013a)WorldDevelopmentIndicators:GeneralDirectoratePGrowth(Annual%),WashingtonDC. WorldBank(2013b),Turkey:ManagingLaborMarketsthroughtheEconomicCycle,WashingtonDC. WorldBank(2013c),PromotingExcellenceinTurkey’sSchools,WashingtonDC.    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  45 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Listofinformants MinistryofNationalEducation(MoNE) Mr.OmerAcikgoz,formerDirectorGeneralofVET Assoc.Prof.Dr.MustafaKemalBicerli,DirectorGeneralofLLL Ms.SennurCetin,HeadofSocialPartnersandProjectsDepartment Mr.FeridunSaka,Expert MinistryofDevelopment Mr.AhmetAlperEge,DirectorGeneralofSocialSectors(formerHeadofEducationDepartment) Mr.GokhanGuder,HeadofEmploymentandWorkLifeDepartment Ms.MuserrefKucukbayrak,SeniorAssociate Mr.SerdarPolat,Associate TurkishEmploymentAgency(ISKUR) Mr.AsimKeskin,DeputyDirectorGeneral Mr.AskinToren,HeadofExternalRelationsandProjectsDepartment Mr.CagatayGokay,SeniorAssociate Mr.FeridunKaya,formerDivisionChief Ms.CandanAcar,Associate VocationalQualificationsAuthority(VQA) Mr.YakupH.Coskun,ExaminationandCertificationDepartment,Associate ThinkͲTanks,Academia,CivilSociety Ms.AylinGezguc,KocHolding,ExternalRelations&CorporateResponsibilityCoordinator Ms.BurcuGunduz,KocHolding,CorporateSocialResponsibilityAssociate Mr.InsanTunali,KocUniversity,AssociateDeanofCollegeofAdministrativeSciencesandEconomics Mr.BekirGur,SETAFoundationforPolitical,EconomicandSocialResearch,Director ERG,EducationReformInitiative,SabanciUniversity TEPAV,EconomicPolicyResearchFoundationofTurkey BETAM,BahcesehirUniversityCenterforEconomicandSocialResearch TUSIAD,TurkishIndustryandBusinessAssociation TISK,TurkishConfederationofEmployerAssociations MESSFoundation,TurkishEmployers'AssociationofMetalIndustries Mr.IbrahimBetil,TeacherAcademyFoundation Dr.SerdarSayan,TOBBUniversity  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  46 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  InternationalOrganizations Mr.OzanCakmak,ILO Ms.BernaBayazit,UNDP  ParticipantsoftheValidationWorkshop MinistryofNationalEducation(MoNE) Mr.YusufCidem,HeadofMonitoringandEvaluationDepartment Mr.FeridunSaka,Expert MinistryofDevelopment Ms.MuserrefKucukbayrak,SeniorAssociate Ms.AsliDolu,Associate Ms.FerayEldeniz,Associate TurkishEmploymentAgency(ISKUR) Mr.VolkanOz,SeniorAssociate Mr.CagatayGokay,SeniorAssociate Mr.OguzhanKupeli,SeniorAssociate Mr.MehmetBayhan,SeniorAssociate Mr.MustafaOzen,SeniorAssociate Mr.OguzhanCavdar,Associate Mr.FatihKan,Associate Ms.SebnemIsik,Associate Mr.IsmailDemir,Associate Mr.RamazanBegboga,Associate Ms.NuriyeDirik,Associate VocationalQualificationsAuthority(VQA) Mr.YakupH.Coskun,SeniorAssociate    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  47 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Annex5:SABERͲWfDScores   PolicyGoal PolicyAction  Topic G1_T1 3 G1 3.0 ProvidesustainedadvocacyforWfDatthetopleadershiplevel 3.0 G1_T2 3 G2_T1 4 Dimension1 Establishclarityonthedemandforskillsandareasofcriticalconstraint 3.5 G2_T2 3 G2 2.8 G2_T3 3 2.9 Engage employers in setting WfD priorities and in enhancing skillsͲupgrading for 2.3 G2_T4 2 workers G2_T5 2 G3_T1 3 G3 3.0 FormalizekeyWfDrolesforcoordinatedactiononstrategicpriorities 3.0 G3_T2 3 G3_T3 3 G4_T1 info Provide stable funding for effective programs in initial, continuing and targeted G4_T2 2 2.3 vocationaleducationandtraining G4_T3 2 G4 2.3 G4_T4 3 G4_T5_IVET 2 Monitorandenhanceequityinfundingfortraining 2.3 G4_T5_CVET 2 G4_T5_ALMP 3 Facilitatesustainedpartnershipsbetweentraininginstitutionsandemployers 2.0 G4_T6 2 Broadenthescopeofcompetencystandardsasabasisfordevelopingqualifications G5_T1 3 3.0 Dimension2 frameworks G5_T2 3 G5_T3 2 2.5 Establishprotocolsforassuringthecredibilityofskillstestingandcertification 3.0 G5_T4 3 G5 2.6 G5_T5 4 G5_T6 info Developandenforceaccreditationstandardsformaintainingthequalityoftraining G5_T7 2 2.0 provision G5_T8 2 G5_T9 2 Promote educational progression and permeability through multiple pathways, G6_T1 3 3.0 includingforTVETstudents G6_T2 3 G6_T3 2 G6 2.7 Strengthenthesystemforskillscertificationandrecognition 2.5 G6_T4 3 G6_T5 2 Enhancesupportforskillsacquisitionbyworkers,jobͲseekersandthedisadvantaged 2.5 G6_T6 3 G7_T1 4 G7_T2 2 EncourageandregulatenonͲstateprovisionoftraining 2.2 G7_T3 2 G7 2.2 G7_T4 1 G7_T5 2 Combineincentivesandautonomyinthemanagementofpublictraininginstitutions 2.2 G7_T6 2 Dimension3 G7_T7 2.5 G8_T1 2.8 2.2 Integrate industry and expert input into the design and delivery of public training G8_T2 2.3 1.8 programs G8_T3 1 G8 1.8 G8_T4 1 Recruit and support administrators and instructors for enhancing the marketͲ G8_T5 2 2.0 relevanceofpublictrainingprograms G8_T6 2 G9_T1 2.8 Expand the availability and use of policyͲrelevant data for focusing providers' G9 2.5 2.5 G9_T2 2.3 attentionontrainingoutcomes,efficiencyandinnovation G9_T3 2.5    SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  48 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012  Annex6:AuthorshipandAcknowledgements This report is the product of collaboration between Ahmet Levent Yener (Senior Human Development Specialist, World Bank), the Education Reform Initiative and staff at the World Bank comprising Özgür AvcuoŒlu, and IƔŦl Oral (Junior ProfessionalAssociates),aswellasJeeͲPengTanandRitaCosta,VivianaVenegasRoseth,BrentParton,andGrahamColinͲ Jones, leader and members, respectively, of the SABERͲWfD team based in the World Bank’s Education Global Practice. Ahmet Levent Yener et al collected the data using the SABERͲWfD data collection instrument, prepared initial drafts of the report, and finalized the report; the Bank team scored the data, designed the template for the report and made substantivecontributionstothefinalwriteup.ThisreporthasbenefitedfromsuggestionsandfeedbackfromWilliamD. Wiseman(ProgramLeaderforSocialInclusionforTurkey,WorldBank),andXimenaVanessadelCarpio(SeniorEconomist). ProgramassistantsElifYüksekerandGözdeYŦlmaztürkprovidedvaluablesupporttocompletethereport. The research team gratefully acknowledges the generous financial support of the Government of the United Kingdom through its Department of International Development’s Partnership for Education Development with the World Bank which makes it possible for HDNED’s SABERͲWfD team to provide technical support to the principal investigator in the form of standardized tools for and guidance on data collection, analysis and reporting.  Finally, the research team acknowledges the support of all the participants from relevant public agencies, and others who have contributed to the reportanditsfindings,includinginformants,surveyrespondents,participantsatvariousconsultationworkshops,aswell as other members of the SABERͲWfD team at the World Bank: Ryan Flynn, Kiong Hock Lee, Joy YooͲJeung Nam and AlexandriaValerio.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  49 TURKEYۣWORKFORCEDEVELOPMENT  SABERCOUNTRYREPORT|2012   www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of workforce development. This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in thisworkdonotnecessarilyreflecttheviewsofTheWorldBank,itsBoardofExecutiveDirectors,orthegovernmentstheyrepresent.TheWorld Bankdoesnotguaranteetheaccuracyofthedataincludedinthiswork.Theboundaries,colors,denominations,andotherinformationshown onanymapinthisworkdonotimplyanyjudgmentonthepartofTheWorldBankconcerningthelegalstatusofanyterritoryortheendorsement oracceptanceofsuchboundaries. SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS  50