84th Session of the National Education Council of Serbia STRENGTHENING INTEGRITY AND FIGHTING CORRUPTION IN EDUCATION: SERBIA Mihaylo Milovanovitch, OECD Directorate for Education
• The stakes associated with good education are high and growing higher
Education: importance and vulnerability
• Education is typically the second or third biggest domain of public expenditure
• Education is a highly complex system, with multitude of actors and vested interests.
Education: importance and vulnerability
18%
22%
34%
35%
49%
50%
56%
59%
0% 10% 20% 30% 40% 50% 60% 70%
OECD
Latin America
Southeast Asia
GLOBAL
Caucasus
Western Balkans
Africa
Eastern Europe
Share of people in a given world region viewing education in their country as corrupt or extremely corrupt, 2011
Source: Transparency International 2011
What can be done?
EDUCATION CORRUPTION
Analysis and policy reaction?
Criminalise & punish
Prohibit & enforce
Teach & mobilise
Reactive/punitive: Focus on cases
Preventative: Focus on
opportunity
Assess integrity
Preventative: Focus on origin
Level 2: Preventive framework
Budget monitoring
Regulatory framework
Civil society and media
Accountability mechanisms
Level 3: Corruption incidence
Corruption incidence
Corruption incidence
The causes of corruption in education
Opportunity, criminal
intentions
Demand for quality
Demand for access
Staff and resources
Level 1:
System shortcomings Key area 1:
teachers
Key area 2:
assessment
Key area 3:
xyz
DE
MA
ND
O
PP
OR
TU
NIT
Y
CO
RR
UP
TIO
N
Incentives + readiness
Opportunity
Corruption
Detection and prevention shortcomings
Education system shortcomings
The focus of integrity assessment is on
the causes of corruption in education
OECD integrity assessment: the process
• Policy areas • Target institutions • Timeline
• Focus groups • Further investigation • Reforms
• Access • Quality • Staff and resources • Prevention
• Students • Parents • Staff
(1) Expectations
(2)
Deliverables
(3)
Recommen-dations
(4)
National follow-up
Focu
s O
utc
om
es
Identification of mismatch between
(1) and (2)
INTES assessment
Stakeholder interviews;
media reports
Surveys (PISA; national and international corruption
perception surveys) Data and information
grid; national data and
indicators
Sources of information
The vicious circle of failure
Education system
Corruption incidence
Failing prevention and detection mechanisms
Understanding the reasons
Analysing the impact
Application of the INTES approach:
Identifying drivers of corruption demand in Serbia
Tracing systemic shortcomings in: • Access to education • Quality of education outcomes • Management of staff and resources • Prevention and detection of malpractice on sector level
Access to education: • Strong, mostly financial incentives to misuse the process of admission to universities, by both institutions and prospective students • Low awareness about academic integrity
Findings:
integrity and access to education in Serbia
Access to education: • Strong, mostly financial incentives to misuse the process of admission to universities, by both institutions and prospective students • Low awareness about academic integrity
Findings:
integrity and access to education in Serbia
0.0
10.0
20.0
30.0
40.0
50.0
60.0
Can
ada
Isra
el
Jap
an
Un
ited
Sta
tes
New
Zea
lan
d
Ko
rea
Fin
lan
d
Au
stra
lia
Un
ited
Kin
gdo
m
Irel
and
Esto
nia
Luxe
mb
ou
rg
Swit
zerl
and
Bel
giu
m
Swed
en
Net
her
lan
ds
Spai
n
Fran
ce
Bu
lgar
ia
Ch
ile
Gre
ece
Slo
ven
ia
Po
lan
d
Hu
nga
ry
Au
stri
a
Cro
atia
Mex
ico
Cze
ch R
epu
blic
Slo
vak
Rep
ub
lic
Po
rtu
gal
Serb
ia
Ital
y
Ro
man
ia
Turk
ey
Alb
ania
Share of adults with higher education, 2009
OECD average: 29.5%
14.3%
Access to education: • Strong, mostly financial incentives to misuse the process of admission to universities, by both institutions and prospective students • Low awareness about academic integrity
Findings:
integrity and access to education in Serbia
0.0
10.0
20.0
30.0
40.0
50.0
60.0
Can
ada
Isra
el
Jap
an
Un
ited
Sta
tes
New
Zea
lan
d
Ko
rea
Fin
lan
d
Au
stra
lia
Un
ited
Kin
gdo
m
Irel
and
Esto
nia
Luxe
mb
ou
rg
Swit
zerl
and
Bel
giu
m
Swed
en
Net
her
lan
ds
Spai
n
Fran
ce
Bu
lgar
ia
Ch
ile
Gre
ece
Slo
ven
ia
Po
lan
d
Hu
nga
ry
Au
stri
a
Cro
atia
Mex
ico
Cze
ch R
epu
blic
Slo
vak
Rep
ub
lic
Po
rtu
gal
Serb
ia
Ital
y
Ro
man
ia
Turk
ey
Alb
ania
Share of adults with higher education, 2009
OECD average: 29.5%
14.3%
36%
27%
0%
5%
10%
15%
20%
25%
30%
35%
40%
Median top 10 areas of study Median all areas
Tuition fees relative to GDP per capita, Serbia and OECD
Median OECD: 7.6%
Access to education: • Strong, mostly financial incentives to misuse the process of admission to universities, by both institutions and prospective students • Low awareness about academic integrity
Findings:
integrity and access to education in Serbia
0.0
10.0
20.0
30.0
40.0
50.0
60.0
Can
ada
Isra
el
Jap
an
Un
ited
Sta
tes
New
Zea
lan
d
Ko
rea
Fin
lan
d
Au
stra
lia
Un
ited
Kin
gdo
m
Irel
and
Esto
nia
Luxe
mb
ou
rg
Swit
zerl
and
Bel
giu
m
Swed
en
Net
her
lan
ds
Spai
n
Fran
ce
Bu
lgar
ia
Ch
ile
Gre
ece
Slo
ven
ia
Po
lan
d
Hu
nga
ry
Au
stri
a
Cro
atia
Mex
ico
Cze
ch R
epu
blic
Slo
vak
Rep
ub
lic
Po
rtu
gal
Serb
ia
Ital
y
Ro
man
ia
Turk
ey
Alb
ania
Share of adults with higher education, 2009
OECD average: 29.5%
14.3%
36%
27%
0%
5%
10%
15%
20%
25%
30%
35%
40%
Median top 10 areas of study Median all areas
Tuition fees relative to GDP per capita, Serbia and OECD
Median OECD: 7.6%
1.2
4.8
7.2
7.2
9.6
10.8
13.3
14.5
19.3
0 5 10 15 20 25
Tenders/procurements
Selection of principals
University professors
Hiring /firing of teachers and principals
School staff/teachers
School conditions
School management
MoES procedures/work
University procedures/administration
Frequency by type of complaint, in % of total
Complaints and requests to MOES by beneficiaries
• Leverage for speeding up external school leaving exams to replace entry exams organized by faculties • Make financial support more accessible and equitable • Increase financial accountability of faculties vis-a-vis stakeholders for public resources
Main recommendation: access
Findings:
integrity and quality of education in Serbia
Quality of education: • Ineffective classroom learning fuels the proliferation of private tutoring with teachers from the same school • In an undetermined number of cases tutoring is a precondition for obtaining a grade
Data source: PISA 2009, OECD
Findings:
integrity and quality of education in Serbia
Quality of education: • Ineffective classroom learning fuels the proliferation of private tutoring with teachers from the same school • In an undetermined number of cases tutoring is a precondition for obtaining a grade 0
10
20
30
40
50
60
Po
lan
d
Mo
nte
ne
gro
Latv
ia
Lith
uan
ia
Slo
vak
Re
pu
blic
Serb
ia
Aze
rbai
jan
Cro
atia
Cze
ch R
ep
ub
lic
Bu
lgar
ia
Ro
man
ia
Esto
nia
Kyr
gyzs
tan
Slo
ven
ia
OEC
D a
vera
ge
Ho
ng
Ko
ng-
Ch
ina
Ko
rea
Au
stra
lia
Can
ada
Swit
zerl
and
Ge
rman
y
Jap
an
Ice
lan
d
Ne
the
rlan
ds
Fin
lan
d
No
rway
%
% of secondary students who resort to private tutoring
Bottom quarter of ESCS Second quarter of ESCS Third quarter of ESCS Top quarter of ESCS
Data source: PISA 2009, OECD
• Reform the curriculum • Introduce codes of conduct for teachers
Main recommendation: quality
Staff policies: • Loopholes in the legislation make principals and teachers mutually dependent for their respective (re-)appointment
Findings:
integrity and education staff policies
Staff policies: • Loopholes in the legislation make principals and teachers mutually dependent for their respective (re-)appointment
Findings:
integrity and education staff policies
7.1
7.1
11.9
11.9
16.7
35.7
0 5 10 15 20 25 30 35 40
Selection of principals
Professors at university-teaching
School staff/teachers
MoES procedures/work
School management
Hiring /firing of teachers and principals
Frequency by type of complaint, in % of total
Compaints and requests to MOES by education staff
Staff policies: • Loopholes in the legislation make principals and teachers mutually dependent for their respective (re-)appointment
Findings:
integrity and education staff policies
7.1
7.1
11.9
11.9
16.7
35.7
0 5 10 15 20 25 30 35 40
Selection of principals
Professors at university-teaching
School staff/teachers
MoES procedures/work
School management
Hiring /firing of teachers and principals
Frequency by type of complaint, in % of total
Compaints and requests to MOES by education staff
Slovak Republic
Estonia
Iceland
Hungary
Israel
Czech Republic
Sweden United States
France
Norway
Poland
Greece
Austria
Italy Australia
Slovenia
Luxembourg
Finland
Netherlands
Ireland
Japan
Chile
Denmark
Spain
Portugal
Switzerland
Germany Turkey
Korea
Serbia
1
1.5
2
2.5
3
0 0.2 0.4 0.6 0.8 1 1.2 1.4 1.6 1.8 2
Rat
io in
cre
ase
of
sala
ry a
t th
e t
op
of
the
sal
arz
scal
e, r
ela
tive
to
st
arti
ng
sala
ry, u
pp
er
seco
nd
ary
sch
oo
l 20
09
Ratio of teachers' salaries after 15 years of experience (minimum training) to GDP per capita, upper secondary school
Teacher salaries and career progression - Serbia (2010) and OECD (2008)
Below average salaries Above average career progression
Below average salaries Below average career progression
Above average salaries Above average career progression
Above average salaries Below average career progression
OECD average
OEC
D a
vera
ge
• Legislative strengthening of hiring procedures • Start training of principals
• Provide opportunities and incentives for career progression for teachers
Main recommendation: staff policies
Management of resources : • Heavy reliance of public schools on private investment, but without matching financial control
Findings:
integrity and resource management
Management of resources : • Heavy reliance of public schools on private investment, but without matching financial control
Findings:
integrity and resource management
Overview of funding sources, school accounts, and reporting of schools (2012)
Sources of funding:
Donations (I)
Parental association (II)
Revenues from services and rental of facilities (III)
Local budget transfers (IV).
School accounts:
Donations account (I)
Parental association account (II)
Regular school account (III, IV)
Other (remaining) account
Reporting:
Annual reporting of principal for I-IV to the school board, with a possibility for a double check by RED
(regional education departments).
Revenue tax declarations (III) to local tax authorities.
Management of resources : • Heavy reliance of public schools on private investment, but without matching financial control
Findings:
integrity and resource management
Overview of funding sources, school accounts, and reporting of schools (2012)
Sources of funding:
Donations (I)
Parental association (II)
Revenues from services and rental of facilities (III)
Local budget transfers (IV).
School accounts:
Donations account (I)
Parental association account (II)
Regular school account (III, IV)
Other (remaining) account
Reporting:
Annual reporting of principal for I-IV to the school board, with a possibility for a double check by RED
(regional education departments).
Revenue tax declarations (III) to local tax authorities.
23.1 22.2
22.1 21.6 9.0
0
10
20
30
40
50
60
70
80
90
100
Shar
e o
f p
ub
lic a
nd
pri
vate
exp
en
dit
ure
(%
)
Distribution of public and private expenditure in primary and secondary education in Serbia (2007) and OECD (2008)
Private per student expenditure Public per student expenditure
• Strengthen financial accountability of schools on local level, while determining what is permissible school revenue which can be kept. • Process all lease requests currently with the Republican Directorate for Property
• Revoke the suspension of the Law on Local Public Finance to rectify inequalities in central funding for municipalities
Main recommendation: resources
Prevention and detection • Adequate institutional framework, but… • …weak capacity for malpractice detection and low level of awareness on sector level
Findings:
Prevention and detection capacity
• Strengthen prevention and detection capacities on sector level, by Improving data reliability and promoting its use Making universities more accountable for the public funding they obtain Invest more in training and staffing of school inspectorates Increase transparency of budget formulation by introduce a per capita funding formula as soon as possible
Main recommendations:
prevention and detection
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