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EDDATA II WORKING PAPER SERIES
WORKING PAPER NO. 1
SUCCESS IN IMPLEMENTING
EDUCATION POLICY DIALOGUE
IN PERU
JUNE 2006
This publication was produced for review by the United States Agency for International Development.
It was prepared by Betty Alvarado Pérez, consultant to RTI International. The work described in this
document was funded by the World Bank and the British Department for International Development (DFID)
under the RECURSO Project.
Success in Implementing Education
Policy Dialogue in Peru
EDDATA II WORKING PAPER SERIES
WORKING PAPER NO. 1
EdData II Technical and Managerial Assistance
Contract EHC-E-01-04-00004-00
Prepared for
Office of Education
Bureau for Economic Growth, Agriculture and Trade
United States Agency for International Development
(USAID/EGAT/ED)
Prepared by
RTI International
3040 Cornwallis Road
Post Office Box 12194
Research Triangle Park, NC 27709-2194
The authors’ views expressed in this publication do not necessarily reflect the views
of the United States Agency for International Development or the United States
Government.
Table of Contents
Page
List of Figures....................................................................................................... iv
List of Tables .........................................................................................................v
Executive Summary ..............................................................................................1
The Background Report and the Need for Policy Dialogue ...................................5
Rapid Appraisal Used During Fieldwork ..........................................................5
Results.............................................................................................................7
Transmitting Results: “From Research Paper to Screen” ................................8
The Videos in Action ......................................................................................10
Policy Dialogue and Dissemination .....................................................................14
Dissemination Events ....................................................................................16
Complementary Activities ..............................................................................17
Effects and Externalities......................................................................................21
Factors Behind the Success ..........................................................................22
Lessons Learned.................................................................................................25
Annex 1: Scripts and Sequence of the Videos ....................................................28
Annex 2: Some Examples of Press Releases .....................................................34
The Implementation and Success of a Policy Dialogue in Peru
iii
List of Figures
Page
Figure 1. The Plan and Process of Dissemination...............................................15
iv
List of Tables
Page
Table 1. RECURSO: Implemented Dissemination Plan, January 2006 ...............19
v
Executive Summary
This paper reports on the results of a successful policy dialogue that took place in Peru
during 2005 and the beginning of 2006 between the World Bank and local communities
on issues of human development, with a special focus on education. It underlines some
factors behind the dialogue’s successes and lessons learned. The dialogue was part of the
Accountability and Governance in Social Sectors in Peru Program, known by its Spanish
acronym RECURSO (Rendición de Cuentas para la Reforma Social).1 The project was
an effort to raise the question of accountability in the social sectors in the political agenda
during the run-up to the 2006 presidential elections and to provide the future government
with policy advice on evidence-based options on how to approach social sector
development and poverty reduction. The project resulted in various publications by a
group of authors.2
This process is considered successful in having raised the policy visibility of certain
issues and possible solutions. What stands out in this process is that the agenda was based
on the outcomes of applied research plus early consultations with Peruvian stakeholders;
the dissemination of the final findings and recommendations was supported with media
such as videos; and both of these components worked as a planned and integrated whole.
Specifically, for the case of education, the initial steps were taken during fieldwork to
compile data on education performance. Researchers measured the reading speed and
comprehension of first and second graders in urban and rural areas, using tools and
methodologies inspired by the work of the Internal Evaluation Group (IEG) at the World
Bank. Enough data were collected to build a credible panorama for the diagnosis, but
more importantly, a simple and rapid method of appraisal was applied and tested in the
schools that were visited.
Once a sample of schools was selected, children were requested to read aloud into a small
portable audio recorder. The resulting low level of performance was consistent with that
found in national evaluations, but there was a novel difference in that the applied method
of evaluation in the schools and classrooms allowed the construction of standards linked
to a normal in-classroom task (reading aloud) and from a textbook rather than only from
indicators based on one annual exam.
1
Luis Crouch, a Research Vice President at RTI, was the lead and senior economist carrying out the studies and
dialogue in the education sector under the RECURSO project, directed by Daniel Cotlear, sector leader in the World
Bank’s Human Development Department covering the Andean Countries in the Latin America and the Caribbean
Region. RECURSO was co-financed by the World Bank and the British Department for International Development
(DFID).
2
Daniel Cotlear, ed., Un nuevo contrato social para El Perú: ¿Cómo lograr un país más educado, saludable, y
solidario? and English edition, A New Social Contract for Peru: An Agenda for Improving Education, Health Care,
and the Social Safety Net (Washington, DC: World Bank, 2006). Individual authors included Betty Alvarado Pérez,
Leah Belsky, Livia Benavides, Daniel Cotlear, Luis Crouch, Pablo Lavado, Rony Lenz, José R. Lopez-Cálix,
William Reuben, Cornelia Tesliuc, Sofía Valencia, and Richard Webb.
1
The overall results—which, as noted above, showed the low quality of education—were
conclusive particularly since they accorded with Peru’s own (more complicated)
assessments. Thus, the feasibility of this low-cost methodology for performance appraisal
in-classroom was successfully tested. It was found that about one third of children at the
end of second grade, for example, could not read. Taking these nonreaders into account,
the average reading speed was only about 29 words per minute, as compared to a possible
standard of 60 words per minute. Other data were collected, for example on school
effectiveness, by comparing effective to less effective public schools, and public schools
to those of Fe y Alegría (a religious affiliation that runs schools in Latin America).
In addition to this primary data collection, a large amount of research was carried out
based on secondary sources of data. Importantly, the research involved a careful review
of the literature by Peruvian authors, and took this literature seriously.
The next step was to transmit the findings and recommendations to the clients, namely
policy makers and community, including think tanks, parents, and leaders with a
recognized political voice. The strategy used media instruments (specifically a video) to
generate awareness about the issue of educational quality and to stimulate debate on
possible solutions.
Parallel to the fieldwork, the core team began consultations and dialogue, mainly with
governmental agencies and think tanks involved or interested in the education sector.3
Also, a plan for further dissemination was outlined, including better identification of
stakeholders. The implementation of the plan finished with large conferences and small
workshops, in which more than 2000 attendees participated at the end of January 2006.
Local partners mobilized academia, civil society, and the media. Local leaders, such as
parent-teacher association (PTA) presidents from dozens of PTAs, participated directly in
discussing and advocating for the proposals. In addition, a series of press releases was
prepared, which resulted in requests for television interviews with the authors of the
reports noted above during prime-time broadcasts. The programs received high ratings
(especially considering the technical nature of the subject matter). One of the two leading
political parties appropriated the key message for its governance plan. Even after almost
three months of conference presentations, spontaneous comments of specialists and
politicians supporting or rejecting the proposal continued in the media. While the public
reception of the results obviously was not unanimously positive, the successes in putting
on the agenda the issues of education quality and simple, parent-level standards, were
clear.
What made this process successful? A series of factors contributed. Among the most
important were the facts that the dialogue was initiated at an early stage (during the
fieldwork); that the body of recommendations was built upon solid research and gave
credence to research by Peruvians; and that the team was made up of national and
3
RECURSO also carried out consultations and dialogue on other topics such as health, social protection, human
resources, political voice, and social expenditure.
2
international specialists, creating a synergy of local knowledge and best international
practice. Also, the process involved nearly two weeks of intense final dissemination
activities, during which the World Bank set up conferences in locations close to the
participants. It also relied on media instruments, such as videos, to facilitate the
communication. The importance of dramatic videos, as opposed to speeches and
PowerPoint presentations, cannot be overstated.
What lessons can be drawn from the success of this process? The most important are the
following.
•
Research findings must be transmitted via simple language, and should be
packaged along with attractive and value-added media products such as videos.
This requires constant and intense interaction between the research side and the
video production team. In this case, the video team received detailed comments,
with minute and second markers, from the researchers, over several drafts of the
video. The video producers should not be expected to simply produce directly
from the research results without ongoing, fine-grained, and intense interaction.
•
Clients and beneficiaries must be clearly identified. Events and products should
be adjusted according to the profiles of the clients and beneficiaries. For example,
in this case, two videos were prepared, one for policy makers and another for
parents. Each video had a different message that matched the clients’ likely
interests, even though both videos used the same information from the same
research and, almost, the same filmed scenes. Even if one prioritizes one group
for targeting the dissemination, it is important to have products that target the
audiences yet share the same information base.
•
It is important for international and local groups with the same interests (such as
the right to quality education, or the need for simple standards) to create alliances
to increase the chances of success. Otherwise, separate recommendations might
compete with each other or with conventionally held views. The ideal allies, local
or international, are those with experience mobilizing and convening local
stakeholders. For example, a university can organize a massive conference, but a
local development project can invite local leaders and public service users to that
conference to see the video aimed at parents and to discuss the issues highlighted
by the video.
•
Likewise, one should consider the role of public and credible leaders to
advocate for the recommendations. In this process, the message was intimately
linked with children’s right to learn and parents’ right to know whether their
children are learning. This framework was very appealing to Peru’s Human
Rights Ombudswoman, who championed the approach in education, and also
immediately applied the same framework to the health sector.
•
Mass dissemination in the media is key, including radio, the Internet, TV, and
the published media. “Dissemination” refers not only to the messages themselves,
but also to notices about seminars and live events. This is needed to generate
3
interest in the live events, prior to their taking place, but also to continue echoing
the message after the live events. The availability of printed and Web materials
increases the accessibility of the dialogue.
•
It is key to have slogans and simple messages that can be understood easily by
anyone. In this context of reading performance, a catchphrase such as “An eightyear-old child should be able to read a 60-word story in one minute and should be
able to answer three comprehension questions” helps focus audience attention on
what one means by a “standard.” In addition, having a policy message of no more
than three actions (“set standards,” “set accountability based on standards,” and
“develop teacher support programs based on the learning standards”) is key to
having audiences (even sophisticated audiences) remember the message well
enough to discuss it. More complex messages can be left for the technical reports
that will be read by specialists.
•
It is important that all of the broadcast or large-audience dissemination materials,
including PowerPoint presentations, be backed up by technical reports. In this
case, the broadcast dissemination materials were backed up by a 150-page
detailed technical report and policy recommendations, as well as a 20-page
version of the same, and some shorter policy notes and abstracts.
The videos referenced in this section can be found at the World Bank/Perú’s Web site. 4
(The reader should note these videos are in Spanish.)
4
The World Bank, Un nuevo contrato social para El Perú – videos [Spanish-language videos],
http://web.worldbank.org/WBSITE/EXTERNAL/BANCOMUNDIAL/EXTSPPAISES/LACINSPANISHEXT/PER
UINSPANISHEXT/0,,contentMDK:20844760~pagePK:141137~piPK:141127~theSitePK:501764,00.html
(accessed on May 22, 2006).
4
The Background Report and the Need for Policy
Dialogue
The dialogue was part of the “Accountability and Governance in Social Sectors in Peru”
project, known by its Spanish acronym RECURSO5 and implemented by the World
Bank, co-financed by DFID. The project was an effort to raise the question of
accountability in the social sectors in the political agenda during the run-up to the 2006
presidential elections and to provide the future government with policy advice on
evidence-based options on how to approach social sector development and poverty
reduction. The project focused on three sectors (education, health, and social protection)
and three cross-sectoral topics (public expenditure evaluation, political voice, and human
resources).
It was not the first time international institutions had prepared background reports for
incoming governments. What was different, then? The answer: The project gave equal
weight to the robustness of the analysis, the substance of the message, and the vehicles to
transmit the messages. Specifically, a plan was designed to disseminate the findings. This
education study led to special outcomes because dissemination was reinforced by the
production of an attractive communication tool (a video).
The rest of the paper describes the process of dissemination as applied specifically to this
education study. The next section presents the research methodology, information about
the construction of an attractive message related to indicators of school quality, and ways
in which a video can help to transmit the intended message and foster dialogue.
Rapid Appraisal Used During Fieldwork
Although the education study involved a great deal of secondary data analysis, key
informant interviews, and literature reviews, the research base for the video was field
work carried out specifically for this policy dialogue process. This field work focused on
reading and school management. The nature of the field work can be described as
follows.6
1.
Twenty-two schools from the poorest 40% of the income distribution were chosen
from various locations in Peru. For comparison purposes, some specific public
and private schools with good performance were included.
2.
In each school, five children from each of grades 1 and 2 were chosen at random
to take a reading speed test (total 245 children).
5
Rendición de Cuentas para la Reforma Social.
Taken from Helen Abadzi et al., “Monitoring Basic Skills Acquisition Through Rapid Learning Assessments: A
Case Study from Peru,” Prospects 35 (June 2005): 137-156.
6
5
3.
A passage from the official grade 1 text was chosen. Children were asked to read
it aloud, and were given three simple comprehension questions. The passage was
chosen from near the back of the grade 1 reading text, as the field work was done
during the last few weeks of the school year. The same passage was used for
grades 1 and 2 so that progress between the two grades could be assessed. Similar
texts were selected in local languages like Quechua in bilingual communities. The
text was modified somewhat for simplicity and cultural appropriateness to poor
schools. The text length was kept at 60 words, so that for a rather good reader the
test would take about one minute.
TEXT BOX 1. Reading text in Spanish: Dogo
(The story of a little puppy)
Había un perrito gordo y peludo llamado Dogo.
La familia con quien vivía lo quería mucho.
Dogo era un perro obediente, cuidaba la casa,
pero no comía toda su comida. Un día salió de
paseo con su amo Lucas y se perdió. Lucas se
puso triste, pero felizmente Dogo apareció al
rato. Lucas lo cargó y lo llevó a su casa.
6
Reading comprehension questions
1. ¿Cómo se llamaba el perro?
2. ¿Con quién vivía el perro?
3. ¿El perro comía toda su comida?
4.
Each child’s reading was recorded on a portable digital audio recorder. Basic
information about the child (age, gender, whether he or she had attended preprimary education), as well as the reading speed, tone, and comprehension
questions was recorded very quickly and accurately. The procedure made it
possible to test each child in approximately two minutes, making the evaluation
process easy and non-expensive. Furthermore, the recorded reading could then be
downloaded later to a personal computer, for analysis. The idea for carrying out
this sort of rapid test grew out of work previously carried out by the Independent
Evaluation Group (IEG) of the World Bank, on a smaller scale.
5.
The experiment took place two weeks before the end of the school year.
6.
In addition, quite a few questions were asked of teachers (two), the principal, and
parents (two, if possible). In addition, four classroom observations were taken per
school. The idea was to assess what correlates of quality could be ascertained
from these other actors, given that the team was already visiting a given school,
and that the time of travel was the biggest cost.
Dani, a seven-year-old in a well-functioning public
school, was able to read the passage in much less
than 60 seconds, and answered all the questions. He
understood the challenge and was proud of himself.
Well-functioning schools from urban and rural
settings were used in the video to provide
dramatic contrast with the majority of schools,
which are not functioning well.
Results
The analysis captured information on reading speed, comprehension, the correlation
between them, and the variability among types of schools and locations. Also, the task
made it possible to construct a possible benchmark of good reading performance in the
early grades in Peru using the data from the “relative” best schools in the sample.
•
Only 25% of the first graders and 41% of the second graders were able to read
one or more words in the text. On average, the reading speed was only 9 words
per minute in grade 1, far below the most modest Latin American standards of 30
words per minute. The rate was 29 words per minute in second grade, where a
modest standard would be some 60 words per minute.
•
The level of comprehension, measured as the number of correct answers to the
three comprehension questions, correlated 82% with reading speed. Children who
could answer all three questions correctly read at 77 words per minute on average,
whereas children who could answer only one or two questions read at an average
of 15 and 41 words per minute respectively.
•
The resulting scores were low and showed great variation among schools of
similar socioeconomic type, especially in the rural areas. Private and urban
schools were more likely to have higher scores.
•
Importantly, the research itself can contribute to the establishment of
benchmarks or standards. While using international research and existing
benchmarks from other countries, the simple study of the in-country variability
shows that even schools in rather poor rural areas can achieve good results if they
apply themselves. For example, 35 words per minute might be proposed as a
benchmark for urban schools in grade 1 (the speeds in the best three schools in the
sample were 54, 39, and 26, in different types of schools). For grade 2, a standard
7
of 70–80 words per minute could be proposed (speeds in the best three schools
were 96, 77, and 67, in different type of schools). The interesting fact was that
these benchmarks, based simply on observation of Peru’s own internal variation,
closely fit those used in Chile, or those used in the United States for identifying
at-risk Hispanic children in bilingual transition programs.
•
Of the 54 teachers surveyed in the sampled schools, 94% said they set specific
goals, and many gave reasonable answers (i.e., specific, consistent with
professional recommendations) on how they set goals and what they were.
However, only 41% of teachers claimed to set their goals based on guidance from
the ministry or other education authorities. The research showed that clear
performance standards on reading do not exist or are not used in Peru.
•
A full 80% of teachers, and 95% of the principals, considered that the curricular
structure is too hard to apply or is inappropriate. Only 13% of teachers claimed
that they had received support at their request, while 72% of teachers responded
that there is no specified mechanism for reporting on problems and requesting
support.
Transmitting Results: “From Research Paper to Screen”
The results listed above and other conclusions were made available through technical
reports. These reports were comprehensive studies—robust enough to initiate the policy
dialogue. However, the audience for such reports, or even for summary versions, which
were also produced, is generally limited to think tanks and technical-level policy makers
(or advisers). The general public, policy makers in other sectors (such as economics), and
high-level policy makers even within the education sector, typically will not read a
technical report. Furthermore, tools are needed to stimulate reading. Using catchy
dissemination tools can generate a “buzz” that will motivate the reading of more
technical reports.
Thus, three elements were made available initially: (1) statistics on child performance
and school management variables affecting on performance, based on the survey of
reading speed and comprehension; (2) conclusions and recommendations of the main
report, packaged as three “pillars”: standards, accountability, and support to teachers to
accomplish the standards; and (3) identified groups of stakeholders to continue the policy
dialogue. While the point of the analysis was to feed into a policy dialogue process, the
main dissemination tools planned up until that point included the usual printed materials
and PowerPoint presentations in seminars.
During the process, audio recordings of the children reading, and the dramatic contrast
between proper reading by some poor children, and the more usual labored reading by
others, were used in policy dialogue sessions. These audio recordings had been made
during the research, and thus were available digitally and could be incorporated into
PowerPoint presentations. The team members noticed that dramatizing the contrast
8
between proper reading and bad reading, using audio, was extremely effective in reaching
and touching the audience’s emotions. It is one thing to note in a technical report that one
child can read 75 words per minute, and another only 20, but it is another thing to hear it.
In this context, team members proposed the idea of a video. The objective was to present
the information of the report through a clear message that was instrumental enough to
convince and probably change the “social” behavior of the spectator—as in social
marketing. The rest of this section describes the resulting video and its production
process in detail.
An important challenge was to maintain the “academic” results and at the same time be
attractive enough to capture and keep the attention of the observers. Specifically, the
terms of reference for the video set the parameters of the scope of work:
1.
Show some children (girls and boys) who can read fluently and others who can
read much less fluently, in urban and rural areas. Document the performance
visually and audibly.
2.
Present the conclusions and recommendations under the three pillars: standards,
accountability, and support for teachers.
To lend credibility to the project, the video producer/director had to show a clear and
unbiased methodology during the video production. The procurement process to select
the video producer/director looked for companies and individuals with previous
experience in the social sectors, but also with top-notch private or commercial video
production qualifications. Needless to say, the quality of the sound and filmed scenes and
the general assembly are crucial to obtain a fine product.
It was also realized that the message could not be presented under the same wrapping for
all the stakeholders. Instead of a “one size fits all” video, two videos were designed: one
for parents, strengthening the message of rights and accountability, and a second one for
policy makers, stressing the message that they have to meet the demand for
accountability from parents, by establishing standards, being accountable for meeting
standards, and providing support to meet those standards.
To keep coherence between the main report and the video, it was decided to hire the
consultants who had contributed to field work that was used for the technical report. They
not only would advise on the content of the scripts, but also would supervise the video
production team for accuracy and appropriateness of the methodology and information
shown in the video. Moreover, the selected consultants had themselves been involved in
the past in the development of pedagogical support to improve reading performance.
Their support was then actually twofold: supervise the scripts (see Annex 1 for Spanish
text of final scripts), and identify relatively “good schools” to complement the initial
survey and to provide auditory contrast. The video director proposed the content and
worked mainly on the filming and the technological assembly of the videos.
9
The whole team—from the project task manager to the video director—was aware that
the work with children in these issues was extremely delicate. No child’s feelings should
be hurt in any way during the production and presentation of the video. It was also noted
that even though the performance results were disappointing, there were successful cases
that showed there was hope for improvement.
To simplify the concept, it was decided to present in the video mainly the results and the
recommended standard for second graders, instead of showing both first and second
graders. The key phrase used as the main message was: “A child at the end of second
grade should read at least 60 words per minute.”
To expedite production and to avoid an uncomfortable situation for children and teachers
in the less fluent classrooms, the team decided to use the previous voice recordings
collected during the research survey. The sounds were used as input and complemented
with new recorded images. The video combined the sound of low-speed readers with
visuals of little nervous hands or feet, extreme close-ups of eyes, empty classrooms, and
other context images known as “B rolls.” This also ensured that no child who was an
actual or implied slow reader could be visually identified, but the viewers would not
realize that no slow-reading child could be identified.
The comparison group of good readers was constructed with students from selected
public schools with approximately the same socioeconomic characteristics as those where
the low performers were found, in both urban and rural areas. The scenes showed
children reading happily, loudly, confidently, and fluently. Some symbolic tricks and
instruments, such as a visual of a chronometer in the foreground, and audio of a ticking
clock in the background, were introduced to reinforce the concept of time within the idea
of “60 words per minute.”
The videos referenced in this section can be found at the World Bank/Perú’s Web site. 7
The Videos in Action
Elements and characteristics of the videos. Two slogans were constructed. One was set
at the introduction, indicating the importance of reading at the very beginning of the
education years: “Para mejorar la educación hay que comenzar por la lectura.” (To
improve education, one has to start with reading). This slogan set the scope and prepared
the spectators. The second slogan was used as a closing remark, underlining the fact that
children’s reading is the best indicator of a sector’s capacity to properly educate: “¡Niños
que leen bien, país que educa bien!” (Children reading well means a country educating
well). Both slogans appear on the DVD’s cover case, as shown below.
7
The World Bank, Un nuevo contrato social para El Perú – videos [Spanish-language videos],
http://web.worldbank.org/WBSITE/EXTERNAL/BANCOMUNDIAL/EXTSPPAISES/LACINSPANISHEXT/PER
UINSPANISHEXT/0,,contentMDK:20844760~pagePK:141137~piPK:141127~theSitePK:501764,00.html
(accessed on May 22, 2006).
10
Video for parents. The parent video reinforced the idea of the parents’ rights to know
and to monitor their children’s learning performance.
The video was structured in four parts. Part one
introduces parents to the idea of fluency and
comprehension and the need to use standards to
monitor reading and general learning
performance. The example of the standard for
second graders, namely “60 words per minute,”
is presented.
Part two presents the diagnosis and tells the
story of the survey in urban areas. Scenes of
children reading rather poorly are compared
with successful cases of students who read
fluently. A first sense of disappointment is
compensated with a feeling of hope that the job
can be done.
11
Part three introduces a complexity not expected by the parent. Results are generally bad
in rural areas, particularly in bilingual rural areas, but not uniformly so. Children are
tested in two languages, and it is shown that there are schools with accountable and
dedicated teachers who focus on reading, and whose students read reasonably well in
both Quechua and Spanish.
And finally, part four reinforces the message of the parents’ rights and invites them to
repeat the experiment at home. It suggests using an appropriate reading fragment for their
children and observing the speed or fluency. If the results are below the suggested
standard, they should go to school and ask the teacher about the possible problems,
implying (but not stating overly strongly) that they have a right to complain.
Video for policy makers. The video
notes that parents have a right to
expect their children to read well,
and tells policy makers that in order
to guarantee this, they have to (1)
create reading standards, (2) hold
actors accountable for getting to
these standards, and (3) provide
support to teachers so they can meet
the standard. The video was
constructed in four parts, much as
the parents’ video, but with different
emphases and detailed content.
The first part reminds the audience about the education sector’s performance in terms of
coverage and quality. It recognizes that great advances have been made in coverage, but
that quality is low. It refers to Peru’s own testing results, which similarly find that quality
is very poor. But it states that these results require expertise in interpretation. It then notes
that a simpler reading test can be done that more dramatically illustrates the problem, and
shows the results of these tests.
The opening of the video creates a sense of anxiety or desperation. The audience is
expected to be shocked by a message that “poor children could only read 10 to 15 words
per minute, or that 35% of children could not read at all.” (This is later compensated by a
message of hope, as in the parents’ video, by contrasting the schools where children read
poorly to one where children can read quite well.) The relation between fluency and
comprehension is explained. At the end of this introductory part, the Ministry of
Education is challenged to begin establishing simple reading standards for monitoring
performance.
12
Part two is very similar to the second
part of the video prepared for
parents. The film first shows children
in urban areas reading less fluently.
These children are then compared to
a group of children, also in urban
areas, reading with the “standard”
fluency of 60 words per minute or
even better.
Part three asks why some schools are
more successful than others. New
actors appear on scene to explain that success is due to the school principals’ and
teachers’ use of standards and goals. This information leads into a discussion of the three
main recommendations for the policy makers: standards, accountability, and teacher
support. This “mantra” is repeated several times during the video.
To close the film, the same oral reading exercise is repeated with children in the rural
areas in two languages, in a successful bilingual school. This reinforces the idea that in
poor, rural, bilingual areas it is also possible to succeed, as long as the teachers are clear
about goals and focus on results. The message is that rurality and social origin are no
excuse for failure.
The final message invites the policy-maker audience to work on standards, to support the
teachers in reaching the standards, and to create systems whereby schools and teachers
can be held accountable by parents.
13
Policy Dialogue and Dissemination
To understand the role of the video it is important to note the overall context of policy
dialogue. The RECURSO project had an original plan for policy dialogue and
dissemination, but this was designed, updated and adjusted according to the demands of
the political environment at any given moment. The whole process, graphed in figure 1,
included intermediate consultations carried out while the research process and writing
continued prior to the final products.
The final products used to
back up the dialogue were a
comprehensive report on the
education sector
(forthcoming), two published
books on the RECURSO
project’s analyses and
recommendations (in both
Spanish and English; see
Spanish cover below),8 many
PowerPoint presentations,
and of course, the two videos
under discussion. The scheme
of the policy dialogue process is shown in figure 1. This figure summarizes, chronologically, from left to right, how the whole process evolved, beginning with the design of
the project and continuing through stakeholder identification, field work, first round of
dissemination, adjustments and productions of reports and videos, and finally two
intensive weeks of meetings, conferences, and media interviews.
8
Daniel Cotlear, ed., Un nuevo contrato social para El Perú: ¿Cómo lograr un país más educado, saludable, y
solidario? and English edition, A New Social Contract for Peru: An Agenda for Improving Education, Health Care,
and the Social Safety Net (Washington, DC: World Bank, 2006).
14
Figure 1. The Plan and Process of Dissemination
PRODUCTS AND ACTIVITIES
FRAMEWORK AND INPUTS
National political
and economic
environment:
2006 presidential
and congressional
elections
Dissemination plan based on ad hoc
designed meetings tailored to
stakeholders. Implemented with local
partners.
Applied
research
designed and
developed
(field work)
Point of
departure:
The need and
opportunity for
policy dialogue
on social policy
in time for
election debate
Framework: World
Bank’s World
Development Report
2004 accountability
triangle
Partnership: The
United Kingdom’s
Department for
International
Development (DFID)
Stakeholder
and audience
identification,
national and
international
Final results
presented as
different products
(research papers,
book, videos,
TV appearances,
etc.)
Primary
consultations
with ministers,
think tanks,
sectoral forums
First approach to
political parties
Main stakeholders:
Human Rights
Ombudswoman,
ministers, think tanks,
civil society (forums,
parents’ associations,
political parties’ planning
groups, National
Education Council,
independent
intellectuals, etc.)
Policy paper: Education:
Standards, Accountability
and Support. (Long version
of technical report.)
Forthcoming publication.
Book: A New Social
Contract for Peru,
distributed free during the
dialogue. Published in two
languages.
Two videos: For parents
and authorities. Main
message: standards,
accountability and support.
One video was shown at
each meeting and was
distributed free during the
dialogue.
Article in UNESCO’s
scholarly journal
Prospects, summarizing
the nature of the research
and the rapid appraisal.
Main conference (Lima) implemented
with academic think tank partner. 800
participants (policy makers, civil
society, NGOs, think tanks, etc.)
Two decentralized meetings in
outskirts of Metropolitan Lima with civil
society leaders, local authorities,
parents’ associations, food support
programs (Glass of Milk, soup kitchen
representatives etc.)—300 and 400
participants at each. In collaboration
with development project of European
Union and Ministry of Women and
Human Development.
One regional meeting in Lambayeque
with regional authorities and staff from
regional government and education
sector. Other public agencies, civil
society. 400 participants. Organized
with the regional government.
IMMEDIATE EFFECTS
Support came from media
leaders, think tanks,
academia and politicians.
Intercampus conference
(organized by a well -known
university, one partner)
requested to show the
video for the “Presidential
debate on proposals to
improve education.”
Estimated audience of
1,000 at conference.
One of the top political
parties, U.N., included a
standard of performance in
education in proposed
governance plan.
The dialogue created an
environment of awareness
of the problem and the
proposal, even with those
who opposed it.
Lunch meeting with private sector
Meetings with four political parties.
Top contenders according to polls
(Lima; additional meetings were
arranged in Washington, DC).
Meetings arranged as per demand
with strategic stakeholders: Ministry of
Economy, Ministry of Education
Media instruments – TV and radio
interviews, magazine articles, written
briefs distributed to the media, taped
conference on cable TV, video on the
Internet
The work described in this document and the process indicated in this diagram were funded by the World Bank and
the British Department for International Development (DFID) unde r the RECURSO Project.
15
Dissemination Events
RECURSO disseminated its findings to a large and varied audience. The primary
identified groups were:
•
Political parties running in the 2006 presidential elections (the top four, according
to the polls at the time of dissemination, were chosen for the policy dialogue)
•
Political and Peruvian social leaders
•
Think tanks, academia, and research institutions
•
Public sector heads and specialists (executive, legislative), subnational authorities,
and technicians
•
Human Rights Ombudswoman’s office
•
Private sector representatives (from large to micro enterprises)
•
Community-based organizations (CBOs), PTAs and other parents associations
•
Nongovernmental organizations (NGOs)
•
Civil advocacy groups
•
International community in Peru
•
Media.
The project had three rounds of dissemination meetings. The first set was carried out
during 2004, aiming to exchange preliminary findings of the diagnosis. These meetings
were basically organized as workshops. The second round took place in mid-2005. For
the case of education, meetings were organized with the Minister of Education and
advisors, Foro Educativo (an education policy dialogue NGO), think tanks, and three
political parties (similar meetings were organized for the other sectors).
The third round of dissemination meetings, identified here as final dissemination events,
took place during nearly two weeks of intensive effort at the end of January 2006. The
events were:
1.
One main conference, with an audience of 800 participants and two ministers
attending the opening remarks and the education presentation,9 and the Human
Rights Ombudswoman as keynote speaker.
2.
Meetings with four political parties, at least two meetings per party, with written
informal feedback provided.
3.
One conference with the private sector, with 12 top entrepreneurs. A possible
agreement to finance outstanding teachers was discussed.
According to the attendees database, 20% were from the social sectors, 15% from the executive and legislative
branches, 7% from subnational governments, 34% from civil society and NGOs, 17% from think tanks and
academia, and 7% from the private sector and independent consulting firms.
9
16
4.
One meeting in the northern outskirts of Lima (Lima Norte), with an audience of
300 participants.
5.
One meeting in southern outskirts of Lima (Lima Sur), with an audience of 400
participants and with the participation of the Human Rights Ombudswoman as
keynote speaker.
6.
One meeting in Lambayeque Region, with an audience of 400 participants and the
Regional President as sponsor and presenter of the opening remarks.
7.
Specialized meeting with Ministry of Economy and Finance (MEF) and Ministry
of Education (this meeting was requested by the MEF).
At all the above meetings (except with MEF), one of the videos was shown, chosen
depending on the audience. The books were distributed to each participant at the main
conference, the private meetings with political parties and the private sector, and the
Lambayeque Region meeting. The video was distributed to each participant in the
outskirts of Lima and in Lambayeque Region. The distributions to individuals and to
selected institutions such as universities and libraries nationwide continue upon request.
To be able to conduct a series of meetings in a short period of time (1½ weeks), the team
sought local partners who had been working with the particular group of beneficiaries for
each conference (except meetings with political parties, which were organized directly by
the World Bank staff). The good reputation or credibility of the entity or agency to be
selected was considered because the success of the process hinged on it. The benefit of
working through local partners was to get the right audience and large attendance. The
World Bank heavily relied on the partners to identify the attendees and deliver the
invitations. However, the study team provided some quality oversight and consultation on
the participants. At all the events, the actual audience was larger than expected. Table 1
shows a summary of the events.
Complementary Activities
Parallel to the dissemination events, some marketing and other dissemination instruments
were implemented by the team, such as:
•
Broad and constant information to the media before and after the central week of
the event
•
Interviews on radio and cable TV for the project task manager and RTI education
specialist
•
Special news article and interview in political magazine (Caretas)
•
Presentation and availability of book, videos, and conference handouts via a Web
page under construction.
•
Preparation of a special short film edition of the conference for TV. Films will be
placed in the National Library of Peru.
17
Annex 2 shows some press releases. Some of them were informative and others were
spontaneous expressions of support to or rejection of (which in any case shows
discussion and interest) the ideas under discussion. Part of the pending plan is to prepare
short slogans in different languages to present them on radio stations with rural coverage.
18
Table 1. RECURSO: Implemented Dissemination Plan, January 2006
Meeting
Partner
Central Conference
Universidad del Pacífico
One full-day major event in a hotel
located downtown. Invitation
distributed by e-mails, cards, radio,
TV, newspapers.
This institution had experience in
well-known seminars and
conferences.
Regional meeting
Regional government of
Lambayeque
Half-day event in Lambayeque
Region.
Invitations were distributed by the
regional government using its
database.
Meeting with the private sector
Regional President has a high
acceptance ratings among his
constituents.
Target Population
Activities in main event
300 to 400 participants were expected,
but actually 800 persons attended the
conference. A room with closed-circuit
television was set up to accommodate the
overflow.
Keynote speaker: Human Rights
Ombudswoman.
Regional and municipal government
authorities and staff, community/civil
society, political local leaders, think tanks,
academia, private sector and NGOs,
media.
Keynote speaker was the Regional President.
Expected audience: from 200 to 300.
Actual participants: 400.
The presentation on education included a
showing of the video. The book A New Social
Contract was distributed at the end of the
conference.
A DVD and book were distributed to each
participant.
CONFIEP, the main private sector
association.
12 representatives of main companies.
participant.
Implemented directly by the World
Bank Resident Mission Office in
Peru.
Four top contenders according to polls.
participant.
Small meeting at lunchtime.
Four meetings with the political
parties running for next elections. In
some cases there were multiple
meetings at their request.
Each party decided the size of the team
attending the meeting. Some parties sent
as many as 15 members of their
government planning teams.
19
Meeting
Partner
Meeting in Metropolitan Lima, South
area (Lima Sur).
PROPOLI. Project to Fight Poverty
in Metropolitan Lima. Project
financed by European Union and
Ministry of Women and Human
Development; covers 11 poorest
districts.
Half a day (late afternoon/evening).
The South is home to the poorest
area in Lima.
PROPOLI has been in contact with
main community-based
organization (CBO) local leaders
and members.
Target Population
CBOs and local leaders (parents
associations, leaders of food assistance
programs, mayors, council members,
NGOs, other public agencies located in
the area).
Expected audience: 250 to 300. Actual
audience: 400.
Organized during one evening to facilitate
the attendance of working-class
participants.
Activities in main event
In order to choose an event, organizers first
visited places where the community holds
meetings, such as participatory budget
meetings.
The selected venue was the Instituto
Nacional de Bienestar Familiar (INABIF)
building in Villa Maria del Triunfo. This is an
agency that cares for children of working
parents during the day. Site located in one of
the poorest districts of Lima.
Keynote speaker: Human Rights
Ombudswoman.
A DVD was distributed to participants.
Meeting in Metropolitan Lima, North
area (Lima Norte).
Half a day (afternoon and evening)
PROPOLI Project. See above.
CBOs and local leaders (parents
associations, leaders of food assistance
programs, mayors, council members,
NGOs, other public agencies located in
the area).
Expected audience: 250 to 300. Actual
attendees: 300.
20
After visiting and exploring various possible
venues, the study team decided to organize
the event in a well-known venue where the
CBOs normally gather to discuss community
matters or participatory budgets, the Buen
Pastor church.
A DVD was distributed to participants.
Effects and Externalities
Numerous press releases reflecting support and rejection of the proposal. Up to the
writing of this document (April 2006), two months after the main dissemination events
(January/February 2006), the issue of the standards and the benchmark of the “60 words
per minute” still were appearing in newspapers and on TV. The articles can be organized
into two groups: informative ones developed mainly by media analysts based on World
Bank reports, and a second group of reports or opinion pieces written by specialists and
political individuals supporting or rejecting various components of the ideas. Annex 2
shows some typical examples. Opinion leaders writing in the media have included two
former ministers, academicians, liberal and conservative economists, and social
marketing specialists.
Additional showing of videos and report dissemination. The attractiveness of the
video production and the novelty and simplicity of its message have generated a market
for it.
•
The Universidad del Pacífico, a well-known private university, has been
organizing Presidential debates. As of this writing, it had organized the debate for
the agenda in education. The university requested and showed the video to an
audience of 1,000 attendees, before the candidates or representatives began their
speeches.
•
The scholarly article appearing in the journal Prospects (vol. 35, no. 2, June 2005,
pp. 137-156) has been translated at local cost by the Pontificia Universidad
Católica del Perú.
•
One political TV segment, La Hora N, showed the video (January 25, 2006) and
dedicated an extended segment of time to its discussion. The study sponsors
(World Bank and DFID) were not required to pay for these broadcasts. The show
was repeated the next morning.
•
Another important political TV program, Sin Rodeos, anchored by the wellknown Hans Landlot, showed the complete video for parents on April 16, 2006
(Sunday night), three months after the dissemination meetings and premiere
presentations of the video. The video presentation was used as an introductory
segment before the debate between two governmental plan coordinators from the
APRA (Partido Apristo Peruano) and Unidad Nacional parties. The TV show
was broadcast again the next Monday afternoon.
21
Open support from the Human
Rights Ombudswoman. The
Peruvian Human Rights
Ombudswoman has been a key
player in the process. Her early
support was an element of the
success but at the same time her
opinion in the matter had an
effect in the media. She
supported the framework of
accountability of the RECURSO
project and the three recommended pillars of education (standards, accountability, and
support) and has applied the same concepts to health and social protection (in her speech
at one of the conferences in Lima Sur, January 27, 2006). The notion of a standard of
quality in education as a matter not just of effectiveness but of human rights was an
important aspect of the RECURSO concept all along, in particular because of the
influence of DFID’s rights-based approach to sectoral policy.
Appropriation of the message: Incorporating the reading standard into political
party platforms. The chapters on education in the governance plan for Unidad Nacional
included a proposal to set national reading standards for school performance, specifically
“60 words per minute in second grade.” This probably is one of the most important
accomplishments. Measurement of the final impact, of course, will have to await
elections. It is also possible that other parties will be more circumspect in appropriating a
message associated with the World Bank during the campaign, but will act on it, or
something similar, after coming to power.
Factors Behind the Success
The main factors behind the success of this effort at using research results to drive policy
dialogue appear to have been the following.
22
1.
The policy message delivered was based on applied research, which increased its
credibility. References to Latin America and other international benchmarks of
performance were decisive and convincing. Doing original research while paying
much attention to existing Peruvian research helped.
2.
The dissemination process was initiated early, even while the research was being
planned. This factor worked especially well for the think tanks that were
consulted. Invitations to national expert commentators at the conferences, from
multiple institutions—including universities, the private sector, and civil
society—indicated an open and free environment for dialogue.
3.
Stakeholders were identified and products were designed based on the clients’
profiles and interests. Videos were designed according to stakeholders’ profiles
(for parents and for policy makers). The book was translated into Spanish and
published in Spanish before it was published in English—which might seem
common sense but is unusual for the World Bank.
4.
Products (book, articles, and video) supported each other. The articles and the
video carried the same message; the documents provided the statistical analysis
and the video put drama into the analysis and related it to everyday life. The
message regarding a reading standard was not only a number in a book—how this
standard “feels” was demonstrated with audio and video. The problem and
solution “had a face” that the audience could easily relate to.
5.
Partnerships for dissemination events were decisive and facilitated the grouping
of the attendees. Likewise, several dissemination events were held to facilitate the
attendance of different population groups. Appropriate location, venues, starting
time, duration, etc., were all key.
6.
The working team was made up of nationals and international specialists. Synergy
was created between the international and local specialists in education and the
experienced video producer. The inputs into the script were provided by the
education specialists and were matched by the producer with appropriate scenes
and locations. The researchers and the video director communicated frequently
and in great detail.
7.
The whole process was centrally orchestrated by team members whose role was to
keep the process going; this was not left up to the education specialists and video
producers alone.
8.
Invitations to the events, issued via radio and TV, generated large audiences.
9.
Ready-to-use communication tools (videos) facilitated additional TV broadcasting
for political programs whose producers normally order filming to present the case
under discussion. This increased the number of beneficiaries exposed to the
videos.
10.
In advance of any events, the media were contacted and analytical briefs were
made available. This was crucial to ensure publication of news articles and
interviews even before the same main conference, and to generate interest and
audience participation.
11.
Timing was critical. The policy dialogue was planned to happen in the three to
four months leading up to the 2006 presidential elections of Peru. This helped
generate interest and created a ready-made set of counterparts: the government
planning teams of all the key parties. They could compare the policy messages to
their own policy agendas.
23
12.
24
Current political appointees in the ministries helped the interaction, facilitated
data availability, and were open to further discussion. Ministers in Education and
Health participated as senior technical officials and did not oppose the Bank
presentations, even though they did not necessarily support every aspect of the
proposals.
Lessons Learned
In retrospect, the following lessons learned can be derived from the process.
1.
It is not necessary to reinvent the wheel. One can look for international and local
allies and partners with the same interests, to make one’s voice louder and reach
potential beneficiaries. There are experienced agencies in most countries already
working with most possible target populations.
2.
It is key to begin the dissemination process at an early stage of the research, in
order to reinforce the policy dialogue. The research must acknowledge and deeply
interact with the national specialists’ contribution and advances. This will help in
the appropriation of the message.
3.
It helps to have unbiased or nonpartisan local leaders openly advocate for one’s
proposals. This creates positive externalities and generates credibility.
4.
Openness to criticism and comments is important. Many parties will disagree with
just about any message that challenges received wisdom and the status quo. One
has to build up dialogue by incorporating positive and negative critiques into the
proposals.
5.
Creating working teams composed of experienced national consultants and
international specialists is useful. Nationals’ knowledge (of the stakeholders’
interests and customs, as well as of specific policy nuances) complements the
international advisors’ experience.
6.
One has to clearly identify different audiences for the message, and the
dissemination products have to appeal to their characteristics. The participation of
nationals or local consultants in both the research and dissemination processes can
help ensure the appropriateness of the messages. In addition, one needs to tailor
the type of meeting, not just the type of message, to the audience. Some groups
can be invited to large and open conferences; other groups work better in private
workshops. If one is planning to disseminate results to civil society, it helps to be
aware that these audiences have long working hours and that attendance at a
workshop can carry a cost (paying transportation and/or missing work). Thus,
even if these audiences are interested, such costs can be a barrier to them. In the
experience documented in this report, the team decided to organize the conference
in the same peripheral districts and venues where the communities normally
gather and discuss community matters, and during the evenings. As one
participant said at the meetings prepared for civil society groups, “I always saw
you on TV or heard you organize your conferences in expensive hotels. Thank you
for coming to talk to us here.”
7.
It is very helpful to combine research findings with media products such as
videos. This helps reach more beneficiaries. The videos, however, should be
25
backed by solid research evidence, ideally custom-gathered for the exercise, but
in line with previous local research. The language used needs to be expressive and
understandable. The presenters have to be able to interact with the audience, not
simply present, as in a technical or research setting.
26
8.
To produce high-quality video or communication products, the research team and
the production teams have to interact constantly and deeply, starting with the
design of the script. It helps a lot if the researchers provide the first sequence of
ideas or even sentences that should be included in the script. The producer also
has to study the research report to appropriate the methodology, results, and
proposals. The idea of the video (at least for some audiences) should be to
stimulate the viewer to want to read the book, or the technical report. It is
fundamental that the video director be an experienced national, especially when in
developing the video one has to interact with local beneficiaries and children all
over a country.
9.
It is a good idea to support products and messages with additional massive
disseminations in the media, not just about the message, but about the events
where the message will be disseminated. The message has to be transmitted, but
the message itself also has to become a celebrity. One should also program
follow-up activities after the premiere event presentations, in order to maintain
social memory: produce more press releases, create a Web page with the
documents, make sure the videos or articles are available, prepare slogans, and
use social marketing methodology to enrich the process. In short, one should
emphasize place (go where the beneficiaries are), product (book, press, videos),
price (reduce the costs of listening by negotiating free materials), and promotion
(invitations, information in advance and as follow-up).
10.
Timing is key. One should explore the best timing to begin or sustain the
presentations, releases to the press, publication of books and brochures, and
discussions with specialists. In a “macro” sense, for example, the lead-up to an
election is a good time. But the lead-up to discussion of a key bill in Parliament,
for example, might also be important in a “micro” sense.
References
Helen Abadzi, Luis Crouch, Marcela Echegaray, Consuelo Pasco, and Jessyca Sampe.
“Monitoring Basic Skills Acquisition Through Rapid Learning Assessments: A
Case Study from Peru.” Prospects 35 (June 2005): 137-156.
Cotlear, Daniel, ed. 2006a. A New Social Contract for Peru: An Agenda for Improving
Education, Heath Care, and the Social Safety Net. Washington, DC: The World
Bank.
Cotlear, Daniel, ed. 2006b. Un nuevo contrato social para El Perú: ¿Cómo lograr un
país mas educado, saludable, y solidario? Washington: Banco Internacional de
Reconstrucción y Fomento/Banco Mundial.
27
Annex 1: Scripts and Sequence of the Videos
A. Spanish Script for the Video for Parents
Written message on the screen:
“PARA MEJORAR LA EDUCACIÓN HAY QUE COMENZAR CON LA LECTURA”
Narrator (voice)
“Para aprender a leer, no basta con memorizar el abecedario.
Leer con fluidez, comprendiendo lo que se lee, es una de las metas de la alfabetización.
Según los expertos, en primer grado los niños deben aprender a leer y entender lo que leen. En segundo
grado deben mejorar su fluidez, vocabulario y comprensión.
Por eso en los países más adelantados en educación a los niños se les pone metas de aprendizaje de
lectura. Por ejemplo, en América Latina, un niño que termina el segundo grado debería leer
tranquilamente 60 palabras por minuto.
A esto se le llama un estándar, y es la mejor forma de medir cómo progresa una persona.
Lamentablemente en el Perú la mayoría de escuelas públicas está por debajo de un nivel aceptable.
El Banco Mundial hizo una prueba sencilla de lectura. Elegimos al azar a 136 niños de 2do grado de
escuelas públicas de todo el país a quienes se les pidió leer un párrafo de 60 palabras. Este fue el
resultado.”
“FLUIDEZ PROMEDIO 10-15 PALABRAS POR MINUTO”
“Y DE LOS 136 NIÑOS 35% NO LOGRO LEER UNA SOLA PALABRA”
Narrator (voice)
“Sin embargo, en el Perú, SI existen escuelas públicas que alcanzan el estándar promedio e incluso lo
superan. Visitamos algunas de estas y elegimos a niños representativos de segundo grado para realizar la
misma prueba de lectura y este fue el resultado.
Estos niños de 2do grado de una escuela pública superaron el estándar. Leyeron 60 palabras en menos de
un minuto.
Con la lectura ocurre algo que puede sonar contradictorio pero es cierto. A mayor fluidez existe mayor
posibilidad de comprender lo leído.
¿Y sus hijos, cómo están leyendo?
28
Al finalizar el segundo grado, ¿están leyendo a un ritmo de 60 palabras por minuto y entienden lo que
leen?
El Perú es un país de muchas culturas y lenguas. El quechua es una de ellas.
Decidimos hacer la misma prueba de lectura que en Lima en una escuela rural bilingüe a niños de
segundo grado. Esta vez la lectura se hizo en dos lenguas, primero en quechua.
Y luego en castellano, con los mismos niños.
Ni la gran distancia que estos pequeños deben recorrer cada día para llegar a su escuela, ni el aislamiento
de la capital han sido un impedimento para que estos niños aprendan a leer en dos idiomas con buena
fluidez y excelente comprensión, y alcanzando los estándares, como ocurrió en esas otras escuelas que
visitamos en Lima.
En la ciudad o en el campo los niños tienen derecho a aprender a leer correctamente en sus años iniciales.
Haga la prueba en casa.
Tome un libro con lecturas apropiadas para el grado de su hijo y haga esta prueba de lectura y
comprensión. ¿Son sus hijos capaces de leer 60 palabras por minuto al final de segundo grado o principio
de 3ero? ¿Entienden lo que leen?
Si sus hijos no están leyendo bien debe preguntarse por qué y hablar con sus maestros.
Al finalizar segundo grado deben leer 60 palabras por minuto.
En tercero deben leer 90 palabras.
En 4to 110 palabras por minuto, y así cada vez mas fluido. Y recuerde que en general la fluidez ayuda a la
comprensión.
Matricular a sus hijos en el colegio no es suficiente para garantizar su aprendizaje. Si un niño no aprende
a leer adecuadamente en sus años iniciales arrastrará este problema a lo largo de su vida educativa
atrasando y limitando su aprendizaje.
Usted como padre de familia tiene todo el derecho a EXIGIR que su niño pase esta prueba básica y a que
lo mantengan informado.”
“NIÑOS QUE LEEN BIEN, PAÍS QUE EDUCA BIEN”
29
B. Spanish Script for the Video for Policy Makers
“PARA MEJORAR LA EDUCACIÓN HAY QUE COMENZAR CON LA LECTURA”
Narrator (voice)
“Si nuestros niños están entre los últimos de Latinoamérica, ¿qué futuro nos espera?
El Perú ha tenido logros impresionantes en cobertura educativa, superiores a otros países de Latino
América. No hay territorio poblado donde no haya una escuela cerca. La mala noticia es que hay cantidad
de escuelas... pero no hay suficiente calidad de enseñanza.
La calidad educativa en el Perú es una de las más bajas de la región. Y las mayores deficiencias se
presentan en la educación estatal.
Según resultados de la Evaluación Nacional del 2004 tomado a 70 mil estudiantes, en el caso de 2do
grado de primaria, sólo el 15% de los estudiantes alcanzó el aprendizaje esperado en comprensión de
textos. En cuanto a los de 5to de secundaria, sólo un 9.8% está logrando el aprendizaje esperado en
comprensión de textos.
Desafortunadamente estas pruebas no están basadas en ninguna meta o estándar establecido y compartido
como meta educacional, ya que el Perú no posee metas y estándares específicos para los primeros grados,
y mucho menos estándares que los padres entiendan. Estas pruebas tuvieron que establecer niveles para
las propias pruebas—niveles que todavía no son metas reales y compartidas por la sociedad.”
Written message on the screen with speaker (voice) :
“PARA EL MINISTERIO DE EDUCACIÓN ESTABLECER ESTÁNDARES ES PARTE DE LA
AGENDA PENDIENTE”
Narrator (voice)
“Aprender a leer es uno de los procesos más importantes en la educación de un niño. Una prueba sencilla
es simplemente ver si los niños pueden leer 60 palabras por minuto al final de segundo grado. En una
prueba reciente hecha por el Banco Mundial a niños de segundo grado de escuelas públicas de diferentes
regiones del Perú, solamente un 21% de los niños pudo pasar esta prueba sencilla y fácil de comprender.
Escuchen algunos resultados.
30
Mixture of written message on the screen (in capital letters) and Narrator:
“META O ESTANDAR: 60 PALABRAS POR MINUTO”
“Estos niños representativos de escuelas públicas”
“10-15 PALABRAS POR MINUTO”
y un 35% NO PUDO LEER UNA SOLA PALABRA”
“Felizmente, en el Perú no toda la población de escasos recursos recibe educación de mala calidad. El
Banco Mundial visitó esas escuelas y realizó la misma prueba sencilla de lectura y comprensión a niños
de segundo grado y estos fueron los resultados.
Está comprobado que las escuelas que logran que el niño lea con fluidez son escuelas que consiguen que
el niño comprenda lo que lee.
Los resultados de esta prueba fueron excelentes y demuestran que sí es posible elevar el nivel de la
educación estatal aún en situaciones de pobreza.
Que están haciendo estas escuelas que no hacen las demás?”
“TRAZAR METAS CLARAS Y PRECISAS”
(Interview with school principal Manuel Tasayco)
“…es importante el uso de estándares; no podemos improvisar o a ver como me sale…acá no se trabajo
al azar sino con metas...”
“RENDICIÓN DE CUENTAS”
Narrator (voice)
“Y así como el director debe exigir resultados al maestro. Del mismo modo los padres tienen derecho a
exigir a las escuelas que sus hijos puedan leer bien, o sea, con fluidez y comprensión, al final del segundo
grado en cualquier parte del país. Tradicionalmente se responsabiliza al padre de familia y a la sociedad
por la ineficiencia y ausencia de resultados de la escuela. En un futuro el padre debe tener el derecho de
exigir logros y rendición de cuentas a la escuela.”
“APOYO PEDAGÓGICO A LOS EDUCADORES”
(Interview with primary schoolteacher Profesora Sicuani)
“…yo busco instituciones que me ayuden… oralmente el MINEDU no viene, no se interesa que los
docentes tengan formación adecuada en lo que se refiere a pedagogía…”
31
Narrator (voice)
“En realidad hay poco apoyo a los profesores en áreas específicas, al apoyo suele ser genérico y masivo.
En un estudio del Banco Mundial solo un 12% de los profesores respondió haber recibido ayuda
pedagógica en respuesta a un problema que ellos habían reportado.
Por otro lado, si no existen metas de aprendizaje para los niños en el sistema educativo peruano el apoyo
que puedan recibir los profesores no esta orientado hacia metas concretas. Lo que se necesita es un estilo
de apoyo intenso, que responda a las inquietudes individuales de los profesores, y que los ayude a lograr
las metas de aprendizaje de los niños, las mismas que deberían establecerse con urgencia.”
(Change location to rural area, Sicuani)
Narrator (voice)
“No debemos olvidar que el Perú es un país multicultural y plurilingüe, lo que conlleva a múltiples
problemas en la educación rural y bilingüe. Sin embargo, esto no debe ser un impedimento para que los
niños aprendan a leer bien.”
(Interview with schoolteacher Profesora Tomasa)
“…en cualquier lugar del Perú—depende de nosotros los maestros… no podemos menospreciar que
porque es rural no va a aprender… yo pienso que cualquier tipo de niño si estimulamos siempre
aprende…”
El Banco Mundial decidió hacer la misma prueba de lectura en escuelas rurales donde los maestros se han
propuesto elevar el nivel de la educación. Esta vez la prueba se hizo en dos lenguas.
(Two students read aloud in Quechua and answer all questions correctly)
(Interview with school teacher Carmen Carrasco)
“…la lengua materna de ellos es el quechua… es importante porque es la cultura de ellos y la cultura de
ellos nunca va a desaparecer si es que promovemos que se siga cultivando la lengua materna…”
(Same students who read in Quechua read aloud in Spanish)
(Same teacher continues) “…yo en un inicio me desesperaba, me preguntaba cuando iban a leer en
castellano… me he dado cuenta que primeramente conozcan su lengua y luego es más fácil transferir al
castellano…”
(Students answer questions in Spanish)
Narrator (voice)
“Como ven, aquí también los resultados fueron excelentes.
Las fórmulas perfectas e infalibles para sacar a la educación peruana del profundo pozo en el que se
encuentra no existen. Sin embargo, hay algunos requisitos básicos que deben seguirse. En este video
ustedes han conocido a educadores que decidieron transformar la enseñanza en sus escuelas, aceptando
que hay cambios de mentalidad y metodología que son necesarios. Ese es el secreto de su éxito.”
32
(Screen combined with segments by narrator—reads underlined passages)
Y estos son los tres de los requisitos más importantes:
Crear una cultura de rendición de cuentas sobre los logros del aprendizaje
Diseñar sistemas de apoyo pedagógico específico…
Y, lo más urgente,
fijar metas claras y precisas como son los estándares de aprendizaje.
Narrator (voice)
“Recuerden que el aprendizaje de la lectura es primordial para el desarrollo educativo de un niño.
Estos son algunos estándares de lectura que el Banco aplicó en las pruebas:
•
Al finalizar 2do grado 60 palabras por minuto
•
Al finalizar 3ero 90 por minuto
•
Al finalizar 4to grado 110 palabras por minuto.
Si no medimos nuestros resultados, ¿cómo sabremos si estamos mejorando? (tic tac tic tac).
Todos los niños, vivan en la ciudad o en el campo, tienen derecho a aprender a leer bien, en sus años
iniciales. Si esto se logra se habrá dotado al niño de sólidos cimientos educativos.
Los educadores tienen el deber de enseñarles a leer bien. Y ustedes, las autoridades, la obligación de
establecer metas y estándares claros, sistemas de rendición de cuentas e información a los padres y la
sociedad, así como apoyar a los profesores para que puedan lograr las metas de aprendizaje de los niños.”
Slogan: “NIÑOS QUE LEEN BIEN, PAÍS QUE EDUCA BIEN.”
33
Annex 2: Some Examples of Press Releases
INTERVIEWS AND BRIEFS ON RADIO AND TELEVISION10
1. Brief notes on the radio announcing main event
“El Banco Mundial, la Universidad del Pacífico y el Ministerio Británico para el Desarrollo
Internacional convocan para este miércoles 25 de enero a una conferencia denominada ‘Un
nuevo contrato social para el Perú: Cómo lograr un país más educado saludable y
solidario.’ Dicha actividad se realizará en el Hotel Sheraton de 08:30 hrs. a 18:00hrs.”
January, 21, 2006. RPP radio, La Rotativa del Aire. 07:28 a.m.
2. TV broadcast of video
January, Wednesday 25, 9:00 p.m. Channel N. La Hora N, hosted by Jaime D’Althaus.
Show was replayed on Monday 30.
3. TV interview
With Task Manager Daniel Cotlear.
January, Thursday 26, 8: 55 p.m. Channel N. La Hora N, hosted by Jaime D’Althaus
4. TV interview
With Senior Economist Luis Crouch, World Bank Consultant and Research Vice President at
RTI. On the same show appeared the Vice Minister of Education, Idel Vexler.
January, Friday 27, 9:00 p.m. Channel N. La Hora N, hosted by Jaime D’Althaus
5. TV interview
With Human Rights Ombudswoman.
January, Friday 27, Channel 4, Prensa Libre, hosted by Rosa María Palacios
6. Brief note mentioned in political broadcasting
“Daniel Cotlear, funcionario del Banco Mundial, manifestó que lo que se necesita para
mejorar la calidad de los programas sociales son estándares y métodos. Señala que el
programa social Juntos está avocado a reducir la desnutrición crónica y por tal es necesario
ponerse una meta para poder darle seriedad al mismo.”
February 12, 2006, Channel N, Sin Rodeos, 9:18 p.m., hosted by Hans Lanlodt
7. Programming for TV replays of main
conference
Ø First broadcast: Sunday, February 5, 9
a.m. and 6 p.m.
Ø First rebroadcast: Tuesday, February 7, 9
a.m. and 6 p.m.
Ø Second rebroadcast: Thursday, February
16, 9 p.m. and 6 p.m.
8. TV broadcast of video
Sunday, April 16, 9:00 p.m. Channel N. Sin Rodeos, hosted by Hans Lanlodt. Show was
replayed on Monday, April 17.
10
Source: World Bank Media Monitoring System and national press.
34
INFORMATIVE PRESS RELEASES
Banco Mundial reta a los
candidatos: prometan que en cinco
años los niños leerán 60 palabras
por minuto. Los investigadores de
la referida entidad denominan “la
trampa del equilibrio de bajo nivel”
a esa suerte de conformismo que
rodea a los peruanos frente a las
deficiencias de los servicios
educativos y de salud que reciben.
En este sentido, para promover el
debate, que incluye los temas de
salud y programas sociales, el
Banco Mundial realizará tres
conferencias en Lima, Villa María
del Triunfo y los Olivos, los días 26
y 27, para presentar los resultados
del estudio Un nuevo contrato
social para el Perú: Cómo lograr
un país más educado saludable y
solidario. Beatriz Merino,
Defensora del Pueblo, ha
asegurado su presencia y se
espera la concurrencia de los
candidatos presidenciales.
(Jan/19/06 – Caretas – Page 83)
35
Continues from Caretas
Daniel Cotlear acaba de editar el libro Un nuevo contrato
social para el Perú. Economista peruano y funcionario del
Banco Mundial, sostiene que las familias no tienen cómo
medir los resultados de los servicios educativos de salud y
de los programas de lucha contra la pobreza que el Estado
les ofrece. Por eso propone que los estándares y la
medición sean los instrumentos para que puedan lograrlo y
que la sociedad civil lo garantice. Sólo así se gestará un
nuevo contrato social entre ciudadanos y Estado.
(Feb/08/06 – El Peruano – Page 10 – Sociedad )
Luis Crouch, del Banco Mundial, sugiere una sola
pregunta para los veintitantos candidatos presidenciales:
¿Pueden promover que a fin del período gubernamental
los niños de siete años podrán leer 60 palabras por
minuto y entender lo que leen? Pero la mediocridad
política imperante incita a cambiar la pregunta para
muchos de ellos: ¿Pueden prometer que en cinco años,
ellos mismos, los candidatos, podrán leer 60 palabras
por minuto y entender lo que leen?
(Jan/22/06 – Ojo – Page 19)
36
Si bien en los últimos cinco años el
gobierno aumentó los presupuestos de los
sectores salud y educación estos se han
dirigido a los gastos en planillas en
desmedro de las inversiones que permitan
mejorar la calidad de dichos servicios,
afirmó el coordinador sectorial de
Desarrollo Humano del Banco Mundial,
Daniel Cotlear. Organismo presenta el
miércoles propuestas en el libro Un nuevo
contrato social para el Perú. Se sugiere
que maestros y médicos rindan cuentas a
los padres de familia y al Estado.
(Jan/23/06 – Perú 21 – Page 10 –
Economía – La República)
Continues…
(Jan/23/06 – Perú 21 – Page 11 –
Economía – La República)
37
OPINION
Un nuevo contrato social. Ello es lo
que propone el Banco Mundial en
su nuevo libro sobre el Perú,
resumen de un trabajo amplio,
cuyo subtítulo se pregunta ¿Cómo
lograr un país más educado,
saludable y solidario? Como
porcentaje del PBI, el gasto que
dedicamos a educación, salud y
alivio de la pobreza es las dos
terceras partes del promedio
regional.
(Feb/05/06 – Semana Económica
– Page 5)
Nicolás Lynch en una columna de opinión comenta que hay un mínimo de intercambio y muchas
menciones sobre educación en la discusión electoral, aunque—dice—estas se refieren a
generalidades, como “Una educación de calidad.” Refiere que la calidad educativa no es solo
desarrollo de la capacidad cognoscitiva de los estudiantes, también es educación ciudadana. Ello
supone no solo medidas puntuales para afrontar puntos críticos, cosas chiquitas como las
llamamos, sino un programa de reforma educativa, con una nueva visión y la ambición de
transformar de raíz la educación peruana. Aquí es donde caen los partidarios de medidas
aisladas que pretenden enfrentar el problema de la calidad con la evaluación de los educandos
como el mito que nos va a sacar del marasmo en el que nos encontramos. En esto se parecen
las propuestas del Banco Mundial y, hasta donde se sabe, las de Unidad Nacional.
(Jan/31/06 – La República – Page 17 – Opinión)
38
El economista Alberto Pasco-Font comentó
que recientemente el Banco Mundial
presentó los resultados del proyecto
Rendición de Cuentas para la Reforma
Social (RECURSO) que se resumen en el
libro titulado Un nuevo contrato social para
el Perú: ¿Cómo lograr un país más
educado saludable y solidario? En
Educación se concluye que a pesar del
incremento en la cobertura subsiste un
serio problema de calidad. El problema de
la calidad en la educación pública no es
sólo de pobreza o de escasez sino también
de gestión, la solución a este problema
puede estar en el sector privado.
(Feb/06/06 – El Observador – Page 6)
39
El Presidente del Foro Educativo y
educador, Manuel Iguíñiz, al ser consultado
sobre la educación pública indicó que de
“lograr un acuerdo sobre el Proyecto
Educativo Nacional que está en consulta,
base para políticas más acertadas, intensas
y sostenidas. No debemos prescindir de los
pactos nacionales, como el Acuerdo
Nacional y la Ley General de Educación,
sino avanzar en su realización. No buscar
la concreción del Acuerdo Nacional, la Ley
General de Educación y el Proyecto
Educativo Nacional me parece un error de
la propuesta reciente del Banco Mundial.”
(Feb/07/06 – Expreso – Page 6 – Política)
El publicista Gustavo Rodríguez comenta la necesidad de aplicar indicadores para medir los
logros, como lo hacen las empresas, los deportistas o en la vida cotidiana. El Perú, comenta,
jamás será un país con preponderancia si nuestra población no esta educada. El cimiento de
la educación de un niño es la lectura, pero es necesario medirlo. Es fundamental que el
triangulo formado por la familia, el educador y el Estado promuevan el uso de estándares en
lo niños que empiezan a leer.
(March/25/06, El Comercio)
40

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