Educational Reforms in Turkmenistan
Educational Reforms in Turkmenistan
Educational Reforms in Turkmenistan
Policy Brief
No. 11
September 2013
Slavomír Horák
Key Points
Since the election of Turkmenistan s second
President Gurbanguly Berdimuhamedov in Feb- Turkmenistan’s education system
ruary 2007, education has become nominally has gone through considerable
Slavomír Horák is a Re- changes and shifts in the last few
search Fellow at the Institute one of the priority sectors for the country s de-
velopment. Several reforms in the education years, with ambiguous results.
of International Studies, Fac-
ulty of Social Sciences, system have been adopted so as to overcome the
legacy of the first President Niyazov/ Türkmen- The extension of elementary as
Charles University in Prague. well as university education, and
He was a Fulbright Visiting bashy s regressive policies in this sector.
increasing the number of students
Scholar at the Central Asia – at universities both inside the
Caucasus Institute, School of Any educational reform needs to be considered
on a long-term basis in order to be drafted and country and abroad has meant that
Advanced International Stud- Turkmenistan has moved away
ies, Johns Hopkins Universi- implemented. However, after only six years it is
possible to analyze general tendencies in Turk- from the first president’s legacy.
ty, Washington DC, 2012-
2013. menistan s education system. Discussed below
are the positive and negative effects of the re- However, the heritage of the Tür-
form of the educational system on Turkmen kmenbashy era still weighs heavi-
schools and universities. ly, and its negative tendencies
could again destroy the small suc-
cesses achieved unless the authori-
The opinions expressed here ties implement real and not only
are those of the author only illusory reforms.
and do not represent the Cen-
tral Asia Program.
CENTRAL ASIA POLICY BRIEF No. 11, September 2013
Elementary and Secondary Education Modern schools are usually supplied with the
latest technology such as computers, laptops, or
The elementary and secondary education system interactive boards. The distribution of these ma-
underwent substantial changes in the period terials is highly selective as well—many schools
2007-12. In particular, compulsory school at- supplies are incomplete and the majority of them
tendance was extended from nine to ten years in do not receive any equipment at all.5 However,
2007 and, as from 2013, pupils will have to study many teachers and directors fear the equipment
for 12 years in order to complete their secondary will be damaged and, therefore, they either do not
education. The aim of this measure is to harmo- allow their use in the classrooms, or they careful-
nize the Turkmen education system with interna- ly make them available only during inspections or
tional standards and, in theory, allow Turkmen official visits. In addition, members of staff are
students to apply for universities abroad. If this is not adequately trained in IT, in general, and edu-
implemented, Turkmenistan will be only the fifth cational software and hardware, in particular.
post-Soviet country—after the three Baltic states Furthermore, regions often lack an internet con-
and Georgia—to have updated the former Sovi- nection and, even more importantly, suffer from
et 11-year elementary and secondary education electricity shortages, which render IT useless.
system. The problem is that changes have been Even in the cities, the internet connection is slow,
implemented hastily. The nine-year, and now 12- controlled by the government, and restricted to
year, curricula were extended without textbook just a few websites. Thus, the idea of employing
support or methodological guidelines. As a result, technology in schools has remained mostly on
all-state school programs in the highest classes paper and is far from being implemented to im-
often simply repeat or summarize the infor- prove the education system.
mation from lower classes, while the directors
and teachers have not been able to prepare more School textbooks, in general, remain a persistent
appropriate conditions for the first grades.1 problem of Turkmen education. However, some
improvements have been observed since 2007,
Teacher training is apparently one of the and every year new textbooks are being pub-
crucial obstacles for the development of lished covering, at least partially, the school pro-
the education system. Niyazov’s reforms grams. We can only assume that complete sets of
resulted in the dismissal and exit of many textbooks for every subject will become available
experienced teachers. Today the gap has in future years. At the same time, teachers have
been filled to some extent with newly- frequently complained about content quality and
qualified graduates, although the quality the unequal distribution of textbooks.6 New text-
of their teaching tends to be low and insuf- books are mostly written by inexperienced au-
ficient. thors and teachers without proper qualifications.7
In addition, too little time (3-4 months) is allocat-
The building of new schools seems to be the most ed by the authorities for the writing of each of
visible result of the changes adopted in the them. As a result, many teachers are not able to
Turkmen education sector. In 2012 it was an- use the new textbooks in their classes and still
nounced that 114 new schools had been opened,2 use former Soviet ones from 1990-1992.
not only in the cities, but also in more remote
places.3 However, the building and renovation Teacher training is apparently one of the crucial
contracts seem to be extremely overpriced. The obstacles for the development of the education
schools in Berdimuhamedov s family bases— system in Turkmenistan. Niyazov s reforms
Barabap and Yzgant—are particular examples.4 resulted in the dismissal and exit of many experi-
Many thousands of schools throughout the coun- enced teachers. The gap has been filled to some
try could be renovated for the same amount of extent with newly-qualified graduates, although
money. The majority of them is still self-run and these were educated under the new university
relies for small repairs on donations from pupils system, so the quality of their teaching tends to
parents. be low and insufficient.8 Education is often inter-
rupted by seasonal events such as cotton harvest-
ing. Although children in the elementary level are
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CENTRAL ASIA POLICY BRIEF No. 11, September 2013
not obliged to go to the fields, teachers are not The English language seemed to have increased
exempted from the practice. Moreover, pupils are in significance at the expense of Russian at the
forced to congregate in masses along the roads very beginning of the reforms. The provision of
during the arrival to Ashgabat of a foreign delega- English language lessons increased as it became
tion, and the visit of the president or highly- compulsory from the first to the eleventh grades
ranked officers to the regions. Others have to (and the twelfth one since 2013). However, the
assist in the place where the event or ceremony is Peace Corps which offered English language clas-
held. This Soviet tradition, which was maintained ses and summer camps closed its office in Turk-
and further developed by Niyazov, has been also menistan at the end of 2012 and exchange pro-
preserved by the new president, and it even grams such as FLEX registered a decreasing
seems that the scale of these ceremonies has ex- number of applicants.13 There were even cases of
panded.9 threating parents who intended to send their
pupils to compete for places in the exchange pro-
The school program has been improved slightly grams.
by reintroducing physical education as well as
social sciences to the curriculum. Unfortunately, The expected de-ideologization has failed.
the expected de-ideologization has failed. The The study of the Ruhnama has not been
study of the Ruhnama The (oly Book of the first fully eliminated, as it still remained the
President has not been fully eliminated, as it topic of an obligatory exam for secondary
still remained the topic of an obligatory exam for schools and universities in 2012. However,
secondary schools and universities in 2012, as since 2011 the Ruhnama is no longer a top-
well as a topic in the process of approving foreign ic in secondary schools’ graduate exams.
diplomas.10 However, since 2011 the Ruhnama is But the growing cult of the second presi-
no longer a topic in secondary schools graduate dent is evident instead.
exams.11 The growing cult of the second president
is also evident instead. Berdimuhamedov s books National minorities are mostly deprived from
are already studied in several classes as part of elementary and secondary education programs in
the school s curriculum and his portrait has re- their national languages. Kazakh and Uzbek
placed that of his predecessor in the new text- schools were closed down during the Niyazov
books.12 era, and the new president has not even ex-
pressed any intention of reopening them. There-
Although the president proclaimed foreign lan- fore, the only foreign elementary and secondary
guages as one of the priorities, the real situation schools are prestigious Turkmen-Turkish schools,
in this domain has further deteriorated in the last the Turkmen-Russian School in Ashgabat, the
couple of years. Russian classes did not resume or International School of Ashgabat (with instruc-
increase in the schools, and only a few Russian tion in English and with Russian as lingua fran-
classes remained available throughout the coun- ca, although it is expensive and inaccessible for
try (about 30 in 2011, which means that only most Turkmens), and also a small Sunday school
750-1,000 out of 100,000 first-graders were able sponsored by the Embassy of Ukraine. Notwith-
to enter them). These are intended in particular standing, Turkmen-Turkish schools started to be
for national minorities, although due to the per- closed in 2011 for allegedly spreading Islamic
sistently high demand from parents, local Turk- doctrine in the curriculum.14 Although there were
men pupils also attend them. In any case, it will different views on the role of these schools, they
be extremely problematic to resume the normal filled a significant gap in providing quality ele-
functioning of Russian schools in the future due mentary and secondary education, and most
to the lack of teachers and a decrease in the Rus- Turkmen winners at international competitions
sian-speaking population in general. There is also in the humanities came from them.15
a lack of interest on both the Russian and Turk-
menistan sides to invite education specialists and Finally, corruption is considered to be one of the
teachers from Russia. main obstacles to the improvement of elementary
education. Due to the lack of vacancies in what
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CENTRAL ASIA POLICY BRIEF No. 11, September 2013
are regarded as prestigious classes (i.e. mostly American University in Ashgabat. If successfully
Russian ones), bribes became the norm.16 Moreo- concluded, the project has the potential to attract
ver, teachers have to pay for being exempted teachers and scholars from all over the world, in
from seasonal work in cotton fields, maintaining particular from European, Turkish, and/or Rus-
classes, or purchasing supplies (chalk, paper, sian universities in the most needed specializa-
marker-pens, and so on). These payments are tions—law, engineering, education, IT, and so on.
afterwards demanded from pupils parents. 17 The establishment of private schools, announced
Moreover, the practice of accepting small bribes for 2013-14, furthermore, could bring necessary
consisting of home-made meals or domestic ani- competition if higher caliber teachers, both from
mals (i.e. goats) in exchange for better grades is within Turkmenistan and abroad, could be at-
still widespread, due to the inadequate pay tracted and so give the country s younger genera-
teachers receive. The latter are also often re- tion a better quality education. As a consequence,
quired to pay the school s director to keep their the mass corruption of the universities could po-
position (and directors have to do the same to tentially be reduced as parents would rather pay
local or regional education authorities). Thus, the official fees for education than unofficial bribes.
petty corruption caused by the low budget for
education, as well as widespread and systematic The opening of branches of foreign univer-
pyramid-shaped corruption, with the Ministry of sities and the establishment of private
Education at the top, and teachers and parents at schools, announced for 2013-14, could
the bottom, substantially undermines educational give the country’s younger generation a
processes and is one of the main challenges for better quality education. As a conse-
any reform. quence, the mass corruption of the univer-
sities could potentially be reduced as par-
Higher Education ents would rather pay official fees for edu-
cation than unofficial bribes.
Universities have already undergone major re-
forms, which could be considered as a positive
development for the future. The extension of uni- At the same time, although the university pro-
versity programs to a standard of five years (six grams were extended in accordance with interna-
years for the medical school) and the elimination tional standards, it became clear that the (often
of obligatory labor and military service for young forced) dismissal of former researchers and/or
men before entering university was one of the teachers from the universities in the past decade
first and logical steps taken by the new president. has created a hardly recoverable gap in qualified
Berdimuhamedov has even started to re-open staff. The new cadres turned out to be seriously
several universities and invited foreign university undereducated with a strong ideological footprint
delegations and scholars to Turkmenistan. The stemming from the previous period. In this situa-
reopening, for example, of the Academy of Sci- tion, probably, the temporary attraction of for-
ences, followed by the resumption of postgradu- eign researchers and teachers to Turkmen uni-
ate studies, has been regarded as highly positive versities as well as opening new universities (in-
steps toward the normalization of the higher ed- cluding private ones) could improve the situation.
ucation system.
The number of students according to the official
In 2009, a branch of the Gubkin Institute of Oil sources started to grow steadily as shown in the
and Gas was opened, and several Russian univer- graph below. Those supported by the Turkmen
sities now offer entry exam centers throughout state to study abroad, predominantly in Russia,
the country; this in addition to the existing Turk- Turkey, Ukraine, Malaysia, and other countries, is
men-Turkish University. In the northern parts of also booming. In 2011 the official statistics regis-
the country, meanwhile, the Dashoghuz Institute tered about 2,000 students leaving to study
for Agriculture was reopened after several years abroad with state support.18 Others were able to
of closure. In 2012-13, there were also initial ne- study making their own private arrangements.
gotiations over the opening of the Turkmen- President Berdimuhamedov also resumed the
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CENTRAL ASIA POLICY BRIEF No. 11, September 2013
recognition of foreign diplomas in 2011, the va- and the help of tutors.21 However, in many cases,
lidity of which had been made void in 2004. despite the low initial quality of students from
However, students still need to go through an Turkmenistan, their motivation enabled them to
approval process, including having to do the achieve the best results and they became excel-
problematic test on knowledge of the Ruhnama. lent students with the potential for receiving
Russian university graduates are, theoretically, prestigious foreign grants, such as Fulbright or
waived from this rule following the intergovern- Rumsfeld fellowships. However, these students
mental agreement from 2009.19 are only a small part of all Turkmenistan alumni.
Furthermore, their usefulness for Turkmenistan
is doubtful as the majority of them do not appear
to return to their home country, although a recent
survey to some extent showed a more optimistic
picture.22
translating services if they wish to enter a foreign staff, or the directors, of being sacked in case of
university.28 failure to carry out instructions from above, or
with little prospect of improving their own level
Conclusions of education, works against the improvement of
elementary education. Moreover, the system of
Turkmenistan s education system has gone passing on knowledge from more experienced
through considerable changes and shifts in the colleagues (as was usual in Soviet times) has been
last few years, with ambiguous results. The ex- abandoned or works only selectively. The intro-
tension of elementary as well as university educa- ducing of new programs is obstructed by the rigid
tion so as to meet international standards, and or (on the contrary) non-existent programs and
increasing the number of students at universities textbooks.
both inside the country and abroad has meant
that Turkmenistan has moved away from the first 3. Hardware more than software. Although Ber-
president s legacy. The statistics show that the dimuhamedov likes to talk about the successes in
number of university students could amount to education, he favors more showcase and super-
about 24,000, with another 10-15,000 studying ficial reforms rather than any genuine attempts
abroad. The figure almost reaches that of the late to make things better.
Soviet period at the end of 1980s, when more
than 40,000 students studied at Turkmen SSR 4. An increasing mistrust of foreign influence (in
universities.29 Moreover, the principal eccentrici- particular Western), a persistent high level of
ties of the former regime—non-acceptance of nepotism, and further bureaucratic and adminis-
foreign diplomas or forced labor before universi- trative barriers for students going abroad to in-
ty—have been eliminated. The revival of the correct universities are impediments to real
Academy of Sciences and establishment of several reforms.
new institutes such as the Strategic Studies Insti-
tute could help to re-establish scientific work in In spite of the above, it would be a mistake to
the country and provide a basis for political deci- fully dismiss in their entirety all recent reform
sion-making processes. In this regard, then, there attempts. Indeed, clearly visible efforts, in the
has been a normalization period of legal and face of significant obstacles, have been made to
institutional framework building in recent years. tentatively improve the situation of the education
sector in the country.
However, the heritage of the Türkmenbashy era
1 Shestiletniie pervoklassniki, Khronika Turkmenistana,
still weighs heavily, and its negative tendencies
July 7, 2013, http://www.chrono-
could again destroy the small successes achieved
tm.org/2013/07/shestiletnie-pervoklassniki/.
unless the Ministry of Education and the presi- 2 Vystupleniie Prezidenta Turkmenistana Gurbanguly Ber-
dent implement real and not only illusory re- dimukhamedova na zasedanii Soveta stareishin Turkmeni-
forms. Some of the main challenges are outlined stana, Neitral nyi Turkmenistan, October 24, 2012.
3 Neitral nyi Turkmenistan, September 1, 2011.
below: 4 Prezident Turkmenistana prinial uchastiie
v tseremoniiakh otkrytiia novykh ob ektov sela Yzgant,
1. Corruption. A generally high level of corruption Turkmenistan zolotoi vek, October 20, 2012.
permeates the education sector, thus increasing 5 This reality was confirmed by Peace Corps Volunteers
the cost of education. Further, a promotion of the working in Turkmenistan and other sources.
6 Textbooks are also not immune from corruption and swin-
personality cult of the president means that often
dling in Turkmenistan. See Toily Ashyrmuradov, Turkmeni-
less skillful but loyal staff is put into responsible stan: Uchebniki vmesto shkol popali v svobodnuiu proda-
positions at the expense of more independent- zhu, Fergananews.com, July 12, 2012.
minded people. http://www.fergananews.com/articles/7423.
7 Author s interview with Peace Corps Volunteers, February
2013.
2. Lack of human capital. Teachers with a poor 8 V shkolakh ne khvataet uchitelei matematiki, Khronika
education based on ideological postulates are not Turkmenistana, July 11, 2012. http://www.chrono-
able to fill the void left by the removal of previous tm.org/2012/07/ne-hvataet-uchiteley/.
cadres. The constant fear amongst the teaching
6
CENTRAL ASIA POLICY BRIEF No. 11, September 2013
9 )l ia Kirimdzhanov, One Long Holiday in Turkmenistan, 21 Turkmen Students Abroad: Goals, Challenges and Prospects
IWPR.net, September 21, 2012. http://iwpr.net/report- for the Future, Turkmen Advisory Council Report, December
news/one-long-holiday-turkmenistan. 2012, 15-16, http://arzuw.org/s/TAC-
10 Vstupitel nyie ekzameny: Videokamery, tiubeteiki i Report_2012_Final.pdf.
Ruhnama, Khronika Turkmenistana, August 5, 2012. 22 Ibid., 17. The small quantity of respondents (about 100 in
)slam, Religion, State and Society 31, no. 2 (2003): 151-177. Ruslana T., November 26, 2012, http://chrono-
See also Victoria Clemens, Turkmenistan's New Challenges: tm.blogspot.com/2012/11/blog-post_26.html.
Can Stability Co-exist with Reform? A Study of Gülen Schools 29 Sovetskaia entsyklopediia (Moscow, 1990), 172.