Applying a Balanced Scorecard to the Kuwaiti Government Education System - Essay Example

? Applying a Balanced Scorecard to the Kuwaiti Government Education System: An Initial Approach for Reforming Education Abstract The Ministry of Education (MOE) is under increasing pressure to reform the educational system in Kuwait. To meet this challenger in a rapidly changing era, MOE will need to undergo fundamental changes in the way that they operation and continuously seek out ways that they can create future value. This paper explores and discusses the potential applicability of the Balanced Scorecard method to the educational system in Kuwait, in an effort to stimulate and sustain continuous improvement. Promising results have been reported in the for-profit and governmental organizations already supporting the use of the balanced scorecard and its applicability. Keywords: Balanced Scorecard (BSC), Ministry of Education (MOE), National Center for Education Development (NCED), The Trends in International Mathematics and Science Study (TMISS), and Progress in International Reading Literacy Study (PIRLS) Applying a Balanced Scorecard to the Kuwaiti Government Education System: An Initial Approach for Reforming Education Introduction In the past few decades, there have been numerous calls and demands for reforming the educational system in Kuwait. Many decision makers in the education were under the belief that if they just tweak and implement new ideas in the system, then it would work. Unfortunately, the number of fragmented solutions toward reforming education did not help the situation in the least. The solutions and ideas presented were limitless and included such concepts as flash drives, new textbooks, special programs, new curriculum, bribing students to learn, more extensive examinations, and list goes on an on. Each new idea was initially supported and tossed around various academic circles, then quickly forgotten as a new and better idea for reform was presented, with more empty promises that this new strategy would really work this time around. The Kuwaiti educational system is sick, and the intention or pretense to improve is not enough. To achieve these lofty goals for reform, professionals in the field of education need to seriously regard what exactly needs improving, and then developing sound strategies about such improvement will be measured moving forward. The elements of reform within various levels of the educational system should be seen as a complete picture. This involves having a core target that must be focused and at the center of the system. Successful efforts at improving the education system should be measured by a clear set of goals that are linked to the needs of both parents and students (Stone & Dahir, 2006; Gysbers & Henderson, 2000). This drive for educational reform has focused attention on the measurement of student performance by various organizations existent in the system. This paper will focus, to a large degree, on the current discussion by researchers regarding the adaption of a new methodology aimed at reforming the education system in Kuwait. This is most commonly referred to as the Balanced Scorecard. This paper is further aimed to stimulate and provide an informative discussion about the reforms needed based on the conceptual framework of the balanced scorecard. It also outlines a vision for the future of education in the region and gives an overview of key challenges, and makes recommendations for future action. Literature Review Kuwaiti Educational System Kuwait has invested considerable amounts of its oil wealth into developing a comprehensive public education system. The system ranges from preschool, starting at the age of four, to five years of primary, four years of intermediate level education, and three years of secondary schooling. The academic system in Kuwait is highly centralized. The Ministry of Education manages and regulates districts and their schools. It is also responsible for developing and providing curriculum, textbooks, and the hiring of teachers. The evaluation for student achievement in Kuwait, for the purposes of promotion from one grade to another, requires a minimum score of 50 percent in each of the core subjects (math, science Arabic, English, Social studies, Islamic Studies, and Quran). Student Performance The evaluation system in Kuwait does not really demonstrate whether an individual students performance is acceptable unless it is compared to international standards and norms. Therefore, the system of education can be blamed when national scores are low, or when students fail to learn skills needed in the labor market. Only international comparisons among similar education systems, however, can offer solid evidence of an academic systems success or failure in the eyes of society. Large-scale student surveys yield results, which can then be used to diagnose educational weaknesses, all in an effort for them to be corrected and the system gradually improved. As indicators of crisis, education reformers often cite the low performance of Kuwaiti students in math, science, and reading on both The Trends in International Mathematics and Science Study (TMISS) and Progress in International Reading Literacy Study (PIRLS). This is especially stark in comparison with international studies, and combined with the declining interest and enrollment in math and science courses nationwide. According to the results of TMISS, Kuwaiti fourth grade students ranked 48 out 50 with a total aggregate score of 342. PIRLS results were not exactly adequate either. On the PIRLS examination, six grade students in Kuwait ranked 46th out of 49 countries, with 419 points. Kuwait’s scores for reading, mathematics, and science on the PIRLS and TIMSS exams in 2011 rank below the international average. Performance in these areas is notably weaker, and it tells us that the country needs to embark on a plan to develop comprehensive solutions for better education in Kuwait. These results are indicators that point to the need for massive reform in education. Teachers and Leadership In order to hire teachers, the ministry of education in Kuwait requires a Bachelors Degree in Education from a university in Kuwait, or graduation from the Public Authority for Applied Education and Training (PAAET). The MOE, however, would hire graduates who hold a B.A. or B.S. in science, mathematics, literature, psychology, or history, as long as the candidate agrees to complete a training course. In addition, a number of foreign teachers may be hired pending an interview from the supervisory committee, and the conferment of a degree in Education from a reputable international institution of higher education. Educators may work their way up through the system to become a department head in their particular area of study, and then continue on to apply for administrative positions in the future. This can include becoming an assistant principal or the head of a school, based upon the supervisory system of upgrading credentials currently set forth by the MOE in Kuwait. For each position upgrade, or promotion, there are certain sets of requirements that must be met, such as years of experience, the passing of requisite examinations, personal interviews, and the completion of recommended MOE workshops and trainings. The Organization and Structure of Leadership The organization of the MOE is highly centralized. This central system of management has complete power over all resources. This includes the flow of money, information, people, and technology. It decides the content of curriculum, controls the budget, is responsible for employment, the building of educational facilities, discipline policies, and many other areas affecting education. Nevertheless, the process of decision-making is concentrated in the hands of a select few individuals within the Ministry. All of the important decisions and actions impacting the field of education at the lower level are subject to the approval of top management. Under the Ministry of Education, top management makes the major decisions, and other levels of management are only permitted to operate and make decisions within a set boundary. Schools vs. Society and Change in Education When it comes to reforming an entire system of education, one cannot limit their focus only to the institution of school. School systems are socially constructed concepts. Culture and tradition play major roles in the way that education is viewed in a respective society. Eventually, the concept of reforming is not limited to policies and procedures, but it is about people too (Gallacher, Crossan, Mayes, Cleary, Smith, & Watson, 2007). Most people, including educators, tend to change slowly when it comes to attitudes, beliefs, and practices (Atkinson, 2004). In addition to this reality, school does not exist on its own, but within society, and the community will have a great deal of influence on its very existence. Remember that the notion of school tries to fit pupils into an existing pattern of life so that they will begin to associate with others in an expected and efficient manner. If the school does not speak to the community, however, and the teaching paradigm is clustered around curricular issues, then it will quickly become teacher centered and its influence will be narrow and quite limited. Schools should place a great emphasis on the community and be willing to interact with all aspects of society in terms of values, norms, economic background, and equality (Atkinson, 2004). The persistence and growth of our society calls for innovation, reorganization, and the introduction of an advanced use of technology, in addition to improving career practices. Lasting change of any significance in a community begins at the local school level and is centered on education. Ministries of Education in many countries are finding it helpful to a plan for development that is designed to assist them in managing change (Darling-Hammond, 2010). Most educational reforms are planned and geared towards specified targets. Owen (1979) defined planned organizational change as “ conscious and deliberate attempt to manage events so that the outcome is redirected by design” (p. 271) to some proposed goal. We discussed earlier in the literature review various factors that can lead to a resistance to change. Darling-Hammond (2010), however, clarified that such resistance can be overcome in several ways. These include the need to be more competitive and productive, the rise of learner organizational structures, and the search for organizational excellence. Nevertheless, successful educational change can only result if the planners and implementers keep the following guidelines in mind: a cohesive framework to accept for reforming the system, set a vision with certain goals, working within a set timeline, and acknowledge that most people do not adapt to change easily. This is a process that passes through several steps before real change can be realized. After reviewing all the circumstances in the educational system, researchers thought of looking at the MOE as a whole and tried to connect every sector of the Ministry within a specified structure and agree upon vision. Therefore, the framework for reforming education in Kuwait was based on adopting the Balanced Scorecard. The conceptual framework in the next section explained the rationale behind adopting it. Conceptual Framework Background of Balanced Scorecard In 1992, Robert S. Kaplan and David P. Norton introduced the balanced scorecard as a set of processes that allow for a holistic, integrated view of business performance (Stewart & Hubin, 2001). The scorecard was originally created to supplement “traditional financial measures with criteria that measured performance from three other perspectives—those of customers, internal business processes, and learning and growth” (Kaplan & Norton 1996, p. 75). By 1996, user companies started to develop their own strategic management system, linking long-term strategy to short-term targets. The growth of the balanced scorecard method occurred because many business organizations recognized that a strict focus on a one-dimensional measure of performance (such as return on investment or increased profit) was insufficient (Kaplan & Norton 1996). In many cases, bad strategic decisions were made in an effort to increase the bottom line at the expense of other organizational goals. The theory of the balanced scorecard suggested a different approach. Financial performance would now become the natural outcome of balancing other important goals. These other organizational goals cooperate with one another to support the overall performance of the organization (Stewart & Hubin, 2001). If any individual goal is out of balance with other goals, the performance of the organization as a whole will suffer. The balanced scorecard system also emphasizes articulation of strategic targets in support of goals (Stewart & Hubin, 2001; Kaplan & Norton 1996). How Does Balanced Scorecard Work? The Balanced Scorecard method offers up a well-defined prescription as to what any given organization should measure in order to 'balance' the financial perspective with other goals on the institution (Kaplan & Norton 1996). The Balanced Scorecard can prove useful in three categories: a strategic tool, a management methodology or / and a measurement system. Furthermore, it allows organizations to clarify their vision and turn them into action. By focusing on future potential success, it becomes a dynamic management system that is able to reinforce, implement and drive corporate strategy forward (Stewart & Hubin, 2001). The Balanced Scorecard supports organizations to bridge the gap between strategy and actions. It engages a broader range of users in organizational planning, reflects the most important aspects of the occupation, and responds immediately to the improvement. After this, the system then provides feedback and changing occupation situations. Balanced Scorecard maps out the story of how value is created for an organization. It shows a logical, step-by-step, connection between strategic objectives by demonstrating cause and effect relationships. Then, when fully implemented, the Balanced Scorecard converts strategic planning from an academic exercise into the core center of innovation (Stewart & Hubin, 2001). Rationale for Applying Balanced Scorecard Recent strategic management studies recommend that there should be a strong connection between strategic plans and performance measures. Kaplan and Norton’s (1992) balanced scorecard and Fitzgeraldet al. ’s (1991) study concluded that a framework could provide such a connection. Balanced Scorecard renews the focus in the system of the organization by analyzing the actual results of performance with a greater degree of emphasis on how the community views what has actually taken place and has been observed (Kaplan & Norton 1996). Many educational organizations, when considering performance measurement, pay less attention to the factors of achieving long-term, sustained organizational improvement than they do with internal processes, innovation and learning. Balanced Scorecard places an emphasis on recognizing the importance of: the results and the means of achieving them (Norrekilt, 2000). The main rationale for using Balanced Scorecard rests in the indictors and measurements behind it. Using an indicator system can provide a clear and consistent definition of government objectives and policies in matters of education, as well as those of the administrators (Norrekilt, 2000; Stewart & Hubin, 2001). In summary, an indicator system allows stakeholders to track the progress towards the objectives of the educational system. It can also shed light on the detailed aspects of the desired results. Indicators chosen for a scorecard can, therefore, become the place where politicians, decision-makers, and administrators can specifically define the results they can reasonably expect from their strategies and plans (Kaplan & Norton 1996; Stewart & Hubin, 2001). This paper highlights a suggested framework for strategic and balanced education system performance measurement. Examples of Using Balanced Scorecard in Education The use of balanced scorecard has spread widely among many sectors outside of the business world. Educational agencies in many countries have adopted the Balanced Scorecard (Karathanos and Karathanos, 2005). Karathanos and Karathanos (2005) reported that the University of Southern California adopted the BSC to assess its academic programs and planning process for the sake of creating a better management system. Karathanos and Karathanos (2005) also described that the Baldrige Education Criteria for Performance Excellence has adapted the concept of BSC to education and showed significant differences in improvement, as well as similarities between BSC for business and BSC for education. Using Balanced Scorecard in Kuwait There is mounting pressure to restructure and reform education in order to provide quality academic services and to mold students who will become fruitful and productive members of the Kuwaiti society. Therefore, the decision makers in the Ministry of Education have been attempting to recognize the dimensions of a quality education and to define strategies to reach their pre-defined standards and goals. The main target for reforming the educational system in Kuwait is improving student learning. The main mission is clustered around that ALL students to become highly successful, contributing citizens of society. This paper has reported on research guiding performance management systems in the Kuwaiti education government system using the four dimensions of the balanced scorecard: financial, community, management processes and innovation, and learning. The main target for our Balanced Scorecard was focused on the improvement of student learning. The first step in building the Balanced Scorecard to take a thorough look at a set of objectives for each stakeholder in the organization. Then, the task was to determine the indicators. It was important that these same indicators were explicitly specified and focused toward the targeted goal, as displayed in Table 1 and Figure 1. There are four main zones: Domain, Value, Focus, and Initiative. In Figure 1, we see the framework connecting and integrating these four categories into one comprehensive system. In describing Figure 1, the criteria shows, in part, that Measurement, Quality, Management, and financial improvement are critical factors leading to the effective management and establishment of an indicator system for improving performance. Measurement and knowledge serve as a baseline for the entire system. Table1 lists the path for each domain, value, focus, and initiative. The conceptual framework of the Balanced Scorecard in Figure 1 is explained in the following bullet points: Students’ Performance results In term of student learning, results should be based on standardized assessment approaches, and they should reflect the organization’s general mission and improvement objectives. In addition, is important that the results represent holistic evaluations of student learning. Students and stakeholders alike should agree on measurements about specific educational programs and service features that enrich student development and learning. Financial, and market results Instructional and general administration costs per student, tuition and fee levels, cost per academic credit, resources transmitted to education, scholarship growth after graduation from high school and the connection of a percentage of graduates to the labor market. There has to be a financial accountability for both the internal and external operations of the ministry. Faculty and staff results Kuwait is looking forward to developing staff that are better teachers and possess more enhanced leadership skills. We are now looking at the quality, not only the quantity of teachers. Innovation for teachers should take place through better educational programs, job performance improvements by licensing and professional development, collaboration and teamwork, and knowledge and skill sharing across work functions. Organizational effectiveness The organization should include internal operations performance measures. The capacity to improve student performance, indicators of responsiveness to student or stakeholder needs, low fat process in terms of management in the ministry, key measures or indicators of accomplishment of organizational strategy and action plans are all essential components of this area. Table 1. Domain Value Focus Initiative Measuring students’ performance Learning as a life long process Competent students National Standards Innovation & Imagination Ability- based curriculum Focus on Math & Sci. & Lang. Multiple ways of knowing & thinking ? Enhancement of academic curricula ? Diversification of the Sec. school edu Integration between diff. edu. Stages Enhancement of positive values taken from Islamic Sharia’s Develop school Admin activities & methods of teaching & Asses. ? Timeframe of various edu. stages ? Execution of school equipment dev. projects Teachers and Leadership Accountability knowledge Teachers are the custodian of social values & believes A teacher as part of community (other teachers) Performance Standards Expectations, motivations, support Leadership Vs Admin Schools based reform People Improvement Dual career path ? Setting rules & criteria to improve teachers performance. Develop(g). Edu & Schools admin & achieving profess. Develop(t). for leaders. Organization process Low fat process Prevention based Evalu. Stakeholders Involv. Automation of Admin Assess. & Evalu. Policy Review Process Improvement Sustainability of quality overtime Edu Institutional restructuring Transforming NCED into NCAE Developing SCE Achieving distinct. in the edu. Implementing of IT National Strategy. Applicat. of quality admin standards in MoE Evaluate private edu. schools Financial improvement Efficient Budget Control Accountability based Finance Lower cost Higher return Improved Authority Matrix Better Speed Measurements Indicators Figure 1. Balanced Scorecard of the Education System of Kuwait By viewing the ministry from all four perspectives, the Balanced Scorecard approach affords a general understanding of performance. Applying the Balanced Scorecard theory, using a paradigm that fits education, will help in guiding every part in the ministry. A top leadership team chaired by the Minister of Education will have scheduled strategy review meetings to discuss whether strategy implementation is on track, detect problems in the implementation phase, and recommend solutions for achieving the targeted performance. Where Are We Now? In order to get the system of education in Kuwait back on the right track, the Ministry of Education has adopted the Balanced Scorecard as an approach for organizational reform. The MOE is also cooperating with the National Center for Education Development (NCED) to create a more enhanced and effective educational system. The cooperation between MOE and NCED will result in clarifying the vision and the future direction of Kuwait’s Education. This integration and cooperation will help bridge the gap between decisions made and the performance of all employees and will certainly be reflective by student performance. From trial and error solutions, to a sustainable system with obvious measurement tools, the ministry will be able to focus on the main goals. With support from NCED, the MOE has established the national standards for curriculum, teachers and school leadership. Also, Kuwait has national assessments for each of the core classes: Mathematics, English, Science, and Arabic (MESA). Now, NCED and MOE are working toward the quality of teachers and school leadership through teacher licensing and the quality of schools by school excellence though inspections. The process will continue with a better vision toward a more sustainable education system. Discussion and Conclusion While it is not realistic to think that one decision will fix a whole system, the Balanced Scorecard mechanism can be a healthy start by providing a vision for stakeholders to embark on a positive path of educational reform. MOE develops and reports a comprehensive set of measures that contain both leading and imbedded indicators of performance. Such a set of measures is related to the concept of the balanced scorecard (BSC), which was proposed by Kaplan and Norton (1992). In this article, we presented the conceptual framework of the balanced scorecard of the education system of Kuwait in Figure 1. The conceptual framework has certain critical requirements. The most important aspect of the system is that these measures be aligned with the strategic objectives of the organization. This requirement would allow organizations to track student learning, while concurrently monitoring their progress in building the capabilities and acquiring the resources that would affect their capacity to improve student performance and development. The point is not to publish an indicator system or scorecard once and then stop after putting so much work into it. If it is to be useful and effective, it should become part of the educational landscape moving forward. References Atkinson, D. (2004). Theorizing how student teachers form their identities in initial education. British Educational Research Journal, 30(3), 379-394. Darling-Hammond, L. (2010). The flat world and education. Teachers College Press: New York. Dye, R. W. (2003). Keeping score. CMA Management. 18-23 December/January. Fitzgerald, L., Johnston, R., Brignall, S., Silverstro, R., and Voss, C. 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