the curriculum programs in Turkey
CURRICULUM REFORM AND TEACHER AUTONOMY IN
TURKEY: THE CASE OF THE HISTORY TEACHİNG
İbrahim Hakkı Öztürk
In recent years, the curriculum programs have been changed dramatically in
Turkey, as part of a comprehensive reform initiative. The history curriculum for
secondary schools was subjected to this transformation as well. This study
examines the curriculum reform in terms of teacher autonomy, a key-concept for
the comprehension and improvement of the teachers’ role in education. The study
aims to analyze whether the change in the curriculum has brought any significant
innovation regarding the teacher autonomy. According to study’s findings, the
new history curriculum fails to construct a new framework that is able to provide
to teachers a broad sphere of power and autonomy which could allow and
encourage them to assume a greater role in the curriculum planning and
implementation. This situation is evidently in contradiction with the main
reform’s goals such as the development of student-centered teaching methods
focusing on the needs, interests and demands of the students and considering their
diversities.
Key Words: teacher autonomy, curriculum reform, history teaching, Turkey
INTRODUCTION
The elementary and secondary school curriculum has undergone a dramatic
change in Turkey in 2000s. The curriculum reform was first introduced in the
elementary school level in 2004; during the years that followed, the curriculum
programs of most courses were renewed both in elementary and general
secondary education.
One major factor that provoked the policy makers to execute such a
comprehensive reform initiative is the fairly pessimistic sketch on the overall
quality of Turkish education system outlined in international assessment
programs including PISA and PIRLS (Akşit, 2007; MoNE, n.d.). The said
assessment programs rank Turkey at the bottom on the lists focusing on the
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OECD and EU countries. Another factor behind the momentum to introduce
bold and ambitious reforms in the field of education in Turkey is the overall
reformist tendency observed in the government policies to facilitate accession to
the EU. In early 2000s, the government introduced reforms to harmonize the
national legislations with the EU body law. This has been the case with the field
of education as well (Akşit, 2007).
Even though there are significant differences in the new curriculum programs
according to their teaching subject, the programs also display some common
features and characteristics. Overall, the major approaches and goals of the new
programs are as follows (ERG, 2005; MoNE, n.d.) :
• Greater focus on student-centered teaching activities instead of subjectcentered
and teacher-centered approaches;
• Encouraging the learning by research and self-experience;
• Improving the diversity in the teaching methods and materials;
• Ensuring the enhancement of the students’ skills rather than mere
transmission of information;
• Improving the interaction and cooperation between the students in the
process of teaching and learning;
• Use of more effective assessment methods and tools;
• Improving the use of information and communication technologies in
teaching and learning activities.
The curriculum reform was mostly welcomed by the teachers, education
scholars and the general public. However, the reform was not free of critics.
The criticisms mostly focus on the implementation of the reform. The
researches done so far show that lack of material support and training
opportunities for the teachers, scarce sources and materials, poor technological
infrastructure and physical facilities are the major obstacles before the
attainment of the goals spelled out in the reform (Bulut, 2007; Kırkgöz, 2008;
Korkmaz, 2008; Öztürk, 2009a). Critics also argue that the participation and
involvement of civil society actors and the universities in the preparation of the
curriculum programs and the pilot cases has been fairly limited (Akşit, 2007).
Teacher Autonomy and Teaching Development
The importance of the professional autonomy in the enhancement of the
teachers’ role in education has been underlined in a number of scholarly works
(e.g. Castle, 2004; Friedman, 1999; Ingersoll, 2007; Pearson and Moomaw,
2006; Webb, 2002; White, 1992). It is argued that organizational efficiency
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may be further improved via enhancement and enlargement of the professional
autonomy of the employees and recognition of further authorities for the staff in
the decision-making process that allows them to act and think more freely.
Organizations where the sphere of decision making is open to senior managers
only are less effective than are organizations in which decision making is
decentralized (Friedman, 1999). Enhancement of the teachers’ professional
autonomy is something that needs to be considered in the implementation of the
education reforms. Granting autonomy and empowering teachers can be an
appropriate starting point to deal with the current school problems (Pearson and
Moomaw, 2006).
In the scientific literature, the concept of the teacher autonomy is defined by
many scholars and these definitions contain important differences. Therefore
it’s very difficult to find a common definition. However, these different
definitions point to one common aspect which stresses that the autonomy
requires recognition of greater power and freedom to the teachers in their
professional activities. Scholars describe this as “control their work
environment” (Pearson and Hall, 1993:173), “encouraging and strengthening
the power of teachers” (Friedman, 1999:60), or “freedom to make certain
decisions” (Short, 1994:490-491).
As observed with other professions that require specialization, improvement of
teacher autonomy envisage the enhancement of the teacher powers in processes
of planning, decision making and materialization of the educational activities
(Pearson and Moomaw, 2006). However, it should be recalled that teacher
autonomy does not mean absolute freedom. Studies done so far on this subject
show that excessive authority recognized to the teachers lead to other problems
and undesired outcomes (Anderson, 1987). Recognition of further powers for
the teachers in their professional activities is done by not only the upper
authorities who regulate the framework of these powers but also enhancement
of the professional capacities and skills of the teachers (Bustingorry, 2008; Steh
and Pozarnik, 2005).
Enhancement of teacher autonomy bears significance in many respects. Above
all, recognition of greater powers for the teachers is essential to ensure that they
fulfill their tasks at the schools properly. The limited power of the teachers in
the drafting and planning of the teaching methods and contents contradicts with
the larger sphere of their responsibilities. Ingersoll (2007) states that teachers
are entrusted with the training of the next generation, but they are often not
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entrusted with much control over many of the key decisions concerned with this
crucial work.
The literature focuses on the impact of professional autonomy over the
professional quality of the teachers’ work. Goodlad et al. (as cited in Webb,
2002) argue that there are three characteristics for someone to qualify as a
professional: Professionals must possess a large degree of talent and skill in
their profession; they must use a body of knowledge that supports their work;
and they must have the autonomy to make decisions in their work. Freidson (as
cited in Ingersoll, 2007) argues that the degree of power and control that
employees hold over workplace decisions is one of the most important factor
determining the degree of professionalization and the status of an occupation.
Professional autonomy should be secured for the teachers to make sure that they
are recognized as professionals:
[..] recognizing teaching as a profession and developing professional
teachers is a possible solution to teachers’ lack of motivation and
satisfaction, professionalism, and empowerment, as well as teacher
stress. If teachers are to be empowered and regarded as professionals,
then, like other professionals, they must have the freedom to prescribe
the best treatment for their students (as doctors and lawyers do for their
patients and clients). Experts have defined that freedom as teacher
autonomy (Pearson and Moomaw, 2006:44).
Teacher autonomy is a must in teaching because of some unique aspects and
requirements of this profession. The abilities of the students to grasp any given
subject, their needs, interests and tendencies as well as their skills and talents
are all different. The environment and outlook of any given class is different
from those of another. Therefore, it is the teacher who knows the classroom
reality best and is able to make the best and most sound decisions with respect
to the pupils (ETUCE, 2008).
Piagetian constructivist approach refers to pupils’ autonomy as an important
purpose of education. In classrooms where teachers encourage autonomy,
children turn into problem solvers, capable not only of properly dealing with the
problems, but also of posing their own problems to solve or questions to explore
(Castle, 2004). However, in order that the teacher encourages learning
autonomy of the pupils and plans the teaching activities based on the needs,
natures and features of those students, they should possess some degree of
autonomy. Castle (2004:7) states that “teacher autonomy will equip teachers to
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be curriculum creators not just curriculum enactors. Autonomous teachers cocreate
curriculum with children. They help children become more autonomous
through pursuing topics and questions of interest to children themselves.”
Teacher autonomy is a broad concept; it refers not only to the teacher’s power
in the planning and implementing of the teaching activities but also to his or her
involvement and participation in the decision making process at the level of
school management. Friedman (1999) states that there are two main aspects of
teacher autonomy: the pedagogical aspect that focuses on such issues as
curriculum development and student teaching and assessment, and
organizational aspect that focuses on such issues as staff development or
budget planning.
The term teacher autonomy, however, is analyzed in this study in a narrower
sense because it mainly focuses on the curriculum. The organizational aspect
falls outside of the scope of this research. Therefore, the term teacher autonomy
-as used in this article- points to the power and freedom of the teachers in the
selection of the subjects to be taught, methods and materials to be used in the
teaching activities as well as the implementation of the decisions taken.
Teacher Autonomy in Turkish Educational System
Turkish educational system has been under the influence of centralist tendencies
throughout the process of its historical development in modern era; this is still
the case in the present time (Uygun, 2008). According to Fretwell and Wheeler
(as cited in Akşit, 2007), Turkey has the most centralized education system
among the OECD member states. This centralized structure is visibly observed
in many fields of the education system including curriculum development,
approval and choice of textbooks and other instructional materials, employment
of teachers, governance and inspection of schools, appointment and in-service
training of teachers (Yıldırım, 2003). This limits the powers and autonomy of
the schools in the decision making and management processes. “Compared with
Europe and most of the world, Turkey’s public schools have the least autonomy
over resources, staff deployment (at the school), textbook selection, allocation
of instructional time, and selection of programs offered” (Vorkink, 2006:17).
The curriculum programs drafted by the Ministry of National Education
(MoNE) envisage a standard system for the entire country. The number of
optional and elective courses is fairly limited in this system. In addition, the
electives must be picked from a list prepared by the Ministry (ERG, 2008).
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Yıldırım (2003) analyzes the attitudes and practices of Turkish teachers with
regard to instructional planning and further concludes that external factors have
played vital roles in the decisions with respect to the teaching activities.
Curriculum programs and textbooks appear to be the most influential tools in
the process of instructional planning. In other words, the teachers excessively
rely on the curriculum and the textbooks in their teaching activities. The school
administration and the inspectors ask full implementation of the curriculum
programs by the teachers. In short, the teachers have little autonomy in the
determination of the content of the teaching activities. In cases where the
curriculum falls short to meet the demands, interests and needs of the students,
the teachers have difficulties to run their teaching activities in accordance with
the class reality:
[…] the most common problem mentioned by the teachers was the
difficulty they experienced in bridging the gap between the
requirements of the national curriculum and the realities of the
classroom. They stated that certain units in the national curriculum may
not be in line with students’ background, needs and interests; as a result,
what they planned in units may not be achieved fully during instruction.
Teachers mentioned that principals and inspectors often would like to
see that unit plans reflected the national curriculum as much as possible,
resulting a dilemma for teachers in preparing unit plans. (Yıldırım,
2003:533)
Current researches confirm that the teachers are mostly complainant about the
intense content of the curriculum programs (Can, 2009). This situation points to
two different outcomes: that the contents of the programs are very detailed and
intense; for this reason, the teachers do not have flexibility to regulate the
contents of the programs in accordance with the special needs and
circumstances of the class. Secondly, the teachers feel that they are obligated to
follow the programs through the end of the year and leave any uncovered
subject included in the program.
This structure of the educational system effect naturally the teachers’ attitudes
and practices in regards to curriculum development and planning. Can (2009)
shows that, in Turkey most teachers hold that they have not the curriculum
development task, as the programs are developed by the National Ministry of
Education.
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METHOD
The recent curriculum reform emerged as an ambitious initiative to resolve the
issue of poor quality in educational system in Turkey. The best way to address
this challenge is proper diagnosis of the fundamental problems and introduction
of adequate resolutions to cope with these problems. To this end, the lack of
teacher autonomy is an issue that needs to be carefully considered.
The curriculum reform’s goals require undoubtedly a greater involvement of the
teachers in the process of teaching development. To this end, the teachers need
more autonomy and freedom for adapting their lessons to the needs, interests
and demands of their students. But the low degree of autonomy allowed to
teachers in their professional activities is one of the longstanding features of the
Turkish educational system. It’s clear that this incompatibility between the
goals of the curriculum reform and the structure of the educational system
where the Ministry exercises a strict control over the school curriculum is one
of the biggest challenges for the Turkish policy makers.
This study aims to analyze, through the new secondary history curriculum,
whether and how the program makers deal with this crucial problem. Therefore,
we intend to observe how the structure that gives the priority to curriculum
control evolves in the new curriculum programs. In others words, this article
aims to explore whether the new history curriculum will be able to adequately
address the lack of teacher autonomy that plays a crucial role in teaching
development.
The primary resources of this study are the former and new curriculum
programs of history courses (MoNE, 1981; 1993; 2007; 2008a; 2008b; 2009).
The content of the curriculum programs are analyzed based on qualitative
research designs in line with the goals of the research. The content analysis
focus basically on three different aspects in curriculum programs :
• Place of the teacher autonomy in overall goals and principles of the
programs;
• Sphere of freedom allowed to teachers in the teaching content (subjects)
planning;
Sphere of freedom allowed to teachers in the teaching methods and activities
planning.
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RESULTS AND DISCUSSION
Change and Challenges in History Curriculum
History is not a separate course in elementary school curriculum in Turkey. In
this level, subjects of the history, geography and civic education are taught
together in the course of the Social Studies. Conversely, history is taught
separately in secondary school level. This study analyzes the syllabi of
compulsory history courses in secondary education.
The secondary history curriculum change was started in 2007. Four new history
programs (History for 9th grade, History for 10th grade, History for 11th grade
and Contemporary Turkish and world history) were prepared between 2007 and
2010. The new curriculum programs offer significant changes and innovations
in the teaching of history courses. The program notes that the leading goal of
the change is enhancement of “student-centered learning”. To this end, the
official texts further recall that teaching activities should be carried out with the
understanding that every student is a different and independent individual, and
that different students with diverse background and learning abilities have
different needs and require varying attentions. Under this approach, the history
program urges the teacher to consider diversity in the learning and teaching
methods and employ the proper method that suits to the students (MoNE, 2007;
2008a).
Yet another innovation in the new history curriculum program with respect to
student-centered approach is its emphasis upon active participation and
involvement of the pupils in the teaching activities. In so doing, the drafters of
the program seek to make sure that the students assume active roles in the
learning process (MoNE, 2007). The prevalent method in history classes in
Turkey is traditional narrative method which pays central attention to the
teacher. The new curriculum aims to introduce teaching methods focusing on
student-centered learning activities instead of traditional narrative method.
In parallel to the goal to enhance student-centered learning activities, the
program also offers changes in the methods of student assessment. To this end,
the program makers seek to develop performance-based assessment focusing on
the measurement of the student’s performance in the learning activities and
projects, without complete abandonment of traditional in-class exams. The
program provides detailed explanation on these methods for consideration by
the teachers (MoNE, 2007; 2008a; 2008b; 2009).
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The new program further put special emphasis upon skills. Traditionally, in
Turkey the history teaching has been based largely on transmission of
information and description of historical events. The new program seeks to
develop a new approach that sets a balance between knowledge and skills.
Skills are divided into two groups in the program as “primary skills” and
“historical thinking skills”. Primary skills include the issues as “critical
thinking”, “research and investigation”, “problem-solving” and “proper usage
of Turkish language”. Historical thinking skills, on the other hand, include the
skills as “thinking chronologically”, “historical interpretation and analysis” and
“research based on historical inquiry” (MoNE, 2007; 2008a).
Teacher Autonomy in New History Curriculum
As noted above, in terms of teacher autonomy, curriculum programs are
analyzed in three different aspects: Overall goals and principles; teaching
content planning; teaching methods and activities planning.
Overall Goals and Principles
Like previous history programs, the introduction part of the new program
provides detailed explanations on overall goals, principles and teaching
approaches; the following parts further classify in units the subjects and
activities that constitute the teaching content. It is observed that introduction
part of the new program is quite larger than that of the previous programs. The
primary reason is its ambition and assertion to offer a radical transformation in
history education. To make sure that this new approach is best elaborated, the
program relies on detailed explanations on the overall goals, approaches,
implementation principles and methods as well as assessment tools and
materials to be used in the measurement of the students’ performance in the
class.
A review focusing on the part where the general principles and approaches over
the history program are explained confirms that the issue of teacher autonomy
has been largely neglected by the program makers. Even though the overall
approaches and principles are broadly explained, the new curriculum program
does not make any clear and obvious reference to the teacher autonomy or to
another concept or approach relating to it (MoNE, 2007; 2008a; 2008b; 2009).
The program puts emphasis on the use of different and efficient methods in the
classroom, asking for teachers’ pursuit of innovative tools to make sure that the
students actively participate in the in-class discussions and debates. It fails,
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however, to offer a visible and concrete structure where broad authority and
autonomy will be given to the teachers for planning and implementing of the
teaching contents and activities.
Otherwise, this is not limited to the case of history program. The official texts
detailing the general outlines of the curriculum reforms introduced for the
elementary and secondary education make no specific reference to the
enhancement of teacher autonomy (MoNE, n.d.).
Teaching Content Planning
In regards to the definition of teaching subjects, the program keeps largely the
approach of the previous programs. In Turkey, teaching subjects have been
traditionally drafted in details in the history curriculum. The content description
of the history syllabi was fairly similar to a book’s Table of Contents which
provides all details and sub-themes. Detailed description of the subjects leaves
no room for the teachers to take initiative and responsibility with respect to the
content. This affects not only the teachers but also the authors of the textbooks.
The authors have to observe normally the rules and standards set out by the
MoNE and prepare the textbooks in accordance with the curriculum content.
Because of detailed and comprehensive description of the content in the
program, the contents of different textbooks of a history course become almost
very similar (Kabapınar, 2003; Öztürk, 2009b).
The new program brings some changes to the fore in respect to the definition of
the teaching content. Unlike previous history syllabi (MoNE, 1981; 1993), the
news syllabi (MoNE, 2007; 2008a; 2008b; 2009) do not list the main subjects in
detailed titles. Instead, the units are divided into sub-units and for each sub-unit,
‘acquisitions’, ‘activity examples’ and ‘explanations’ are provided. However,
even though absence of the detailed subjects list represents a positive and
progressive change, the new program still describes teaching content in a
manner widely detailed as ‘acquisitions’, ‘activity examples’ and
‘explanations’. Therefore, this change does not bring a significant effect
regarding the degree of the teacher’s role in planning of the teaching content.
The curriculum program does not make clear the emphasis that teachers have to
follow strictly the recommended teaching subjects. It should be noted that
former programs followed the same path and did not make any obvious
reference to this issue. In practice, however, teachers follow strictly the content
drafted in the curriculum program. In conclusion, regarding the choice and
planning of the teaching subjects, the new history program brings some
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changes, but it fails to create a greater space of autonomy for the teachers to
take an important role in the curriculum development process.
Teaching Methods and Activities Planning
In regards to the selection and planning of teaching methods and activities, the
situation is not very different. As already noted, the new program offers a new
teaching approach based mainly on student-centered activities. The program
outlines a number of assignments and duties for the teachers in the
implementation of the envisaged works. It puts emphasis on the use of different
and efficient methods in the classroom, asking for teachers’ pursuit of
innovative tools to make sure that the students actively participate in the inclass
activities. But it only briefly touches upon the autonomy that the teachers
need in fulfillment of their duties and assignments. The program makes an
indirect reference to this issue; the relevant part notes that the “sample
activities” given in the program are exemplary and the teachers could
implement them as they are or they could change these activities for greater
efficiency (MoNE, 2007).
A review of the “sample activities” content in program, however, shows that
these “examples” are not serving as guides for teachers to develop teaching
activities; instead, they are determining the core content of the activities. The
program gives the “sample activities” for each teaching subject and the number
of such examples is so large that they constitute the whole content of the history
courses. The syllabi of history courses of the 9th, 10th, 11th and 12th grades
include 74, 165, 138 and 134 “sample activities” respectively (MoNE, 2007;
2008a; 2008b; 2009).
In conclusion, the program is vague and contradictory with respect to the
selection of teaching methods. It could be argued that, compared to teaching
content planning, the new history program provide some autonomy to teachers
in teaching methods and activities planning. It stresses the diversity of teaching
methods as a general principle and, urges the teachers to assume greater roles in
the enhancement of the teaching activities. However, the program does not
explain clearly and explicitly the sphere of authority which teachers have in
selecting and planning of the teaching methods and activities. In others words,
in the new program there are general principles, but there is not a concrete
structure that can empower and encourage teachers to take a further role and
initiative in decision making regarding teaching methods and activities.
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Moreover, it leaves little room for the teachers by detailing vastly the “sample
activities” to be employed in the classroom.
Textbooks selection
Selection of course materials is another major point with respect to teacher
autonomy. Textbooks are the basic materials for history teaching in Turkey.
While it is not, in essence, an issue related to curriculum programs, a change
also occurred regarding textbook selection in the same period of the curriculum
change.
Until the 2000s, in Turkey textbooks have been published by private publishing
houses subject to approval by the MoNE; the schools were free to determine the
textbooks they would use in their classes. In addition to private publishers, a
public publishing house affiliated with the MoNE undertook publication of
some textbooks. The textbooks are provided to the students for free by the
government since 2003 in elementary schools and since 2006 in secondary
schools. Nowadays the textbook diversity model remains in effect; however, the
distribution of the textbooks for free has created serious problems regarding
textbook diversity. Because of this practice, the number of the textbooks
published by the private publishers has considerably decreased (ERG, 2008).
This problem is more visible in secondary education. In recent years, the
textbooks for most of the school disciplines in this level are published only by
the MoNE’s publishing house. This was also the case with the history courses.
Even though there was formerly diversity, after the curriculum reform (2007)
the new history textbooks for the 9th, 10th and 12th grades were prepared only by
MoNE’s publishing house. Use of a single textbook for history courses presents
serious problems from the many aspects. With respect to teacher autonomy,
lack of the possibility for the teachers to choose the main course material poses
a great problem.
CONCLUSION
The new curriculum program seeks to introduce a number of innovative
approaches and methods in an attempt to improve the history education. The
program, however, pays little attention to teacher autonomy, a key component
that is essential to make sure that the goals of the curriculum reform are
fulfilled. It reserves little room for the teachers in the selection and planning of
the teaching content, methods and materials. Actually, it could be argued that,
compared to the former history programs, the new one introduces some limited
progress with regard to teacher’s roles in curriculum planning. Considering the
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ambitious goals of the curriculum reform, however, this is insufficient progress.
It could be concluded that the improvement of teacher autonomy is not one of
the explicit and prior objectives of the curriculum reform. Consequently the
new history program fails to construct a new framework that can allow and
encourage teachers to assume a greater role in the development of teaching. It is
obvious that the lack of teacher autonomy still remains as a grave problem in
the new history curriculum.
Actually, the implementation of general goals presented by the new school
curriculum require enhancement of teacher autonomy. The reformist discourse
states that one of the primary goals of the curriculum reform is to introduce a
new method of teaching focusing on the needs, interests and demands of the
students and considering their diversities. This can be done by encouraging and
allowing teachers to take initiative in curriculum development. The number one
condition of this is to make sure that they have a broad sphere of power and
autonomy where they are allowed picking and planning the course content,
methods and materials. This incompatibility between the goals of the
curriculum reform and the reality of the new programs reveal the difficulty to
change the long-established conception and structure of the Turkish educational
system where the Ministry exercises a strict control over the school curriculum.
It appears not easy to transform this structure which has existed over decades.
Teacher autonomy is one core issue that needs to be addressed in order to
adequately deal with the current educational problems in Turkey. In a reform
initiative failing to consider this issue, the principles such as the studentcentered
teaching will remain inevitably unfulfilled. In order to overcome this
problem, the teachers as well as the school institutions should be empowered
with regard to decision making over the school curriculum and its
implementation.
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