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Sadyrkulov Rauan, Beijing Normal University E-mail: sadyrkulov_rauan@mail.ru
DEVELOPMENT OF HIGHER EDUCATION AND FORMATION STAGES OF THE MANAGING THE HIGHER SCHOOL IN THE KAZAKHSTAN
Abstract: In the article the history of forming the first higher schools on the Kazakh territory on the basis of archives documents, textbooks and other articles and books is investigated. The author has reported the history of educational institutions and the periods of managing them as a separate process in the chronological order using the data of historical documents. Also he observed the changes and promotions in managing the education system of Kazakhstan using objectives of the President, State programs.
Keywords: Kazakh National Educational institute, Lisbon convention, Corporative managing system.
Introduction
The topicality of the articles is defined with the importance of improving the quality of higher education. The decentralization of managing the higher education and widening the academic freedom of higher educational institutions is one of the ways of increasing the quality of higher education. Getting the freedom of higher educational institutions and decreasing the control from the state's side are confirmed with the Bologna process to which Kazakhstan entered in March 2010. Nowadays the development of education in Kazakhstan is in the period of passing the higher educational institutions to the independent system. The researches of the recent years show the importance of independence at the world level in the development of universities.
In the Conclusion of the article having been the independence and competition in one channel gives the opportunity the universities to improve. Also the recent history and today's development of Kazakhstan educational system are concluded well, new ideas on its future development are proved with detailed examples.
Aim of the research is to discover the decentralization periods of Kazakhstan higher educational system through the analysis of normative documents in the home educational system, to observe historically, to define the improving independent ways and peculiarities of modern higher educational institutions and to found the passing to the independence of higher educational institutions.
1. Formation of the educational system in Kazakhstan during the Soviet government
On 26th August of 1920 after publishing the decree "On forming Kazakh Autonomic Soviet Socialistic Republic" of the National Commissars Soviet of all Russia Central Executive Committee and the Russian Societ Federative Socialist Republic, in October at the Kazakh Soviet Constituent Congress "The Declaration of the workers' right of the Kazakh Autonomous Soviet Socialistic Republic" was adopted [1, 251-252]. One of the problems which was mentioned in
the Declaration was related to the national educational activity [2, 175].
On October in 1920 the National Educational Commissariat of the Kazakh Autonomous Soviet Socialistic republic was formed. Having begun its formation basis from the dependence on the Kazakh regioanl military-revolutionary Committee the national educational Comissariat also began its organizational activity from depending on three big authoritative administrative. They were: 1) Main management of social upbringing which took the responsibility for the upbringing, 2) Main political educational commissariat which led the political-educational activities, 3) The Professional education Management which was responsible for the professional-technical educational activities. Except these managements the following the fourth section which was responsible for the science and art - the Academic Center appeared [3, 15-16].
In 1922-23 academic years the Academic Center fulfilled many measurable activities concerning the providing the national schools with textbooks, program, 14 textbooks published in the mother tongue. Among them "Physics", "Grammar", "School hygiene and others [4].
Among the higher educational institutions which opened on the territory of Kazakhstan was Kazakh National educational institute in Orenburg opened in 1919. The institute prepared school teachers. In 1921140 learners studied there. According to the academic plan the study in the institute was held only in the Kazakh language. The institute teachers and students took an active part in destroying the illiteracy in the country. In 1925 the institute was moved to Kyzylorda. In the 30th due to the increasing the pedagogical and teacher's institutes in the Republic on 15th of October in 1933 it was closed [5, 194].
In 1920 there were Bokei Kazakh institute for giving the education to people, Semei National educational institute. The first year only 9 learners entered the Bokei Kazakh institute, and it couldn't justified itself, that' why it was changed into the teacher's course. On the first of March of 1922 on the
decree of the Kazakh National Commissariat the Orenburg polytechnic institute (Eastern institute) was opened. At the beginning of the year 50 learners were accepted, at the end of the year there only 20 of them stayed. Also among the teachers there was only one person who had a higher education, the Kazakh Autonomous Soviet Socialistic Committee on the basis of the decree of the central Executive Committee it was again closed. The following new institute was the National practical educational institute in Orenburg. Having confirmed its Charter in 1921 the National practical educational institute had begun to work since 1922. There the people who had nearly years of experience were registered as the listeners. According to it the main method of holding the lesson was as a conference of teachers which was held 2-3 times in a moth. Its calling as "Practical" was connected with it [3, 15].
If in 1921/22 academic years in the Republic Kazakh, Tartar Russian and 4 mixed types of institutions worked which gave the people the knowledge, and in 1927 in the Kazakh Autonomous Soviet Socialistic Republic 4 educational institutions, 1 pedagogical higher educational institution (Tashkent), 14 pedagogical technical schools worked.
On the 2nd of July of 1926 on the basis of the decree of the national Comissars' Soviet of the Kazakh Autonomous Soviet Socialist Republic the Tashkent Kazakh educational institute was changed into the Kazakh pedagogical institute. On the 23rd ofMarch of 1927 one decree of the government of the Union of Soviet Socialist Republics was published again. There the moving of the Kazakh pedagogical institute from Tashkent to Almaty and then it would be reformed as the university was mentioned. Also a great attention was paid to being several pedagogical faculties in its structure [3, 16].
In autumn of 1928 the formed and raised Kazakh State University turned into the main center of preparing the pedagogical staff for short period of time. In two years it was reformed again as Kazakh pedagogical institute, in 1953 it was given the name of Abai Kunanbayev.
In 1929 in Alma-Ata the zooveterinary institute, and in 1930 - agricultural began to work. In 1931 in Alma-Ata the first medical institute in the Republic was opened. Teacher training and teacher's institutes in Uralsk, Semipalatinsk, Aktyubinsk, Petropavlovsk, Chimkent and Kostanay were opened. In 1934 in the capital there was opening of two new higher educational institutions - Mining and metallurgical institute and the Kazakh state university named after S. Kirov (nowadays Al-Farabi KAZSU). In 1938 at KAZSU the Kazakhstan's first postgraduate study was opened.
The hard work on elimination of illiteracy which was held in 20th and 30th began to give the results. On a census of 1939, among the population of Kazakhstan there were 76,3% literate people. Pedagogical staffs were prepared in KAZSU, 13 - in
teacher training and teacher's colleges and 23 -in pedagogical schools.
In 1943 the teacher training college of foreign languages, the Chimkent technological institute of construction materials, in 1944 - Conservatory and Women's teacher training college in Alma-Ata began to work. In post-war time in 1950 the Karaganda medical institute, in 1951 the Semipalatinsk zooveterinary institute, in 1953 Karaganda Mining institute was opened [6, 17].
In the Republic three main types of higher schools were founded: university, polytechnic institute and branchy higher education institutions. Also according to the requirements of economy preparing the specialists was improved. However if we take into consideration the wide land of the Republic and the number of people, it is without saying that higher education institutions are not many [7, 65].
Ifwe stop at analyzing the problems of forming the structure of higher school management, the majority of higher educational institutions of the Republic was under the dependence of different Ministries and managing structures, at its turn it caused difficulties in solving many problems of higher school life. So, from the forming the Kazakh State university till 1946 the Union of Soviet Socialist Republics (USSR) was under the dependence of All-Union committee on the problem of higher schools.
In 1946 due to reforming the Committee on the problems of higher schools into the Ministry of higher schools of USSR the university directly passed to the independence of the Ministry of higher schools of USSR. Medical institutions submitted to the Ministry of public health, veterinary institutes - to the People's commissariat of agriculture and cattle-breeding in 1946 of LSSR, and in 1946-1954 it submitted to the Ministry of agriculture. Agricultural institutes submitted to the Ministry of higher school of LSSR from 1946 till 1953, and since 1953 it passed to the submission of the Ministry of Culture. So during the mentioned years in the Republic there were no unique administrative and methodological center on managing [7, 63].
Khruschev's ideas of approaching the intellectual and physical work and strengthening the relations between the school and production had led to carrying out the radical reform of education at the end of the 50th and beginning of the 60th. In 1958 the allied law duplicated in 1959 by the republican Law "About Strengthening the relations of School with Life" was adopted. According to it, instead of seven years' and ten years' education a compulsory eight years' education was entered on completion of which graduates had to be obliged to work for three years at the plants or in agriculture, combining the work with a study, or to study at high polytechnical schools with inservice training. Entering the higher educational
institutions was caused by a production experience, but not by the theoretical training of entrants. In Kazakhstan transition to a new system was completed in 1962-1963.
This reform caused ambiguous consequences. Fluctuation of staff at the industry was strengthened where the number of workers - "tranzitnik" had been increased on the way to higher educational institutions. The prestige of the higher education fell, scientists and the intellectuals were used at physical, unproductive works at the sacrifice to their professional activity. In 1964 some points of this reform were reconsidered.
In 1959, for centralization the management of higher educational institutions of the republic, the state committee was formed which was reformed then in the Ministry of the higher and secondary special education of Kazakhstan. The number of higher educational institutions increased. If in the fifties in the republic there were 26 higher educational institutions, then by 1980 their number had been increased to 55 [6, 21].
2. Higher education of the Independent Kazakhstan and its managing system
When Kazakhstan got its independence 61 higher educational institutions worked and only two of them were universities.
From 1991 till 2001 owing to the greatly development of private sectors higher education; institutions increased to 3 times, and their number went up to 182. But for these ten years there was no adequate increase in number of high school professors, associate professors, the educational areas, the equipment, libraries, scientific and publishing activity, etc. Having been formed market of labor couldn't give accurate orientation for high school system on a range, quantity and qualification characteristics of specialists. Therefore since 2001 the network of higher educational institutions steadily fell. Now in Kazakhstan 125 higher education institutions function: 9 national, 31 state, 16 incorporated, 54 private, 13 not civil, 1 autonomous, 1 international university.
In 1991-1994 the legislative base (Laws of RK "About the Higher Education", "About Education") was actively worked out. In 1994 the first GOSOVO was approved. Since 1995 the first Kazakhstan educational standards were being accepted. In 1996 a new edition of the Qualifier (list) of specialties of the higher education was approved. In 2001 according to the International Qualifier of an education system a new Qualifier of preparation directions and specialties of the higher education was worked out and entered [8, 302].
In 1991 the first International Kazakhstan-Turkish University of Hodge Ahmed Yassavi was opened. The head of state emphasized more than once that it had to become "the educational center of the Turkic world" [9]. In 2000 the Kazakhstan-British Technical University and Lomonosov Moscow State University branch were opened.
The beginning of integration of the higher education of the country into the world educational space was promoted by signing the Lisbon convention by Kazakhstan in 1997 [10].
The appeal of higher educationa; system is characterized by a high level of internationalization. In developed countries the quota of foreign students in higher educational institutions is 17-18% in average. In Kazakhstan for the last 15 years this indicator had grown by 1,7 times. The most part of foreign students studies in Kazakhstan on the basis of intergovernmental agreements with the National Republic of China, the Russian Federation, Mongolia, Uzbekistan, Tajikistan, Ukraine, Azerbaijan and the Islamic Republic of Afghanistan, etc. For 15 years the number of the Kazakhstan citizens studied abroad had increased by 26 times.
The significant role in full entering the independent Kazakhstan into the world educational community was played by the unique Bolashak program. The international grant was initiated by the Head of state in 1993 [11]. Leading universities of the USA, Great Britain, Germany and France accepted the Kazakhstan youth. In total for these years the international grant of Bolashak was awarded to more than 12000 Kazakhstan citizens.
In March, 2010 Kazakhstan officially joined the Bologna declaration among the CIS countries first and became the 47 th member of the European zone of higher education. The higher school of the country passed to a three-stage bachelor degree-magistracy-doctoral studies model.
The significant role in improving the quality of the higher school of Kazakhstan is assigned to the system of management. In 2016 the mechanism of selectivity of rectors of state universities was introduced. It became the first step in providing the transparency of activity of higher educational institutions (open competitive selection with participation of the university supervisory board). Earlier the first heads of higher educational institutions were appointed by MES PK. MAUN RK'S decision. The key in competitive selection was the protection of the university development strategy by the applicant. Joint decision is made by the republican contest committee with participation of the deputy prime minister of RK. Since 2016 the practice of rectors' annual reports of national higher educational institutions before the public had begun.
Questions of corporate control system formation are considered topical for the higher school of the country. In 2016 observant and the boards of trustees functioned in 84 higher educational institutions (9 national, 31 state, 1 international, 16 incorporated and 27 private). Representatives of MIO, the branch ministries and the public are included in their staff. The significant role in formation of a new generation of top managers of the higher school and introduction of the principles of corporate management is given to Nazarbaev University. Cours-
es of retraining and professional development of administrative structure of higher educational institutions of the country had begun since 2014. Training in Fund of leadership in the higher education (Great Britain), the Asia-Pacific university Rit-sumeykan (Japan), the Higher school of education of Pennsylvania University (USA), etc. was organized for them [8, 330].
All above-stated measures made a positive impact on Kazakhstan model development of higher and postgraduate education. The number of the Kazakhstan higher educational institutions in the international rating of QS has increased. If at the initial stage Kazakhstan was represented only by 2 higher educational institutions (2011), then in 2016 there were already 8 [8, 306].
3. Conclusion
The main direction of all reforms which were held in the sphere of education in our country is to increase the quality of education, to prepare the specialists who had higher qualification, competitive in the world market, who could meet the requirements modern qualifications according to his sphere.
In order to correspond to these requirements we should pay much attention to widening the academic and managing personality of the higher educational institutions for the purpose of carrying out the State President's Message "Kazakhstan's way - 2050: One aim, one interest, one future" which was adopted on the 17th ofJanuary of 2014, Nations' plan -100 concrete steps of fulfilling the state leader N. Nazarbayev's five institutional reform.
With 78 step of the Plan of the nation "stage-by-stage expansion of the academic and administrative independence of higher educational institutions taking into account the experience of Nazarbayev University. Transformation of private higher educational institutions to non-profit organizations according to the international practice" was foreseen.
For realization of the given step the concrete measures and expansion ways of academic and administrative independence of higher educational institutions are foreseen. In particular, according to the State program of development of education and science of the Republic of Kazakhstan for 2016-2019 (further - State Program), stage-by-stage introduction of experience of Ltd "Nazarbaev University" concerning the academic and administrative autonomy in civil higher educational institutions is continued.
Today the competition between the universities, both in the countries, and between the states, underwent changes, it was filled with a new content. "The academic globalization" induces the universities to be more enterprising and to take an active part in the fight for students, the most successful teachers, to compete for grants on scientific researches. In order to be able to react adequately to needs of modern world higher educational institutions in the conditions of competition must
have an administrative and academic independence in realizing their activity in the sphere of education and investigations.
The systems of the higher education of many countries, more often note that for maintaining the international reputation in a new competitive environment a big flexibility, aiming at generation of a new knowledge by the universities, susceptibility to innovations and ability to reproduce them that wasn't considered earlier as the main key to success was required.
The accepted Sate Program as a priority defined democratic processes in structural and meaningful architecture of the higher education. At the same time, the control system of the higher education is characterized by excessive centralization and sometimes a petty regulation of activity of higher education institutions.
It should be noted that only in the conditions of certain independence responsibility is possible. The present condition of national higher educational system causes need of increasing in social responsibility of higher educational institutions for results of its activity, for quality of training the specialists, for forming younger generation's modern outlook which has to be spiritually-morally rich, professionally competent, intelligently creative, innovatively susceptible and tolerant.
And also development of corporate governing bodies gives the chance of introducing the new mechanisms of appointment and release of administrative board of higher educational institutions, determination of their powers term, introducing the practice of accountability to society and formating the transparent budget. Today in 28 higher educational institutions the supervisory boards function. The supervisory boards include the questions of target use control of the budgetary funds and means received from additional sources, coordination of the report project on the development plan implementation, the preliminary approval of annual financial accounts, making decision on distribution of the sponsor's and charitable help and means received from the additional sources, including a part of the pure income which has remained at the disposal of the state enterprise, etc.
As the international experience testifies, the efficiency of higher education directly is defined by the decentralized control system. In this regard establishing the reasonable correlation of competences of the sphere of higher education between the authorities, structures and higher educational institutions is provided. At the level of the Government the main directions of social and economic policy of the state, including the education and sciences will be defined. The authorized body in the sphere of education and sciences will be engaged in the adoption of regulations on realization of the state educational policy. All questions concerning the management of operational activity and solving the current problems will be delegated to the higher educational institutions.
The academic independence assumes endowing the higher educational institutions with powers in defining the questions of admitting the students, establishing the correlations between the faculty and the quota of students, defining the structure and contents of educational programs, curricullum and academic programs of disciplines.
Within each specialty the number of educational programs and their name independently is defined by a higher educational institution. So, higher educational institutions can work out independently various educational programs according to the requirements of labor market at the expense of a component of choice. It increases the academic independence and mobility of higher educational institutions, it allows to consider peculiarities of labor market of the concrete region in the corresponding specialists.
In the conditions of market states of economy, fast removability of information in the sphere of scientific achievements, techniques and technologies, the principle of training during all life has to work. It is necessary to train the universal specialists possessing the broad basic preparation and key competences characteristic for the higher education. In % parts of the European space countries of the higher education training during life is recognized as the mission of higher educational institutions.
Thus, higher educational institutions, acting as the suppliers of educational services, have to become the producer of competitive educational programs, updating them on a constant basis taking into account requirements of students and employers to skills and competences. The student oriented training and educational programs adapted under the labor market inquiries, strengthening the cooperation with the enterprises will promote the improvement of quality of preparation and improvement of employment of graduates with a reference point on passing the qualification test which is held by the professional community.
It means that while forming the educational programs the learners' interests must be taken into consideration. While determining his individual trajectory of training the student can choose as the disciplines directly connected with his chosen specialty and the additional disciplines which aren't connected with specialty.
Higher educational institution, realizing educational programs, creates an educational environment, and provides with the corresponding resource in a certain direction of preparation. As it has been noted, the three-level model of teaching corresponds to a fundamental education with a broad basic preparation and key competences. Therefore the educational environment and resource providing have to cover completely all directions of preparation. In this regard licensing of educational activity will be carried out on the scientific sphere and/ or the directions of preparation.
In other words, the higher educational institution obtains the license for holding the educational activities on concrete scientific area and/or the direction of preparation within of which it can independently open the corresponding specialties and/or educational programs.
In its turn the authorized body in the sphere of education will carry out the introducing the Register of educational programs that will allow to conduct pointed training taking into account the real needs of the region. At simultaneous holding ranging and the rating of educational programs the increase of their competitiveness and elimination from the register of educational programs non-core or unclaimed by the market will become possible.
Respectively the student's quota will be formed not on specialties, but according to the educational programs on the basis of their competition and need of regions and labor market.
In general from expansion of academic and administrative independence the followings are awaited:
- giving the higher educational institutions the independence in realizing the academic policy;
- introducing the financial independence of higher educational institutions, including expansion of opportunities and minimizing the procedures of property management, formation of the transparent budget of higher education institutions;
- increasing the responsibility and accountability of higher education institutions to society;
- creating the innovative infrastructure of higher education institutions and decreasing the bureaucratic barriers for bigger transparency and efficiency of commercial activity.
The role of the higher education constantly evolves in the world. Today the world community lays great hopes on the universities, demanding from them the performance of a wide range of tasks promoting the growth of economy and forming the society of knowledge. Along with the traditional educational, scientific-investigative and innovative activity, the universities are called for broad participation in the development of the country and providing the continuous growth of its intellectual and innovative potential.
The activity of higher educational institutes and the managing model of them gain a corporate character regarding the expansion of collective nature practice of decision-making by university community and increasing the responsibility of the universities for achieving the goals.
With a change of a role of higher educational institutions in many countries also the nature of their relations with the authorities and society is transformed. The state control is deregulated step by step. For the last decades large-scale reforming of managing the higher education, both on system, and at the institutional level, for the purpose of giving a big-
ger freedom, dynamism, flexibility and efficiency which act as some kind of criterion of competitiveness of separately taken system of the higher education is practically observed almost around the world.
In the work of the famous scientist Jamil Salmi in the sphere of education " The Challenge of Establishing World-Class Universities" (2009) the best practice of creating the world class universities is presented, ways of their development on the basis of administrative and financial methods are described. The author proves that a number of higher educational institutions in the world could become the research universities of a world class thanks to the existence of three key factors: 1) a high concentration of talent (faculty-and students); 2) abundant resources to offer a rich learning environment and to conduct advanced research; 3) favorable governance features that encourage strategic vision, innovation, and flexibility and that enable institutions to make decisions and to manage resources without being encumbered by bureaucracy.
Within the Lisbon declaration (2007) the European Association of Universities distinguishes the following 4 characteristics of autonomy allowing to open most fully a concept of autonomy in higher educational institutions and, as a result, to correspond to the best international standards:
1. Academic autonomy.
The criterias of the academic autonomy are opportunities independently: to define the total number of students (proceeding from the resources of the University); to make a selection of students; to introduce educational levels (a bachelor degree, a magistracy, doctoral studies); to open/close programs; to independently choose a control system of education quality, mechanisms of quality control; to define the content of educational programs.
2. Financial autonomy.
The criterias of financial autonomy are opportunities to independently determine duration and types of public financing; to keep surplus; to borrow money; to have own buildings; to take a tuition fee of students, including foreign learners.
3. Organizational autonomy.
The criterias are opportunities to independently define the rules of appointment and criteria of administrative board; to dismiss workers of administrative board; to define a term of power; to include and select external members in governing bodies; to define the academic structure; to create the juridical persons.
4. Autonomies in the sphere of personnel policy.
The criterias of autonomy in the sphere of personnel policy are opportunities to independently define procedures of hiring, dismissal, promotion, sizes of the salary of the leading, academic, administrative personnel.
Analyzing the international experience, it is possible to note the following norms of foreign experience allowing to implement them in the national legislation.
For example, on the basis of the Swedish model of the higher education the following aspects of autonomy are represented (by types) which are expedient for application in the Kazakhstan educational space:
- academic: equal attention to both the educational process, and the scientific-investigative activity of a higher educational institutions; a high degree of freedom (scientific-investigative activity, admission of students, educational programs), which goes with the control of quality and effectiveness of using the resources by the universities from the Government's side; students' direct participation in solving the academic questions (educational programs, procedures of providing the quality) at an accurate regulation of activity of student's association; separate regulation of awarding the qualifications of specialized higher education institutions; a possibility of curriculum working out of higher educational institutions and independent suppliers of the courses which have the right to award qualifications, for awarding the joint degrees;
- administrative: independence of higher education institution at establishing the procedure of electing the members of managing council (board of trustees) and defining the internal organization; accountability of the vice-chancellor (rector) to board of governors;
- financial: legislative fixing of the right of higher educational institutions on commercial educational activity: one of the priority purposes of the universities is the implementation of "the third stream" activity (extraction of incomes besides traditional pedagogical and scientific activity); the right of regional executive authorities (municipalities/county councils) on the organization of courses and educational programs and participation in their development by higher education institutions.
On the basis of the Finnish model of higher education the following aspects of autonomy which are considered as expedient for using in the Kazakhstan educational space are represented (by types):
- academic: independence of higher education institutions at establishing the criteria of admitting the students; possibility of receiving the highest university degree without a condition of existence of the lowest university degree in separate branches if it is expedient from the point of professional requirements;
- administrative: existence of authorized body on the example of collegial/multimandatory administrative body in higher educational institutions of Finland for the purpose of regulating the activity of the trustees board; possibility of creating the legal entities;
- financial: the developed financial mechanisms of the state support of the higher education; possibility of implementation of commercial activity (educational courses). Especially it is topical the for pedagogical higher educational institutions - the existence of number of training schools for
the pedagogical practice in the higher educational institutions based on experience of Finland, it is possible to fix legislatively.
Thus, the offered recommendations will allow higher educational institutions to correspond to the international criteria of autonomous activity.
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