CHAPTER 6:Education

Historical Background

Western schooling in the area goes back to 1669 when Spanish missionaries established the first school on Guam. German rule in Micronesia in the early 1800s brought the very beginnings of a public school system, but as under the Spanish, education was left mostly in the hands of missionaries. Not long after the Japanese took possession of Micronesia at the start of World War I, a public education system became a reality, growing into 24 schools scattered throughout the Northern Marianas, Caroline Islands and Marshall Islands. These schools offered 3-5 years of basic instruction to about half of the school-age population. When the United States assumed control of Micronesia as a Trust Territory following World War II, it extended elementary schooling through six grades and expanded enrollment everywhere (Hezel, 1989a).

Development of the Present System

In 1963, the last year of Kennedy's presidency, the US doubled its annual budget for Micronesia in a single year and raised it dramatically in the following years. The government undertook a massive school building program. By 1970 the total public school enrollment had doubled, and per pupil expenditure was $240, up from barely $50 in 1962. From that time on virtually all educable, elementary aged children were in a school (Hezel, 1989a). Education is widely regarded by FSM citizens as a necessity, and the FSM Constitution mandates provision of free and compulsory public elementary education to everyone up to the age of 14. In effect, education in the FSM is free at all levels and full government support is provided to all motivated students (Ansari, 1994).

Similar expansions occurred in secondary and post-secondary education in the 1960s. Six additional high schools were built, adding to the two high schools which were servicing the entire region in the 1950s. In 1963 the only post-secondary school in FSM, the College of Micronesia (COM-FSM), began as a two-year elementary teacher education institution and remained so until 1971. Beginning in 1974 the college gradually added to its degree programs and is now accredited by the Western Association of Schools and Colleges, has four campuses (on Chuuk, Pohnpei, Yap and Kosrae), and offers two year programs in Education, Liberal Arts, Business, Accounting, Agriculture and Marine Resources (CCM, 1982).

Schools and Enrollment

Throughout FSM there are 164 public elementary schools, 12 private elementary schools, 10 public high schools, and 6 private high schools (PREL, 1987).

Students are taught in their own language in the earliest grades, but a major objective of the educational system is to develop students' proficiency in the English language. The region contains a number of different native languages and dialects. In Pohnpei alone, four different native languages and three dialects are spoken. Teachers in the earliest grades must be able to speak and teach in the appropriate native languages and dialects in addition to possessing some English-speaking ability.

Increases of enrollment in elementary, secondary and post-secondary schools have been substantial due to rapid population growth. Between 1973 and 1994 elementary enrollment has increased by almost 50 percent, high school enrollment has nearly tripled, and college enrollment increased by a factor of 17 times.

1994 FSM Census data indicates that 93 percent of the elementary school-aged population were enrolled in school. In all, about one-third of the total FSM population was enrolled in school in 1994.

A significant trend in FSM education is the increasing participation of females in higher education. The upward trend is apparent when one compares female public high school enrollment in the Trust Territory years with what it has become in the 1990s. In 1966, for example, 26 percent of the total public high school enrollment was female. By 1972 the female percentage had grown to 39 percent; in 1978 it had increased to 45 percent; and in 1994 it stood at nearly 50 percent. By 1994, male students only slightly outnumbered female students at all levels of education, as Table 6.3 shows. The large gap between male and female access to education has been almost entirely closed in the last 20 years.

Increased female participation in education may be due to changes in previously held attitudes that education of females was less important than for males. High school attendance often required a girl to go away from home and board on another island, a move that was formerly unacceptable to traditional chiefs and parents.

Yap outer islanders, who have a reputation for being more traditional than the other islanders in FSM, show a significantly lower percentage of females graduating from the Outer Islands High School than from other high schools. Between 1981 and 1991, females comprised only 29 percent of the total enrollment at Outer Islands High School. During the next two years, the female share of total enrollment increased to about 37 percent. (Yap State OPS, 1987, 1990, 1991, 1992). There are indications that female enrollment will continue to increase even in the Yap Outer Islands in the years ahead.

Private school expansion, especially at the secondary level, has been rapid in the last two decades. The private schools' share of all elementary and secondary students has increased from less than 6 percent in 1980 to about 9 percent in 1994, while the percentage of private high school students has increased from 3 percent in 1980 to nearly 12 percent. In recent years females have outnumbered males in private elementary and pre-schools.

The level of education among the general population has risen markedly since 1980, as Table 6.4 shows. The educational gains made by women, which have already been noted, are reflected in these figures. The percentage of women over the age of 25 with some high school has doubled, and that of women with some college has tripled. The gains for males, while not as dramatic, are still significant. For the overall population, the percentage of those with at least some high school (29 percent) is nearly equal to the percentage of those who attended only elementary school (30 percent). Those with some college have risen from 8 percent to 18 percent of the population.

Attrition and High School Completion

Even though elementary education became universal in Micronesia in the 1960s, only about 60 percent of all elementary school graduates enter a high school. This proportion has remained fairly constant since the late 1970s (Hezel, 1989a).

Table 6.5 tracks students from entrance into elementary school through high school graduation (data was not available for Pohnpei). The table shows retention rates (per 100 students) through the first twelve years of formal schooling. Conversely, the table indicates the considerable difference in the attrition rate from state to state.

Judging from these numbers, Kosrae's educational system may be succeeding where others are not. Kosrae shows the highest elementary school retention rate of any of the states, and a good majority of those who enter first grade continue on to high school graduation. Most of Kosrae's elementary school graduates are admitted to high school, while on Yap about 80 percent of those finishing 8th grade are accepted into high school. In Chuuk, only about half of all 8th grade graduates go on to high school. This is partly explained by the fact that most high school students have to move to another island and board there in order to attend high school. Moreover, Chuuk's high and scattered population puts universal high school education beyond the reach of the state's education budget.

Table 6.5 shows that the high school dropout rates vary greatly from state to state. Just 20 percent of Kosrae's high school students drop out along the way, while the dropout rate in Yap, at over 40 percent, is twice as high. Highest of all is Chuuk, which shows nearly 60 percent of its high school freshmen leaving before graduation.

Overall, less than 40 percent of FSM students who attend elementary school go on to high school and 15-20 percent of all students who enter high school drop-out in the first two years.

Performance in Standardized Tests

The National FSM Department of Education (DOE) conducts a standardized testing program which is meant to help in evaluating the effectiveness of the FSM National Curriculum Minimum Standards. These standards have been implemented in all four states' public elementary and secondary schools. The testing instruments in language arts and math were developed by FSM Education Department. In spring 1995, students in grades six, eight, and ten from both public and private schools were tested. Analyses of language arts test results showed that most students barely passed the test, with average scores of 52-66 percent. Students scored better in the higher grades, and the FSM Education Department concluded that FSM students were "relatively satisfactory in language arts." All of the grades tested in math failed to meet the expected standards (average scores of 36-50 percent), pointing to serious deficiencies in mathematical problem solving skills among FSM students (FSM/DOE 1993).

The assessment of one professional team is that "the FSM education system suffers from unacceptably low quality" and cites the high drop-out rates along with the statistic that "only 20 percent of

Micronesian students are able to pass the TOEFL entrance exam, which requires only very basic competence in English and Mathematics" (FSM/ DOE, 1993).

Note: N = number of those passing over number taking the test.

English entrance test results of freshmen entering COM-FSM in 1994-1995 showed that the largest percentage of students (47 percent) are reading at the 5th to 6th grade level, with 81 percent of freshmen reading at or below the 9th grade level. As Table 6.6 shows, only between 27 and 35 percent of the FSM high school students tested in 1993-1996 passed COM-FSM's entrance test. State results vary by the year, but none show better than 40 percent at any time. Annual testing results have been consistent and are indicative of a nation-wide problem: students are not being adequately prepared in the primary and secondary schools. COM-FSM is attempting to provide college level education to students who are largely reading at a remedial English level (COM-FSM, 1995a; 1995b).

College Enrollment

College enrollment has skyrocketed since 1973, as we have seen in Table 6.2.

Throughout the 1950s and 1960s, the number of Micronesians who attended college remained rather small. For the most part, these were carefully screened students representing the intellectual elite of their schools. Late in 1972 Micronesian students became eligible for US Federal education grants for the economically and socially "disadvantaged." Availability of financial aid and liberal admissions policies of certain US mainland college institutions resulted in a flood of Micronesian students leaving home to go off to college in the 1970s. Since scholarship and grant aid are not as abundant in the 1990s, the numbers of students who can afford to go away to college will probably be reduced. This will almost certainly result in an increase of students attending COM-FSM, since a college education has become widely accepted among Micronesians as a universal right and imperative.

It would be advisable to provide incentives for students to major in programs that will help to alleviate FSM's manpower needs. Of 134 graduates of COM-FSM in 1994, only one student each graduated in Agriculture and Marine Resources which are considered to be fields essential to FSM's economic development. Thirty-one of the 39 faculty members of COM-FSM are expatriates. COM-FSM relies heavily on US funding as well as foreign teaching and administrative staff. The college's programs are not geared to the manpower needs of the FSM. Most of its students are in teacher's training and liberal arts. Ninety percent of the students are enrolled in two-year programs, and 54 percent of the graduates in 1994 were part-time students.

Nearly all FSM students who study at COM-FSM or any institutions outside of FSM have financial aid. A major source of scholarship funds is a US Compact grant of $2 million per year, but students receive additional assistance from US federal programs, especially Pell Grants. Other scholarships are provided by state legislatures, private businesses, and by foreign countries.

Quality of Teachers

Rampant teacher absenteeism is noted as a major problem in all states, but especially in Chuuk and Pohnpei (Ansari, 1994). The effects of this include reduction of effective teaching hours, poor modeling to the children, lack of discipline and supervision of students which adversely affects learning conditions, a deterioration in teaching ethics, and a lack of professionalism among teachers. School administrators have not effectively dealt with this major problem. "No work, no pay" could be instituted as a disincentive for blatant absenteeism. Social recognition, promotions, and financial incentives could be used to reward good teachers.

A major goal of the FSM National Education Department is to certify all teachers. The 1995 Annual Report from the Education Department indicates that 51 percent of all FSM teachers have an Associates of Arts degree (indicating completion of a two-year college program) while another 14 percent hold a Bachelors degree. Thirty-four percent of teachers have no degree, but this figure is down from the 45 percent reported four years earlier (Ansari, 1994).

This progress in certification, as desirable as it might be, will not lead to improvement in student learning unless teachers perform professionally. School administrators sometimes show a lack of ability or will to demand professional performance from teachers. Presently teachers are being paid above average salaries in comparison with other government employees with comparable education and work experience. Some attribute mediocre performance to the common view of teaching as no more than a stepping stone on the way to a better paying government job.

Finance and Maintenance

In 1993 the per pupil expenditures on education did not vary much from state to state, as Table 6.7 indicates. Per pupil expenditures ranged from a high of $898 in Yap to a low of $767 in Chuuk. Educational funds came from the government's operations budget and US federal program funds used to supplement the operational budget. The variations in per pupil expenditures are due to differences in teacher-student ratios, pay level variations, differences in subsidy levels, and the ability to save funds through community participation.

Chuuk has by far the largest school system of all four states. A look at Chuuk's system is indicative of the serious problems that exist. Of the total expenditure, 87 percent was spent on personnel. Less than $1 per student monthly was spent on educational supplies and materials, and less than 30 cents per student meal. These are considered inadequate for ensuring a minimum standard of education and nutrition, and points to uneconomic use of resources (Ansari, 1994 ).

At least 50 percent of Chuuk's schools are rated in poor condition and in need of repair and maintenance. The State has not put in its matching share in order to qualify for US funding to carry out repair work. Deterioration of school facilities adversely affects learning environments in addition to being a waste of investments that have already been made in school facilities. Another problem is the building of schools on private lands which later do not have their land leases renewed, leading to the abandonment of school buildings. Community support for repair and construction of classrooms has been difficult to mobilize for schools located on private lands.

School facilities in Yap were found to be much better maintained than in any other state. Perpetual surpluses were found in Yap's DOE budget, helping to account for its better facilities and availability of teachers and schools. A good level of cooperation exists between the DOE and the community/parents in maintenance and repair of school facilities with donations of labor and materials coming from the community. School Boards are considered to be functioning effectively there. Still, the quality of education in Yap is suffering, despite its higher investment per student per year ($193) in supplies, materials and other support services, in comparison to the other states.

Kosrae's level of educational funding and its allocations for non-salary expenditures appear adequate to sustain a satisfactory quality of education. Additionally the island has a comparative advantage geographically in that it does not have to deliver services to remote islands like the other states. The HRD Study therefore recommended concentrating on improving the quality of teaching as well as raising the teacher/student ratio in order to improve cost efficiency.

Overlapping Responsibilities

Education in the FSM is the joint responsibility of the FSM National Department of Education and State governments. The FSM constitution concurrently empowers both levels of government to promote educational activities. Established in about 1992, the National DOE's role has been limited to disbursement of federal and other scholarship funds, rather than providing direction to the states. It has no authority to effectively regulate and coordinate programs. It is difficult to define the respective responsibilities of the national and state education departments.

The overlapping educational responsibilities of state and national governments that are inherent in the system have lead to lack of coordination, duplication of efforts, and waste of resources. Examples cited in the HRD Study include allocations made by FSM Congress for a school which has been closed for years due to a land dispute and for which there has never been a replacement; overlapping responsibility for repair and maintenance of schools at the national, state and municipal levels; and disappearance of money that was allocated for construction of a school that never got completed.

The Purpose of Education?

What are students being prepared for by going to school? Are young people prepared when they graduate from high school either to enter college or the work force, in FSM or overseas?

Title 40 of the FSM Code states that the policy of the FSM is to provide for a decentralized educational system which "shall enable FSM citizens to participate fully in the development of the islands as well as to become familiar with the Pacific community and the world." The purposes of education in FSM shall be to "develop its citizens in order to prepare them for participation in self-government and economic and social development; to function as a unifying agent; to bring to people a knowledge of their islands, the economy, the government, and the people who inhabit the islands; to preserve Micronesian culture and traditions; to convey essential information concerning health, safety, and protection of the island environment; and to provide its citizens with the social, political, professional and vocational skills required to develop the Nation."

While these officially stated purposes are high-minded, they are extremely broad and all-inclusive. Educational goals and objectives need to be clarified and agreed upon so that limited resources can focus on preserving options for young Micronesians in the future. Micronesians basically have three choices upon completing school: to enter the town job market, return to the village subsistence and semi-subsistence economy, or emigrate in search of jobs outside of FSM. Considering the urgent needs of the nation, it would be wise to focus on realistic educational objectives that will result in a solid general education (eg, local language, English, mathematics, social and natural sciences) that can serve as a stable foundation for more specific skills training programs. This approach combined with budget constraints may mean that public education may have to limit the availability of high school. Nevertheless, the states can preserve the option of getting a high school degree through their GED programs. Private businesses could be encouraged to run short-term training programs to develop specialized skills. Such businesses might be rewarded with a tax break for providing training at their expense.

The So-Called "Brain Drain"

In a study of Chuukese students in the 1970s, about 62 percent of those who attended college completed a program and received a degree of some kind. Also it was found that very few of these graduates chose to reside permanently in other parts of the world. Most found that their college education assured them of a job upon their return home (Hezel, 1979). Thus, there did not appear to be a significant "brain drain" at that time.

In a recent study of migration trends (1990 - 1993) of FSM emigrants who have gone to Guam and the Commonwealth of the Northern Mariana Islands (CNMI), it was found that the percentage of FSM citizens with college degrees and living in the FSM was higher than the percentages of FSM emigrants with college degrees in Guam or CNMI (See Table 6.3. below).

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Table 6.5. Educational Level of FSM Migrants and FSM Residents (cumulative numbers and percentages)

Level Completed	FSM Residents (1994)	FSM Migrants in CNMI (1993)	FSM Migrants in Guam (1992)
Total (ages 25-44)	22,655 (100%)	1,406 (100%)	2,032 (100%)
High School Degree	39.5%	58.8%	53.0%
Some College	22.0%	19.1%	26.8%
Associate's Degree or Equivalent	11.6%	3.2%	3.6%
Bachelor's Degree or Equivalent	4.2%	2.5%	1.6%

Source: Adapted from Hezel and Levin, 1996

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These numbers confirm that Micronesians with the best degrees and the brightest prospects for employment will likely remain in the FSM and take the best jobs. Those who have left home to take advantage of job markets in Guam and the CNMI have tended to be the unemployed high school graduates lacking the skills or educational attainment to compete for jobs at home. These workers have filled entry-level occupations in Guam and CNMI.

Although it is often assumed that Micronesians will not return once they have gone overseas and obtained a higher education, actual numbers have not supported that assumption. However, a "brain drain" is likely to occur if the FSM economy is unable to offer jobs to its returning college graduates, particularly as US Compact monies dwindle.

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Education cannot be the job of the government alone. Parents and the community must be responsible for teaching traditional vocational skills and moral values.

Having a school in one's community brings jobs close to home and is a valuable asset to the community's economy. In order to qualify for a school in one's community, certain community supports need to be in place. Local communities have significantly contributed to school construction, repair and maintenance in the past. This support needs to be restored, perhaps with the help of a grant-in-aid from the state, with substantial donation of labor from the local community. The community could provide for the land on which their school is built, paying the lease if necessary out of municipal rather than state funds. Through local educational boards or other recognized groups, the local community could get involved in the selection of its elementary school's principal and teaching staff, assist in choices of curriculum, assist in enforcing the state law requiring school attendance of children aged 6-14, and help to make sure teacher absenteeism is brought under control.

Sharing of the costs of lunch, school transportation and textbooks by parents through a modest tuition fee has been recommended. Parents will likely resent such a requirement, if they do not see corresponding improvements in the quality of schools. By recruiting the help of parents and the community, people will develop a personal investment in the quality of education being provided in the local school.

Where Do We Begin to Change the System?

Overall, education in FSM has been made available to many more of the young, especially females, in the past two or three decades. A much larger percentage of the FSM population now has had at least some high school, if not a high school diploma. On a smaller scale, much the same could be said of college education. While, education is being extended to more of the young today, the quality of the school programs leaves much to be desired, as standardized test results indicate. This gives rise to the concern that FSM needs not just more education, but better education.

How can education be made more effective, relevant, and cost-effective? Instead of expanding educational facilities and programs, the focus needs to be on repairing and improving what already exists. Consolidation of existing facilities would be one cost-saving measure, but there are many others.

In order to improve the calibre of students entering the local college so that COM-FSM's limited resources can be focused on college-level instruction, the quality of primary and secondary education needs to be improved. Effective principals and involved, supportive local communities are key to school improvement.

Principals with good administrative skills, schools located in communities that take an active role in school decision-making and maintenance, reduction of teacher absenteeism, increase in the number of students per teacher where appropriate, privatization of transportation and food service programs are among the system improvements that would result in savings which could be used to raise educational standards.