Uruguay - Education

Education under the Colorados, 1985-88

Shortly after entering office in March 1985, Sanguinetti passed a decree aimed at restoring greater autonomy to the education system. Conae was replaced by the National Administration of Public Education, which oversaw three decentralized councils--one for primary, one for secondary, and one for technical education. Full autonomy was restored to the University of the Republic. Whereas total spending on education represented 7.4 percent of the national budget in 1984, by 1987 this had risen to 10.9 percent, equivalent to US$175 million.

From 1985 to 1988, the government agreed to rehire all teachers and professors who had lost their jobs during the political purges after 1973 (3,241 accepted the offer of returning to their old jobs, but 1,520 took retirement instead). In many cases, the rehiring of former teachers led to unnecessary numbers of staff, as the government undertook not to fire any of the replacement teachers that had been taken on under the military, although in some cases they lacked qualifications.

Clashes between the education authorities and the government were common after 1985, given the existence of a relatively conservative government and far more liberal teachers. Nevertheless, an element of balance between centralized control and decentralized initiative was successfully restored. Relations between the government and the University of the Republic were surprisingly smooth, and the latter's share of the national budget grew from 2.5 percent in 1984 to 4.3 percent (US$59 million) in 1988.

During the period of military rule, another phenomenon began to emerge--the establishment of private research institutes. These relied entirely on funds from foreign development foundations, such as the Inter-American Foundation (a United States agency), the International Development Agency (a Canadian agency), and various West European equivalents. The new institutes were comparatively small, usually only hiring a dozen or so full-time staff, but they constituted an important haven for academics who had lost their jobs for political reasons. Without these private centers, even more academics would have been forced into exile.

Among the new private research centers was the Latin American Center of Human Economy (Centro Latinoamericano de Econom�a Humana--CLAEH). By far the largest of the centers, the CLAEH was closely linked to the Christian Democrats. Apart from carrying out a broad range of sociological and economic research, it also conducted courses for university-level students and published what was for a time Uruguay's only social science journal. Somewhat more to the left was the Economic Research Center (Centro de Investigaciones Econ�micas--CINVE), which specialized in research on the economy, particularly that of the rural sector and the impact of the economic liberalization pursued under the military. Two other institutes with a more sociological agenda of research were the Center of Information and Studies of Uruguay (Centro de Informaciones y Estudios del Uruguay--CIESU) and the Interdisciplinary Center of Development Studies, Uruguay (Centro Interdisciplinario de Estudios del Desarrollo, Uruguay--CIEDUR).

With the return to democracy in 1985, many of these centers found it hard to continue to win foreign grants to undertake their research, and most of their personnel attempted to return to their former jobs in higher education. Where possible, however, the teachers tried to retain both positions.

Education

Uruguay had the highest literacy rate in Latin America, at 96 percent in 1985. There was no appreciable difference in literacy rates between males and females, but there were discrepancies between urban and rural rates (rural rates being demonstrably lower). Uruguay's system of universal, free, and secular education required a total of nine years of compulsory school attendance, from ages six to fourteen. The proportion of children of primary school age enrolled in school had long been virtually 100 percent. Furthermore, from 1965 to 1985 the proportion of children of secondary school age enrolled in some form of secondary school grew from 44 to 70 percent, also the highest rate in Latin America. The postsecondary education enrollment rate was about 20 percent. Coeducation was the norm, and females and males attended school in near-equal numbers at all levels. As is typical of any country, however, rates of schooling were higher in urban areas than in rural areas.

The quality of education in Uruguay was rated as high. Teaching was a socially respected profession and one that paid relatively well. Most teachers, trained in teachers' training colleges, were deemed well qualified. The main problem confronting the education system was the inadequacy of facilities, instructional materials, and teachers' aides. Rural areas often suffered from woefully insufficient facilities and supplies. Urban schools often were seriously overcrowded and were forced to resort to holding classes in multiple shifts. In addition, dropout and repetition rates, although moderate by Latin American standards, were still considered high.

Educational Reforms under Military Rule, 1973-85

In 1973, the year in which Uruguay descended into authoritarian rule, major changes were decreed in the education system. The National Council for Education (Consejo Nacional de Educaci�n--Conae) was set up to oversee all three branches of education under the supervision of the executive branch of government. At the same time, the compulsory length of schooling was raised from six to nine years. The secondary curriculum was completely reorganized, as was the pattern of teacher training. Finally, the INET saw its status and budget upgraded. However, overall spending on education fell from 12.2 percent of the central government budget in 1974 to 7.3 percent in 1982.

Enrollments in primary education (both state and private) fell 6 percent from 1968 to 1981. From 1968 to 1982, secondary school enrollments grew 6 percent; however, about half the secondary school students in Montevideo (and 70 percent in the interior) dropped out before receiving any certification. Over the same period, there was a boom in technical schools; enrollments increased 66 percent in the interior and 27 percent in Montevideo. The major cause of this increase was the new ciclo b�sico (basic cycle), which added three years of compulsory secondary education to the six years of compulsory primary schooling. However, the dropout rate remained about 50 percent. Enrollments in the University of the Republic doubled from 1968 to 1982, but the proportion of students graduating fell to just 8 percent.

In 1984, as something of a parting shot, Uruguay's military government formally granted university status to a Catholic college that had been expanding over the previous decade. This ended the University of the Republic's monopoly, which had lasted since its foundation in 1849. The new Catholic University of Uruguay remained extremely small, however, compared with its rival.

Historical Origins and Evolution of Education

Uruguay pioneered universal, free, and compulsory primary education in the Americas under the influence of Jos� Pedro Varela (president, 1875-76), whose writings convinced the government to pass the 1877 Law of Common Education. The model adopted for public schools was taken from the French system, and a centralized, nationwide system was established. A rigid separation into three branches of education grew up--primary, secondary, and university. Teacher training for grade school teachers was connected to the primary school system. The National Institute of Technical Education (Instituto Nacional de Educaci�n T�cnica--INET) grew up as an extension of the secondary school system. By the late 1950s, all three branches of the education system had established administrative autonomy, including complete control over their budgets. The Organic University Law of 1958 provided that the governing bodies of the University of the Republic would be elected by the members of the faculty, alumni, and students.

By the late 1960s, Uruguayan secondary schools and the various faculties of the University of the Republic had become extremely politicized. Student sit-ins, demonstrations, and even riots were commonplace. Classes and examinations were frequently disrupted. After 1973 the authorities vowed to put an end to this situation, and political purges in the education system became widespread. Some teachers were able to find work in private schools, but others either left the profession or emigrated. Entire branches of the university, such as the Institute of Social Sciences, were closed for a time. Academic standards suffered across the board as some of the best teachers and professors were fired and replaced by people with only mediocre qualifications.

The Education System

Primary education in Uruguay was free and compulsory; it encompassed six years of instruction. The number of primary schools in 1987 was 2,382, including 240 private schools. There were 16,568 primary school teachers and 354,177 primary school students. This resulted in a pupil-teacher ratio of approximately twenty-one to one in 1987, compared with about thirty to one in 1970. Boys and girls were enrolled in almost equal numbers.

General education in secondary schools encompassed six years of instruction divided into two three-year cycles. The first, or basic, cycle was compulsory; the second cycle was geared to university preparation. In addition to the academic track, public technical education schools provided secondary school education that was technical and vocational in nature. The two systems were parallel in structure, and there was little provision for transfer between the two. All sectors of society traditionally tended to prefer the academic course of study, which was regarded as more prestigious. As a result, academic secondary education had expanded more rapidly than technical education in the second half of the twentieth century. In 1987 there were 276 general secondary schools in Uruguay, including 118 private schools. However, the public high schools were much larger, so that in 1987 they actually contained 145,083 of the country's 175,710 secondary school students enrolled in both day classes and night classes. In addition, ninety-four technical education schools had a total enrollment of 52,766 students in 1987. Male and female enrollment at the secondary level was roughly equal, but females slightly outnumbered males overall (constituting, for example, 53 percent of the secondary school student body in 1982). It appeared that females were in the majority in the basic cycle but were very slightly outnumbered by males in the university preparatory cycle.

Uruguay had only one public university, the University of the Republic (also known as the University of Montevideo), founded in 1849, and only one private university, the Catholic University of Uruguay, established in 1984 and also in Montevideo. Education at the University of the Republic was free and, in general, open to all those possessing a bachillerato, or certificate awarded for completion of both cycles of general secondary education. Despite the free tuition, however, access to a university education tended to be limited to children of middleand upper-income families because the need to supplement the family income by working, coupled with the expense of books and other fees, placed a university education out of the reach of many. Moreover, the fact that the only public university was in Montevideo severely limited the ability of those in the interior to attend university unless their families were relatively well off financially. In 1988 about 69 percent of university students were from Montevideo.

The number of university students continued to grow rapidly, from nearly 22,000 in 1970 to over 61,000 in 1988. Of that total, women accounted for about 58 percent. Most courses of study were intended to last from four to six years, but the average time spent at university by a successful student was usually considerably longer. As in the rest of Latin America, maintaining the status of student had various advantages, such as reduced fares on buses and subsidized canteens. This was one reason that the student population was so large yet the number of graduates relatively low. In 1986 only 3,654 students (2,188 women and 1,455 men) graduated from university, whereas 16,878 entered that year. Uruguayans exhibited a strong preference for the disciplines and professions they deemed prestigious, such as law, social science, engineering, medicine, economics, and administration.

Observers continued to note the discrepancy between university training and job opportunities, particularly in the prestigious fields. This gap contributed to the substantial level of emigration of the best-educated young Uruguayan professionals.

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