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Globalization
on the Margins
Globalization
on the Margins
Education and Post-Socialist
Transformations in Central Asia
edited by
Iveta Silova
Arizona State University
Sarfaroz Niyozov
University of Toronto
Acknowledgments................................................................................. ix
PA RT I
COMPLICATING THE MARGINS: INTERNATIONALIZATION
AND HIGHER EDUCATION REFORMS
v
vi Contents
PA RT I I
RE-ENGAGING THE MARGINS: GLOBALIZATION
AND NEW EDUCATION INEQUITIES
PA RT I I I
REFORMING FROM THE MARGINS: THE CENTRALITY
OF THE TEACHING PROFESSION
PA RT I V
REDEFINING THE MARGINS: INTERNATIONAL AID,
GLOBAL SOLUTIONS, AND LOCAL RESPONSES
PA RT V
CONCLUSION
The production and publication of the 2nd edition of this book came as a
result of multiple requests for updating the 1st edition to reflect the dynam-
ic development of research and scholarly exchange in the education field,
both internationally and in Central Asia. As a reminder, the 1st edition of
the book emerged as an outcome of a two-day conference, The Challenges of
Education Reform: Central Asia in a Global Context, which was organized by the
Harriman Institute, Columbia University in 2009. Since then, many chang-
es have naturally occurred. While the theoretical purpose of the edited vol-
ume reflects the original goals of the conference and the first edition, this
book is different in many ways. First and foremost, its authorship has signifi-
cantly broadened to include more diverse voices, especially from Central
Asia. Second, the latest edition of the book has broadened the scope of the
book thematically, covering new topics (e.g., inclusive education, gender
equity, language diversity), new geographic areas (e.g., Uzbekistan), and
new methodologies (e.g., spatial analysis). A few of the original chapters
have been significantly updated to reflect the latest developments, while
several new chapters have been added reflecting new research trends. In
addition, the volume’s introduction was revised along these conceptual,
methodological, and representational lines. Notably, this volume also has
a conclusion chapter, which pulls together key insights from the chapters,
connects them to the broader literature on postsocialism and comparative
education, and raises deep questions for new research, policy decisions,
and further engagement with education and society in Central Asia. A key
thread connecting the first and second editions is its collaborative nature,
reflecting close collaboration between Central Asian scholars and their in-
ternational colleagues in both the production of the chapters and the ex-
ternal reviews. As a result, this new edition represents expanded in size, too.
We are deeply grateful to all the contributors to this book who worked
patiently and enthusiastically across multiple continents to make this pub-
lication a reality. Special thanks go to OISE graduate student Izza Tahir for
helping us finalize this volume and co-authoring its concluding chapter.
Thank you also to graduate students from Lehigh University and Arizona
State University for all the hours invested in editing, organizing, and proof-
ing the manuscript.
INTRODUCTION
EDUCATION AND
POST-SOCIALIST
TRANSFORMATIONS
IN CENTRAL ASIA
Exploring Margins and Marginalities
When the Soviet Union collapsed in 1991, many Western academics and
commentators rushed to celebrate the long-awaited victory of liberal de-
mocracy and capitalism on the global scale. Following the logic of the “third
wave” of democratization1 (Huntington, 1993), the expectation was that the
Soviet system would ultimately be replaced by Western political, economic,
and social institutions. The former Soviet Union was thus pronounced “a
new frontier for the propagation of the western way” (MacFarlane, 1999,
p. 1). Indeed, most of the countries in the former socialist bloc appeared to
move towards the projected goals as they revised their constitutions, laws,
and policies to reflect the principles of market economy, democratic plural-
ism, and human rights. In education, policy rhetoric became remarkably
similar across the region, signaling a move from socialist education policies
to more Western-oriented ones. As Birzea (1994) observed, all post-socialist
countries have adopted, at least in official rhetoric, “one or another of the
western ideologies” (p. 55). From the post-socialist countries of Central Eu-
rope to the post-Soviet republics of Central Asia, the catchwords of the new
education reforms were “democratization,” “decentralization,” “liberaliza-
tion,” “pluralism,” and “humanization of learning” (Silova, 2009).
Almost three decades later, this triumphalist discourse remains strong
among many observers, although some cracks are beginning to emerge as a
result of the return of national-populist, right-wing neo-conservative move-
ments in the West, of which Brexit and Donald Trump are just a few ex-
amples. This new national-populist rightist challenge is exacerbated by the
revival of new pro-socialist discourses in the West, the rise of China, and Is-
lamist-driven resurgence on a global scale, as well as the “comeback” of Rus-
sia to the post-Soviet landscape. Nevertheless, as Gilbert, Greenberg, Helms,
and Jansen noted in 2008, some policy makers, scholars, and funding agen-
cies have in fact “declared Eastern Europe to be fully ‘transitioned,’ social-
ism dead and gone, and liberal democracy a cure-all for the difficulties of
global economic and political transformations” (p. 10). In particular, some
studies proposed that the accession of the former socialist countries into
the European Union (EU) should be viewed as one of the key indicators
marking the end of post-socialist transitions (Birzea, as quoted in Phillips &
Oancea, 2005). Commenting on the political, economic, and social develop-
ments in Central Asia, some commentators argued that the region was also
“at the end of the transition,” although at an entirely different “end”:
The transition period has come to an end in the sense that the states of Cen-
tral Asia have largely completed the process of systemic transformation. The
social and political structures in the Central Asian countries have acquired
a stable and (in terms of basic characteristics) a broadly similar character.
The countries have also fixed the shape of their basic features. They have es-
tablished regimes, with varying degrees of authoritarianism, behind a formal
quasi (or pseudo) democratic facade. These regimes range from what is a
relatively moderate regime (by regional standards) in Kyrgyzstan to the full-
blown despotism that prevails in Turkmenistan. (Rumer, 2005, p. 3)
[post-socialist] teachers focus too much on memorization and facts and not
enough on application, problem-solving, reasoning, analysis, and “critical
thinking”; teachers are too controlling and authoritative, classrooms should
be centered more around the student than the teacher; and teachers are pas-
sive, inflexible, and unable to adapt or take initiative. (p. 178)
In other words, the social construction of Central Asia has been general-
ly built around the unquestioned assumption that development, progress,
and modernity are not only neutral but also universally desired concepts.
Yet, the uniqueness of the Central Asian education case is that it hosts a
wide range of alternatives, which may not necessarily enter Western devel-
opment narratives as viable discourses. At the same time, however, these
alternative discourses affect local configurations of education reforms in
meaningful ways. As most of the chapters in this book illustrate, the mul-
tifaceted nature of the post-Soviet education reform trajectories in Cen-
tral Asia effectively disrupts the linearity of the transition from socialism
to capitalism. When projected onto post-Soviet education spaces, the as-
sumed homogeneity of the world culture is inevitably questioned, offering
Education and Post-Socialist Transformations in Central Asia xxi
post-Soviet education reforms. The rest of this chapter offers brief summa-
ries of each section of the book.
The first part of the book brings together essays on higher education,
which collectively examine higher education reforms against the back-
ground of the rapidly changing geopolitical landscape of Central Asia.
While Central Asia’s “centrality” remains an elusive concept, it is important
to explore it in relation to the power dynamics and politics operating at the
national, regional, and global levels. Most of the chapters in this section at-
tempt to do just that by highlighting the multiplicity of state and non-state
actors involved, examining the variety of competing agendas circulating in
the Central Asian higher education space, and discussing the unpredict-
able outcomes emerging from these new educational constellations.
Stephen P. Heyneman begins the discussion with a short commentary
on structural changes in Central Asia’s higher education systems by not-
ing the similarity of post-Soviet education reforms in Central Asia. In par-
ticular, he suggests that at the time of their independence, the structure,
curriculum content, governance, and admissions procedures of higher
education institutions were more or less identical across Central Asia as
well as the fifteen republics of the former Soviet Union. While indepen-
dence brought multiple changes, they have been quite similar in nature.
For example, Heyneman observes that there has been a move toward stan-
dardized testing as a criterion for admissions, a restructuring away from
sector ministerial control, a diversification of the provision of education, as
well as a decentralization of governance, salary, and tuition structures. The
chapter engages readers in thinking about the reasons for these apparent
similarities: Is it because globalization is so powerful and the local institu-
tions on the periphery so weak? Is it because of the irresistible pressures
from international financial institutions such as the World Bank? Or are
the requirements for excellence in higher education in a market economy
sufficiently similar to make changes inevitable? Based on his observations
of post-Soviet education reforms, Heyneman supports the latter argument
and suggests that the changes in higher education have been inevitable and
that future changes are predictable. In his view, the Central Asian states
are moving along a predetermined trajectory towards Western standards
in higher education reforms. Heyneman suggests that while trajectory, end
points, and key strategies are all clear (i.e., Western) the process of their
workability depends on the local actors, who should actively participate in
Education and Post-Socialist Transformations in Central Asia xxiii
the processes of debating the relevance of the global ideas, and their fine-
tuning implementation in particular contexts.
While Heyneman’s chapter discusses the inevitability and predictability
of post-Soviet transitions, processes, and outcomes, most of the remaining
chapters irrevocably complicate his argument. For example, Martha C. Mer-
rill argues that having similar pasts and facing a similar set of problems do
not necessarily mean that higher education institutions in Central Asia have
pursued the same reforms. In “Internationalization of Higher Education
in Central Asia: Implications Beyond the Intended,” Merrill discusses the
emergence of new actors in higher education institutions across Central
Asia—ranging from the EU’s programs, Confucius Institutes, international
accrediting agencies, the Open Society Foundations and other donors to
students returning from international exchanges—and their influence on
the trajectories of higher education reforms in the Central Asian republics.
She argues that these new actors have significantly diversified the scope of
internationalization within Central Asian universities, influencing institu-
tional norms and structures in multiple ways. They have also diversified—
oftentimes unintentionally—the traditional powers of centralized author-
ity, such as Ministries of Education, thus further contributing to multiple
reform trajectories and diverse governance structures in higher education
institutions across the region.
Zooming in on university research in Kazakhstan, Sulushash Kerimku-
lova illustrates the shifting powers of higher education authority. In her
article “Accreditation as a Means of Quality Assurance System in Higher
Education in Kazakhstan: Developments and Challenges,” Kerimkulova ex-
plores the policies and developments in the accreditation journey of higher
education in Kazakhstan with a specific focus on the establishment of a
national model of accreditation as a means of assuring quality of higher
education, its impact on educational improvements in higher education,
and the challenges that it generates for the higher education institutions.
In particular, Kerimkulova’s study documents the evolution of the accredi-
tation infrastructure in Kazakhstan, reflecting its progressive movement
from being completely controlled by the government to one dominated
by independent accrediting agencies. Echoing Merrill’s findings, she il-
lustrates how the processes of developing the quality assurance system in
higher education have been strongly influenced by policies and develop-
ments at the EU level, while at the same time being driven by the “best
practices” borrowed from North American and Asian institutions and in-
formed by Kazakhstan’s own experience. In other words, the development
of Kazakhstan’s higher education quality assurance system has not neces-
sarily followed one (Western) blueprint, but was rather developed out of
an amalgam of diverse global, regional, and local practices. Yet, while a
few positive impacts of the accreditation system on Kazakhstan’s higher
xxiv Education and Post-Socialist Transformations in Central Asia
and was funded accordingly, in the post-Soviet era the sector has seen a
significant decrease in government funding. Expected to actively partici-
pate in higher education reforms, faculty members are inadequately com-
pensated and struggle to make ends meet as the higher education sector
as a whole suffers from inadequate financial, infrastructural, and human
resources. Furthermore, higher education faculty face challenges related
to state control over curricula and assessment processes, have little or no
opportunities for professional development, and lack opportunities to ac-
cess supranational professional associations. At times, they have to take on
additional employment to supplement their incomes, leading to a frac-
tured professional identity and career trajectory. Needless to say, the de-
clining status of university faculty members irrevocably complicates higher
education reform trajectories in Tajikistan and perhaps Central Asia more
broadly, affecting not only occupational choices of individual faculty mem-
bers but also possible development options of the entire higher education
sector in the future (for further discussion about the effects of post-Soviet
transformations on university faculty in Central Asia see CohenMiller &
Kuzhabekova, 2018).
Finally, the last chapter in this section zooms out to bring back the dis-
cussion of Central Asian higher education into the broader European geo-
political space. In “Central Asian Higher Education in the Margins of the
European (Dis)Integration,” Voldemar Tomusk examines the implications
of the Bologna Process—EU project aimed at the integration of higher edu-
cation structures across the European education space—for both Central
Asian republics and the EU itself. He argues that political disagreements,
legal needs, and various competing interests among the EU member states
and beyond, have resulted in the loss of the Bologna Process’ reforming
power and thereby its integrating capacities. Tomusk notes that Kazakhstan’s
accession to the Bologna Process in 2010 has not only failed to make any
significant contributions to solving the problems of country’s higher educa-
tion, but also signaled to other Central Asian states that all that is required to
bring higher education to the level of European standards is skillful politics
and lots of connections. From this perspective, Kazakhstan’s accession to
the Bologna Process demonstrated the internal weaknesses of the EU inte-
gration process itself, while further contributing to its demise. While trying
to reposition themselves from the margins to the center of the European
education space, Central Asian higher education institutions instead found
themselves in the middle of a disintegrating European education space.
What is fascinating about Central Asia is that it embodies a multiplicity
of actors and institutions involved in redefining Central Asia’s geopolitical
space. And it encompasses the multidirectional flow of ideas and imagi-
naries about the future world order. Moreover, it questions the legitimacy
of the traditional East/West divide by suggesting that we may in fact be
Education and Post-Socialist Transformations in Central Asia xxvii
The second part of the volume brings to readers’ attention the various
manifestations of the marginality and inequity within Central Asia, or what
one might metaphorically call the “marginalities in the global margins.” No-
tably, the chapters in this section also illustrate that global traveling policies
might be helping with both better articulation and sustainable resolution
of some equity issues, especially when many of these issues have been disre-
garded by the neoliberal discourses of meritocracy, resilience, and choice, or
by religious and cultural discourses of predestination, luck, and fate. The au-
thors problematize these discourses and assumptions, suggesting that equi-
ty-inequity occurrences are sociocultural structural and systemic constructs,
and are defined and worked through power, politics, and interests. They
should be acknowledged, debated, and addressed in policy and practice.
Stephen Bahry’s chapter “Language, Globalization, and Education in
Central Asia” looks at how specific languages are diffused in post-Soviet Cen-
tral Asia by means of societal multilingualism and personal plurilingualism,
which are prerequisites for cross-border interchange between people and,
therefore, global change. Taking a “skeptical” approach towards globaliza-
tion, Bahry argues that globalization research, especially in post-Soviet Cen-
tral Asia, has largely focused on debates about language policy and has ne-
glected to problematize the role language plays in the process. Not only can
individual languages be diffused by globalizing forces but language capaci-
ties may also be globalized through the diffusion of bilingualism or multi-
lingualism. Multilingualism and plurilingualism are not obstacles, but assets
to making globalization work better for all. Bahry maps out different in-
ternational influences on language policy development, including Western
actors (e.g., Germany, France, Canada, the United States, and the United
Kingdom), regional influences (e.g., Turkey, Iran, South Korea, China, and
Russia), as well as international agencies (e.g., UN, OSCE, and others). Yet,
xxviii Education and Post-Socialist Transformations in Central Asia