VZCZCXYZ0001
RR RUEHWEB

DE RUEHZP #1369/01 2271638
ZNR UUUUU ZZH
R 151638Z AUG 07
FM AMEMBASSY PANAMA
TO RUEHC/SECSTATE WASHDC 0974
INFO RUEHZA/WHA CENTRAL AMERICAN COLLECTIVE

UNCLAS PANAMA 001369 
 
SIPDIS 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: ELAB PGOV PM SOCI
SUBJECT: PANAMA: EDUCATION SYSTEM NEEDS DRASTIC REFORM 
 
REF: PANAMA 01099 
 
-------- 
 SUMMARY 
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¶1. (U) Most stakeholders interviewed recently view the most 
significant challenges faced by Panama's education system as: 
inequality, lack of quality, cronyism, corruption, poor 
budget administration, antiquated technology, and politicized 
education initiatives, the longevity of which lasts only as 
long as the current presidential administration.  Following 
meetings with 11 education stakeholders (including teacher's 
union leaders, a non-profit director, a Ministry of Education 
official, and officials from local universities), POLINTERN 
gained invaluable insight into the education system and its 
need for drastic reform.  If it is to take full advantage of 
its growing economic opportunities and sustain a viable 
democracy, Panama must have an educated, competent, and 
technologically-savvy citizenry.  End Summary. 
 
------------------------------ 
INEQUALITY AND LACK OF QUALITY 
------------------------------ 
¶2. (U)  An overwhelming number of interviewees view the 
Panamanian public education system as one characterized by 
inequality. The wealthier one's family is, the better the 
education one receives and the greater one's access the to 
tools needed to supplement learning outside the classroom, 
most observers agreed.  There are drastic differences in 
resource allocation and education quality both between and 
within the provinces, and particularly between the wealthier 
province of Panama, and rural, poorer provinces with large 
indigenous populations.  For example, most schools in the 
province of Panama have indoor plumbing and running water. 
As noted reftel, some schools in provinces such as the Darien 
must seek help and resources from non-profit organizations to 
provide indoor plumbing, running water, electricity, and 
other resources.  This can be attributed to the Panama 
provinces's larger student population, for school funding is 
based upon the number of students enrolled.  Since provinces 
like Panama have higher student enrollments, their schools 
are much more likely to receive higher amounts of funding, 
thus providing more resources. 
 
--------------------------------------------- 
LACK OF INFRASTRUCTURE/NEED FOR MODERNIZATION 
--------------------------------------------- 
¶3. (U)  Many schools lacked adequate infrastructure, 
interviewees reported.  This lack of infrastructure ranges 
from schools without indoor plumbing and running water to 
vocational programs in carpentry that lack sufficient numbers 
of functioning electric saws. Paula Rodriguez, a parent of 
public school students in Veraguas province and a recent 
graduate of the University of Panama's teacher education 
program, recounted that her children's school lacked science 
and computer laboratories.  Even if these resources were 
available, they would be useless because the school lacks 
electricity.  In more distant provinces like Chiriqui, only 
schooling up to the 9th grade is available.  To continue with 
high school, students must travel, often for hours, to Colon 
or Panama City.  This added travel often deters poorer 
students, who often have to use any extra time to earn money 
to help support their families, from continuing their 
education. 
 
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FUNDING 
-------- 
4.(U) While the GOP spends significant resources on its 
educational system, most respondents noted poor budget 
administration and resource allocation as a major management 
problem in Panama's education system.  Spending about 6 
percent of its GDP on education, Panama allocates significant 
monetary resources. For FY 2007, the Ministry of Education 
had an operating budget of over $790 million.  An education 
tax (seguro educativo) deducts 1.5% of a person's wages from 
their paycheck and generates about $80 million per year, of 
which about $30 million goes to the Ministry of Education 
(MEDUCA). MEDUCA is responsible for pre-kindergarten through 
12th grade education. 
 
¶5. (U)  A substantial portion of education funding comes from 
the Canal.  According to Luis Lopez, Secretary General of the 
National Front of Independent Educators, $0.10 for each ton 
that goes through the Canal is allocated toward education. 
For fiscal year 2006, over 296 million tons transited the 
Canal, resulting in more than $2.9 million in education 
funding generated from this source. 
 
¶6. (U)  In 2005 (the latest year for which statistics from 
MEDUCA are available), there were 755,567 school-aged 
children actually enrolled in school.  (Note: GOP statistics 
do not distinguish between students enrolled in public or 
private schools.) MEDUCA allocates $33 per school year per 
student to each school for local operating costs, 
maintenance, and instructional materials. 
 
¶7. (U)  MEDUCA is widely believed to spend a majority of its 
budget on employee salaries.  However, after obtaining 
MEDUCA's 2007 budget from the Ministry of Economy and Finance 
website, POLINTERN found that MEDUCA spends only 38% of its 
budget on employee salaries. This is a much lower percentage 
than some school districts in the United States, which often 
spend up to 55% or more of their budgets on employee salaries 
and benefits. 
 
------------------------------------ 
CORRUPTION AND POLITICS OF EDUCATION 
------------------------------------ 
¶8. (U)  The majority of the stakeholders interviewed cited 
corruption and cronyism as major obstacles to education 
quality and equal resource allocation.  Many stated that, 
while Panamanian schools lacked many resources, teachers and 
administrators could do better with existing funding if 
corruption was not an issue.  However, Aida Afu de Sanchez, 
Deputy National Director of Education at MEDUCA, stated that 
MEDUCA was implementing a competitive hiring process whereby 
teachers and other education professionals would be hired 
based on their credentials-- not who they know or because 
someone owes them a favor, an implicit acknowledgement that 
cronyism is a problem. 
 
¶9. (U) Many stakeholders also said that education was too 
politicized, noting that education programs and important 
initiatives changed as the presidential administration 
changes.  For example, teacher's union leaders Luis Lopez and 
Luzmila Sanchez, among others, noted that many of the 
programs and initiatives run by the First Lady's office, such 
as her initiative for inclusive education for disabled 
students, would be discontinued once this presidential 
administration term ended in 2009.  Several stated that 
education priorities should be a matter of "state policy", 
not presidential and party politics. 
 
----------------- 
SCHOOL ATTENDANCE 
----------------- 
¶10. (U) Forty percent of children who are of preschool age do 
not attend preschool, and most students do not remain in 
school long enough to fully grasp basic subjects (Spanish 
grammar, reading and writing; math; natural sciences; and 
history/social studies.)  In many schools several 
interviewees noted that there are three shifts, (morning, 
afternoon, and night), each lasting approximately four hours 
each. Shifts are necessary because there are not enough 
classrooms to accommodate all students at once.  In many 
instances, students do not get the full four hours worth of 
instruction.  According to one Peace Corps volunteer whose 
work centers on education, the school in her community is 
supposed to begin at 8:00 am but on average starts at about 
8:30am.  The school session is scheduled to end at around 
12:00 noon, but numerous students often leave early, for no 
reason at all.  In between those times, there is a 30 minute 
recess, a 15 minute break for snack, and lunch before 
leaving.  Therefore on average, these students get 
approximately 2.5 hours of instruction per day. 
 
¶11. (U)  School dropout rates are high because many students 
do not value education, according to several stakeholders. 
Some students drop out because they must work to help support 
a family.  The average Panamanian has an eighth grade 
education. In indigenous communities, most adults only have a 
second or third grade education.  Teacher's union leaders 
stressed that coverage and availability of high school should 
be expanded so that all students have the ability to finish 
high school.  Many note the potential benefit of the Network 
of Opportunities (Red de Oportunidades) program, a program in 
which the GOP gives a poor family a subsidy of about $35 per 
month, to help offset the cost of medical expenses, food, or 
the income that the student would normally generate.  Many 
interviewees noted that this program could help some students 
stay in school because they have some additional financial 
support for their families. Whether the Network of 
Opportunities program will be continued after President 
Torrijos' term remains to be seen. 
 
-------------------------- 
TEACHER EDUCATION/TRAINING 
-------------------------- 
12.(U) According to Luzmila Sanchez and Favio Trotman of the 
Reformist Front of Panamanian Educators and Paula Rodriguez, 
a prospective public school teacher, elementary school 
teachers only need to attend "normal school", (a specialized 
high school program), to be "qualified" to teach.  Secondary 
school teachers must complete a bachelor's degree program. 
13.(U) Trotman stated that teacher education was not 
sufficient, especially given changes in technology.  He noted 
that teacher education should be more advanced and should 
include more in-depth training on teaching methods.  He also 
stated that educators should be trained to respond to social, 
economic, and political problems that not only plague their 
students, but the country as a whole. When teachers are not 
properly educated overall, they are unable to adequately 
educate their students, this union official concluded. 
 
------------------------ 
TEACHER PAY/COMPENSATION 
------------------------ 
14.(U)  According to Luis Lopez, teacher's salaries are good 
compared to the rest of the region (Central and parts of 
South America).  In light of Panama's cost of living, 
teacher's union leaders believe that the salaries are 
insufficient, particularly when compared to other 
professionals with comparable levels of education.  Melva 
Lowe de Goodin, Professor of English at the University of 
Panama, stated that teachers often had two or three jobs just 
to make ends meet and that the only educators she knew who 
hold one job were those that taught at private schools. 
Although the GOP approved a $90 per month, phased salary 
increase for educators in 2006, the starting salary for a 
teacher in 2008 will be $575 per month. (The minimum wage for 
all workers was recently raised to $300 per month). The 
canasta basica, or monthly price of a basic basket of food 
for a family of four, is $220.71-- approximately 45% of the 
current minimum teacher's salary of $485 per month. The 
canasta basica does not account for expenses related to 
shelter, clothing, or health care.   Higher positions such as 
principals and assistant principals make substantially more 
money, averaging about $1,200 per month. 
 
----------------- 
SCHOOL CONDITIONS 
----------------- 
15.(U)  Many educators noted the need for a focus on 
occupational health, most notably ensuring that violence 
would not be tolerated in schools.  Better behavior and 
conduct from students is badly needed.  Trotman stated that a 
greater emphasis should be placed on mental health and that 
all schools should have a psychologist on staff to assist 
both students and teachers. The Panamanian education system 
should also be more flexible to respond to the varying needs 
of students in different areas, rather than the "one size 
fits all" education system that is currently in place.  In 
this regard, Trotman cited the example that people in some 
indigenous reservations (comarcas) did not speak Spanish, 
while the MEDUCA-funded school(s) in those areas only taught 
in Spanish. In such cases, students and parents were unlikely 
to appreciate the value of obtaining an education, especially 
if it was in a language that they did not fully understand. 
He stated that children in these types of communities should 
have the chance to learn in their own language and that 
studies on how to implement bilingual education should be 
undertaken. 
 
--------------------------------------------- ---- 
INCLUSIVE EDUCATION (CHILDREN WITH SPECIAL NEEDS) 
--------------------------------------------- ---- 
16.(U)  Inclusive education, in which students with 
disabilities are integrated into classrooms with typically 
developing students, is a "hot" topic at the moment, several 
interviewees noted. It is a special focus and programmatic 
area in the First Lady's Office, and as a result, in the 
schools as well.  When speaking with educators in two 
teacher's unions, the overall sentiment was that most 
educators did not oppose inclusive education-- they actually 
advocated it-- but they said that more studies and analysis 
had to be done for the benefit of all students, teachers and 
other stakeholders involved.  They emphasize that 
international standards regarding the integration of special 
needs students must be created and implemented. 
 
17.(U)  Luis Lopez stated that many special education 
students were integrated into classrooms without sufficient 
time to transition effectively.  This particular teacher 
actually taught in an inclusive classroom. Teachers in 
inclusive classrooms were often thrust into teaching special 
needs students without the necessary training and skills to 
effectively teach and respond not only to the special needs 
child(ren), but also to the tension and issues that arose 
between students. Through his experience, he said that in an 
inclusive classroom, there should be no more than 20-25 
students total in a class that contained one to two special 
needs students.  Given an average student-to-teacher ratio of 
21:1 for the entire country (in 2005), this would seem 
feasible, although student to-teacher ratios vary widely 
depending upon grade level and province.  Central Panama's 
primary schools (grades one to six) have the highest 
student-to-teacher ratio of all provinces at 30 to 1.  Los 
Santos province's middle and high schools have the lowest 
student-to-tacher ratio at 13 to 1. These ratios cannot 
necessarily be attributed to more teacher availability in 
some areas. Other factors like dropout rates should also be 
considered. 
 
18.(U) Aida Afu de Sanchez emphasized that although the First 
Lady's Office focused on inclusion in the sense of 
integrating special needs students, inclusive education also 
concerned the inclusion of different racial, cultural, and 
other groups-- similar to diversity initiatives in the U.S. 
While inclusive education is touted, issues related to race 
and ethnicity have surfaced in school settings, according to 
Professor Melva Goodin, former president of the 
Afro-Pananamian society and an English professor at the 
University of Panama.  One example of this issue occurred at 
a private school in Panama (the same private school that the 
President and First Lady's disabled daughter attends). One of 
the school's few black students was on track to graduate as 
valedictorian of his class.  There was a massive attempt to 
oust him, on the basis of behavior problems, although his 
behavior was no worse than any other boy's behavior at the 
school.  His parents fought to keep him at the school, and he 
eventually graduated. 
 
--------------------------------------------- 
VALUES AND EDUCATION FOR AN ENGAGED CITIZENRY 
--------------------------------------------- 
19.(U) One sentiment that resonated throughout the majority 
of conversations with educators was the need for an 
educational system that contributed to the development of 
moral, civic-minded and value-oriented citizens. Many 
stakeholders stated that there was a sense of little hope 
among many students and this sentiment, in addition to the 
education system's other deficiencies, contributes to their 
low academic achievement.  Nobody specifically stated what 
types of morals and values should be taught nor how to teach 
these concepts to students. Etilvia Arjona, an 
educator/administrator at the Universidad Santa Maria la 
Antigua (USMA), said that teachers need values the most and 
that they were downright corrupt.  Teachers have lost a sense 
of mission, duty, and calling to the education profession. 
Even Paula Rodriguez, a prospective teacher, noted that many 
teachers lack the patience and desire to help students with 
major learning difficulties reach their fullest potential. 
Arjona blamed these attitudes on the revolution and 30 years 
of military rule. In her opinion, 30 years of military rule 
disrupted the morals and values of the Panamanian people. 
Because of military rule, populism, and the lack of values 
that ensued, standards of quality and excellence had been 
lost and most people going into the education profession 
simply wanted a credential and a job, according to Arjona. 
 
------------------------------------------- 
EDUCATION AND PREPARATION FOR THE WORKFORCE 
------------------------------------------- 
20.(U) Most say that the Panamanian educational system is not 
preparing the vast majority of students for the workforce of 
the 21st century because many schools lack the necessary 
technology.  In addition, most students are unable to pass 
tests that measure basic academic skills, thus illustrating 
large deficiencies and ill-preparation for a technology and 
service-based economy-- particularly the workforce that will 
be needed for the Canal expansion project and to take full 
advantage of the U.S.-Panama Trade Promotion Agreement. 
 
21.(U) Asked if the Panamanian education system was 
adequately preparing students for the workforce, Aida Afu de 
Sanchez stated that relatively speaking, the Panamanian 
education system educated students effectively, although 
there were some deficiencies. Turning the question, she then 
asked, "Where is the market for graduating students?," 
implying that few jobs were available for recent graduates. 
This view runs counter to extensive media coverage 
highlighting the enormous difficulty in filling positions for 
bilingual and technologically-savvy workers. One example of 
this is Occidental Petroleum Corporation's pending 
construction of an oil refinery in Puerto Armuelles. This 
project will require more resources and the possible import 
of skilled labor to complete, since the skilled scientific 
and technical labor is simply not available within Panama's 
local population. Also, according to a June article in Panama 
America, 80% of administrative positions in Panama require an 
advanced-level command of the English language. 
 
¶22. (U) Leaving aside openings in the high technology sector 
or where English-Spanish bilingual skills were desired, 
Etilvia Arjona cited the example of trying to fill a 
Spanish-language secretarial position.  Of the 15 resumes she 
received for the open secretarial position, only three 
resumes were written properly and without basic Spanish 
grammatical mistakes. All applicants spoke Spanish as their 
first language and were high school graduates. 
--------------------------------------------- 
HYPOTHETICAL PROGRAMS TO ADDRESS DEFICIENCIES 
--------------------------------------------- 
23.(U)  When asked if they could design a program to address 
the country's educational deficiencies, most interviewees had 
simple answers, which include the following: 
  - Add classrooms so that each grade is taught separately 
and students no longer have to attend school in shifts. 
  - Make the school day longer with a set schedule of 
subjects. 
  - Have penalties for children who are tardy and awards for 
those that are on-time or early. 
  - Foster more cooperation between the educational system 
and large companies to provide scholarships and training (at 
the high school and university levels.) 
  - Increase teacher salaries and teacher training 
opportunities, in hopes of improving morale. 
 
---------------------------------- 
INTERVIEWEE NAMES AND AFFILIATIONS 
---------------------------------- 
¶24. (SBU) From June 25 through July 31, POLINTERN met with 
the following individuals: 
    - Larry Brady, Director, Panama Missions (NGO) 
    - Luis Lopez, Secretary General, National Front of 
Independent Educators 
    - Luzmila Sanchez, Secretary General, Reformist Front of 
Panamanian Educators (FREP) 
    - Favio Trotman, Finance Secretary, FREP 
    - Dionesia Cossio, Secretary of National Relations, FREP 
    - Carlos Langoni, Rector, Florida State University 
(Panama Branch) 
    - Etilvia Arjona, Director of the Educational Advising 
Center, Santa Maria la Antigua Catholic University 
    - Aida Afu de Sanchez, Deputy National Director of 
Education, Ministry of Education (MEDUCA) 
    - Melva Goodin, Former President and Member, 
Afro-Panamanian Society and Professor of English, University 
of Panama 
    - Peace Corps volunteer in Colon province 
    - Paula Rodriguez, Parent of public school students, 
recent graduate of University of Panama teacher education 
program, and prospective public school teacher 
 
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COMMENT 
-------- 
25.(SBU) Education is a perennial issue of concern among 
average Panamanian citizens and political leaders alike. 
Given the information provided by stakeholders and extensive 
media coverage regarding difficulty in hiring employees with 
the needed skills and talent, it is clear that Panama's 
education system is in dire need of reform.  Expectations for 
employment are high, particularly given the Canal expansion 
and the construction of an oil refinery in Puerto Armuelles. 
However, for Panama to truly progress, education reform is 
essential to ensure that the country can not only take 
advantage of its many economic opportunities, but also to 
deepen and broaden its democracy.  In order for Panama to 
realize its fullest potential, it must have an educated 
public and a talented workforce.  This type of dynamism is 
not possible if the majority of the workforce cannot speak 
Spanish properly, use basic computer functions, and can only 
qualify for low-skilled jobs.  Therefore, modernization, 
transformation, and reform of the Panamanian educational 
system is of the utmost importance if Panamanians wish to 
benefit from the many forthcoming economic, investment, and 
development opportunities. 
Arreaga