77919 FYR Macedonia SABER Country Report TEACHERS 2013 Policy Goals Status 1. Setting Clear Expectations for Teachers There are clear expectations for what students should learn and what teachers are supposed to do. Teachers’ official duties involve both teaching and nonteaching tasks related to instructional improvement. 2. Attracting the Best into Teaching Entry requirements, working conditions, and career advancement opportunities may be appealing for talented candidates. However, teacher pay may not be appealing signaling the teaching profession as low-status. 3. Preparing Teachers with Useful Training and Experience Current teacher initial education systems may be suited to ensure good quality teachers. Beginning teachers have opportunities to develop practical teaching skills. 4. Matching Teachers’ Skills with Students’ Needs There are official systems in place to address teacher shortages in hard-to-staff schools, but not to attract teachers in critical-shortage subject areas. 5. Leading Teachers with Strong Principals Principals are expected to monitor teacher performance and provide support to teachers to improve instructional practice, but their performance is not rewarded. At present there are training courses for new principals, but no mentorships or guidance to ensure that new principals have the necessary skills to act as instructional leaders and successful managers. 6. Monitoring Teaching and Learning There are systems in place to assess student learning in order to inform teaching and policy. Teacher performance is evaluated every three years using criteria that assess effective teaching. 7. Supporting Teachers to Improve Instruction There are opportunities for teacher professional development, but requirements for teachers (e.g. the number of days for professional development) are not specified. 8. Motivating Teachers to Perform There are mechanisms in place to hold teachers accountable. Promotion opportunities are not linked to teacher performance, but high performing teachers do have an opportunity to receive monetary bonuses. THE WORLD BANK FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Overview of SABER-Teachers Box 1. Teacher policy areas for data collection 1. Requirements to enter and remain in teaching There is increasing interest across the globe in attracting, retaining, developing, and motivating great 2. Initial teacher education teachers. Student achievement has been found to 3. Recruitment and employment correlate with economic and social progress (Hanushek & Woessmann 2007, 2009; Pritchett & Viarengo 2009; 4. Teachers’ workload and autonomy Campante & Glaeser 2009), and teachers are key: recent studies have shown that teacher quality is the 5. Professional development main school-based predictor of student achievement 6. Compensation (salary and non-salary benefits) and that several consecutive years of outstanding teaching can offset the learning deficits of 7. Retirement rules and benefits disadvantaged students (Hanushek & Rivkin 2010; 8. Monitoring and evaluation of teacher quality Rivkin, et al. 2005; Nye et al. 2004; Rockoff 2004; Park & Hannum 2001; Sanders & Rivers 1996).However, 9. Teacher representation and voice achieving the right teacher policies to ensure that every 10. School leadership classroom has a motivated, supported, and competent teacher remains a challenge, because evidence on the impacts of many teacher policies remains insufficient and scattered, the impact of many reforms depends on systems. This information is compiled in a comparative specific design features, and teacher policies can have database where interested stakeholders can access very different impacts depending on the context and detailed information organized along relevant other education policies in place. categories that describe how different education systems manage their teacher force, as well as copies of A new tool, SABER-Teachers, aims to help fill this gap supporting documents. The full database is available at by collecting, analyzing, synthesizing, and the SABER-Teacher website. disseminating comprehensive information on teacher policies in primary and secondary education systems To offer informed policy guidance, SABER-Teachers around the world. SABER-Teachers is a core component analyzes the information collected to assess the extent of SABER (Systems Approach for Better Education to which the teacher policies of an education system Results), an initiative launched by the Human are aligned with those policies that the research Development Network of the World Bank. SABER evidence to date has shown to have a positive effect collects information about different education systems’ on student achievement. SABER-Teachers analyzes the policy domains, analyzes it to identify common teacher policy data collected to assess each education challenges and promising solutions, and makes it widely system’s progress in achieving 8 Teacher Policy Goals: 1. available to inform countries’ decisions on where and Setting clear expectations for teachers; 2. Attracting the how to invest in order to improve education quality. best into teaching; 3. Preparing teachers with useful training and experience; 4. Matching teachers’ skills SABER-Teachers collects data on ten core teacher with students’ needs; 5. Leading teachers with strong policy areas to offer a comprehensive descriptive principals; 6. Monitoring teaching and learning; 7. overview of the teacher policies that are in place in Supporting teachers to improve instruction; and 8. each participating education system (see Box 1). Data Motivating teachers to perform (see Figure 1). are collected in each participating education system by a specialized consultant using a questionnaire that ensures comparability of information across different education systems. Data collection focuses on the rules and regulations governing teacher management SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 to which governments are making effective use of these Figure 1: 8 Teacher Policy Goals policy levers). Using these policy levers and indicators, SABER-Teachers classifies education systems’ performance on each of the eight teacher policy goals using a four-category scale (latent, emerging, established, and advanced), which describes the extent to which a given education system has in place teacher policies that are known to be related to improved student outcomes. The main objective of this assessment is to identify the strengths and weaknesses of the teacher policies of an education system and pinpoint possible areas for improvement. For a more detailed report on the eight teacher policy goals, policy levers and indicators, as well as the evidence base supporting them, see Vegas et al. (2012). The main focus of SABER-Teachers is on policy design, rather than on policy implementation. SABER-Teachers analyzes the teacher policies formally adopted by The 8 Teacher Policy Goals are functions that all high- education systems. However, policies “on the ground”, performing education systems fulfill to a certain extent that is, policies as they are actually implemented, may in order to ensure that every classroom has a differ quite substantially from policies as originally motivated, supported, and competent teacher. These designed. In fact they often do differ, due to the goals were identified through a review of evidence of political economy of the reform process, lack of capacity research studies on teacher policies, and the analysis of of the organizations in charge of implementing them, or policies of top-performing and rapidly-improving the interaction between these policies and specific education systems. Three criteria were used to identify contextual factors. Since SABER-Teachers collects them: teacher policy goals had to be (i) linked to limited data on policy implementation, the assessment student performance through empirical evidence, (ii) a of teacher policies presented in this report needs to be priority for resource allocation, and (iii) actionable, that complemented with detailed information that describes is, actions governments can take to improve education the actual configuration of teacher policies on the policy. The eight teacher policy goals exclude other ground. objectives that countries might want to pursue to increase the effectiveness of their teachers, but on This report presents results of the application of which there is to date insufficient empirical evidence to SABER-Teachers in Macedonia. It describes make specific policy recommendations. Macedonia’s performance in each of the 8 Teacher Policy Goals, alongside comparative information from By classifying countries according to their performance education systems that have consistently scored high on each of the 8 Teacher Policy Goals, SABER-Teachers results in international student achievement tests and can help diagnose the key challenges that countries have participated in SABER-Teachers. Additional face in ensuring they have effective teachers. For each detailed descriptive information on Macedonia’s and policy goal, the SABER-Teachers team identified policy other education systems’ teacher policies can be found levers (actions that governments can take to reach on the SABER-Teachers website. these goals) and indicators (which measure the extent SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Macedonia’s teacher policy system results learning, because it recognizes that teachers normally need to devote some time to non-teaching tasks, such Goal 1: Setting clear expectations for teachers as lesson planning, the analysis of student work, and professional development, as well as administrative Advanced  tasks. Setting clear expectations for student and teacher In addition, non-teaching tasks related to instructional performance is important to guide teachers’ daily work improvement are officially a required part of teachers’ and align necessary resources to make sure that work in Macedonia. Such tasks may include mentoring teachers can constantly improve instructional practice. peers, collaborating on school plans, or participating in In addition, clear expectations can help ensure there is school evaluation. This is similar to successful education coherence among different key aspects of the teaching systems such as Ontario, Finland, Japan, South Korea, profession, such as teacher initial education, and Singapore devote considerable time at the school professional development, and teacher appraisal. level to activities that are related to instructional improvement, such as collaboration among teachers on SABER-Teachers considers two policy levers that school the analysis of instructional practice as well as systems can use to reach this goal: (1) clear mentoring and professional development (Darling expectations for what students should know and be Hammond & Rothman 2011, Darling-Hammond 2010, able to do, and how teachers can help students reach Levin 2008). In addition, these systems tend to devote a these goals; (2) useful guidance on how teachers’ can smaller share of teachers’ time to actual contact time use their time to improve instruction at the school level. with students than other systems do, and a larger share to teacher collaboration, on-site professional (1) In Macedonia, there are expectations for what development, and research on the effectiveness of students are expected to learn and for what teachers various teaching strategies. Japan, for example, devotes are supposed to do. The Ministry of Education and about 40 percent of teachers’ working time to this type Science is responsible for setting education goals and of activities, while Ontario currently devotes 30 percent controlling the national curriculum. There are officially (Darling Hammond & Rothman 2011). stipulated requirements for the minimum education, curriculum, and skills students must attain in every Figure 2. Teachers’ official tasks related to school subject by every grade. improvement Macedonia The tasks teachers are expected to carry out are Singapore Shanghai officially stipulated. Teacher tasks go beyond classroom Japan teaching to include activities related to instructional improvement (Figure 2). Mentor peers    (2) Guidance on teachers’ use of time could focus more on ensuring that their work conditions allow them to Collaborate on school plan     improve instruction. Teachers’ working time in Macedonia is officially defined as the overall number of Design the curriculum    working hours (as opposed to merely counting contact time with students or hours spent at the school). Global Participate in school evaluation    experience suggests this definition may be conducive to Source: SABER-Teachers data SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Goal 2: Attracting the best into teaching There is also a consecutive model for initial teacher training for secondary school teachers. Consecutive Established  programs allow individuals who have a Bachelor’s degree in a discipline other than education to gain a The structure and characteristics of the teaching career teaching certificate after one semester of study at can make it more or less attractive for talented university. To qualify as a teacher, a candidate must individuals to decide to become teachers. Talented undergo a course of study that includes pedagogy, people may be more inclined to become teachers if psychology, teaching methodology in the relevant they see that entry requirements are on par with those subject and teaching practice at a school (Minimum 45 of well-regarded professions, if compensation and days). working conditions are adequate, and if there are attractive career opportunities for them to develop as Entry requirements in Macedonia may help attract a professionals. large potential pool of candidates for teaching, because there is more than one pathway to enter the teaching SABER-Teachers considers four policy levers that school profession. systems can use to reach this goal: (1) requirements to enter the teaching profession; (2) competitive pay; (3) (2) Teacher pay may not be appealing for talented appealing working conditions; and (4) attractive career candidates. The starting salary for a teacher is 18.000 opportunities. denars, which is slightly below the national average salary of 21.000 denars. It takes approximately eight (1) Macedonia, teachers are required to have at least a years for a teacher to attain the national average salary. four-year Bachelor’s degree in order to be qualified to By comparison, the starting salary of a public servant teach. Primary and secondary education teachers in with the same level of education as a starting teacher is Macedonia receive their initial teacher training in approximately 16.000 (e.g. Salaries can vary from courses taken after 12 years of schooling. Formal 12.000 denars as the starting salary for a policeman to requirements to become a primary or secondary school the health sectors, where a doctor who has passed the teacher are similar to those in top-performing state exam starts at 24.000 denars). In the private international education systems. Teachers in sector, the starting salary for a similarly skilled qualified Macedonia must pass a formal interview, have a individual with an MAis higher, usually around 20.000 minimum amount of practical professional experience denars (e.g. in Banking). and pass an assessment conducted by a supervisor based on their previous practical professional (3) Working conditions may be appealing enough to experience. There are also written exams as part of attract talented individuals to the teaching profession. individual course programs, but there is not one Working conditions may play an important role in the officially mandated final written exam in pedagogical decision to become a teacher. Talented candidates who programs. Instead, teachers are required to participate have opportunities in other professions may be in a one-year internship during their first year of discouraged from choosing to become teachers if teaching. During the internship, they prepare a research working conditions are too poor. In Macedonia, there project (case study or essay), and a formal defense of are standards for space, equipment, and sanitation. the project. When a new school opens all standards must be achieved, and working conditions are assessed every In Macedonia, both concurrent and consecutive models three years through an external evaluation conducted for teacher training exist, but consecutive models are by the State Education Inspectorate. In more than 60 only available for secondary school teachers. percent of schools, working conditions meet standards, Concurrent programs, programs that teach subject but working conditions may not be satisfactory in a knowledge and pedagogic skills relatively smaller, rural schools. In situation where the school simultaneously, are one pathway to enter the teaching premises are not satisfactory, the state education profession for both primary and secondary teachers. inspectors inform the municipality council to take measures. The municipality usually does not give SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Figure 3. Student-teacher ratio, primary school Goal 3: Preparing teachers with useful training and experience South Korea 22 Singapore 18 Advanced  Shanghai 11 Japan 16 Equipping teachers with the skills they need to succeed Macedonia in the classroom is crucial. Teachers need subject 12 matter and pedagogic knowledge, as well as classroom 0 5 10 15 20 25 management skills and lots of teaching practice in order Source: SABER-Teachers data to be successful in the classroom. In addition, preparation puts all teachers on an equal footing, giving feedback to the state education inspectors about the them a common framework to improve their practice. measures taken. Apart from the external evaluations, the inspectors also act upon complaints filed by SABER-Teachers considers two policy levers school students, parents and other educational stakeholders. systems can use to reach this goal: (1) minimum standards for pre-service training programs; (2) Student-teacher ratios, which are another indicator of required classroom experience for all teachers. teacher working conditions, are similar to those in top- performing international education systems. The (1) Teacher initial education requirements have the student-teacher ratio for both primary and secondary potential to provide prospective teachers with the education is 11.6:1 (Figure 3). It is important to note necessary knowledge and skills to be successful in the that there is substantial variation among schools. In classroom. Virtually all high-performing countries urban schools the ration may be as great as 30 students require that teachers have an educational level per classroom, where class sizes in rural areas may be equivalent to ISCED 5A (a Bachelor’s degree), and some very small. systems, such as Finland, require in addition a research- based master’s degree (OECD 2011). School teachers in (4) Opportunities for career advancement may be Macedonia go through their teacher initial education at appealing enough to help attract talented individuals the ISCED5A level and above, attending a practically to the teaching profession. Teachers in most education oriented 4-year Bachelor’s degree course. systems are offered opportunities for promotion to principal positions at some point in their careers. In (2) Practical classroom experience requirements for addition to these “vertical” promotions, most high- novice teachers could be strengthened. Practical performing education systems offer teachers the experience is an important factor in teaching quality. possibility of “horizontal” promotions, to academic The more teachers try out their pedagogical theories, positions that allow them to grow professionally as subject-matter knowledge, and classroom management teachers and yet remain closely connected to skills, the better prepared they will be for their job. instruction, instead of moving up to managerial Most high-performing systems require their teacher positions (OECD 2012, Darling-Hammond 2010). Policies entrants to have a considerable amount of classroom in Macedonia offer various opportunities for career experience before becoming independent teachers, and advancement to teachers. Teachers have the option of some of these systems provide mentoring and support applying to either school administration posts (such as during the first and even second year on the job school principals) or academic leadership positions. (Darling-Hammond 2010, Ingersoll 2007). In Macedonia, Additionally, promotion opportunities in Macedonia are student teachers for primary and secondary education not officially linked to teacher performance. This is positions have to develop classroom experience during another way of improving career opportunities in the their teacher initial education program, but the teaching profession for attractive candidates. duration of classroom experience varies across teacher training colleges and universities. Mentoring programs are obligatory for new teachers, but these also vary depending on where a teacher obtains his/her degree. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Figure 4. Required classroom experience, primary equal opportunity to learn. Without purposeful school teachers allocation systems, it is likely that teachers will gravitate towards schools serving better-off students or located in more desirable areas, deepening inequalities in the South Korea Macedonia Singapore system. Shanghai Japan SABER-Teachers considers two policy levers school systems can use to reach this goal: (1) incentives for 3 months or less  teachers to work in hard-to-staff schools; and (2) incentives for teachers to teach in critical shortage 12 months or less   areas. 12-24 months  (1) There are mechanisms to ensure that there are not teacher shortages in hard-to-staff schools. Attracting More than 24 months  effective teachers to work in hard-to-staff schools Source: SABER-Teachers data (schools that are in disadvantaged locations or serve underprivileged populations) is a challenge for many The classroom experience required of teacher trainees countries, and often requires a specific set of incentives. during initial education is less than twelve months In Macedonia there is a policy for teachers to teach in approximately 230 hours for primary school teachers, hard-to-staff schools. Teachers receive a monetary and varying widely from 10 hours to 100 hours for bonus for teaching in these schools (Figure 5). In secondary school teachers Figure 4. Teacher practice, these bonuses are not large (10 percent of a candidates who purse a consecutive model of teacher’s salary in schools with the greatest shortages) education, obtaining their BA in a subject area first and and may not be appealing enough to attract qualified then pursing a teaching certification, much have a teachers. minimum of 45 days teaching practice. In high- performing systems, programs aimed at facilitating new (2) Macedonia has not identified critical-shortage teachers’ transition into teaching for both primary and subjects, and there is no policy does not systematically secondary school teachers are usually longer than 7 identify or address critical shortage subjects. Critical months. These programs have the potential to make shortage subjects, subjects where there is a shortage of teachers more effective in the classroom and reduce teachers to meet student needs, are present in many teacher turnover. education systems, and many systems develop policies and offer incentives for teachers to teach these subjects (e.g. monetary bonuses, subsidized education/ Goal 4: Matching teachers’ skills with scholarships in these subject areas). However, 28% of students’ needs teachers in primary and lower secondary schools do not Emerging  meet the minimum standards required for teachers due to the lower level of education (ISCED 5B that was Ensuring that teachers work in schools where their skills required in the past) or due to teaching subjects he/she are most needed is important for both equity and is not qualified (usually arts). There is shortage of efficiency. First, it is a way of ensuring teachers are teachers in rural schools and in Albanian or Turkish distributed as efficiently as possible, making sure that language of instruction. These are small rural schools there are no shortages of qualified teachers at any given and there are not enough classes to employ full-time grade, education level, or subject. Second, it is a means teachers for each subject. Even if there are qualified of ensuring all students in a school system have an teachers on the labor market they are not interested in working part-time, especially in hard-to-staff school areas. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Figure 5. Incentives for teachers to teach in hard-to-staff schools Research from top-performing education systems suggests principals can develop leadership skills through South Korea Macedonia supported work experience or through specific training Singapore Shanghai courses. High-performing systems such as Japan, South Japan Korea, Shanghai, and Singapore require the participation of applicants to principal positions in Promotion   specific coursework and/or a specialized internship or Higher basic salary  mentoring program aimed at developing essential Monetary bonus    leadership skills (OECD, 2012; Darling-Hammond 2010). Subsidized education  To become a school principal in Macedonia, an Housing support   Source: SABER-Teachers data applicant must have a minimum of 5 years of teaching experience and at least a four-year Bachelor’s degree. Note: Singapore has no specific incentives to attract qualified There are currently no training mechanisms beyond the teachers to hard-to-staff schools, but it does have a centrally- six-module course to ensure that applicants to principal managed teacher deployment system that ensures an equitable and positions can develop the necessary skills to act as efficient distribution of teachers. instructional leaders, such as participation in a mentoring or internship program. Goal 5: Leading teachers with strong principals There is no policy to evaluate principal performance and principals’ performance is not rewarded with incentives Emerging  or bonuses. Research suggests that improving principal performance can both enhance teacher quality and lead The quality of school heads is an important predictor of to better outcomes in student achievement. Principals student learning. Capable principals can act as in most education systems play a critical role, and are instructional leaders, providing direction and support to the local point of contact for most teachers seeking the improvement of instructional practice at the school guidance in their day-to-day work. Most high- level. In addition, capable principals can help attract and performing education systems have mechanisms in retain competent teachers. place to ensure accountability and to evaluate the performance of principals. SABER-Teachers considers two policy levers school systems can use to reach this goal: (1) education (2) Principals in Macedonia are explicitly expected to system’s investment in developing qualified school monitor teacher performance and to provide support leaders; (2) decision-making authority for school and guidance to teachers for the improvement of principals to support and improve instructional practice. instructional practice. Once education systems get talented candidates to become principals, they need to (1) In Macedonia, there are programs to support the structure their time to focus on improving instruction development of principals’ leadership skills, including (OECD 2012, Barber & Mourshed 2007). High- coursework. A training program that consists of six performing education systems such as Finland, Ontario, modules is compulsory for candidates for principals. and Singapore think of their principals as instructional These modules include: An introductory module, a leaders. Principals are expected to be knowledgeable in module on organizations, managing people in teaching and curriculum matters, as well as to provide organization, principals as educational leaders, planning guidance and support to teachers (Figure 6). They and decision making, and law regulation and financing. evaluate teachers, provide feedback, assess the school’s After completion of each module a candidate prepares needs for professional development, and direct seminar paper which is presented in front of the trainer. instructional resources where they are most needed The Ministry sets up a final exam for the candidates (Darling-Hammond & Rothman 2011). who have successfully completed the training course. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Figure 6. Mechanisms to support the development (1) In Macedonia, there are systems in place to assess of principals’ leadership skills student learning in order to inform teaching and policy. All high-performing education systems ensure South Korea Macedonia that there is enough student data to inform teaching Singapore Shanghai and policy, but they do so in very different ways. Japan Regardless of the mechanism they decide to follow, high-performing systems ensure that three main Courses or other training functions are fulfilled: (1) There is a system to collect requirements     relevant and complete data on student achievement Mentoring or internship regularly;(2) There is a mechanism for public authorities program   to have access to these data so that they can use it to Source: SABER-Teachers data inform policy; and (3) There is a mechanism to feed these data and relevant analyses back to the school level, so that teachers can use it to inform the In Macedonia, principals are expected to hire and improvement of instructional practice. In Macedonia, dismiss teachers, assess teachers’ performance, principals receive assessment data that compare their evaluate the overall school’s performance, manage the school’s performance with national averages. National schools budget, represent the school, respond to data are publicly available. However, because the law subnational and local authorities, and maintain student does not stipulate that data collected from these discipline. Many of the tasks that are expected from assessments be comparable year on year, it may not be principals in Macedonia are aligned with instructional possible to look at time trends and changes in school leadership tasks that research suggests are associated performance. with high student performance, though their administrative load may be especially burdensome and In Macedonia, there are sample-based national student may detract from their ability to manage teachers assessments after completion of grades 4 and 8 (for effectively. children ages 10 and 14), but it is was last implemented in the year 2006. There are also external assessments of students in all grades each year (ages 10-18). Each Goal 6: Monitoring teaching and learning student is assessed in two subjects. It is planned this year results to be used for teacher assessment and to Established  impact teachers’ salaries from year 2014. All students are required to take and pass a national exam, the State Assessing how well teachers are teaching and whether Matura, to graduate. Macedonia also participates in students are learning or not is essential to devise international assessments (PISA, TIMSS, and PIRLS). strategies for improving teaching and learning. First, Despite the opportunity to connect the results of identifying low-performing teachers and students is national assessments to teacher performance, results of critical for education systems to be able to provide these exams do not have any impact on teacher struggling classrooms with adequate support to evaluation or salary. improve. Second, teacher and student evaluation also helps identify good practices which can be shared (2) There are systems in place, both internal and across the system to improve school performance. external evaluations, to monitor teacher performance. In Macedonia, national authorities monitor teacher SABER-Teachers considers three policy levers school performance and track teachers over time through an systems can use to reach this goal: (1) availability of assigned personal identification number. One-third of data on student achievement in order to inform teachers are externally evaluated each year, so that teaching and policy; (2) adequate systems to monitor each teacher gets evaluated once every three years. teacher performance; (3) multiple mechanisms to Teachers keep portfolios, which are the basis for evaluate teacher performance. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 evaluation. There is a book of rules that is used by state Goal 7: Supporting teachers to improve educational inspectors to assess the fulfillment of instruction teachers' duties regulated in the laws for education. It contains standards against which a teacher portfolio is Established assessed. The laws for primary and secondary education prescribe that the external evaluation will influence the Support systems are necessary to help improve teacher salaries and that after three unsatisfactory instruction at the school level. In order to constantly results a teacher will be dismissed. In practice, this improve instructional practice, teachers and schools policy is not enforced. Principals are also involved in need to be able to analyze specific challenges they face internally monitoring teacher performance. These in classroom teaching, have access to information on internal evaluations include mandatory classroom best practices to address these challenges, and receive observation. In addition to internal and external specific external support tailored to their needs. evaluations, school management staff are monitoring and assessing the teachers' performance but there is no SABER-Teachers considers three policy levers school official performance evaluation process in place. systems can use to reach this goal: (1) availability of opportunities for teacher professional development; (2) (3) According to policy, the criteria used to evaluate teacher professional development activities that are teacher performance focus heavily on criteria that collaborative and focused on instructional have been found in research influence student improvement; (3) making sure teacher professional achievement (Figure 7). Research suggests that no development is assigned based on perceived needs. single method of evaluating teacher performance is failsafe. Most high-performing systems conduct teacher (1) Teachers are required to participate in teacher evaluations using a multiplicity of mechanisms of data professional development, but there are no specific collection and varied criteria for assessment. requirements as to the duration or intensity of the Furthermore, research has shown that a balance of training. In Macedonia, participating in professional different criteria—such as a combination of a student development is a requisite to stay in the profession as achievement results, classroom observations and well as a requisite for promotions. In addition, in order feedback from student survey results—might be more to advance from one rank to another in the teacher effective. Many top-performing education systems career ladder, teachers are required to have define explicit criteria for assessing teacher participated in professional development seminars or performance. Figure 7, for instance, highlights some of workshops according to their rank. Teacher professional these criteria. development is provided free of charge. Figure 7. Criteria to evaluate teacher performance (2) Teacher professional development includes activities that have been found by research to be South Korea associated with instructional improvement (Figure 8). Macedonia Singapore Shanghai Research suggests that effective teacher professional Japan development is collaborative and provides opportunities for the in-school analysis of instructional practice, as opposed to being limited to one-time Subject matter knowledge    workshops or conferences. As mentioned earlier, high- performing education systems like Japan and Ontario Teaching methods      devote as much as 30 per cent of school time to professional development and instructional Student assessment methods      improvement activities. Some of these include observation visits to other schools, participation in Students’ academic achievement   teacher or school networks as well as opportunities to Source: SABER-Teachers data engage in research, mentoring or coaching. All such opportunities exist in Macedonia. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Figure 8.Types of professional development (1) In Macedonia promotion opportunities are not linked to performance on the job. There is no official South Korea Macedonia mandatory probation period for teachers before they Singapore Shanghai are granted open-ended appointments, and official Japan policy does not stipulate that performance on the job factors into whether teachers receive this type of appointment. But although probation periods are not Observation visits     mandatory, there is a practice of having them at the school level, and principals have discretion over Teacher networks     whether to renew a teacher’s contract or not. School networks     (2) There are mechanisms in place to hold teachers Research    accountable. Requiring teachers to meet some standards to remain in the teaching profession can Mentoring/coaching     facilitate the removal of ineffective teachers. In Source: SABER-Teachers data Macedonia, teacher performance is evaluated annually, and there are official mechanisms to address cases of misconduct, child abuse, absenteeism and poor (3) Teacher professional development is formally performance. However, in practice, the dismissal rate is assigned based on perceived needs. When teachers very low— less than 1 percent per annum, according to perform poorly on external evaluations, they may be unofficial data sources. assigned to participate in professional development activities. Assigning professional development to (3) Teacher compensation is linked to performance teachers, or connecting them with a supervisor or (Figure 9). Performance reviews in Macedonia do not mentor, when they score low on performance carry salary implications, but high-performing teachers evaluations is one way of potentially improving do receive monetary bonuses for good individual instructional practice. Teacher professional performance in some municipalities. Such pecuniary development can be targeted to meet the needs of rewards can be effective tools for improving teacher specific teachers. performance, assuming that there is a valid and well- accepted system of performance evaluation is in place. Goal 8: Motivating teachers to perform Figure 9. Incentives for high performance Emerging South Korea Macedonia Singapore Shanghai Adequate mechanisms to motivate teachers are a way Japan for school systems to signal their seriousness in achieving education goals, make the teaching career attractive to competent individuals, and reward good performance while ensuring accountability. Individual monetary bonus     SABER-Teachers considers three policy levers school School-level bonus   Source: SABER-Teachers data systems can use to reach this goal: (1) linking career opportunities to teachers’ performance; (2) having mechanisms to hold teachers accountable; (3) linking teacher compensation to performance. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Policy Options management skills on students, the better prepared they will be for their careers. This SABER country report has offered a snapshot of Macedonia’s key policies on teachers and how they Goal 4: Matching teachers’ skills with compare with those of top global performers in students’ needs education. Building on that diagnosis, this section offers some options for further strengthening the There are official systems in place to address teacher teacher policy framework. shortages in hard-to-staff schools, but not to attract teachers in critical-shortage subject areas. • Develop a system for identifying critical Goal 1: Setting clear expectations for teachers shortage subjects at the regional level, and by language of instruction. There are clear expectations for what students should • Reconsider existing incentives for working in learn and what teachers are supposed to do. Teachers’ hard-to-staff schools and ensure that they are official duties involve both teaching and nonteaching appealing to teachers. tasks related to instructional improvement. • Set expectations for what percentage of teachers’ Goal 5: Leading teachers with strong working time should be dedicated to teaching and principals what percentage should be used for other necessary activities that may contribute to Principals are expected to monitor teacher performance instructional improvement. and provide support to teachers to improve instructional practice, but their performance is not Goal 2: Attracting the best into teaching rewarded. At present there are training courses for new principals, but no mentorships or guidance to ensure Entry requirements, working conditions, and career that new principals have the necessary skills to act as advancement opportunities may be appealing for instructional leaders and successful managers. talented candidates. However, teacher pay may not be • Principal performance in Macedonia could be appealing signaling teaching as a low-status profession. further enhanced by providing principals with • Ensure teachers get competitive pay, especially at an obligatory mentorship program and/or the entry-level. specific coursework to promote leadership • Ensure teacher performance is one of the criteria skills. used for teacher promotion and career • Initiate a system for evaluating principal advancement. For example, vertical and horizontal performance and ensure student and teacher promotions could be based on merit, not tenure outcomes are factored into principal (relax the years of teaching experience requirement performance reviews. for promotions, so that high performing teachers • Conduct a needs assessment to understand have the opportunity for career advancement). what are the specific needs and issues Goal 3: Preparing teachers with useful principals face in their work. training and experience Goal 6: Monitoring teaching and learning Current teacher initial education systems may be suited There are systems in place to assess student learning in to ensure good quality teachers. Beginning teachers order to inform teaching and policy. Teacher have opportunities to develop practical teaching skills. performance is evaluated every three years using • Teacher preparation could include more criteria that assess effective teaching. experience in the classroom. The more teachers • Ensure that student achievement data collected are able to try out their pedagogical theories, are comparable year-on-year, so that it subject matter knowledge, and classroom becomes possible to evaluate teacher and school performance over time. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Goal 7: Supporting teachers to improve Goal 8: Motivating teachers to perform instruction There are mechanisms in place to hold teachers There are opportunities for teacher professional accountable. Promotion opportunities are not linked to development, but requirements for teachers (e.g. the teacher performance, but high performing teachers do number of days for professional development) are not have an opportunity to receive monetary bonuses. specified. • Improve mechanisms for holding teachers • Continue to require that primary and secondary accountable. For example, set requirements for school teachers participate in professional professional development or additional development activities each year. Research performance evaluations for teachers who suggests that effective teacher professional underperform and need it. development is collaborative and provides • Reward high-performing teachers with desirable opportunities for the analysis of instructional incentives—monetary or otherwise. practice, as opposed to one-time workshops or • Link teacher performance reviews to student conferences. outcomes. • Focus more on ensuring the quality rather than • Ensure that the results of teacher evaluations and quantity of professional development activities. feedback reaches teachers and that evaluations are • Ensure there is a regular budget for professional not simply done pro forma. development activities. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Acknowledgements Hanushek, E. & Woessmann (2009). “Schooling, Cognitive Skills, and the Latin American Growth This report was prepared by Mary Breeding (Consultant, Puzzle.” NBER Working Paper 15066.Cambridge, HDNED), with inputs from Gorica Mickovska MA: National Bureau of Economic Research (Consultant, ECSH2), Andrew Trembley (Consultant, (NBER). HDNED), and under the direction of Halsey Rogers (Lead Economist, HDNED). We are especially grateful for the Herrmann, M. A., & Rockoff, J. E. (2009). "Work assistance of Bojana Naceva (Senior Education Disruption, Worker Health, and Productivity: Specialist, ECSH2). Evidence from Teaching." New York, NY: Columbia Business School. Ingersoll, R. (2007). A comparative study of teacher References preparation and qualifications in six nations. Consortium for Policy Research on Education. Barber, M., & Mourshed, M. (2007).How the World's Best-Performing School Systems Come Out on Levin, B. (2008) How to change 5000 schools. Top. London, UK: McKinsey & Co. Cambridge, MA: Harvard Education Press. Campante, F. & Glaeser, E. L. (2009).“Yet Another Tale Miller, R. T., Murnane, R. J., & Willett, J. B. (2008). "Do of Two Cities: Buenos Aires and Chicago.” NBER Teacher Absences Impact Student Working Paper 15104.Cambridge, MA: National Achievement? Longitudinal Evidence From One Bureau of Economic Research (NBER). Urban School District." Educational Evaluation and Policy Analysis, 30(2), 181-200. Chaudhury, N., Hammer, J., Kremer, M., Muralidharan, K., & Rogers, F. H. (2006). "Missing in Action: Nye, B., Konstantopoulos, S., & Hedges, L. V. (2004). Teacher and Health Worker Absence in "How Large Are Teacher Effects?" Educational Developing Countries." Journal of Economic Evaluation and Policy Analysis, 26(3), 237-257. Perspectives, 20:1, pp. 91‐116. 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SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 15 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 Official documents 20%D0%B8%20%D1%80%D0%B0%D0%B1%D0%BE%D1 %82%D0%B0%20%D0%BD.pdf LAWS FOR EDUCATION (ЗАКОНИ ЗА ОБРАЗОВАНИЕ) COLLECTIVE AGREEMENTS (КОЛЕКТИВНИ ДОГОВОРИ) Law on primary education (Закон за основното образование) Collective agreement for primary education, general http://www.mon.gov.mk/images/pdf/Zakon%20za%20 provisions (Колективен договор за основното osnovnoto%20obazovanie%202013.pdf образование во РМ општи одредби) http://www.sonk.org.mk/documents/Kol_dog_%20za_o Law on secondary education (Закон за средното snovno_12_2008.pdf образование) http://www.slvesnik.com.mk/Issues/0942F1658050174 http://www.mon.gov.mk/images/pdf/Zakon%20za%20v D94D2C36571EF9B39.pdf isokoto%20obrazovanie%20konsolidiran%20Fev%20201 3.pdf Collective agreement for secondary education, general provisions Колективен договор за средното Law on higher education (Закон за високо образование во РМ општи одредби образование) http://www.sonk.org.mk/documents/Kol_dog_za_sred http://www.mon.gov.mk/images/pdf/Zakon%20za%20v no_%2012_2008.pdf isokoto%20obrazovanie%20konsolidiran%20Fev%20201 http://www.slvesnik.com.mk/Issues/0942F1658050174 3.pdf D94D2C36571EF9B39.pdf Law for Bureau for development of education (Закон за Agreement on the minimum wage in primary education Бирото за развој на образованието) Спогодба за најниска плата во основното http://www.mon.gov.mk/images/pdf/Zakon%20za%20 образование Biroto%20za%20razvoj%20na%20obrazovanieto.pdf http://www.sonk.org.mk/documents/spogodba_najnisk Law on Vocational Education and Training (Закон за a_plata_osnovno_obr_30.1.2009.pdf Стручно образование и обука) Agreement on the minimum wage in secondary http://www.mon.gov.mk/images/pdf/Zakon%20za%20s education truchnoto%20obrazovanie%20i%20obuka%202013.pdf Спогодба за најниска плата во средното образование Law on Education Inspection (Закон за Просветната http://www.sonk.org.mk/documents/spogodba_za_naj инспекција) niska_plata_sredno_obr_30.1.2009.pdf http://www.mon.gov.mk/images/pdf/Zakon%20za%20 LABOR LAW (ЗАКОН ЗА РАБОТНИ ОДНОСИ) prosvetnata%20inspekcija%202013.pdf http://mtsp.gov.mk/WBStorage/Files/zro_konsolidiran. Law on State Examination Centre (Закон за Државниот pdf испитен центар) LAW ON HEALTH INSURANCE (ЗАКОН ЗА http://www.mon.gov.mk/images/pdf/Zakon%20za%20 ЗДРАВСТВЕНОТО ОСИГУРУВАЊЕ) Drzavniot%20ispiten%20centar.pdf https://ener.gov.mk/files/propisi_files/documents/48_ %D0%97%D0%B0%D0%BA%D0%BE%D0%BD%20%D0% LAW FOR ORGANIZATION AND OPERATION OF THE B7%D0%B0%20%D0%B7%D0%B4%D1%80%D0%B0%D0 STATE ADMINISTRATION (ЗАКОН ЗА ОРГАНИЗАЦИЈА И %B2%D1%81%D1%82%D0%B2%D0%B5%D0%BD%D0%B РАБОТА НА ОРГАНИТЕ НА ДРЖАВНАТА УПРАВА) E%D1%82%D0%BE%20%D0%BE%D1%81%D0%B8%D0% https://ener.gov.mk/files/propisi_files/documents/371 B3%D1%83%D1%80%D1%83%D0%B2%D0%B0%D1%9A _1123861591%D0%A2%D0%B5%D0%BA%D1%81%D1% %D0%B5%20%20%D0%BF%D1%80%D0%B5%D1%87%D 82%20%D0%BD%D0%B0%20%D0%BF%D1%80%D0%BE 0%B8%D1%81%D1%82%D0%B5%D0%BD%20%D1%82% %D0%BF%D0%B8%D1%81%D0%BE%D1%82_%D0%97% D0%B5%D0%BA.doc D0%B0%D0%BA%D0%BE%D0%BD%20%D0%B7%D0%B0 %20%D0%BE%D1%80%D0%B3%D0%B0%D0%BD%D0%B 8%D0%B7%D0%B0%D1%86%D0%B8%D1%98%D0%B0% SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 16 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 LAW ON PENSION AND DISABILITY INSURANCE JURISDICTION OF THE STATE SANITARY AND HEALTH (ЗАКОН ЗА ПЕНЗИСКОТО И ИНВАЛИДСКОТО INSPECTORATE ОСИГУРУВАЊЕ) (НАДЛЕЖНОСТИ НА ДРЖАВНИОТ САНИТАРЕН И http://www.mtsp.gov.mk/WBStorage/Files/zpio_precist ЗДРАВСТВЕН ИНСПЕКТОРАТ) en.pdf http://mz.gov.mk/wp-content/uploads/2013/01/dszi- nadleznosti.pdf Law on Local Self - Government (ЗАКОН ЗА ЛОКАЛНА САМОУПРАВА) NATIONAL CURRICULA (НАСТАВНИ ПРОГРАМИ) https://ener.gov.mk/files/propisi_files/documents/549 National Curricula for Primary Education _%D0%97%D0%B0%D0%BA%D0%BE%D0%BD%20%D0 (Наставни програми за основно образование) %B7%D0%B0%20%D0%BB%D0%BE%D0%BA%D0%B0% http://bro.gov.mk/?q=osnovno-obrazovanie D0%BB%D0%BD%D0%B0%D1%82%D0%B0%20%D1%81 %D0%B0%D0%BC%D0%BE%D1%83%D0%BF%D1%80%D National Curricula for Gymnasia (General Secondary 0%B0%D0%B2%D0%B0.pdf Education) Law on the City of Skopje (ЗАКОН ЗА ГРАДОТ СКОПЈЕ) (Наставни програми за гимназиско образование) https://ener.gov.mk/Default.aspx?item=pub_regulation http://bro.gov.mk/?q=gimnazisko-obrazovanie- &subitem=view&itemid=eXqbCXPfRzN8g1+yREKVbg== nastavni-programi SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 17 FYR MACEDONIA | TEACHER POLICY SABER COUNTRY REPORT |2013 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of teacher policies. This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. THE WORLD BANK SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18