Mozambique SABER Country Report TEACHERS 2014 Policy Goals Status 1. Setting Clear Expectations for Teachers Clear expectations exist 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 Teacher salaries may be attractive, but entry requirements and career advancement opportunities may not be appealing to talented candidates. 3. Preparing Teachers with Useful Training and Experience Currently, initial teacher education systems do not ensure high quality teachers. Beginning teachers have opportunities to develop practical teaching skills, but there are few entry requirements for teacher-training programs. 4. Matching Teachers’ Skills with Students’ Needs Official systems are in place to attract teachers to hard-to-staff schools, but not to attract teachers to teach critical shortage subjects. 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 no mentoring programs exist for new principals. 6. Monitoring Teaching and Learning Systems are in place to assess student learning, but it is not clear that these systems inform teaching or policy. Teacher performance is evaluated using some criteria that assess effective teaching. 7. Supporting Teachers to Improve Instruction It is not clear that there are teacher professional development opportunities, or requirements for teachers to participate in professional development. 8. Motivating Teachers to Perform Mechanisms are in place to hold teachers accountable. Promotion opportunities are not linked to teacher performance. MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 information that describes how different education Overview of SABER--Teachers systems manage their teacher force. The database also includes copies of supporting documents. It is available Interest is increasing across the globe over how to at the SABER--Teacher website. attract, retain, develop and motivate great teachers. Student achievement has been found to correlate with economic and social progress (Hanushek & Woessmann 2007, 2009; Pritchett & Viarengo 2009; Campante & Box 1. Teacher -policy areas for data collection Glaeser 2009), and teachers are key. Recent studies have 1. Requirements to enter and remain in teaching shown that teacher quality is the main school-based 2. Initial teacher education predictor of student achievement, and that several 3. Recruitment and employment consecutive years of outstanding teaching can offset the 4. Teachers’ workload and autonomy learning deficits of disadvantaged students (Hanushek & 5. Professional development Rivkin 2010; Rivkin et al. 2005; Nye et al. 2004; Rockoff 6. Compensation (salary and non-salary benefits) 2004; Park & Hannum 2001; Sanders & Rivers 1996). 7. Retirement rules and benefits However, achieving the right teacher policies to ensure 8. Monitoring and evaluation of teacher quality that every classroom has a motivated, supported, and competent teacher remains a challenge. Evidence on the 9. Teacher representation and voice impacts of many teacher policies remains insufficient 10. School leadership and scattered, and the impact of many reforms depends on specific design features. In addition, teacher policies To offer informed policy guidance, SABER--Teachers can have very different impacts, depending on the analyzes the information collected to assess the extent context and other education policies in place. to which the teacher policies of an education system are aligned with policies shown by research evidence to A new tool, SABER--Teachers, aims to help fill this gap have a positive effect on student achievement. SABER-- by collecting, analyzing, synthesizing, and Teachers analyzes the teacher policy data collected to disseminating comprehensive information on teacher assess each education system’s progress in achieving policies in primary- and secondary-education systems eight teacher policy goals: 1. setting clear expectations around the world. SABER--Teachers is a core component for teachers; 2. attracting the best into teaching; 3. of SABER (Systems Approach for Better Education preparing teachers with useful training and experience; Results), an initiative launched by the Human 4. matching teachers’ skills with students’ needs; 5. Development Network of the World Bank. SABER collects leading teachers with strong principals; 6. monitoring information about different education systems’ policies, teaching and learning; 7. supporting teachers to improve analyzes it to identify common challenges and promising instruction; and 8. motivating teachers to perform solutions, and makes the results widely available to help (Figure 1). inform countries’ decisions on where and how to invest to improve education quality. SABER--Teachers collects data on 10 core teacher policy areas to offer a comprehensive, descriptive overview of the teacher policies that are in place in each participating education system (Box 1). Data are collected in each participating education system by a specialized consultant using a questionnaire that ensures comparability of information across different systems. Data collection focuses on the rules and regulations governing teacher-management systems. This information is compiled in a comparative database where interested stakeholders can access detailed 1 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Figure 1: 8 Teacher Policy Goals improved student outcomes (Annex 1). The main objective of this assessment is to identify the strengths and weaknesses of the teacher policies of an education system, and to 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 policy implementation. SABER--Teachers analyzes the teacher policies formally adopted by education systems. However, policies on the ground, that is, as they are actually implemented, may differ quite substantially from policies as originally designed. In fact, they often do differ, due to such factors as the The eight teacher policy goals are functions that all political economy of the reform process; lack of capacity high-performing education systems fulfill to a certain of organizations in charge to implement the policies; or extent to ensure that every classroom has a motivated, the interaction between these policies and specific supported, and competent teacher. These goals were contextual factors. Since SABER--Teachers collects identified through a review of evidence in research limited data on policy implementation, the assessment studies on teacher policies, and through analysis of of teacher policies presented in this report needs to be policies of top-performing and rapidly improving complemented with detailed information that describes education systems. Three criteria were used to identify the actual configuration of teacher policies on the the teacher policy goals. Specifically, they had to be (i) ground. linked to student performance through empirical evidence; (ii) labeled a priority for resource allocation; Education in Mozambique is regulated by the National and (iii) actionable, that is, open to improvement Education System (NES) Law 6/92, published in 1992, through government actions. The eight teacher policy which allows for the coexistence of public and private goals exclude other objectives that countries might want education. Under this law, the education system consists to pursue to increase the effectiveness of their teachers, of four levels: preschool, primary, secondary, and but which to date lack sufficient empirical evidence for tertiary. The pre-primary level is for children under six making specific policy recommendations. years of age and is provided by day care centers and kindergartens. Primary school begins at age six and is By classifying countries according to their performance divided into two cycles: lower primary for grades 1 to 5 on each of the eight teacher policy goals, SABER-- and upper primary for grades 6 and 7. Secondary school Teachers can help diagnose the key challenges that has two cycles: lower secondary for grades 8 to 10 and countries face in ensuring they have effective teachers. upper secondary for grades 11 and 12. For each policy goal, the SABER--Teachers team identified policy levers (actions that governments can This report presents results of the application of SABER- take to reach these goals) and indicators (measures of -Teachers in Mozambique. It describes Mozambique’s the extent to which governments are making effective performance for each of the eight teacher policy goals, use of these policy levers). Using these policy levers and alongside comparative information from education indicators, SABER--Teachers classifies education systems that have consistently scored high results in systems’ performance on each of the eight teacher policy international student achievement tests and have goals using a four-category scale (latent, emerging, participated in SABER—Teachers. Additional information established, and advanced). The ratings describe the on Mozambique’s teacher policies and those of other extent to which a given education system has in place countries can be found on the SABER--Teachers website. teacher policies that are known to be related to 2 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Mozambique’s teacher policy system learning, because it recognizes that teachers normally need to devote some time to non-teaching tasks, such as results lesson planning, analysis of student work, and Goal 1: Setting clear expectations for teachers professional development, as well as administrative tasks. Establishedzzz| Non-teaching tasks related to instructional improvement Setting clear expectations for student and teacher are an officially required part of teachers’ basic performance is important to guide teachers’ daily work responsibilities in Mozambique. These tasks include and align necessary resources to make sure that teachers collaborating on school plans and participating in school can constantly improve instructional practice. In evaluations (Figure 2). However, it is unclear what addition, clear expectations can help ensure coherence percentage of time teachers are expected to devote to among different key aspects of the teaching profession, such tasks. such as initial teacher education, professional development, and teacher appraisal. Successful education systems, such as those in Ontario, Finland, Japan, South Korea, and Singapore, devote SABER--Teachers considers two policy levers that school considerable time at the school level to activities that are systems can use to reach this goal: (1) clear expectations related to instructional improvement. These include for what students should know and be able to do, and collaboration among teachers on the analysis of how teachers can help students reach these goals; and instructional practice, mentoring, and professional (2) useful guidance on how teachers can use their time development (Darling, Hammond & Rothman 2011; to improve instruction at the school level. Darling & Hammond 2010; Levin 2008). In addition, these systems tend to devote a smaller share of teachers’ time (1) In Mozambique, there are expectations for what to actual contact time with students, and a larger share students are expected to learn and for what teachers to teacher collaboration, on-site professional are supposed to do. The Ministry of Education is development, and research on the effectiveness of responsible for setting education goals and controlling various teaching strategies. Japan, for example, devotes the national curriculum. about 40 percent of teachers’ working time to these types of activities, while Ontario currently devotes 30 The tasks teachers are expected to carry out are officially percent (Darling, Hammond & Rothman 2011). stipulated. Teacher tasks go beyond classroom teaching to include activities such as supervising students, grading Figure 2. Teachers’ official tasks related to school assessments, and standing in for absent teachers. While improvement teacher tasks are clearly defined, the law does not Mozambique stipulate what percentage of time teachers should Singapore Shanghai allocate to any of these tasks (except for actual teaching Japan in the classroom). (2) Guidance on teachers’ use of time could focus more on ensuring that expectations are set in a way as to Mentor peers 9 9 improve instruction. Teachers’ working time in Mozambique is officially defined as the number of hours Collaborate on school plan 9 9 9 9 spent at school (as opposed to the overall number of working hours). Primary teachers are expected to teach Design the curriculum 9 9 at least 18 hours a week, and secondary teachers are Participate in school evaluation 9 9 9 expected to teach at least 15 hours a week. Teachers are Source: SABER--Teachers data expected to be at the school 40 hours per week. Global experience suggests this definition of working time as the total number of hours at school may be conducive to 3 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Goal 2: Attracting the best into teaching of 10th or 12th grade, respectively; passing an examination; and at the primary level, a successful Emergingzz|| interview. Most high-performing education systems require that incoming teachers have at least a minimum The structure and characteristics of a career in teaching amount of practical professional experience, or that they can help determine whether talented individuals opt to pass an examination, in addition to their teacher-training become teachers. Talented people may be more inclined program. However, Mozambique has no such to take such a career path if entry requirements are on requirements. par with those of well-regarded professions; compensation and working conditions are adequate; and In Mozambique, training happens through concurrent attractive career opportunities are in place for them to programs. Concurrent programs teach subject develop as professionals. knowledge and pedagogic skills simultaneously. The basic requirement for becoming a teacher is to have a SABER--Teachers considers four policy levers that school vocational degree from a concurrent program. systems can use to reach this goal: (1) requirements to (However, teachers can be hired without this training enter the teaching profession; (2) competitive pay; (3) when there is a shortage of teachers.) In contrast, many appealing working conditions; and (4) attractive career high-performing education systems offer consecutive opportunities. programs in addition to concurrent programs. Consecutive programs allow individuals who have a (1) In Mozambique, primary teachers are required to bachelor’s degree in a discipline other than education, or have a vocational degree and secondary teachers are who are in the process of acquiring one, to gain a officially required to have a university degree to be teaching certificate after 12 months of additional study qualified to teach. Primary-education teachers in at university. Mozambique receive their initial teacher training after 10 years of schooling. Secondary-education teachers Teachers in Mozambique are paid the same as other civil receive their initial teacher training after 12 years of servants with the same level of education, sending a schooling. Two options exist for pre-service training at signal that teachers are not undervalued in the labor the primary school teacher-training level: (i)one year of market. However, the concurrent model of education training after grade 10 and (ii) three years of training limits the ability of degree holders to seek teaching after grade 10 (under pilot). The first option gives a careers if they choose. graduate a qualification below that of 12th grade, and the second option gives graduates a qualification equivalent (2) Teacher pay may be appealing to talented to completing 12th grade. At the secondary level, candidates. The minimum base teacher salary is 3,316 teachers are required to complete three years of training meticals (about US$106) per month, and teachers can after the 12th grade or a four-year university program earn a maximum of 25,010 meticals (about US$799) per after grade 12. month. No difference exists between teacher salaries and those of other civil servants given similar levels of There are no formal requirements to become a teacher education. In the private sector, the minimum salary (after completion of a teacher-training program. begins at 2,500 meticals (about US$80) for agriculture- However, there are formal requirements for entering related jobs and 6,817 meticals (about US$217) for primary and secondary school teacher-training programs positions in the financial sector 1 . Pay does not vary in Mozambique. The requirements include: completion according to teacher performance. Opportunities for pay 1 Private sector data obtained from a third-party source. o-minimo/comparacao-de-salarios-minimos-1/novos-salarios- http://www.meusalario.org/mocambique/main/salario/salari minimos-para-2013 (Accessed April 17, 2014) 4 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 increases include completion of a higher degree or more years of experience. Policies in Mozambique offer teachers various opportunities for career advancement. Teachers have (3) Working conditions may not be appealing enough to the option of applying to either school administration attract talented individuals to the teaching profession. posts (such as that of school principal) or academic- Working conditions may play an important role in the leadership positions. Promotion opportunities are decision to become a teacher. Talented candidates who officially linked to teacher performance, providing have opportunities in other professions may be attractive candidates with a channel for career discouraged from becoming teachers if working advancement. Teachers in Mozambique may be conditions are too poor. In Mozambique, standards exist promoted based on four criteria: work experience of at for school construction, but schools are not required to least three years; positive teacher evaluations; an meet any national standards for infrastructure, hygiene, approved application for promotion; and budgetary or sanitation. provisions. Student-teacher ratios, which are another indicator of Goal 3: Preparing teachers with useful teacher working conditions, are high relative to those in training and experience high-performing international education systems, where the maximum number of students per teacher is typically Latentz||| 30 for primary school and 20 for secondary school. The primary school student-teacher ratio for Mozambique is Equipping teachers with the skills they need to succeed 74:1 at the lower-primary level and 34:1 at the upper- in the classroom is crucial. Teachers need subject matter primary level. The secondary school student-teacher and pedagogic knowledge, as well as classroom- ratio averages 51:1 at the lower- secondary level and management skills and lots of teaching practice to be 40:1 at the upper-secondary level. successful in the classroom. In addition, preparation helps put all teachers on an equal footing, giving them a Figure 3. Student-teacher ratio, primary school common framework to improve their practice. South Korea 22 SABER--Teachers considers two policy levers that school systems can use to reach this goal: (1) minimum Singapore 18 standards for pre-service training programs; and (2) Shanghai 11 required classroom experience for all teachers. Japan 16 Mozambique 74 (1) Initial teacher education programs are not providing prospective teachers with the necessary practical 0 20 40 60 80 knowledge and skills to be successful in the classroom. Source: SABER--Teachers data Virtually all high-performing countries require that teachers have an educational level equivalent to a (4) Opportunities for career advancement may be appealing enough to help attract talented individuals to the teaching profession. Teachers in most education systems have opportunities to seek promotion to principal positions at some point in their careers. In addition to these “vertical” promotion opportunities, most high-performing education systems offer teachers the possibility of “horizontal” promotions, to academic positions. Taking an academic job allows teachers to grow professionally and yet remain closely connected to instruction, without taking a managerial position (OECD 2012; Darling-Hammond 2010). 5 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 bachelor’s degree (ISCED 2 5A), and some, such as Finland, also require a research-based master’s degree 12 months or less 9 9 (OECD, 2011). As mentioned earlier, primary school teachers in Mozambique go through their initial teacher 12-24 months 9 education below the ISCED 4A level, completing a vocational degree that is either below, or equivalent to, More than 24 months 9 Source: SABER--Teachers data having completed 12th grade. (2) Practical classroom-experience requirements for Goal 4: Matching teachers’ skills with teachers-in-training could be strengthened. Practical experience is an important factor in determining students’ needs teaching quality. The more teachers try out their Latentz||| pedagogical theories, subject-matter knowledge, and classroom-management skills, the better prepared they Ensuring that teachers work in schools where their skills will be for their job. Most high-performing systems are most needed is important for equity and efficiency. require their teacher entrants to have a considerable First, it can help prevent shortages of qualified teachers amount of classroom experience before becoming in any given grade, education level, or subject. Second, it independent teachers, and some of these systems can help guarantee that all students in a school system provide mentoring and support during the first and even have an equal opportunity to learn. Without purposeful second year on the job (Darling-Hammond 2010; allocation systems, it is likely that teachers will gravitate Ingersoll 2007). In Mozambique, teachers-in-training towards schools that serve better-off students or that acquire less than 12 months of classroom experience are located in more-desirable areas, deepening (between three and six months). inequalities in the system. Novice teachers in Mozambique are not required to SABER--Teachers considers two policy levers that school participate in induction or mentoring programs. In high- systems can use to reach this goal: (1) incentives for performing systems, programs aimed at facilitating new teachers to work in hard-to-staff schools; and (2) teachers’ transition into teaching for both primary and incentives for teachers to work in critical-shortage areas. secondary schools usually last longer than seven months. These programs have the potential to make teachers (1) Mechanisms are in place to address teacher more effective in the classroom and to reduce teacher shortages in hard-to-staff schools. Many countries face turnover. challenges in attracting effective teachers to work in hard-to-staff schools, such as those in disadvantaged Figure 4. Required classroom experience, primary locations or those that serve underprivileged school teachers populations. As a result, they often must put in place a specific set of incentives, such as monetary bonuses or Mozambique South Korea opportunities for promotion, to attract teachers. In Singapore Shanghai Mozambique, teachers who work in hard-to-staff schools Japan have a better chance of promotion and also receive monetary bonuses. In addition, the government sometimes provides housing when new schools are built 3 months or less 9 in rural areas. In some cases, communities provide 2 International Standard Classification of Education, 2011 version. 6 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 provisional housing for teachers. Figure 5 highlights (2) decision-making authority for school principals to examples of incentives offered to teachers for working in support and improve instructional practice. hard-to-staff schools. (1) In Mozambique, no training programs exist to (2) Mozambique has identified critical-shortage subject support the professional development of principals, areas, but policies do not systematically identify or especially in the area of school administration. Research address such areas. Critical-shortage subjects- where from high-performing education systems suggests there is a shortage of teachers to meet student needs-- principals can develop leadership skills through are present in many education systems. Many systems supported work experience or specific training courses. develop policies and offer incentives aimed at High-performing systems, such as those in Japan, South encouraging teachers to teach these subjects. Incentives Korea, Shanghai, and Singapore, require applicants to include monetary bonuses and subsidized education or principal positions to participate in specific coursework scholarships in those subject areas. or a specialized internship or mentoring program aimed at developing essential leadership skills (OECD 2012; Figure 5. Incentives for teachers to teach in hard-to- Darling-Hammond 2010). staff schools To become a school principal in Mozambique, an Mozambique South Korea applicant must have a teaching certificate. Candidates Singapore Shanghai applying for principal jobs in schools teaching 8th to 10th Japan grade must have three years of teaching experience, and those applying to work in schools that go up to 11th or Promotion 9 9 9 12th grade must have five years’ teaching experience Higher basic salary in 9 Currently, there are no specific training mechanisms, hard-to-staff schools such as specific coursework or participation in a Monetary bonus 9 9 9 mentoring or internship program, to ensure that Subsidized education 9 applicants to principal positions can develop the Housing support 9 9 necessary skills to act as instructional leaders. However, the Ministry is in the process of establishing three Source: SABER--Teachers data teacher-training Institutes to train principals. Note: Singapore has no specific incentives to attract qualified teachers to hard-to-staff schools, but it has a centrally managed Legislation states that principal performance is assessed teacher-deployment system that ensures an equitable and efficient by subnational and district education authorities on an distribution of teachers. annual basis. No clear guidelines exist to assess principal Goal 5: Leading teachers with strong performance, such as the ones that exist for teachers, and there are no ways to reward principals’ principals performance, such as by giving a financial bonus. Latentz||| (2) Principals in Mozambique are required to monitor teacher performance and to provide support and The quality of school heads is an important predictor of guidance to teachers on how to improve instructional student learning. Capable principals can act as practice, though heavy administrative loads may instructional leaders, providing direction and support for prevent them from effectively carrying out these tasks. improving instructional practice at the school level. In Once education systems get talented candidates to addition, capable principals can help attract and retain become principals, they need to structure their time to competent teachers. focus on improving instruction (OECD 2012; Barber & Mourshed 2007). High-performing education systems, SABER--Teachers considers two policy levers that school such as those in Finland, Ontario, and Singapore, think of systems can use to reach this goal: (1) education-system their principals as instructional leaders. Principals are investment in developing qualified school leaders; and expected to be knowledgeable in teaching and 7 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 curriculum matters, as well as to provide guidance and SABER--Teachers considers three policy levers that support to teachers. They evaluate teachers, provide school systems can use to reach this goal: (1) availability feedback, assess the school’s needs for professional of data on student achievement to inform teaching and development, and direct instructional resources where policy; (2) adequate systems to monitor teacher they are most needed (Darling-Hammond & Rothman performance; and (3) multiple mechanisms to evaluate 2011). teacher performance. In Mozambique, principals are expected to assess (1) In Mozambique, systems are in place to assess teachers’ performance, manage the school budget, student learning, but it is not clear that these systems represent the school, respond to subnational and local are used to inform policy or teaching. All high- authorities, and maintain student discipline. Many of the performing education systems ensure that enough tasks that are expected of principals in Mozambique are student data are available to inform teaching and policy, aligned with instructional leadership tasks that research but they do so in very different ways. Regardless of the suggests are associated with high student performance. mechanism they decide to follow, high-performing However, their administrative load may be especially countries ensure that three main functions are fulfilled: burdensome and may affect their ability to manage (1) A system collects relevant and complete data on teachers effectively. student achievement regularly; (2) A mechanism allows public authorities access to these data so they can use Figure 6. Mechanisms to support the development of the information to inform policy; and (3) A mechanism principals’ leadership skills feeds these data and relevant analyses back to the school level, so teachers can use them to inform the Mozambique improvement of instructional practice. In Mozambique, South Korea Singapore Shanghai large-scale national examinations take place at the completion of each primary-education level (5th and 7th Japan grade), as well as at the completion of secondary- Courses or other training education levels (10th and 12th grade). The examination requirements 9 9 9 results determine whether the student is promoted to the following level of education. Currently, data are not Mentoring or internship available to inform policy. Principals have access to their program 9 9 own students’ examination marks, but do not receive Source: SABER--Teachers data information on the results of other schools. Thus, a school cannot compare its performance to that of other schools in the district or province. Goal 6: Monitoring teaching and learning (2) A system is in place to evaluate teacher performance, but its effectiveness may be limited. Emergingzz|| Teachers in Mozambique participate in evaluations. A teacher is usually assessed by the school principal, often Assessing how well teachers are teaching and whether on a trimester basis. No external evaluations of teachers students are learning is essential for devising strategies take place in Mozambique, but inspections for a small for improving teaching and learning. First, identifying number of schools involve some teacher evaluation. low-performing teachers and students is critical if education systems are to provide struggling classrooms (3) The criteria used to evaluate teachers in with adequate support to improve. Second, teacher and Mozambique do not include such factors as evaluation student evaluations can also help identify good practices, of teaching methods (Figure 7). Research suggests that which can be shared across the system to improve school no single method of evaluating teacher performance is performance. fail-safe. Most high-performing systems conduct teacher evaluations using multiple mechanisms for data collection and varied criteria for assessment. 8 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Mozambique currently lacks a comprehensive teacher- evaluation framework that combines student results, Students’ academic achievement 9 teachers’ portfolios, classroom observation, and Source: SABER--Teachers data feedback from students and parents. International experience and research suggest that none of these approaches taken separately can produce a balanced and Goal 7: Supporting teachers to improve objective evaluation of teacher performance. In instruction Mozambique, school principals are in charge of appraising teacher performance. Teacher appraisal takes Latent z||| place each trimester, and the list of criteria includes knowledge of subject matter and student achievement. Support systems are necessary to help improve instruction at the school level. To constantly improve Research has shown that evaluations might prove more instructional practice, teachers and schools need to be effective if they combine multiple methods and sources able to analyze specific challenges they face in classroom of information, such as student academic achievement, teaching; have access to information on best practices to classroom observation, and student survey results. The address these challenges; and receive specific external data from standardized national student assessments support tailored to their needs. could, in theory, be used as a proxy for student achievement. In Mozambique, a national examination SABER--Teachers considers three policy levers that takes place at the end of primary and secondary but no school systems can use to reach this goal: (1) availability large-scale student assessments occur for each grade. of opportunities for teacher professional development; The existing framework, therefore, appears better suited (2) teacher professional-development activities that are for evaluating school performance, rather than collaborative and focused on instructional improvement; teachers’. Furthermore, evidence suggests that defining and (3) the assignment of teacher professional student achievement only through standardized test development based on perceived needs. performance may be detrimental to learning outcomes. Other proxies for student achievement should also be (1) Teachers in Mozambique are required to participate included in the teacher-evaluation framework. These in professional development, but no specific include performance on teacher-created written requirements define the duration of the training. In assessments and authentic assessments, among others. many countries, participating in professional development is a requisite for teachers to stay in the Many top-performing education systems define explicit profession as well as to qualify for promotions. In criteria for assessing teacher performance. Figure 7 addition, to advance up the career ladder, teachers in highlights some of these. most high-performing countries are required to have participated in a number of professional-development Figure 7. Criteria to evaluate teacher performance seminars or workshops according to their rank. In Mozambique, apart from taking part in teacher networks, regular professional development for teachers Mozambique South Korea is not required. Singapore Shanghai Japan (2) Teacher professional development in Mozambique includes activities that have been found by research to be associated with instructional improvement, such as Subject matter knowledge 9 9 9 9 participation in teacher or school networks (Figure 8). Research suggests that effective teacher professional Teaching methods 9 9 9 9 development is collaborative and provides opportunities for the in-school analysis of instructional practice. As Student assessment methods 9 9 9 9 mentioned earlier, high-performing education systems, such as in Japan and Ontario, devote as much as 30 9 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 percent of school time to professional development and (1) In Mozambique, promotion opportunities are linked instructional-improvement activities. Such activities to job performance. Teachers must undergo a include observation visits to other schools; participation mandatory probation period before they are granted in teacher or school networks; and opportunities to open-ended appointments, and official policy stipulates engage in research, mentoring, or coaching. that job performance factors into whether teachers receive an appointment. Mandatory probation periods (3) Teacher professional development is not formally can help to strengthen low-performing teachers, assigned based on perceived needs. Assigning provided a sound system of monitoring teacher professional development to teachers when they score performance is in place. low on performance evaluations is one way of potentially improving instructional practice. Teacher professional (2) Mechanisms are in place to hold teachers development can be targeted to meet the needs of accountable. Requiring teachers to meet some specific teachers. standards to remain in the profession can facilitate the removal of ineffective teachers. In Mozambique, teacher Figure 8. Types of professional development performance is evaluated annually, and official mechanisms exist to address cases of misconduct, child Mozambique South Korea abuse, absenteeism, and poor performance. Singapore Shanghai (3) Teacher compensation is not linked to performance. Japan Performance reviews in Mozambique do not directly carry salary implications, and high-performing teachers Observation visits 9 9 9 do not receive monetary bonuses for good individual performance. Monetary rewards can be effective tools Teacher networks 9 9 9 9 for improving teacher performance, assuming that a valid and well-accepted system of performance School networks 9 9 9 9 evaluation is in place. Research 9 9 Figure 9. Incentives for high performance Mentoring/coaching 9 9 9 Mozambique South Korea Source: SABER--Teachers data Singapore Shanghai Japan Goal 8: Motivating teachers to perform Emerging zz|| Individual monetary bonus 9 9 9 School-level bonus 9 9 Adequate mechanisms to motivate teachers are a way Source: SABER--Teachers data for school systems to signal their seriousness in achieving education goals; to make the teaching career attractive to competent individuals; and to reward good Policy Options performance while ensuring accountability. This SABER country report has offered a snapshot of SABER--Teachers considers three policy levers that Mozambique’s key teacher policies and how they school systems can use to reach this goal: (1) linking compare with those of top global performers in career opportunities to teacher performance; (2) education. This section suggests some policy options for establishing mechanisms to hold teachers accountable; further improvement of Mozambique’s teacher policy and (3) tying teacher compensation to performance. framework. 10 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Goal 4: Matching teachers’ skills with students’ needs Goal 1: Setting clear expectations for teachers Official systems are in place to attract teachers to hard- Expectations are clear in terms of what students should to-staff schools, but not to attract teachers to teach learn and what teachers should do. Teachers’ official critical-shortage subjects. duties involve both teaching and non-teaching tasks x Develop a system that systematically identifies related to instructional improvement. teacher shortages, both in critical subjects and x Set expectations for what percentage of in hard-to-staff schools. teachers’ working time should be dedicated to x Provide visible incentives to teachers to work in necessary non-teaching activities, including hard-to-staff schools, such as promotion, higher professional development that may contribute salaries, scholarships for education, or housing. to instructional improvement. x Provide incentives to teachers to teach critical- shortage subjects. Provide scholarships specifically for education in subject areas with Goal 2: Attracting the best into teaching shortages, for example, science, mathematics and Portuguese for secondary education. x Teacher salaries may be attractive, but entry requirements and career-advancement Goal 5: Leading teachers with strong opportunities may not be appealing for talented principals candidates. Strengthen selectivity of entry requirements for teacher-training programs at Principals are expected to monitor teacher performance universities. and provide support to teachers to improve instructional x Ensure teachers get competitive pay, especially practice, but their own performance is not rewarded. At at the entry level. present, no mentoring programs exist for new principals. x Create a mentoring or induction program to However, the Ministry of Education has established help new teachers who enter the profession. three teacher-training Institutes to train principals. x Strive to improve teacher working conditions x Conduct a needs assessment to understand the and to lower teacher-student- ratios. specific needs and issues principals face in their work. x Provide principals with an obligatory Goal 3: Preparing teachers with useful mentorship program, instructional leadership training and experience training, and ongoing professional development. Current initial teacher education programs do not x Ensure student achievement and teacher guarantee the development of good-quality teachers. performance are factored into principal Beginning teachers have opportunities to hone practical performance reviews, and that such factors teaching skills, but teacher-training programs have few carry significant weight in the review process. entry requirements. x Ensure principals view professional x Require more extensive teaching practice development of teachers and school before teachers obtain certification. improvement as core responsibilities. x Increase qualification standards to strengthen x Define rules to select school principals based on teacher-training programs. objective performance criteria and competition. x Require new teachers to participate in induction programs and receive mentoring by high- performing colleagues, before they are granted Goal 6: Monitoring teaching and learning an open-ended contract. Systems are in place to assess student learning, but it is not clear that these systems inform teaching or policy. 11 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Teacher performance is evaluated using some criteria x Monitor the effects of participation in that assess effective teaching. professional-development activities. x Ensure that student achievement data collected x Begin a pilot of professional-development are comparable year-on-year, so that it becomes programs for potential national implementation. possible to evaluate teacher and school x Create incentives to motivate teachers and performance over time. universities to conduct research on the teaching x Create standards for teachers that can be used and learning programs. as benchmarks for teacher evaluations. Goal 8: Motivating teachers to perform x Ensure teacher evaluations accurately capture quality teaching and that they are tied to Mechanisms are in place to hold teachers accountable, learning outcomes and student achievement. but promotion opportunities are not linked to teacher This could mean using multiple mechanisms to performance. evaluate teachers, including classroom x Improve mechanisms for holding teachers observations, student-feedback surveys, parent- accountable. For example, set requirements for feedback surveys, and student results as professional development or additional measured by standardized assessments, performance evaluations for teachers who teacher-created assessments, or authentic underperform and need them. assessments. x Reward high-performing teachers with desirable x Create a system for external evaluation of monetary or nonmonetary incentives. teachers (stipulated in the new Draft Law). x Link teacher performance reviews to student x Ensure that the purpose and uses of external outcomes. student assessments are regulated explicitly and in detail, to make sure that available data on school performance are used to continuously improve the system. Goal 7: Supporting teachers to improve instruction It is not clear whether there are teacher professional development opportunities, or requirements for teachers to participate in professional development. x Require that primary and secondary school teachers participate in professional- development activities each year. In particular, develop collaborative professional development opportunities, given that research suggests that this kind of professional development is effective and provides opportunities for the analysis of instructional practice, in contrast to one-time workshops or conferences. x Focus more on ensuring the quality, rather than quantity, of professional-development activities. x Ensure a regular budget exists for professional- development activities. x Monitor the supply and demand for particular professional-development activities. 12 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Hanushek, E. A., and S. G. Rivkin. 2010. “Generalizations Acknowledgements about Using Value-added Measures of Teacher This report was prepared by Mary Breeding (Knowledge Quality.” American Economic Review 100 (2): and Innovations Team, Education Global Practice, World 267–71. Bank), with input from Andrew Trembley (Knowledge Hanushek, E., and Woessmann. L. 2007. “Education and Innovations Team, Education Global Practice, World Quality and Economic Growth.” World Bank, Bank), and under the direction of Halsey Rogers Washington, DC. (Knowledge and Innovations Team, Education Global Practice, World Bank). We are especially grateful for the --------. 2009. “Schooling, Cognitive Skills, and the Latin assistance of Shwetlena Sabarwal (Education Global American Growth Puzzle.” NBER Working Paper Practice, World Bank), Manuel Lobo (Education Global 15066. National Bureau of Economic Research, Practice, World Bank), and Chelsea Coffin (Education Cambridge, MA. Global Practice, World Bank). Herrmann, M. A., and J.E. 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Washington, DC. Maputo, 2003. 14 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 Ministry of Education. Ministerial Diploma 42/2007 of May 16, 2007. Introduces new transitory teacher- training courses. Maputo, 2007. Ministry of Education. Ministerial Diploma 46/2008. Approves the General Primary Education Regulation. Maputo, 2008. Ministry of Education. General Secondary Schools Evaluation Regulation. Maputo, 2010. Ministry of Finance. Decree 27/2013. Approves the new salary scale for public servants. Maputo, 2013. Public Function National Council. Resolution 4/1990. Approval of the Teacher´s Statute. Maputo, 1990. Public Function National Council. Resolution 8/2002. Approval of the professional career qualifiers for education. Maputo, 2002. Public Function National Council. Resolution 9/2002. Defines the assessment norms and procedures for progression in education careers. Maputo, 2002. Public Function National Council. Resolution 10/2002. Approves the assessment sheet for primary and secondary education. Maputo, 2002. Public Function Inter-ministerial Commission. Resolution 1/2011. Approves the Ministry of Education Organic Statute. Maputo, 2011. Public Function National Council. Resolution 18/2012. Creates school managerial and leadership functions and approves the respective qualifiers. Maputo, 2012. 15 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 under each of the policy levers used to define a Annex 1. SABER--Teachers Ratings policy goal. The SABER--Teachers team has identified policy levers (actions that governments can take) and indicators x Established—“Established” systems have at least (measurements of the extent to which governments are one policy or law in place that uses those policy making effective use of these policy levers) for each of levers. the eight policy goals referenced in this country report. For example, for Teacher Policy Goal 1--Setting Clear x Emerging—“Emerging” systems may have some Expectations for Teachers--the SABER--Teachers team appropriate policies in place under the policy has identified the following policy levers and indicators: goal. Table 2. Setting Clear Expectations for Teachers x Latent—“Latent” systems have none or few appropriate policies in place under the policy goal. Please refer to Vegas et al. (2012) for a detailed review of policy levers and indicators assessed for each goal. Please reference the background paper by Vegas et al. (2012), “What Matters Most for Teacher Policies? A Framework for Building a More Effective Teaching Profession,” for more details about these definitions and a detailed review of policy levers and indicators used by SABER--Teachers. For each goal in the country report, we define the goal in the first paragraph of the country report, and identify the levers in the second paragraph,. The remaining paragraphs provide details about the indicators that measure each of the levers. Using the 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) The ratings describe the extent to which a given education system has in place teacher policies that are known to be related to improved student outcomes. This four-tiered rating system represents a continuum, ranging from systems with more comprehensive, developed policies oriented toward learning, to systems with no policies at all (or, in some cases, policies that are detrimental from the perspective of encouraging learning). SABER--Teacher ratings can be defined in the following manner: x Advanced—Systems are rated “advanced” toward a particular policy goal when they have multiple policies conducive to learning in place 16 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS MOZAMBIQUE | TEACHERS SABER COUNTRY REPORT |2014 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 17 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS