94345  Benin   SABER Country Report TEACHERS 2012      Policy Goals Status 1. Setting clear expectations for teachers The national curriculum sets expectations for what students are supposed to  learn and teachers are supposed to do. There is no official guidance on teachers’ use of time, which could help ensure that teachers are focused on tasks related to school improvement. 2. Attracting the best into teaching Initial education standards for primary and secondary teachers are low relative to  teachers in many higher-performing systems, and there are opportunities to improve working conditions. 3. Preparing teachers with useful training and experience There are low standards for pre-service teachers, and induction programs are  not offered to beginning teachers. 4. Matching teachers’ skills with students’ needs Teachers receive monetary bonuses to work in hard-to-staff schools, but there  are no incentives for teachers to teach critical shortage subjects. 5. Leading teachers with strong principals There is a program to support the development of principals’ leadership skills  through supervised internships, but there are still opportunities to strengthen support to principals. 6. Monitoring teaching and learning There are official systems in place to monitor teacher performance. Student  achievement data are collected, but are not used to inform teaching or policy.  7. Supporting teachers to improve instruction Teacher professional development is not required. Professional development  activities that do occur include some activities that are associated with instructional improvement (e.g., participation in teacher networks). 8. Motivating teachers to perform Promotion opportunities are linked to performance, but there are not many  mechanisms to hold teachers accountable.       BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   OverviewofSABERͲTeachers detailed information organized along relevant categories that describe how different education There is increasing interest across the globe in systemsmanagetheirteacherforce,aswellascopiesof attracting, retaining, developing, and motivating great supporting documents. The full database is available at teachers. Student achievement has been found to theSABERͲTeacherwebsite. correlate with economic and social progress (Hanushek & Woessmann 2007, 2009; Pritchett & Viarengo 2009; Box1.Teacherpolicyareasfordatacollection Campante & Glaeser 2009), and teachers are key: 1. Requirementstoenterandremaininteaching Recent studies have shown that teacher quality is the 2. Initialteachereducation main schoolͲbased predictor of student achievement and that several consecutive years of outstanding 3. Recruitmentandemployment teaching can offset the learning deficits of 4. Teachers’workloadandautonomy disadvantaged students (Hanushek & Rivkin 2010; Rivkin,etal.2005;Nyeetal.2004;Rockoff2004;Park& 5. Professionaldevelopment Hannum 2001; Sanders & Rivers 1996).However, 6. Compensation(salaryandnonͲsalarybenefits) achieving the right teacher policies to ensure that every classroom has a motivated, supported, and competent 7. Retirementrulesandbenefits teacher remains a challenge, because evidence on the 8. Monitoringandevaluationofteacherquality impacts of many teacher policies remains insufficient and scattered, the impact of many reforms depends on 9. Teacherrepresentationandvoice specific design features, and teacher policies can have 10. Schoolleadership very different impacts depending on the context and othereducationpoliciesinplace.  To offer informed policy guidance, SABERͲTeachers A new tool, SABERͲTeachers, aims to help fill this gap analyzestheinformationcollectedtoassesstheextent by collecting, analyzing, synthesizing, and to which the teacher policies of an education system disseminating comprehensive information on teacher are aligned with those policies that the research policies in primary and secondary education systems evidence to date has shown to have a positive effect aroundthe world.SABERͲTeachersisacorecomponent on student achievement. SABERͲTeachers analyzes the of SABER (Systems Approach for Better Education teacher policy data collected to assess each education Results), an initiative launched by the Human system’s progress in achieving eight teacher policy Development Network of the World Bank. SABER goals: 1. Setting clear expectations for teachers; 2. collects information about different education systems’ Attracting the best into teaching; 3. Preparing teachers policy domains, analyzes it to identify common with useful training and experience; 4. Matching challengesandpromisingsolutions,and makesitwidely teachers’ skills with students’ needs; 5. Leading available to inform countries’ decisions on where and teachers with strong principals; 6. Monitoring teaching howtoinvestinordertoimproveeducationquality. and learning; 7. Supporting teachers to improve instruction; and 8. Motivating teachers to perform (see SABERͲTeacherscollectsdataon10coreteacherpolicy Figure1). areastoofferacomprehensivedescriptiveoverviewof the teacher policies that are in place in each participating education system (see Box 1). Data 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. This information is compiled in a comparative database where interested stakeholders can access  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 2 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Figure1:Eightteacherpolicygoals 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 supportingthem,seeVegasetal.(2012). The main focus of SABERͲTeachers is on policy design, rather than on policy implementation. SABERͲTeachers analyzes the teacher policies formally adopted by education systems. However, policies “on the ground,” that is, policies as they are actually implemented, may  differ quite substantially from policies as originally designed, and in fact they often do so, due to the  politicaleconomyofthereformprocess,lackofcapacity oftheorganizationsinchargeofimplementingthem,or The eight teacher policy goals are functions that all the interaction between these policies and specific highͲperforming education systems fulfill to a certain contextual factors. Since SABERͲTeachers collects extent in order to ensure that every classroom has a limited data on policy implementation, the assessment motivated, supported, and competent teacher. These of teacher policies presented in this report needs to be goals were identified through a review of evidence of complementedwith detailedinformationthatdescribes research studies on teacher policies, and the analysis of the actual configuration of teacher policies on the policies of topͲperforming and rapidly improving ground. education systems. Three criteria were used to identify them: teacher policy goals had to be (i) linked to This report presents results of the application of student performance through empirical evidence, (ii) a SABERͲTeachers in Benin. It describes Benin’s priority for resource allocation, and (iii) actionable, that performance in each of the eight teacher policy goals, is, actions governments can take to improve education alongside comparative information from education policy. The eight teacher policy goals exclude other systems that have consistently scored high results in objectives that countries might want to pursue to international student achievement tests and have increase the effectiveness of their teachers, but on participated in SABERͲTeachers. Additional detailed which there is to date insufficient empirical evidence to descriptive information on Benin’s and other education makespecificpolicyrecommendations. systems’ teacher policies can be found on the SABERͲ Teacherswebsite. Byclassifyingcountriesaccordingtotheirperformance on each of the eight teacher policy goals, SABERͲ Teachers can help diagnose the key challenges that   countriesfaceinensuringtheyhaveeffectiveteachers. For each policy goal, the SABERͲTeachers team identified policy levers (actions that governments can take to reach these goals) and indicators (which measure the extent to which governments are making effective use of these policy levers). Using these policy levers and indicators, SABERͲTeachers classifies education systems’ performance on each of the eight teacher policy goals using a fourͲcategory scale (latent, emerging, established, and advanced), which describes  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 3 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Benin’sTeacherPolicySystemResults school. Other activities of teachers could be expanded toincludeparticipatinginthedesignofthecurriculum. Goal1:Settingclearexpectationsfor Benin could strengthen its statutory definition of teachers teachers’ working time to incorporate additional tasks Emergingzz|| outside of teaching hours. Many highͲperforming systems (e.g., Japan and Singapore) have statutory Setting clear expectations for student and teacher definitions that include either the overall number of performance is important to guide teachers’ daily work working hours or at least the overall number of hours and align necessary resources to make sure that teachersspendatschool. teachers can constantly improve instructional practice. Figure2.Teachers’officialtasksrelatedtoschool In addition, clear expectations can help ensure there is improvement coherence among different key aspects of the teaching Coted’Ivoire profession, such as teachers’ initial education, Singapore professionaldevelopment,andteacherappraisal. Shanghai Japan Benin SABERͲTeachers considers two policy levers school systems can use to reach this goal: (1) clear expectations for what students should know and be Mentorpeers 9  9  9 able to do, and how teachers can help students reach thesegoals;(2)usefulguidanceonteachers’useoftime tobeabletoimproveinstructionattheschoollevel. Collaborateonschoolplan 9  9 9 9 (1) In Benin, the tasks that teachers are expected to Designthecurriculum   9  9 carry out are officially stipulated and there is a national curriculum with standards for what students Participateinschool evaluation 9  9  9 must know and be able to do. Benin has defined a set of standards to inform teachers of required subject Source:SABERͲTeachersdata. content or to provide them with measurable indicators oflearning.Havingstandardsandgoalsinplacehelpsto   inform teachers about their role in relation to what shouldbeachievedbystudentsatdifferentgrades. The statutory definition of teachers’ working time in Benin is defined as the number of teaching hours. However, regulations regarding the use of teachers’ work time include tasks outside of classroom teaching (e.g., taking part in internal evaluation activities of the school). At present, there are no expectations for what percent of teachers’ working time should be dedicated to teaching or for other necessary activities that may contributetoinstructionalimprovement. (2) Benin has defined tasks for teachers related to instructional improvement. Primary and secondary school teachers’ officially stipulated tasks outside the classroom include: mentoring or providing support to other teachers, collaborating on the school plan, and taking part in the internal evaluation system of the  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 4 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Goal2:Attractingthebestintoteaching (4)Careeropportunitiesmaynotbeappealingenough to attract talented individuals to the teaching Emergingzz|| profession. Most education systems offer teachers the possibility of being promoted to principal positions at The structure and characteristics of the teaching career some point in their careers. In addition to these can make it more or less attractive for talented “vertical” promotions, most highͲperforming education individuals to decide to become teachers. Talented systems offer teachers the possibility of “horizontal” people may be more inclined to become teachers if promotions, to academic positions that allow them to they see that entry requirements are on par with those grow professionally as teachers and yet remain closely of wellͲregarded professions, if compensation and connected to instruction, instead of moving up to working conditions are adequate, and if there are managerial positions (OECD 2012, DarlingͲHammond attractive career opportunities for them to develop as 2010). In Benin, policies allow for teachers to apply for professionals. school administration posts (such as school principals) but not for academic leadership positions. Teachers’ SABERͲTeachers considers four policy levers school advancement opportunities are officially linked to their systems can use to reach this goal: (1) minimum performance, which (if implemented as intended) may requirements to enter the teaching profession; (2) helptoattracttalentedapplicantsintotheprofession. competitive pay; (3) appealing working conditions; and (4)attractivecareeropportunities. Figure3.StudentͲteacherratio,primaryschool (1) Initial education standards for primary and Singapore 18 secondary teachers in Benin are low relative to Shanghai 11 standards in highͲperforming systems. Low minimum Japan 16 education standards could signal teaching as a less attractiveprofessionrelativetootherprofessions.Both Coted'Ivoire 43 primary and secondary education teachers are trained Benin 45 at the ISCED 4A level, meaning that their qualifications 0 10 20 30 40 50 are awarded for completing preͲdegree foundation Source:SABERͲTeachersdata;WorldBank(2010). coursesorshortvocationalortechnicalprograms.  (2) Teacher pay in Benin varies according to performance, teachers’ educational attainment, and   seniority. Moreover,therearesomeincentivestoenter the profession, such as monetary bonuses, pay for overtime, paid annual leave time, and retirement benefits. Teacher pay sends a strong signal to qualified teacher candidates about the status of the profession visͲàͲvisothercareerpossibilities. (3) There is limited data collected on the quality of working conditions, making them hard to assess. The studentͲteacherratioinBeninwaslastreportedat45:1, which is considered high (World Bank 2012). In many highͲperforming education systems, studentͲteacher ratios are below 30:1. Data are not available on the share of schools that comply with infrastructure standards in Benin, making it difficult to assess how working conditions may affect the quality of teacher entrants.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 5 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Goal3:Preparingteacherswithuseful direct classroom engagement or mentoring programs trainingandexperience (DarlingͲHammond 2000). Teacher trainees in Benin are required to have between six and 12 months of Latentz||| classroom experience. The more teachers try out their pedagogical theories, subject matter knowledge, and Equipping teachers with the skills they need to succeed classroom management skills on a group of students, in the classroom is crucial. To be successful, teachers thebetterpreparedtheywillbefortheirjob. need subject matter and pedagogic knowledge, as well  as classroom management skills and lots of teaching Figure4.Requiredclassroomexperience,secondaryschool practice. Adequate preparation puts all teachers on an teachers equal footing, giving them a common framework to Coted’Ivoire improvetheirpractice. Singapore Shanghai SABERͲTeachers considers two policy levers school Japan Benin systems can use to reach this goal: (1) minimum standards for preͲservice training programs; (2) requiredclassroomexperienceforallteachers. 6monthsorless      (1) In Benin, teacher initial education takes place at 12monthsorless 9 9  9  the ISCED 4A level, which is below many advanced education systems. Virtually all highͲperforming 12Ͳ24months     9 countries, for instance, require that teachers have an educational level equivalent to ISCED 5A (a bachelor’s Morethan24months   9   degree), and some systems, such as Finland, require in Source:SABERͲTeachersdata. addition a researchͲbased master’s degree (OECD 2011). In Benin, primary and secondary school teachers  are considered qualified to teach after completing the   equivalent of a twoͲyear vocational course (Baccalauréat). Candidates enter teacher training programscoursesaftercompletionofsecondaryschool. Box2.BestPractice:PreͲserviceteacher qualificationsinSingapore Singapore has multiple programs for becoming a teacher, ranging from a oneͲyear postgraduate program after completion of a BA degree to a minimum of a twoͲyear diploma program after completion of secondary school. PreͲservice programs are rigorous and include education studies, curriculum studies, subject knowledge, a practicum, and language enrichment skills training (MinistryofEducationSingapore2012).  (2) Teacher trainees are required to gain classroom experience in initial teacher education programs, but there are no formal induction or mentoring programs. Research has shown that practical experience is an important factor in teaching quality–either through  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 6 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Goal4:Matchingteachers’skillswith Figure5.Incentivesforteacherstoteachin students’needs hardͲtoͲstaffschools Latentz||| Coted’Ivoire Singapore Shanghai Ensuringthatteachersworkinschoolswheretheirskills Japan Benin are most needed is important for equity and efficiency. First, it is a way of ensuring teachers are distributed as Betterchancesof efficiently as possible, making sure that there are no promotion    9  shortages of qualified teachers at any given grade, education level, or subject. Second, it is a means of Higherbasicsalary   9   ensuring all students in a school system have an equal opportunity to learn. Without purposeful allocation Monetarybonus 9  9 9  systems, it is likely that teachers will gravitate towards schools serving betterͲoff students or located in more Subsidizededucation    9  desirableareas,deepeninginequalitiesinthesystem. Housingsupport   9   SABERͲTeachers considers two policy levers school Source:SABERͲTeachersdata. systems can use to reach this goal: (1) incentives for  Note:Singaporehasnospecificincentivestoattractqualifiedteachersto teachers to work in hardͲtoͲstaff schools; and (2) hardͲtoͲstaffschools,butitdoeshaveacentrallyͲmanagedteacher incentivesforteacherstoteachcriticalshortageareas. deploymentsystemthatensuresanequitableandefficientdistributionof teachers. (1)InBenin,monetarybonusesareofferedtoteachers  for teaching in hardͲtoͲstaff schools. Teaching experienceistheonlyfactorconsideredwhendeciding  transfer priorities. Attracting effective teachersto work   in hardͲtoͲstaff schools, which may serve students from disadvantaged populations, is a challenge for many countries. Getting qualified teachers often requires a complexsetofincentives. (2) Benin has not identified critical shortage subjects (though they exist), and there are no incentives for teachers to focus on them. In highͲperforming and rapidly improving systems, various incentives exist to attract talented professionals to teach critical shortage subjects.  Box3.BestPractice:Mississippi,USA The Mississippi Department of Education has worked to identify critical shortages areas and offers incentives to teachers to teach these subjects, including: more benefits, higher salary, and forgiveness of student loans. Such incentives can draw quality teachers who would otherwise not teach these subject areas (Mississippi Department of Education2012).  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 7 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Goal5:Leadingteacherswithstrongprincipals instructional resources to where they are most needed (DarlingͲHammond & Rothman 2011). In Benin, there Emergingzz|| are official specifications regarding the role of school  principals, and principals are explicitly required to The quality of school heads is an important predictor of evaluate teacher performance, a common task of student learning. Capable principals can act as principalsinmanyhigherͲperformingsystems. instructional leaders, providing direction and support to  the improvement of instructional practice at the school Figure6.Mechanismstosupportthedevelopmentof level.Inaddition,capableprincipalscanhelpattractand principals’leadershipskills retaincompetentteachers. Coted’Ivoire  Singapore Shanghai SABERͲTeachers considers two policy levers school  Japan Benin systems can use to reach this goal: (1) education system’s investment in developing qualified school leaders; (2) decisionͲmaking authority for school Coursesorothertraining principalstosupportandimproveinstructionalpractice. requirements    9 9  (1) In Benin, there is a program to support the Participationinmentoring development of principals’ leadership skills through orinternshipprogram 9  9  9 supervised internships. Principals’ leadership skills can be developed through supported work experience or Source:SABERͲTeachersdata. through specific training courses. HighͲperforming   systems such as Japan, South Korea, Shanghai, and Singapore require the participation of applicants to principal positions in specific coursework and/or a specialized internship or mentoring program aimed at developing essential leadership skills (OECD, 2012; DarlingͲHammond 2010). In Benin, principals are required to have a minimum of 10 years’ professional teaching experience, but there are no minimum education requirements. Mechanisms to attract competent individuals to principal positions, such as performance rewards, are absent in Benin. Instead, the Ministry of Education, at the national level, is responsibleforhiringprincipals.  (2) Principals in Benin are explicitly expected to provide support and guidance to teachers for the improvement of instructional practice. Once education systems get talented candidates to become principals, they need to structure their time to focus on improving instruction (OECD 2012, Barber & Mourshed 2007). HighͲperforming education systems such as Finland, Ontario, and Singapore think of their principals as instructional leaders. Principals are expected to be knowledgeable in teaching and curriculum matters, as well as to provide guidance and support to teachers. They evaluate teachers, provide feedback, assess the school’sneedsforprofessionaldevelopment,anddirect  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 8 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012    (2) Teachers in Benin are required to participate in Goal6:Monitoringteachingandlearning both internal and external evaluations. Many highͲ performing systems have multiple mechanisms in place Establishedzzz| to monitor teachers, including internal evaluations.  HighͲperforming countries often have multiple systems Assessing how well teachers are teaching and whether for managing teacher information, with teachers studentsarelearningisessentialtodevisestrategiesfor assigned individual identification numbers that allow improving teaching and learning. First, identifying lowͲ countries to track their performance over time. This is performing teachers and students is critical for oneadditionalwayofensuringteacheraccountability. education systems to be able to provide struggling  classrooms with adequate support to improve. Second, (3)  In Benin, teachers are assessed based on their teacher and student evaluation also helps identify good knowledge of the subject matter they teach, their practices which can be shared across the system to methods for assessing students in the classroom, and improveschoolperformance. the academic achievement of their students. Research  suggests that no single method of evaluating teacher SABERͲTeachers considers three policy levers school performance is failͲsafe. Most highͲperforming systems systems can use to reach this goal: (1) availability of conduct teacher evaluations using a multiplicity of data on student achievement in order to inform mechanisms of data collection and varied criteria for teaching and policy; (2) adequate systems to monitor assessment(Figure7). teacher performance; (3) multiple mechanisms to  evaluateteacherperformance. Figure7.Criteriatoevaluateteacherperformance  (1)InBenin,studentachievementdataarecollectedat Coted’Ivoire the national level through exams. All highͲperforming Singapore Shanghai  education systems ensure that there are enough Japan Benin student data to inform teaching and policy. These data ensure that three main functions are fulfilled: (1) There is a system to collect relevant and complete data on Subjectmatterknowledge 9 9 9  9 student achievement regularly; (2) There is a mechanism for public authorities to access these to Teachingmethods  9 9 9 9 inform policy; and (3) There is a mechanism to feed Studentassessmentmethods 9 9 9 9 9 thesedatabacktotheschoollevel,sothatteacherscan Students’academic use the data to improve classroom practice. In Benin, achievement 9   9  national student assessments are administered to students after completion of grades six, 10, and 13. Source:SABERͲTeachersdata. These assessments are sampleͲbased, rather than  covering all students, and student learning data are not   be linked to teacher information. While the information collected through the national assessments may be useful for diagnosing the overall performance of the system, because it covers only a sample of schools it may not help the government to identify the schools and teachers that need additional support, nor help most teachers to evaluate and adjust their own practice.   SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 9 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012    (3) Teacher professional development is formally Goal7:Supportingteacherstoimprove assigned based on perceived needs.  Assigning instruction professional development to teachers when they score low on performance evaluations can be one way of Latentz||| improving instructional practice. In that way, teacher professional development can be targeted to the needs Support systems are necessary to help improve of specific teachers, rather than being deployed to all instruction at the school level. To improve instructional teachersregardlessoftheirneeds. practice continuously, teachers and schools need to be able to analyze specific challenges they face in Box4.BestPractice,Japanlessonstudysystem classroom teaching, have access to information on best Japan has a unique professional development system that practices to address these challenges, and receive uses a lesson study approach. Teachers work together in specificexternalsupporttailoredtotheirneeds. smallgroupsandcollaboratewithoneanother.Theymeet SABERͲTeachers considers three policy levers school regularly to discuss learning goals, develop actual systems can use to reach this goal: (1) availability of classroom activities, and observe how their plans work in opportunities for teacher professional development; (2) practice. They then report on their performance so that teacher professional development activities that are otherteacherscanbenefit(Colinsonetal.2001). collaborative and focused on instructional improvement; (3) assignment of teacher professional Figure8.Requiredorsuggesteddaysofteacherprofessional developmentbasedonperceivedneeds. developmentperyear (1)InBenin,teachersarenotrequiredtoparticipatein Singapore 12 professional development activities, but there is an Shanghai 33 education advisor in each district office that oversees Japan 10 professional development activities (Figure 8). National authorities are responsible for teacher Coted'Ivoire 0 development when it occurs, but teachers sometimes Benin 0 have to pay for the costs of professional development 0 10 20 30 40 activities. Given that professional development is not  Source: SABERͲTeachers data; training requirements based on an eightͲhour required, it is unclear to what extent teachers benefit schoolday. fromtheavailableopportunitiesforadditionaltraining.   (2) Teacher professional development in Benin includes teacher observation visits to schools and participation in teacher networks, an activity that may improve teacher effectiveness. For instance, primary teachers are required to gather in their district every two weeks to discuss how to improve classroom instruction. Research suggests that the most effective teacher professional development is collaborative and provides opportunities for the inͲschool analysis of instructional practice, as opposed to being limited to oneͲtime workshops or conferences. For instance, effective teacher development activities may include observation visits to other schools, participation in teachernetworks,orparticipationinschoolnetworks.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 10 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Goal8:Motivatingteacherstoperform (3) In Benin, teacher compensation is officially linked to performance as assessed through performance Establishedzzz| evaluations. Performance reviews in Benin carry salary implications, but highͲperforming teachers do not Adequate mechanisms for motivating teachers are a receive monetary bonuses for good individual way for school systems to signal their seriousness in performance. Linking either longerͲterm compensation achieving education goals, make the teaching career orshorterͲtermbonusestoteacherperformancecanbe attractive to competent individuals, and reward good one way to improve teacher performance, if the system performancewhileensuringaccountability. has in place an adequate system of performance evaluation. SABERͲTeachers considers three policy levers school systems can use to reach this goal: (1) linking career Figure9.Requirementstoremainintheprofession,primary opportunities to teachers’ performance; (2) having andsecondaryschoolteachers mechanisms to hold teachers accountable; (3) linking Coted’Ivoire teachercompensationtoperformance. Singapore Shanghai Japan Benin (1) Official policies link teacher promotion opportunities in Benin to teacher performance evaluations, and openͲended appointments are informedbyperformancehistory.Thereisamandatory Primaryschoolteachers:      probation period of at least two years before they are Professional granted openͲended appointments, and official policy development  9  9  stipulates that performance on the job factors into whetherteachersreceivethistypeofappointment. Performanceevaluations 9  9 9  (2) There are few mechanisms in place to hold Secondaryschoolteachers:      teachers in Benin accountable. Requiring teachers to Professional meet some standards to remain in the teaching development  9  9  profession can facilitate the removal of ineffective teachers. One minimum standard is consistent teacher Performanceevaluations 9   9 9 attendance.Researchinbothdevelopedanddeveloping Source:SABERͲTeachersdata. countries indicates that teacher absenteeism can reach high levels, worsening student outcomes (Chaudhury et al. 2005; Herrmann & Rockoff 2009; Miller, Murnane & Willett 2008; Rogers & Vegas 2009). Education systems can encourage teacher attendance by taking it into account in teacher evaluations, providing teachers with incentives to be present in school, and dismissing teachers if they are consistently absent. In Benin, policy specifies that teachers can be dismissed for misconduct (not specified), which does not necessarily include absenteeism, child abuse, or incompetence. At present, primary and secondary education teachers are not required to participate in professional development activities, but teachers are required to participate in annualexternalperformancereviews.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 11 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   SABERTeachersPolicyOptions Goal3.PreparingTeacherswithUseful TrainingandExperience   Goal1.SettingClearExpectationsfor Teachers  Primary and secondary teacher initial education takes placeattheISCED4Alevel,whichisbelowthatofmany The national curriculum sets expectations for what educationsystems. students are supposed to learn and teachers are supposed to do. There is no official guidance on ¾ PreͲservice teacher training could be strengthened teachers’ use of time, which could help ensure that by introducing a formal mentoring or induction teachers are focused on tasks related to school program. improvement. ¾ Strengthen opportunities for new teachers to ¾ Revise the statutory definition of teacher’s develop practical classroom experience. The more working time to include the overall number of teachers try outtheirpedagogicaltheories,subject hoursteachersspendattheschool.Inaccordance matter knowledge, and classroom management with the practice in higherͲperforming systems, skills on a group of students, the better prepared this definition should include both time in the theywillbefortheirjob. classroom as well as time spent on nonteaching activities, such as tasks related to improving Goal4.MatchingTeachers’Skillswith instruction. Such activities might include: Students’Needs  providingsupporttootherteachers, collaborating on school plans, or designing the curriculum, all There are untapped incentives to get teachers to work tasks that could contribute to instructional in hardͲtoͲstaff areas where living conditions are less improvementoftheschool. attractiveandtoteachcriticalshortagesubjects. ¾ Set expectations for what percentage of teachers’ ¾ Provide more incentives to teachers to teach and workingtimeshouldbededicatedtoteachingand work in hardͲtoͲstaff schools. Incentives could what percentage should be used for other include: promotion, higher salary, scholarships for necessary activities that may contribute to education,orhousing. instructionalimprovement. ¾ Identify subject areas in which there may be a shortage of qualified teachers who are willing to Goal2.AttractingtheBestintoTeaching  teacher particular subjects, and provide incentives Career opportunities could be strengthened to attract to teachers willing and qualified to teach those talentedindividualstotheprofession. subjects. ¾ Strengtheninitialeducationstandardsforprimary Goal5.LeadingTeacherswithStrong and secondary education teachers. Establishing Principals  more substantial degree programs to qualify for entering the profession is one way to signal There is a program to support the development of teachingasamorevaluedprofession. principals’ leadership skills through supervised internships, but there are still opportunities to ¾ Improve data collected on teachers’ working strengthensupporttoprincipals. conditions. Understanding teachers’ working environments is imperative to understanding ¾ Strengthen requirements for becoming a principal. teacher’s classroom needs and improving the Such qualifications may include having minimum qualityofteaching.   educational qualifications equivalent to a bachelor’s degree and/ or designing specific courseworkforindividualsinterestedinworkingas aschoolprincipal.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 12 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   ¾ Consider monetary bonuses or increased pay, ¾ Require primary and secondary school teachers to which are other ways to attract qualified participate in professional development as a individualstoprincipalpositions.    requisitetoremainintheprofession.   Goal6.MonitoringTeachingandLearning    There are systems in place to monitor teacher performance that rely on multiple criteria. Student achievement data are collected, but are not used to informpolicyorteachers’classroominstruction. ¾ Make use of student achievement data collected from annual exams. Use outcomes of these data to determineeducationalneeds. ¾ Provide results of student achievement data to school principals, so they may know how their school performs relative to other schools. If data can be made available to teachers, use the data to inform teachers about student performance and to helpteachersimprovetheirowninstruction.  Goal7.SupportingTeacherstoImprove Instruction   InBenin,neitherprimarynorsecondaryschoolteachers are required to participate in teacher professional developmentactivities. ¾ Set a required number of days for teachers to participate in professional development activities throughouttheschoolyear. ¾ Offer professional development activities in which teachers can learn from one another and improve their classroom instruction. Research suggests that the most effective teacher professional development is collaborative and provides opportunities for the inͲschool analysis of instructional practice, as opposed to being limited tooneͲtimeworkshopsorconferences. ¾ Eliminate any costs teachers may have to pay for participatinginprofessionaldevelopmentactivities. Goal8.MotivatingTeacherstoPerform  Promotionopportunitiesarelinkedtoperformance,but there are not many mechanisms to hold teachers accountable.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 13 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012   Acknowledgements Hanushek, E. & Woessmann (2009). “Schooling, Cognitive Skills, and the Latin American Growth ThisreportwaspreparedbyMaryBreeding(Consultant, Puzzle.” NBER Working Paper 15066. Cambridge, HDNED), with inputs from Andrew Trembley MA: National Bureau of Economic Research (Consultant, HDNED), and under the direction of Halsey (NBER). Rogers (Lead Economist, HDNED). We are especially grateful for the assistance of Linda English (Lead Herrmann, M. A., & Rockoff, J. E. (2009). Work Education Specialist, AFTHD), Hyacinthe Gbaye Disruption, Worker Health, and Productivity: (Education Economist, AFTEW) and Cyriaque Edon Evidence from Teaching. New York, NY: Columbia (Consultant). BusinessSchool. Ingersoll, R. (2007). A comparative study of teacher References preparation and qualifications in six nations. Barber, M., & Mourshed, M. (2007). How the World's ConsortiumforPolicyResearchonEducation. 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Rogers, F. H., & Vegas, E. (2009). "No More Cutting Class? Reducing Teacher Absence and Providing Incentives for Performance." Policy Research Working Paper 4847. Washington, D.C.: The World Bank. Sanders, W. L., & Rivers, J. C. (1996)."Cumulative and Residual Effects of Teachers on Future Student Academic Achievement." Research Progress Report. Knoxville, TN: University of Tennessee ValueͲAddedResearchandAssessmentCenter. Vegas, E., et al. (2012) What matters most in teacher policies? A framework for building a more effective teaching profession. Washington, D.C.: The World Bank.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 15 BENIN|TEACHERS  SABERCOUNTRYREPORT|2012    www.worldbank.org/education/saber  The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions,withtheaimofhelpingcountriessystematicallystrengthen their education systems.  SABER evaluates the quality of education policies against evidenceͲbased 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 childrenandyouthlearn.  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 partofTheWorldBankconcerningthelegalstatusofanyterritoryortheendorsementoracceptanceofsuchboundaries.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 16