This is the ninth in our series of job market posts this year.
Teachers’ attendance can be improved if they are monitored by head-teachers using mobile technology, but only if the associated reports trigger bonus payments.
Can high-stakes decentralized monitoring improve civil servant performance, or will it lead to collusion between the monitor and civil servant? And what happens to the quality of information when we raise the stakes of reports?
“Although the quantity of schooling has expanded rapidly, quality is often abysmal.” (Kremer et al.)
“Between 1999 and 2009, an extra 52 million children enrolled in primary school…Yet the quality of education in many schools is unacceptably poor.” (Krishnaratne et al.)
“Progress over the last decade in regards to school access and enrollment has been promising.” But “current learning levels for primary as well as secondary school students are extremely low in much of Sub-Saharan Africa” (Conn)
“The most consistent focus of investment has been on increasing primary and secondary school enrollment rates… More recently, however, attention has begun to swing toward the quality of schools and the achievement of students—and here the evidence on outcomes is decidedly more mixed.” (Glewwe et al.)
“Over the past decade, low- and middle-income countries have made considerable progress in increasing the number of children and youth who enroll in school and stay long enough to learn basic skills… Learning in many low- and middle-income countries remains appallingly low.” (Murnane & Ganimian)
Again and again, we hear the refrain: access is improving, but learning lags. Thankfully, an increasing number of studies reveal interventions that work – and those that don’t – to improve learning around the world.
Recognizing its relevance in the global marketplace, the small South American country of Uruguay has placed increasing emphasis on improving the abilities of its schoolchildren to speak English. In trying to achieve this objective, however, it has faced a very acute resource constraint: There just aren't enough qualified teachers of English working in Uruguayan schools.
What to do?
How do you strike a balance between the immediate needs of students *right now* and an education system's requirements to train teachers to help meet such needs over the long term?
The traditional approach to dealing with such a challenge in many places has been to focus primarily on pre-service training, gradually introducing new teachers into classrooms over many years who have prepared to teach the subject through dedicated courses of study at teacher training colleges, together with occasional in-service professional development activities for existing teachers (normally during holiday breaks). In Uruguay, it was recognized that the gap between the abilities and capacities of many teachers to teach English, and student needs to learn English (which became compulsory in 2008) was so huge in many parts of the country that they needed to do things differently than they had done in the past. Instead of having teachers learn English separately, might it be possible to have them learn alongside their students, in their own classrooms?
As it happens, almost a decade ago Uruguay began its ambitious and innovative Plan Ceibal, which (among other things, and as profiled in a number of previousposts on the EduTechblog) made this small South American nation the first country to connect all of its schools to the Internet and provide all primary school children with a free laptop.
Given the technical infrastructure and know-how that was developed under Plan Ceibal, Uruguayan policymakers asked themselves:
Now that all of the schools are connected to the Internet,
and all students have their own laptops,
might it be possible to offer high quality
English language instruction live over the Internet,
connecting to teachers many miles away from the schools?
The answer to this question, it would appear, is 'yes'. Working out of its remote teaching center in Buenos Aires, its global digital learning hub in the neighboring country of Argentina, the British Council is beaming out English lessons to children in hundreds of individual classrooms across Uruguay, complementing and supporting the work of local teachers in these same classrooms. This is not a 1-to-many broadcast of the sort commonly done in many countries through the use of broadcast television, but rather connects individual classrooms in Uruguay with individual teachers sitting in other places. Some of these English teachers are based in the Uruguayan capital of Montevideo, many others next door in Argentina, and still others much further afield -- including halfway around the world in the Philippines and the UK! Along the way, the capacity of local teachers, who continue to lead English classes on their own other days of the week, is developed, through their interactions with and observations of the remote teachers.
Did you have a favorite teacher at school? What made that teacher so special? Teachers are the single most important resource we have to ensure that children learn. But the reality is that many kids across the world don’t get a good quality education.
I often find that a sure way to generate rather heated discussions in many quarters is to bring up the topic of teacher salaries. They're too low! or: They're too high! They should be linked to [insert some sort of 'performance indicator']! or: Attempts to link them to [insert name of a performance indicator] are misguided (and perhaps even dangerous)!
I'll leave it to others more informed and expert than I am to weigh in on such (often quite contentious) debates. However one might approach such discussions, and whatever conclusions one might draw from them, there isn't a lot of debate about one issue related to teacher salaries that has been well documented, and widely (and rightly) deplored.
Many teachers around the world suffer as a result of poorly-functioning systems to pay the salaries [pdf] they are due [ppt]. This is especially problematic, and notable, given that teacher salaries have for many decades constituted huge percentages of the overall education budgets in manycountries. As a World Bank publication from a few years ago (Teachers for Rural Schools : Experiences in Lesotho, Malawi, Mozambique, Tanzania, and Uganda) laments, "Teachers in remote schools are [compared with their colleagues in more urban areas] more likely to be the direct victims of administrative failures, which undermine teacher morale and damage the system. One frequently mentioned administrative failure is the delay in paying teachers’ salaries and allowances." An 'administrative failure' of this sort can have many causes. Even where sufficient budget exists to pay teachers, flawed teacher salary systems, poor internal controls, logistical challenges related to transport, and corruption can conspire to ensure that in many places, especially in rural areas in poor countries, teacher salaries are sometimes paid only infrequently, often with great delay. The results of this can be devastating for education systems -- to say nothing of the impact on individual teachers, schools, students and local communities.
Back when I worked with the World Bank's infoDev program, one of my responsibilities was to serve as a point person on 'mobile money' issues, briefing groups on emerging lessons and experiences from nascent activities to use mobile phones to transfer money from one person to another. I left infoDev in 2008, just as activities in this regard were really starting to heat up (Kenya's M-Pesa program, the best known 'mobile money success story', launched in 2007), but continued to meet semi-regularly with folks -- colleagues from the World Bank and other international donor agencies, government officials, NGOs and foundations, businesspeople, researchers -- who were interesting in exploring how new mobile payment options might be used in inventive ways to help address some longstanding developmental challenges. (Those totally new to the topic may benefit from watching this short video from CGAP, which demonstrates how mobile money activities look in practice.) Most of these conversations, as it happens, included considerations of how money transfers via mobile phones might be used to ensure that teachers got paid, in full and on time. As I prepare for a trip next week to the Mobile World Congress in Barcelona, I realize haven't fielded one substantive information request related to this topic in the past three years.
Up until about 2010, I met quite often with groups who were looking for creative ways to help address the 'paying salaries to teachers in rural areas challenge' and who had seized on the idea of taking advantage of the increasing ubiquity of mobile phones in such areas to help fashion some sort of 'solution'. In the last three years, however, the volume around these sorts of discussions in many quarters has almost died out. Part of this might be explained by the fact that there are now many 'experts' on mobile money issues, people much more expert and well informed than I am about related issues, and so I simply might be 'out of the loop'. (Back in the 'early days' of work on this topic, I could never shake the nagging feeling that the reason that I was approached by so many groups for related information and advice was at least partially a result of the 'in the valley of the blind, the one-eyed man is king' phenomenon.) That said, given that a regular part of my daily work at the World Bank is to field questions related to the use of new technologies in education in all sorts of ways around the world, and that a lot of my job isn't so much about in providing answers, but about helping people formulate better questions, the fact that this question seems no longer to be a topic of much discussion makes me wonder:
Whatever happened to the idea of paying teacher salaries with mobile phones?
According to figures from the UNESCO Institute for Statistics, "Countries will need an extra 1.6 million teachers to achieve universal primary education by 2015 and 3.3 million by 2030". The 2013/4 Global Monitoring Report provides a useful discussion of the consequences of this deficit, as well as some strategies for overcoming it. There are, unfortunately, no 'quick fix' solutions here. We didn't get ourselves into this mess overnight, and we won't get out of it overnight either. While longer term efforts tackle this challenge in multiple ways over time, recruiting new teachers and upgrading the skills of others, it is probably also useful to ask:
How do you teach children in places where there are no teachers?
Many proposed answers to this include some consideration of the use of information and communication technologies. Some groups have offered that it may be most efficacious to simply introduce technologies that help enable students to teach themselves, bypassing teachers altogether. That is certainly one approach, but one with, to date, a rather checkered history of success in many instances (although not all), and one that is consistent with a worry that teacher union officials have expressed to me many times over the years: that many of their members fear that they are being, or will be, replaced by new technologies. Rhetoric from certain politicians (I'll refrain from adding a link or three here, but a few minutes with your favorite search engine should help you locate a number of them yourself) and projections from some ministry of finance officials (informed, one suspects, in some cases by data from the marketing departments of certain technology firms) do little to alleviate such concerns. In some cases, the introduction of new technologies undeniably *does* replace certain specific functions or roles that teachers currently perform, or have performed in the past (especially related to what are essentially clerical or administrative functions -- this replacement is presumably not always such a bad thing). In my experience, introducing new technologies in schools actually makes the role and function of teachers more central and critical, but that is perhaps a topic for another blog post.
Faced with severe, in some cases quite extreme, deficits of qualified teachers, especially in remote communities and in subjects like mathematics, science and foreign languages, many countries are in engaged in long term efforts to recruit and train more teachers and upgrade the skills and content masteries of 'low-skilled' teachers already in their system. They are exploring how ICTs can be leveraged to help in these efforts. Where there are pressing needs *now* for teachers that can not be met through conventional approaches or according to the traditional timelines dictated by the capacity and effectiveness of their teacher training institutes, there are looking to see how technologies can help reach students today in schools without qualified teachers -- or in some cases, without any teachers at all.
For the past seven years, the Korean Education & Research Information Service (KERIS) has hosted an annual global symposium on ICT use in education, bringing senior policymakers and practitioners from around the world to Seoul to share emerging lessons from attempts to introduce and utilize information and communications technologies to help meet a wide variety of goals in the education sector. Each year this event, which is one important component of a strong multi-year partnership between the World Bank education sector and the Korean Ministry of Education, focuses on one particular theme. This year's symposium examined the 'changing role of teachers' and featured presentations from, and discussions with, policymakers from 22 countries. This was also the dominant theme of the first global symposium back in 2007 -- but, oh my, how the nature and content of the discussions have changed!
At that first symposium, much of the talk from policymakers in middle and low income countries was still of promise and potential, of the need to begin preparing for what was inevitably going to come. Where there were specific lessons and models and research to share, these were largely those from places like the United States, the UK, Australia -- and of course from Korea itself! For most of the policymakers from middle and low income countries participating in the event, helping to prepare and support teachers as they sought to use ICTs in various ways in support of their teaching, and to support student learning, was something being explored in various 'pilot' activities, and a topic perhaps given some (at least rhetorical) attention in national education policy documents. It wasn't yet a real area of large and sustained activity and expenditure -- largely because there just weren't that many computers in most schools, and what computers that were present were mostly to be found in computer labs, presided over by 'computer teachers' of various sorts. As this year's event made clear, the introduction of PCs, laptops, tablets, and interactive whiteboards is something that is now happening *right now* in very large numbers in countries of all sorts, and ministries of education are ramping up and reforming their teacher training efforts as a result.
A few quick highlights from this year's symposium:
Much of the discussion related to how new technologies can be used in classrooms in low and middle income countries focuses on the use of PCs, desktops and tablets. Less discussed, I often find, is the strategic potential of various so-called peripheral devices, which are (in my experience) typically only considered within the context of how they can be used to enhance or extend the functionality of the 'main' computing devices available in schools.
Many education systems (for better or for worse) have specific 'hardware' budgets, and, when they are looking to tap these budgets to introduce more hardware into schools, in my experience they often look to buy more of what they already have, supplemented in places by things like interactive whiteboards, or networked printers, as a complement to what is already available in a school.
When talking with educational planners contemplating how to use funds specifically dedicated to purchase computer hardware, I often counsel them to think much more broadly about what they may wish to buy with these monies, within a larger context of discussing things like how such equipment can be utilized to meet larger educational objectives, what sorts of training and maintenance support may be needed, and how the use of this technology can complement other, non-technology-enabled activities in a classroom. As part of such discussions, I often find myself attempting in various ways to challenge policymakers and planners to think beyond their current models for technology use.
One general type of gadget that I only rarely hear discussed is so-called 'probeware', which refers to set of devices which are typically used in science classes to measure various things -- temperature, for example, or the pH level of soil, or the salinity of water. Despite the increasing emphasis in STEM subjects in many countries, and what is often a rhetorical linkage between the use of computers in schools and STEM topics, I rarely find that World Bank client countries are considering the widespread use of probeware in a strategic way as part of their discussions around ICT use in schools. That said, one suspects that such an interest is coming, especially once the big vendors direct more of their attentions to raising awareness among policymakers in such places (much like the interactive whiteboard vendors began to do a half-decade or so ago).
While probeware is a new type of peripheral for many education policymakers, there is another peripheral that policymakers are already quite familiar with, and which is already used in ad hoc ways in many schools, but which rarely seems to be considered at a system level for use in strategic ways. Once you have a critical mass of computers is in place, and in place of buying one additional PC, might it be worth considering (for example) utilizing video cameras instead? Video can be put to lots of productive uses (and some perhaps not-so-productive uses). Considering three concrete examples from around the world may shed some light on how video can be used to improve teaching -- and support teachers.