January-March 2004 January-March Editorial Volume 16, Number 1 The Next Steps Striving for Quality: 15and backgroundthematicsyntheses 4 papers, H ADEA Working Groups, development agencies, agencies, development Groups, Working ADEA ADEA community: African ministries of education, 3 reviews of development agency experiences, experiences, agency development of reviews 3 improving educational quality. entire year, involveda the over for that, 2002 in do do their jobs better. quality, and that these lessons could help them to of Challenge “The entitled paper discussion a learning about effective policies and practices for was highlywas positive. consideredTheyles that the understanding of the essential issues that determine in Education of Quality the Improving Learning: studies, case country 22 impressive: were results regional NGOs andnetworks, educationists. The Sub-Saharan Africa”. This bumper crop of research sons learned from the exercise gave them a better fuelled the discussions of the 2003 Biennale, which proved to a be rewarding forum for dialogue and The participants’ assessment of the Biennale the of assessment participants’ The La pensée, artwork byMalcolmdeChazal(Mauritius) La pensée,artwork question, ADEA initiated an exercise exercise an initiated ADEA question, this Toanswer EFA? toward work we as ow can educationalcanow qualityimproved be - The ADEA Steering Committee meeting held in held meeting Committee Steering ADEA The Working onthesevenpillarsof qualitative improvement Geneva in April 2004 was devoted to this crucial impact and lead to changes in the learning process improvement; and thus facilitatingimprovement;thus and of transfer the in the education system and development partners; ing a culture of quality among the main stakeholders at the school and classroom levels? can be done to ensure that these lessons have a real quality study, on which shouldefforts be focused: question. levels toward country contexts. lessons learned at the international and/or regional ologies and operational tools to leverage qualityleverage to tools operational and ologies the seven fundamental pillars identified by the the by identified pillars fundamental seven the providing them with policies,method with providingstrategies, them fields: ibility; nurturing community support; ensuring a instructional practices; managing the challenge as a foundation for extending and deepening deepening and extending for foundation a as improving opportunities; learning creating z of equity; increasing school autonomy and flex while integrating this process into the following HIV/AIDS pandemic and to conflict situations. realistic financialframework; responding tothe z z z z the process of reflection, research and action, and research reflection, of process the The emphasis has therefore been placed on on placed been therefore has emphasis The

Now that Biennale the is over, however, what For ADEA, the major challenges are: establish

monitoring and evaluation ofquality; languages; national of use and curricula of adaptation and parents; of provision, diversification and participation and by communities decentralization classroom levels; and school the at reforms implementing teachers’ professional development; ADEA proposes to build on these pillars pillars these on build to proposes ADEA - - - on Quality Biennale The ADEA Focus Education in Distance Making Headway African Press From the Studies on Quality Documents Enrolment profile Technical Briefs Cameroon Education System Close Up on an Africa in sub-Saharan Education The Quality of Taking Stock From the African Press Contents End of Editorial

Focus z equity, equality and financing is- field activities, and to get development ADEA Biennale, Grand Baie, sues. agencies involved in supporting them in this process. Mauritius, December 3-6, 2003 For each of these fields, various strategies for action are planned: New partnerships for quality { From the African Press z the continuation of research and Making Headway experimentation oriented toward The implementation of follow-up activi- in Distance Education ...... 3 learning-by-doing, investigation of ties for improving quality also requires promising practices, the develop- commitment from all partners of the { Focus ment of innovation in the field and education system. the production of knowledge that is Development agencies will be called Striving for Quality: Next Steps...... 1 relevant in the African context; upon to make quality improvement one The Quest for Quality: z stepping up action in the field of the priorities of their aid strategies. Towards a Learning Community ...... 5 through support to information- ADEA Working Groups are also en- sharing and capacity building ac- Biennial Meeting Honored by the couraged to make an active contribution tivities though the organization of presence of Heads of State to the follow up of the quality improve- of Mauritius and Mali ...... 9 meetings between countries facing ment issues that fall within their purview. Assessing the Quality of Education similar challenges; It would also be helpful if the culture and in Africa ...... 10 z widespread dissemination of knowl- the pillars of quality improvement were edge through publications and other included in various aspects of their work Dakar Framework for Action...... 11 media: publishing information on programs: analytical work, capacity Teacher Professional Development: ... 15 promising experiences, keeping building, advocacy and networking. Making Education More Relevant...... 17 others abreast of fields of knowledge As for regional networks and that are crucial to quality improve- institutes, most of them have already { Documents ment, and sharing the discussions indicated their willingness to work in and conclusions of the Biennale partnership with ADEA on matters Studies and Documents on Quality .... 13 with a broader public; where their web of relationships and z meetings to encourage reform- their specializations allow them to have { Briefs oriented policy dialogue and to build an impact in African countries. In accor- a consensus among education stake- dance with its mission, ADEA will aim WG Briefs...... 20 holders with a view to joint action. at strengthening regional and national { Close up on an institutions that are mandated to build national capacity, as part of the unend- Education System Moving toward action ing process of improving educational in the field Close-up on the Cameroon quality. Education System ...... 21 ADEA therefore contacted all the minis- ters of education in sub-Saharan Africa A long-term investment { Technical Briefs to invite them to show interest in one or more of these pillars, in accordance with Research on the quality issue has thus Enrolment Profile ...... 25 their national priorities and their ongoing opened up a broad field offering new programs. The plan is to form networks dynamics for the actions undertaken { Calendar of countries that share the same interests by ADEA. Quality becomes a long-term so that they can move forward together investment and a framework for system- Meetings and Activities...... 26 and broaden their experience on the atizing the activities of the association. basis of the lessons learned from the Finding ways of maximizing the impact quality exercise, while continuing to of these activities at country level will exchange ideas concerning the problems undoubtedly constitute a maturation and encountered and the solutions tested. In improvement of ADEA’s mission to serve support of this concerted approach, educational development in Africa. ADEA undertakes to mobilize regional and international expertise to assist MAMADOU NDOYE African countries in their research and EXECUTIVE SECRETARY, ADEA»

The ADEA Biennial Meeting was held December 3-6, 2003 at the International Conference Center in Grand Baie, Mauritius. The theme of the meeting was “The Quest for Quality: Learning from the African Experience”.

2 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 3 From the African Press Contents End of Editorial

All-Africa Ministers’ Conference on Open Learning and Distance Education, Cape Town, South Africa, February 1–4, 2004

The participants agreed with Hafiz Wali from the Education Tax Fund in Making Headway Nigeria, who said there was simply “no alternative” but to adopt DE/OL as the preferred educational solution to the in Distance growing demand for education. How else, asked Wali, would Nigeria deal with the demand for education ? Education Nearly 1 million candidates qualified for university admission this year, but 1 only about 100 000 places are avail- Journalist By Cornia Pretorius , able. There are 4 million primary school leavers who need access to secondary Have distance education and open learning made way in Africa? Over twenty education and Nigeria needs to train Ministers of Education met in Capetown to discuss issues related to implementa- about 40 000 teachers. tion, quality, regional collaboration and regulation. Sir John Daniel, UNESCO Assistant Director General for Education, strik- istance education and open the promise and the pitfalls of DE/OL. ingly summarized this as he talked of the learning (DE/OL) is a package According to Asmal’s definition distance “eternal triangle of education” that con- D that is easy to sell in the market- education and open learning means sists of the three vectors: access, quality place of educational ideas, strategies and removing the barriers to learn through and cost. “The problem you face,” he policies. Who would not want to buy a the mechanism of distance education told the ministers of education, “is that tried, tested and affordable product that that makes it possible even if teacher with conventional methods the eternal is about giving hope, creating opportu- and student are separated by time and triangle constrains what you can do. If nities and allowing dreams for millions space. you increase access by increasing class of people who desperately hunger for size people will accuse you of lowering education? quality. If you try to raise quality by put- Promises and assets ting more resources in the classroom you Borders and buildings cannot fence will raise cost. If you try to cut cost you in the reach of distance education and Participants appeared united in ac- will often reduce access and quality at open learning - even less so since en- cepting the untapped transformational the same time.” abling information and communication possibilities of distance education and technologies are conquering Africa’s open learning to take education—the But, said Daniel, distance education valleys and planes. lifeblood of development—to Africa’s is revolutionary because you can change people in hot pursuit of the goals of the shape of the triangle and increase ac- However, despite its vast potential, Education for All. cess, improve quality and cut costs at the the package of distance education and same time. He had several examples to open learning does not come without The advantages are numerous. prove his claim. many user instructions in the fine print... “The promise of distance education can, DE/OL could democratize educa- “The Indira Gandhi National Open however, all too easily be negated by tion by expanding access, in particular University (IGNOU) now has one bad practice,” warned Professor Kader to those who have been marginalized by million students enrolled. It is ranked Asmal, the South African Minister of disability or gender. It could take educa- as one of the top ten Indian universities Education, as he opened the All-Africa tion to people. It is more cost-effective for the quality of its teaching and it Ministers Conference on Open Learning than conventional education once operations at a fraction of the cost of in Cape Town, South Africa in February economies of scale kick in. Distance India’s conventional universities. The UK Open University has fewer students this year. learning could even improve the quality of primary and secondary education if than IGNOU, only 200 000 of them, Twenty ministers or so converged on used for the training of teachers in partic- but it also operates at lower cost than Cape Town to debate the theme of the ular. Professor Mzobz Mboya, an educa- other British universities and now ranks conference: “Transforming Education for tion advisor to the secretariat of the New fifth out of the hundred UK universities a New Africa: Realizing the potential of Partnership for Africa’s Development for the quality of its teaching. Oxford open learning and distance education.” University is in sixth place.” (NEPAD) highlighted an initiative for In the days that followed the confer- the training of thousands of teachers in Notwithstanding recognized ence set out to find a balance between Angola, Malawi and Mozambique. potential of DE/OL, participants’ views

2 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 3 From the African Press Biennale 2003

diverged on how to make the most of universal appeal for distance education “distance education cowboys” who came open learning and distance education, among would be learners and suspicions in from elsewhere to sell their outdated drifting from those who believe that remain about the quality of qualification degrees in Africa. learning should be delivered through acquired by distance education.” The conference also made several wide-ranging application of informa- Pityana also mentioned the problem other recommendations. It asked for the tion and communication technologies of openness or the lack of it. Some development of national distance edu- (ICTs) learning to a more cautious back- institutions are not truly open as they cation policies, including guidelines; it to-basic approach that favours strong demand minimum entry requirements. asked for support for regional institu- student support, trained staff and the Some charge high fees which closes the tional entities to help build capacity and development of quality material. door to many students. research in distance education and open Africa has bought into distance learning. It asked for more partnerships Many participants were acutely education and open learning. This was between governments, the private sec- aware of these constraints. evident from a paper by Francis Mensah, tor and donor agencies. In fact, what emerged during "With peace and director of Namibia’s College of Open the conference from many democratization, there The list of recommenda- Learning. She pointed out that in 1998, ministers and institutions tions also emphasized the a total of 159 institutions in 31 African is population growth, and in line with the spirit importance of collabora- countries offered distance education rising prosperity, a thirst of the NEPAD is that Africa, tion, i.e. the sharing of in- programmes. Even though a more for knowledge, and a is taking charge of the chal- formation, experiences and recent figure was not forthcoming, six lenges. need to bridge the skills research, working together years later the number of institutions gap, all in the context of on the development of qual- had undoubtedly increased as several One of these initiatives rising expectations... This ity materials and human speaker spoke about new initiatives. was the establishment of resources and developing the African Council for is a golden opportunity Arnaldo Nhavoto, from the Open joint programs in areas such Distance Education (ACDE) for open and distance and Distance Learning Centre in as teacher training. earlier this year in Kenya. learning." Mozambique, told delegates how in The ACDE wants to open up Lastly the participants recent times the government set up a learning opportunities to more people agreed to periodic reviews of distance Distance Education Task Force to create and is asking African governments to put education and open learning under the conditions to put a distance educa- more resources into the infrastructure the auspices of the Association for the tion system into action in Mozambique. for distance education. Development of Education in Africa and A National Distance Education Institute, MINEDAF and called for the alignment among other things, will be established Announcing the council to the con- of existing bodies to help Africa to turn to promote and encourage the use of ference, Pityana, and chairperson of the the recommendations into reality. open and distance learning methods ACDE, said: “We have noted the context throughout the education system. in which open and distance learning has Jenny Glennie, the director of the taken root in Africa. We observe that South African Institute for Distance But distance education and open with peace and democratization, there Education (SAIDE) said much had been learning it is not a quick, cheap fix to is population growth, rising prosperity, achieved during the four days. She said all Africa‘s educational hardships. Like a thirst for knowledge, a need to bridge that a range of exciting experiences education in general it needs leadership, the skills gap, all in the context of rising emerged, that the message of the impor- policies and proper ongoing investment expectations and diminishing resources. tance of quality was well received and in materials and people to bolster ef- Conventional higher education will that there was a commitment to greater fectiveness. never be able to meet the demands...This collaboration. The issue on the use of is a golden opportunity for open and technology, however, did not yield a Pitfalls and weaknesses distance learning.” satisfactory outcome in terms of what is realistic and doable in Africa. In a further drive to meet the ideal A once off investment, poor materials, of a quality distance learning system Clearly great strides were made poor support for students, poorly quali- spanning Africa, South African minister during the conference. The require- fied lecturers, high dropouts or question- of education released a draft code of ments needed so that open learning and able exit qualification have undermined conduct for cross-border/transactional distance education can truly transform the status of degrees obtained through delivery of higher education programs. Africa were pinpointed. Now it is up to distance education and open learning. In essence, the code aims to ensure Africa to put them into place. » Professor Barney Pityana, the ethical practices in the growing “trade” vice-chancellor of the University of of education for example, if a South South Africa (Unisa), the world’s oldest African institution, offers programs in distance learning university, captured Rwanda that should be of the same qual- this sentiment “Distance education is ity as its local ones. Asmal’s initiative was 1. Cornia Pretorius is a correspondent who causing ripples across the continent. seconded by Elizabeth Ohene, Ghana’s covers education matters mainly for ThisDay, And yet in many countries... there is no Minister of Education, who spoke of the a South African daily newspaper.

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ability to contribute to national develop- ment. At the same time, Louis Steven The Quest for Obeegadoo, Minister of Education of Mauritius, emphasized that the quest for quality never ends. Even in Mauritius, Quality: Towards which has made remarkable progress in education development, quality issues remain at the top of the basic education a Learning agenda. In fact, there is no doubt that quality improvement is central to the sub-Saharan Africa education for all Community agenda: without it the goal of universal completion of primary education will By Adriaan M. Verspoor1, Consultant, not be reached. Countries cannot ex- pect to accelerate social and economic Ad hoc Working Group on the Quality of Education development and progress towards peace and democracy as long as two In most African countries, less than a third of young Africans acquire the thirds of the young Africans do not ac- knowledge and skills that they are expected to master in primary school. ADEA’s quire the knowledge and the skills that last Biennial Meeting explored a vital issue: How can sub-Saharan African are specified in their national primary school curricula. countries improve the quality of education so that it is translated into effective knowl- edge?

he children who addressed the Tmore than 400 participants at ADEA’s Biennial Meeting in Grand Baie, Mauritius made it clear to all: they consider a good quality education the key to their aspira- tions for personal development and their Photo: Mohr Jean/UNESCO

Focusing on Learning Acquisition

“Whether or not expanded educational opportunities will translate into meaningful development—for an individual or for soci- ety—depends ultimately on whether people actually learn as a result of those opportunities, i.e., whether they incorporate useful knowledge, reasoning ability, skills, and values. The focus of basic education must, therefore, be on actual learning acquisition and outcome, rather than exclusively upon enrolment, continued participation in organized programmes and completion of certification requirements. Active and participatory approaches are particularly valuable in assuring learning acquisition and allowing learners to reach their fullest potential. It is, therefore, necessary to define acceptable levels of learning acquisition for educational programmes and to improve and apply systems of assessing learning achievement.”

Article 4, World Declaration on Education for Al, Jomtien, Thailand, March 1990

4 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 5 Biennale 2003

While admissions rates have risen education systems and communities significantly almost everywhere on the and parents. Quotes from continent, dropout rates remain high u Teachers: In many countries in the 2003 Biennale and learning achievement is often unac- the Africa region the EFA inspired ac- ceptably low. This affects in particular celeration in the growth of enrolments They said…. children disadvantaged by poverty and is resulting in teacher shortages and gender, who often do not have reason- rapidly increasing pupil-teacher ratios. able opportunities to learn, especially Moreover the HIV/AIDS epidemic The pursuit of quality when they live in rural areas. Quality has led to increases in teacher mortal- and equity are therefore concurrent chal- education is important to ity and morbidity. Almost everywhere lenges that must be addressed jointly. large numbers of teachers have been the development, not only The four days of discussions on the recruited without professional training, of Africa, but also of the challenge of improving the quality of ba- lacking the skills necessary for good entire planet. sic education in sub-Saharan Africa were quality instruction. Many countries in  structured around four major themes: the region recognize the need to ad- Michael Omolewa, Chairman of the dress simultaneously issues of quantity UNESCO General Conference u Pedagogical renewal and quality. Several are and teacher develop- Don’t just tell us implementing sometimes ment; far-reaching changes in  Teachers are at the heart of children to go to school! u Decentralization and the recruitment and train- School should respond to diversification of de- any quality improvement ing of teachers. Often this children’s needs.. It should livery systems; strategy. But to be effective involves a shift towards in their work they need the the recruitment of teach- provide the right sort of u Implementation of ba- support of head teachers, ers with better general courses and should deliver sic education reforms the broader education education, a shorter pre- and innovations; service training period, on its promises to teach systems and communities and to teach well. u Relevance: Adapting and intensified in-service  curricula and the use and parents. training and school-based Gilbert, Representative of the Association of African languages. support. Participants of Child Workers of Burkina Faso examined the Guinean The work of the task- experience with the force and the discussions at Grand Baie One of the factors ex- reform of pre-service training and the  highlighted: plaining the good results Ugandan experience with its in-service achieved in the education u the valuable and rich experience teacher development and management sector in Asia is the use with quality improvement programs system, with considerable interest. in Africa; of Asian languages. Con- u Head teachers: But clearly teachers u the diversity of these experiences, need support in their efforts to ensure cerning language choice reflecting the differences in history, that genuine learning occurs in their in African schools one culture and socio-economic condi- classrooms. The role of head teachers might say: ‘better late than tions between countries; as transformational leaders was em- never’ u the importance of carefully docu- phasized at several occasions during  menting and effectively exploiting the meeting. The demands on them are Hon. Anne Thérèse Ndong-Jata, Minister changing dramatically and are moving the lessons of this experience. of Education, Gambia beyond the traditional administrator responsibilities to include instruc- Ministries of Educa-  Emerging lessons tional and transformational school tion would stand to benefit of experience leadership responsibilities. Effective schools are unlikely to develop without if children entering pri- The discussions focused repeatedly on head teachers who are ready to lead mary school were healthy the need to improve classroom practice. instructional change processes. Only a Participants recognized that, in the end, and well nourished; if the few countries—Kenya is a notable ex- quality improvement takes place in the children were ready to ample—have acted on this new agenda classroom, through the interactions of with changes in policy for head teacher learn and had ‘developed teachers and students. Effective instruc- selection, development and support. the rhythm of schooling at tion resulting in genuine learning must be an early age. at the core of the quality improvement u System support to schools:  efforts. Teachers thus are at the heart of Effective schools, as was emphasized Hon. Ndeye Khady Diop, Minister of any quality improvement strategy. But to during the meeting do not operate in Education, Senegal, be effective in their work they need the a vacuum. They need support from the support of head teachers, the broader broader education system. National

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authorities need to ensure that schools often played a key role in strengthening have the capacity to change and that the capacity of these community-based innovation and improvement at the institutions as illustrated in Grand Baie school level is aligned with national by the experience of Save the Children policies and priorities. This implies in Mali . Quotes from the development, or more often the the 2003 Biennale revitalization, of systems that can pro- vide technical support and supervision Priorities for further to change efforts at the school level. reflection and action They said…. Important changes are occurring in the Participants in the Biennial Meeting relationship between national authori- were aware that discussions in Grand We want to transform ties and schools. Almost all countries in  Baie could only be a first step and the region are decentralizing education our schools! We want broadly recognized the need for ADEA management, but transformation, not just to continue work on participants in the quality improvement. change! We want chil- Biennial Meeting Many education systems consider Several elements of the dren to inherit the values pointed out that the failure a normal part of the extensive agenda that variation in the way of democracy and equity, education process... Sustained could only be touched countries are proceed- human rights, peace and quality improvement will need to upon in Grand Baie will ing is considerable. be based on beliefs and values that need to be explored solidarity. Constitutional ar- further.  rangements, colonial are different and that can provide Hon. Prof. Kader Asmal, Minister of Education, South Africa history and cultural the foundation for a culture of u Pro-poor education traditions combine quality. The starting point must be strategies: Equity is into a unique blend the belief that all children, given a challenge that no  Decentralization of decentralization the appropriate opportunity to country that is com- plans need to connect policies in each learn, will be able to master the mitted to the EFA goals key issues such as the country. But two can ignore, especially trends are clear. First, knowledge and the skills specified as the objective has organization of instruc- there is a movement in the basic education curriculum. moved from universal tion, the planning of pro- in several countries enrolment to universal grams, course content, towards school based completion of the basic management of non-salary resources, education cycle. The challenge is to financial management through per student capitation grants provide poor children, children living of funds and personnel as in Uganda and Tanzania or through in rural areas and especially girls with management. competitive funding of school develop- equivalent opportunities to learn. This  Jordan Naidoo, Faculty of Education, ment programs or school-based inno- may require resource allocation poli- Harvard University, United States vations as in Guinea, Senegal and until cies that are designed explicitly to favor recently in Tanzania. Second, many the poor and delivery modes that are countries—including those that have adapted to the way of life of disadvan- Curriculum reform adopted “school-based management” taged people, and take account of their requires courage, approaches—are moving to delegating priorities and constraints. creativity, perseverance more and more responsibilities related u A culture of quality: Many education to support to and supervision of schools, and funding… Above systems consider failure—the absence to offices at the district level or even all, reform implies, a of adequate progress in learning, often lower levels of the hierarchy. followed by repetition and dropout—a change in mentality and u Community involvement: Similarly, normal part of the education process. a change in the work communities and civil society are key The discussion paper argues that habits and behavior of partners in this process of school sustained quality improvement will level change and improvement. Several need to be based on beliefs and values all educators, including countries reported that in addition to that are different and that can provide teachers, authors of text- decentralizing administrative and mana- the foundation for a culture of quality. books, inspectors and gerial responsibilities, they are also mo- The starting point must be the belief school heads, politicians bilizing communities to become more that all children, given the appropriate broadly involved in the functioning of opportunity to learn, will be able to mas- and parents.  the school through the development ter the knowledge and the skills speci- Jacques Plante, University of Laval, and strengthening of parent-teacher fied in the basic education curriculum. Canada associations, school management Systems that adopt a culture of quality as committees or similar organizations. the basis for their operational practice, Non-governmental organizations have focus on learning as the central goal of

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the education system at all levels, ensure for regulation, monitoring, evaluation, toring the evolution of student learning that teachers and administrators have the quality assurance and technical support achievement over time. Much progress means and skills required to bring about increases. has been made in this regard in recent quality results, and support flexibility years as MLA, PASEC and SACMEQ are u Financing. Financing a quality educa- and diversity in delivery mechanisms helping countries to document trends tion system that provides opportunities and in instructional practice. in student learning and analyze deter- to learn of acceptable quality to all chil- minants. Building national capacity in u Implementation. Reforms and in- dren will require significant additional this area and in the area of educational novations that aim at improved teaching resources, as well as a more efficient use statistics, research and evaluation is a and learning have often floundered in of these resources. Most important is the priority that ADEA should continue to the classroom. Reforms in sub-Saharan need to ensure that adequate resources support vigorously through its working Africa are often especially complex as are available to finance non-salary items groups and its ad-hoc programs. they combine objectives of resource such as textbooks, supplementary read- mobilization, expansion of access and ing materials, teachers’ guides, sundry After the 2003 Biennial Meeting, quality improvement. Moreover as not- supplies and opportunities for in-service quality improvement will remain a ed in a paper on the challenges of imple- teacher training and support. In many priority on ADEA’s agenda. ADEA will mentation that was presented in Grand cases this will require joint efforts of consider how it can best support learn- Baie, reforms often emphasize program national governments, international ing processes in a several areas that the design over implementation strategy, donors, non-governmental and com- discussion and reflections during the and have a tendency to prescribe a single munity based organizations, and parents. biennial meeting suggest as areas of recipe solution with centralized program Yet public funding will always be the critical importance : management. The discussion paper ar- principal sources of funding and it is u HIV/AIDS gues for a rethinking of implementation critically important that these resources models and a move towards strategies are deployed in such a way that they en- u The use of African languages in that provide for flexible and incremental sure that no child will be thwarted in his basic education progress, include arrangements for sys- or her desire to attend school because of u Early childhood programs tematic learning from experience, allow the inability to pay. u Integrating alternative programs for the simultaneous development and u Mainstreaming gender. implementation of several innovations, The quest continues recognize and value local experience, and consider policy development and Improving the quality of education is Towards a learning implementation as continuous, iterative by its very nature a process of long community and mutually reinforcing processes. duration. At Grand Baie the ADEA ADEA is well placed to provide a community started on this path together. u Capacity development. Every platform for the exchange and analysis But quite clearly more work—analysis, education system in sub-Saharan Africa of experience by key participants in discussion, reflection and action—will has considerable untapped resources the unfolding processes of quality be required. The praxis approach that and capacities. Capacity building in improvement. Sustaining change and ADEA has adopted for its work has that context needs to focus first and improvement at the country level to proven to be most valuable in nurturing foremost on the improvement of existing bring about increases in student learning this process. It emphasizes learning functions and the activation of existing achievement will require strengthening resources. The decentralization that through action and learning from ac- tion, to develop and improve action. or developing technical and institutional many countries have embarked on per- capacity throughout national systems mits the sharing of responsibility among Its starting point is participant analyses of national experience—reflection in and internationally. Teachers and admin- a larger number of management units, istrators, policy makers and planners will can mobilize additional participants in action—which allows policy makers, educational professionals and other all be called upon to engage in learning the education development processes to change values, beliefs and practices. and create new approaches to the “go- stakeholders to exchange experiences and share knowledge. The approach Finding ways to facilitate, support and ing to scale” challenge. It is particularly contribute to these learning processes important to involve “meso level” in- is expected to result in a broader vision, and institutional and technical capacities in support of the quality education stitutions such as research and training to constantly improve action. This is the for all agenda, is the key challenge for centers, professional organizations, and learning process that the ADEA commu- the ADEA community –the secretariat, networks of schools and teachers in ca- nity will need to pursue to help countries working groups taskforces and member pacity strengthening programs. Equally underpin national quality improvement organizations—that emerges from the important is the support to national level programs and processes. Grand Baie Biennial Meeting. » institutions including the ministries of education who face often dramatic This will require a much more careful 1. Adriaan Verspoor is an independent education consultant who coordinated changes in their role as their immediate documentation of the lessons of experi- the preparation of the discussion paper responsibilities for implementation ence in key areas than has been the case “The Challenge of Learning: Improving the are reduced and their responsibility so far. Of particular importance is moni- Quality of Basic Education in Sub-Saharan

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The Heads of State of Mauritius and Mali Honor the Biennale with their Presence

The Grand Baie Biennial Meeting was honored by the presence of two heads of state: Mr. Anerood Jugnauth, President of the Republic of Mauritius, and Mr. Amadou Toumani Touré, President of the Republic of Mali. Here are excerpts from their speeches at the opening session.

On challenges for future generations, NEPAD and development partners…

“...Today, the biggest challenge looming large on the horizon is enabling the creation of a generation of knowl- edge workers who with their multiplicity of skills and right attitudes will be able to adopt a flexible stand in coping with new challenges and promoting large scale innovations... Africa is a rich continent inhabited by people who constitute the major resource potential that so far has unfortunately not been totally utilized… It is also the reason why I am so gratified that significant actions are emerging and carry a promise for a better future...

First of all, the development of NEPAD, an African-lead initiative that gives price of place to good governance. …We have taken the pledge to raise standards of governance on the one hand, and on the other we assume responsibility for all actions that we as a continent can take to commit ourselves to a systematic elimination of those ills besetting us...

However, it will be idealistic to believe that we can be masters of our own destiny without any support from our development partners… Obviously, only making pledges is not adequate. It is my ardent wish that development partners live up to their responsibility as effective partners in all poverty reduction enterprises..." Excerpts from the speech by Mr. Anerood Jugnauth, President of the Republic of Mauritius Grand Baie, Mauritius, December 3, 2003

On education and employment, information and communication technologies and the outlook for African youth…

“...The match-up between education and employment is a challenge that African education systems need to tackle. Our schools and universities do not turn out enough graduates. But, paradoxically, we find it very difficult to offer degree holders a job. To put an end to this waste, school systems must be brought into phase with the socio-economic changes occurring in our countries and must provide training that meets the needs of the working world …

Information and communication technologies offer powerful new knowledge tools that can help our countries take short-cuts in many fields. One of the advantages to be derived from the new information technologies is distance education, exemplified by the African Virtual University in Nairobi…

We all agree that African youth is both our greatest asset and our hope of winning the development struggle. But we must not lose sight of the fact that these tens of millions of African children and teenagers, the living strength of our countries, constitute a serious threat for our societies unless the future offers real prospects for them …” Excerpts from the speech by Mr. Amadou Toumani Touré, President of the Republic of Mali Grand Baie, Mauritius, December 3, 2003

8 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 9 Biennale 2003

evaluating the two disciplines for pupils in years 2 and 5 of the primary cycle. The MLA evaluates life skills in addition to Assessing the two disciplines already mentioned. By taking up this aspect of learning, the MLA is tackling one of the crucial goals the Quality of of education. The levels dealt with in this project include, in addition to years 4 and 5 of primary education, year 3 of the Education in Africa secondary cycle. The results of these studies give a sweeping picture of pupil performance International Institute for Educational Planning By Khadim Sylla, and of current disparities, in addition to (IIEP–UNESCO) providing indications about the expla- nation for these results and comparative Evaluating the quality of education is a complex activity. It requires a system data between countries. While it is not possible in this article to take stock of for collecting data and a rigorous scientific approach to the analysis and evalu- all these surveys, some results are sum- ation of the results. Three programs evaluate academic achievement around the marized below. continent: SACMEQ1, PASEC2 and MLA3. Reading levels are generally low in the SACMEQ countries ethods of measuring Quality (SACMEQ), the Programme for academic achievement using the analysis of education systems of the The results collected by SACMEQ on Mstandardized tests are above Conference of Education Ministers of reading show significant variations in all management tools and aids to devel- Francophone Countries (PASEC) and pupil results. Whereas the levels in oping educational policy. By taking as the Monitoring Learning Achievement Kenya and Mauritius are higher than the object of study the contextualized project (MLA). 50%, other countries are having diffi- results of the pupils, they offer a frame- culty moving above the 40% threshold. work for management at various levels: Some research results4 By introducing two performance managing learning by identifying short- criteria – a “minimum” score required comings or progress in the pupils’ work; The findings of the research conducted for passing to a higher grade and a “de- dealing with inequalities by bringing to by MLA, PASEC and SACMEQ provide sirable” score considered necessary to light differences in performance using a variety of relevant information about succeed in the higher grade – SACMEQ specific criteria (gender, location, etc.); the quality of education in Africa. The and the MLA are also attempting to managing school organization and re- subject matters to which they refer are evaluate the degree of achievement of sponsibilities, in particular by highlight- in general related to reading and math basic skills and of skills for excellence. ing “institutional effects”; (at the primary level, The results obtained by the SACMEQ1 and regulating resources, arithmetic). This choice study show that about half of the pupils in the sense of allocating Despite differences in reflects a pedagogical (48.1%) have not achieved the minimum them optimally based rationale that is based methodologies between skills level defined independently by the on an analysis of the on the organization and SACMEQ, PASEC and MLA, authorities in each country. performances achieved. the results of pace of acquisition of Ultimately, methods of academic knowledge. Another approach used in the evaluating academic these studies converge While learning to read is SACMEQ project measures perfor- achievement are useful and confirm the general considered the founda- mance levels in specific fields of learning in managing educational observation of the low level tion of comprehension, (narrative, expository, documents), each policy based on the scale of educational quality math is assumed to of which requires the use of particular and relevance of the in Africa. develop a scientific and cognitive skills. The breakdown of the information that can be critical spirit in the pupil, results obtained on this test using this brought to bear on the a faculty for discernment approach will help to develop a more degree of influence of intra- and extra- and a certain degree of rationality. This fine-tuned analysis and to draw up ap- academic factors, such as the availability is why the SACMEQ project, after hav- propriate strategies for improving qual- of textbooks, the level of teacher training ing laid the methodological basis in the ity. Along the same lines, the SACMEQ II or the socio-economic background of first phase (SACMEQ I) for evaluating study proposes a notion of tests based the parents. As such, these methods how well pupils in year six of primary on a hierarchy of aptitudes and cognitive constitute a valuable planning tool, as school have learned to read, broadens abilities and on methodologies for col- can be seen from the wealth of informa- the scope of its second phase of lecting information that make it possible tion produced by the Southern Africa investigation (SACMEQ II) to include to draw comparisons between countries Consortium for Monitoring Educational math. PASEC follows this same logic by and over time.

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A low level of language cational systems of the given countries mastery and the wastage they generate, but also the lack of a literate environment that Dakar The PASEC results for year 2 in can help maintain learning achievement French show superior performance after study is completed. in Cameroon, with a score of 65.1%, Framework and are significantly lower in Senegal, where the level is 43.5%, whereas Persistent disparities for Action Burkina Faso, the Côte d'Ivoire and Madagascar lie in a range of between The MLA results in year 4 of school show 50 and 58%. In math, for the same year that minimum levels of reading, arithme- What students are tic and life skills are in general far from  of studies, the Côte d'Ivoire and Senegal meant to learn has often have especially low scores (44.4% and being achieved, with significant varia- 45.4%, respectively), while Cameroon tions between countries and between not been clearly defined, and Madagascar confirm their overall disciplines. well-taught or accurately performance with scores of 59.5% and The issue of quality, analyzed from 66.2%. In the case of Madagascar, the the perspective of inequalities, is also assessed good performances in French and math dealt with in the MLA study. Its results seem to confirm the  tend to confirm the ob- "Improving all aspects of the qual- hypothesis that learning servation that girls tend in the native language Because of its strategic to succeed better than ity of education, and ensuring – in this case Malagasy advantage for managing boys in the lower grades, excellence of all so that recognized – acts as a real accel- and supervising educational while the opposite trend, erator in learning foreign with greater success and measurable learning outcomes languages. Along these quality, evaluating academic for boys, is true for the are achieved by all, especially in same lines, the frequent achievement should become higher grades, with use of French within a routine part of educational the exception of Niger, literacy, numeracy and essential life families in Cameroon planning and stock- where girls do better skills… could explain the results taking in Africa. However than boys in year 8 of for this country. In con- institutionalizing evaluation school. A geographic …Evidence over the past decade trast, the predominance procedures requires strong breakdown of the test of the use of native results also shows higher has shown that efforts to expand commitment from governments. languages as a means of success rates in urban enrolment must be accompanied communication within areas than in rural areas, the family, combined in all disciplines, with by attempts to enhance educational with their absence within the schools inequalities being most pronounced in quality if children are to be attracted in Senegal, is probably at the root of the Madagascar and Zambia. poor results there. to school, stay there and achieve Despite differences in method- meaningful learning outcomes….. ologies between SACMEQ, PASEC and Relatively fragile MLA, the three studies are representa- Recent assessments of learning achievements tive to a large extent because of the achievement in some countries In analyzing the dropout rate – an extent of the countries covered, the indicator of the proportion of pupils variety of indicators generated and the have shown that a sizeable percent- experiencing great difficulty – the PASEC diversity of the levels of study evaluated. age of children is acquiring only a results show the problematic situation The convergence of the results of these of Senegal (25%), the Central African studies tends to confirm the general ob- fraction of the knowledge and skills Republic (22%), Djibouti (19%) and to servation of the low level of educational they are expected to master. What a lesser extent Mali (17%). The PASEC quality in Africa. students are meant to learn has survey also deals with the capacity of systems to provide lasting education for The fundamental role often not been clearly defined, well- individuals by measuring the propor- of methodology taught or accurately assessed…" tion of adults who can read easily after 6 years of schooling. This shows the dif- The validity of the findings of the tests to Objective number 6, ficult situation of Chad, Sierra Leone and evaluate academic achievement and the Niger, where the level is about 50%. The relevance of the recommendations that Dakar Framework for action level of Senegal and the Central African flow from these depend on the quality Republic is about 70%. Compared with and rigor of the research methodology Text adopted at the World education survival rates, which fluctuate between used. Statistical inference, which le- Forum, Dakar, Senegal, April, 2000 33% and 66%, these results reflect not gitimates the generalization of results only the internal inefficiency of the edu- from a sample of pupils, for example, or

10 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 11 Documents Documents Biennale 2003 Documents

the comparison of results over time or the framework of managing and super- constitute a first step towards achieving Documents between countries, demands the use of, vising educational quality suggests that this goal. » first, sampling tools and methodologies it should become a routine part of the characterized by a high degree of scien- activity of educational planning and tific rigor, and second, relevant methods stock-taking in Africa. Nevertheless, 1. SACMEQ covers the countries of southern for comparing performance between evaluation systems benefit when as- Africa. countries. sociated with other, complementary 2. PASEC covers the French-speaking African countries. Even if this methodological require- approaches that are more qualitative, 3. The MLA targets all the countries of sub- ment occasionally runs into difficulties such as what is called “authentic” Saharan Africa. due to changes in curricula within the evaluation, which seeks to measure the 4. The results discussed in this article refer various countries (comparability over ability of pupils in real contexts, based in the main to documents produced by time) and the prioritization of educa- MLA, PASEC and SACMEQ for the ADEA on “samples of performance”, that is, Biennial Meeting held in December tional goals, which differs between activities that demand greater use of the 2003. countries, the search for appropriate pupil’s capacity for reflection. solutions is essential in order to validate the conclusions of research. But it will not be possible to institutionalize evaluation procedures Institutionalizing evaluation without strong government backing, procedures where the development of capacities is at the heart of a rigorously planned How to contact Khadim Sylla: The strategic dimension of the evalua- approach. Making use of the experience [email protected] tion of academic achievement within of MLA, PASEC and SACMEQ may well

Caucus of Ministers Meeting

The ADEA Caucus of Ministers of Education met on Decem- Hon. Mr Ona Ondo, Vice-President of the Bureau of Ministers ber 5, 2003 during the ADEA Biennial Meeting in Grand presented a report on the activities of the Bureau since the Baie, Mauritius. Forty-five ministers and ministry representa- last Biennial Meeting in Arusha. Some of the main issues dis- tives were present at the meeting. cussed by the ministers during the Bureau Meetings were: (i) the question of the financial contribution of Ministries of Edu- During the meeting, the following issues were discussed: cation to ADEA; (ii) country cooperation at the sub-regional NEPAD’s implementation strategy in the education sector; level, including sub-regional ministerial meetings; (iii) the the use of education peer reviews as a tool for sharing and Intra-African exchange program; (iv) the EFA report; (v) peer support between African countries and education specialists; reviews, (vi) the new rules governing the election of members OECD’s proposal for children with special needs. to the Bureau of Ministers. The New Caucus of Ministers At the end of the meeting, the Caucus of Ministers elected the new ADEA Bureau of Ministers. The new bureau is as follows:

Western Africa: Central Africa: Hon. Mr. Fabian N.C. OSUJI, Nigeria; Hon. Mr. Daniel ONA - ONDO, Gabon; Hon. Mr. Alpha Tejan WURIE, Sierra Leone; Hon. Mrs Rosalie KAMA – NIAMAYOUA, Congo; Hon. Mr. Mamadou Lamine TRAORÉ, Mali Eastern Africa: Southern Africa: Hon. Mr. Kilemi Valerian MWIRIA, Kenya; Hon. Mr. Simao PINDA, Angola; Hon. Mrs Jeanne d’Arc MUJAWAMARIYA, Rwanda Hon. Mr. Alcido Eduardo NGUENHA, Mozambique Indian Ocean: Hon. M. Louis Steven OBEEGADOO, Mauritius.

The Caucus also elected Hon. Daniel ONA - ONDO, of Gabon as President of the Bureau of Ministers and Hon. Louis Steven OBEEGADOO, of Mauritius as Vice President.

12 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 13 Documents Documents Biennale 2003

Studies and Documents Documents on Quality Documents

The documents listed here were prepared in the framework of the ADEA quality exercise, and for the 2003 ADEA Biennial Meeting

Papers presented at the ADEA Ensuring Quality of Distance Education for Country case studies Higher Education: The Case of the African Biennial Meeting, 2003 Virtual University (AVU) Cameroon: Pedagogical Renewal: Estab- by Magdallen N. Juma lishment of a New Teaching Approach Main discussion paper (NAP) in Primary Education in Cameroon Improving the Quality of Education in Sub- Gambia: Using the Monitoring of Learning Saharan Africa by Decentralizing and Di- The Challenge of Learning: Improving the Achievement (MLA) Study to Investigate Quality of Basic Education in Sub-Saharan versifying: Involvement and Empowerment Quality Factors in Private Schools Africa for School Citizenship Guinea: The Reform of Pre-service Primary Edited under the direction of Adriaan Verspoor by Boubacar Niane Teacher Training in Guinea (FIMG): Re- Save the Children US Village Schools in Supporting documents view-Results of Implementation Mali 1992-2003: A Future to Quality Ac- Madagascar: Les contrats programmes cess? Situation of the Learning Achievement et amélioration de la qualité de by Saul Murimba by Deborah Glassman and Mamadou Millogo l'enseignement à Madagascar : un exemple de la gestion du système éducatif (The Elements to Assess the Quality of Primary Field Training and Support for Young Volun- teer Teachers in Basic Education in Niger: improvement of the quality of Teaching in Education in French-Speaking Africa: Pro- Madagascar: an example of decentralized The Experience of the Paul Gérin-Lajoie gram for the Analysis of Educational Sys- management) This document exists in French only Foundation tems of the CONFEMEN countries (PASEC) Paul Gérin-Lajoie Foundation Mauritania An Approach to Improving Edu- by Jean-Marc Bernard, Anthony Briant and Muriel Barlet cational Quality in a Reform Context Local Solutions to Global Challenges: Monitoring Learning Achievement (MLA) Towards Effective Partnership in Basic Nigeria: Beyond Access and Equity: Im- Project in Africa Education proving the Quality of Nomadic Education by Vinayagum Chinapah by Ted Freeman and Sheila Dohoo Faure in Nigeria Senegal: Decentralizing the Management Monitoring Performance: Assessment and Implementation Matters: Exploring their Examinations in Africa of Education and Diversifying Supply: The Critical Role in Transforming Policies and “Faire-Faire” Strategy by Thomas Kellaghan and Vincent Greaney Investments into Results by Ibrahima Bah-Lalya and Richard Sack Uganda: Impact of Primary Education Analytical and Factual Elements for a Qual- Reform Program (PERP) on the Quality of ity Policy for Primary Education in Sub- Improving the Quality of Primary Educa- Basic Education in Uganda Saharan Africa in the Context of Education tion in Africa: What Has the World Bank Zambia: Primary Reading Programme For All Learned? (PRP): Improving Access and Quality Edu- by Alain Mingat by Jeanne Moulton cation in Basic Schools Interactive Radio Teaching Universal Primary Education In Multilin- Documents prepared by ADEA Working power point presentation by G. Naidoo gual Societies Supporting its Implementa- Groups tion in Sub-Saharan Africa and beyond.25 Pedagogical Renewal and Teacher Devel- years of experience in German Technical Working Group on Distance Education opment in Sub-Saharan Africa: A Thematic Cooperation and Open Learning Synthesis by Kurt Komarek by Martial Dembélé and Bé-Rammaj Miaro-II Several Lessons from the Implementation of Case Study on Distance Education for Relevance of Education : Adapting Curri- a Curriculum Reform Teacher Education in Mauritius by R. Rumajogee, F. Jeeroburkhan, P. Mohadeb and V. Mooneesamy cula and Use of African Languages by Jacques Plante by Nazam Halaoui The Impact of the AIDS Epidemic on Working on Group Early Childhood Synthesis of Studies on the Generalization Schooling in Sub-Saharan Africa Development and Sustainability of Reforms by Paul Bennell Early Childhood Development as an by Kabule W. Weva HIV/AIDS: a Threat to Educational Quality Important Strategy to Improve Learning Accelerating Paths to Quality: A Multi-fac- in Sub-Saharan Africa – Analytical frame- Outcomes eted Reality work and implications for policy develop- by Karin A. L. Hyde and Margaret N. Kabiru by Jane G. Schubert and Diane Prouty-Harris ment Working Group on Education Statistics by Eric Allemano Quality of Secondary Education in Africa The Role of Statistics in Improving the (SEIA) Quality of Basic Education in Sub-Saharan by Jacob Bregman and Karen Bryner Africa by Glory Makwati, Bernard Audinos and Thierry Lairez

12 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 13 Documents Documents Biennale 2003 Studies and Documents on Quality Documents Documents

Working Group on Finance and Lesotho: Study of the Provision of Physi- Pour un encadrement pédagogique et administratif de qualité dans les écoles Education cal Infrastructure and its Impact on Qual- ity Improvement in Primary Education in primaires africaines (towards quality peda- Lesotho gogical and administrative management in Financial Management of Education in Africa primary schools) a Decentralized Setting: Case Studies of Mali: La pédagogie convergente comme by Jean-Pierre Brunet. This document exists in French only Mali, Nigeria and Uganda facteur d’amélioration de la qualité de by Mohamed Chérif Diarra l’éducation de base au Mali :analyse du Le rôle et la formation des directeurs d’école en Afrique (The role and training of Working Group on Higher Education développement de l’innovation et perspec- tives (Improving the quality of education in school directors in Africa) by Kabule W. Weva. This document exists in French only The Role and Contribution of Higher Edu- Mali: Analysis of innovations and perspec- cation to Improving the Quality of Basic tives) Dévolution des pouvoirs à la base, Nou- Education A Case Study of the Centre for This document exists in French only velles responsabilités et développement des Research on Improving Quality of Primary Mauritius: Pre-Vocational Education: An capacités locales pour ancrer la « citoyen- Education in Ghana (CRIQPEG) Impact Evaluation neté scolaire » (Devolution of power: New by Emmanuel Adow Obeng, James Adu Opare and Joseph M. responsibilities and local capacity building Dzinyela Namibia: Practising Critical Reflection in for anchoring “school citizenship”) Teacher Education: Case Study of three Na- by Boubacar Niane. This document exists in French only Working Group on Non-formal Educa- mibian Teacher Development Programmes tion Implantation des réformes au niveau des Niger: L’enseignement bilingue au Niger écoles et des salles de classe (Implement- (Bilingual teaching in Niger) Improving the Quality of Basic Education ing reform at the level of schools and This document exists in French only in Burkina Faso classrooms) by Kabule W. Weva and Ilenda Mbemba. This document exists in Senegal: Le projet d’école et le cahier French only Working Group on the Teaching Profes- des charges : des outils de contractualisa- sion tion pour le pilotage de la qualité dans L’utilisation des langues africaines : poli- l’éducation de base. (Tools for steering tiques, législations et réalités (The use of School Self-Evaluation: The Path to a Better quality in basic education ) African languages: Policies, legislation and School : A report on the implementation of This document exists in French only reality) the process of self-evaluation into schools by Nazam Halaoui. This document exists in French only in Swaziland: Lessons learned Sudan: Sudanese Experience in the De- by Dawn Quist velopment and Evaluation of The Basic L’adaptation des curricula aux situations et Education Curriculums réalités locales en Afrique sub-saharienne Graduated Working Group/Associate Zanzibar: Teacher Professional Develop- (Adapting curriculum to realities in sub- Member FAWE ment in Zanzibar: A case Study of the saharan Africa) Teacher Centres by Nazam Halaoui. This document exists in French only Equity in Learning: The Gender Dimension by Dorothy A.S. Mbilinyi Evaluation et enseignements des expéri- Background papers ences d’utilisation des langues africaines comme langues d’enseignement (Evalu- Documents prepared within Pédagogies et écoles efficaces dans les ation and lessons learned from the use the framework of the ADEA pays développés et en développement of african languages as the language of (pedagogy and efficient schools in devel- teaching) oped and developing countries) quality exercise by Hassana Alidou, Mallam Garba Maman. This document exists in by Clermont Gauthier, Steve Bissonnette, Richard and Francis Djibo. French only National case studies This document exists in French only L’appréciation des coûts des manuels en Improving Education Management in the Benin: Les conditions d’apprentissage politique d’intégration des langues afric- Context of Decentralization in Africa aines (Examining the costs of textbooks for pour une éducation de qualité au Bénin : Jordan Naidoo and Peggy Kong l’application des normes EQF (The condi- the integration of Africa languages) tions of learning for quality education in Capacity building for the improvement of by Nazam Halaoui. This document exists in French only Benin) the quality of basic education in Africa Le financement d’une éducation de qualité by Jeanne Moulton Burkina Faso: Pertinence de l’éducation (Financing quality education) Adaptation des curricula et utilisation des Adaptation of School Curriculum to Local by Jean-Bernard Rasera. This document exists in French only langues africaines : le cas de l’éducation Context Quels indicateurs pour quelle réduction des bilingue au Burkina Faso. (Curricula adap- by Prof. Kabule W. Weva tation and use of African languages: Bilin- inégalités scolaires ? (Reducing inequalities gual education in Burkina Faso) Determinants of Primary Education Qual- in schools: What are the indicators?) This document exists in French only ity: What can we learn from PASEC for by Aletta Grisay. This document exists in French only Francophone Sub-Saharan Africa? Burundi: Utilisation de la langue nationale by Katharina Michaelowa comme langue d’enseignement. Elabora- tion et production des manuels des élèves Emerging Trends in Research on the et des fichiers du maître pour l’école Quality of Education – A synthesis of Documents primaire au Burundi. (Using the national Educational Research Reviews From language as the language of instruction. 1992-2002 in eleven countries of West may be downloaded at: Preparing and producing teacher and pu- and Central Africa pil manuals for the elementary school in by Pai Obanya www.adeanet.org Burundi) This document exists in French only

14 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 15 Documents Documents Biennale 2003 Documents

Documents teacher educators (see table 2 on page 16). It helps to identify the needs to be Pedagogical met at each stage and design learning opportunities accordingly.

Renewal: An essential element for quality improvement The critical role of teacher Successful educational reforms are those that alter the practice of teaching for the better; and teacher professional devel- professional development opment stands as the principal means to this end. Indeed, as Guskey (Guskey, By Martial Dembélé, University of Quebec at Montreal (UQAM) 2000, p. 4)2 put it, “one constant finding in the research literature is that notable Teacher professional development is a sine qua non condition for pedagogical improvements in education never take renewal and quality improvement in education. Without it one cannot expect place in the absence of professional development. At the core of each and significant improvement in teaching and learning processes. every successful educational improve- ment effort is a thoughtfully conceived, well-designed, and well supported pro- ub-Saharan African (SSA) countries This article is concerned with one of fessional development component” . are currently confronted with a the essential ingredients for successful formidable challenge: how to pedagogical renewal: Put differently, “in- S novations most likely to expand the size of their teaching force teacher professional Altering teaching practice is a be implemented and to while improving its quality. In order to development. complex undertaking insofar as achieve universal primary education be effective are those it involves not merely altering that provide specific (UPE), SSA will need to recruit 1,361,000 A continuum of new teachers between 2000 and 2015, what teachers do, but most materials, professional learning development and other representing an average annual increase importantly what they know, supports, in contrast to of 3 % versus. 2% between 1985 and Teacher professional de- believe and value. those that provide new 2000 (See Table 1 below: Increase in velopment is increasingly standards and assess- the number of public school teachers). considered “a continuum ments but then leave [teachers] to figure Assuming that education systems are of learning, with teachers located at vari- out how to accomplish these standards” able to attract enough candidates to ous places along the continuum” (Craig, (Slavin, 1999, p. 347)3. Examples of the meet this demand, the critical issue is Kraft and du Plessis, 1998, p. 1)1. Along latter abound in the policy and practice this continuum, three major phases ap- how to ensure that the supply is of the research literature. quality desired. This, in turn, raises pear consensual: preparation, induction, important issues of professional prepara- and continuing professional develop- Altering teaching practice is a tion of teachers. Furthermore, given calls ment. They vary in length depending on complex undertaking insofar as it for pedagogical renewal, the 2,491,000 context and are distinct yet interrelated. involves not merely altering what teach- practising teachers will need to be pro- In this respect, Feiman-Nemser’s (2001) ers do, but most importantly what they vided with professional development task-oriented framework forms a know, believe and value. In the logic opportunities. practical agenda for both teachers and of the continuum-of-teacher-learning framework, this impli- cates that altering teach- ing practice must begin Table 1: Increase in the number of public school teachers at the pre-service level. Numbers of Teachers (public sector) Average annual increase Indeed, there is a “well (in '000) established fact that the 1985 2000 2015 1985-2000 2000-2015 images and beliefs which pre-service students Anglophone 1,191 1,557 2,180 +1.8 % +2.3 % bring to their teacher Countries preparation influence Francophone 601 825 1,512 +2.1 % +4.1 % what they are able to Countries learn” (Feiman-Nemser, Other 57 109 160 +4.4 % +2.6 % 2001, p. 1016)4. In other words, the construction Total Africa 1,849 2,491 3,852 +2 % +3 % of practice can be said to Source: Stastical document, MINEDAF VIII (World Bank databases). begin well before formal

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Table 2: Central tasks of learning to teach Preservice Induction Continuing Professional Development

1. Examine beliefs critically in relation 1. Learn the context— 1. Extend and deepen subject matter to vision of good teaching students, curriculum, knowledge for teaching school community 2. Develop subject matter knowledge 2. Design responsive 2. Extend and refine repertoire in for teaching instructional program curriculum, instruction, and assessment 3. Develop an understanding of 3. Create a classroom 3. Strengthen skills and dispositions to learners, learning, and issues of learning community study and improve teaching diversity 4. Develop a beginning repertoire 4. Enact a beginning 4. Expand responsibilities and develop repertoire leadership skills 5. Develop the tools and dispositions 5. Develop a professional to study teaching identity

Source: Feiman-Nemser (2001, p. 1050).

teacher preparation. Consequently, with extensive practice, follow-up, and teacher professional development prospective teachers’ entering beliefs formative evaluation as well as sufficient stands as one of the critical issues and must be part of the curriculum of teacher material support and outside expertise challenges that most countries need to education. Such a curriculum must be provided in a non-directive manner. face. The number of practicing teachers prospective, i.e., it must take into ac- to cater to—many of whom are unpre- One may think that these conditions count not only what is but also what pared or under prepared to teach, and are beyond the reaches of sub-Saharan will be in schools in terms of content, thus developmentally at the pre-service African countries. This is not the case pedagogy and student characteristics. phase—and of new teachers to recruit as it appears in the promising experi- makes the challenge daunting. » The foregoing is equally relevant ences documented in the framework for experienced teachers learning new of The Challenge of Learning Study 1. Craig, H. J., Kraft, R. J., & du Plessis, J. (ADEA, 2003). They include Guinea’s practices for at least two reasons. First, (1998). Teacher development: Making an most experienced teachers have been small grants program for teacher-led impact. Washington, DC: World Bank. taught and must have been teaching collaborative professional develop- 2. Guskey, T. R. (2000). Evaluating in ways that are very different from ment and school improvement projects professional development. Thousands the kinds of practices that are currently (PPSE), Teacher Self-Assessment in Oaks: Corwin Press. Namibia, Senegal’s Projet d’école, 3. Slavin, R. E. (1999). Success for all: Policy advocated by reformers as desirable (see consequences of replicable school wide van Graan et al, 2003, for an illustrative Uganda’s Teacher Development and reform. In G. J. Cizek, Handbook of case).5 Second, they need to adapt to Management System, and Zanzibar’s Educational Policy (pp. 325-349). San changing student characteristics, to the Teacher Resource Centers. Other prom- Diego: Academic Press. changing nature of teaching and societal ising experiences worth highlighting are 4. Feiman-Nemser, S. (2001). From a set of school improvement projects Preparation to Practice: Designing a expectations of schools and teachers, Continuum to Strengthen and Sustain and to the fast pace of knowledge supported by the Aga Khan Foundation Teaching. Teachers College Record, 103, growth. Continuing professional devel- in East Africa, with teacher development 1013-1055. opment thus stands as both a necessity as a cornerstone (see Anderson6, 2002), 5. Van Graan, M. et al (2003). Practising and a duty for teachers. and Results-Based School Management critical reflection in teacher education: and Support in Burkina Faso. All these Case study of three Namibian teacher development programmes. Commissioned projects/programs illustrate an emerging Current trends in SSA by ADEA in the framework of The Challenge trend, i.e., a move away from the decried of Learning Study. Paris: ADEA. centrally-driven, one-size-fits-all and Teacher learning is reported to be most 6. Anderson, S. (Ed.) (2002). School one-shot workshop model, towards de- improvement through teacher enhanced when continuing professional centralized, school-based, teacher-led development: Case studies of the Aga development is: (i) a team rather than professional development activities. Khan Foundation projects in East Africa. an individual effort; (ii) focuses on what Lisse, The Netherlands: Swets & Zetlinger teachers feel they need, with priority In the current context of calls for given to the teaching of basic subjects; pedagogical renewal in order to achieve (iii) is linked with student learning; at least universal primary education and (iv) is conducted in or close to the (UPE) that is equitable and of acceptable How to contact Martial Dembélé: classrooms of participating teachers, quality in sub-Saharan Africa by 2015, [email protected]

16 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 17 Biennale 2003

zWhat are students learning? zAre they learning it well or poorly? Making Education zWhat use is what they are learning to them? Relevant curricula must ensure that More Relevant the subject matter learned is meaningful. Learners are motivated to learn when they know what they are learning for Curricular Reform in and what use they can make of it, either 1 for their individual development or to Sub-Saharan Africa contribute to the development of their Among the factors identified as vital to educational quality, the relevance of communities. In a rapidly changing, globalized world, one of the most vital educational programs is one of the most important. Many curricular reforms characteristics of a relevant curriculum is flexibility, i.e. openness and adaptability have been implemented since the 1980s. both to local needs and to future trends.

o understand current thinking on example being that of Tanzania in the the relevance of education systems 1960s. Review and assessment and on curricular reform, it should of African experiences T However, the need to overhaul be recalled that schools, in their current school systems to take account of the Since the 1980s, we have been witness- form, are not the product of the internal new nations’ requirements has not met ing a second wave of curricular reform development of African societies. Rather, with an adequate response in most and innovation. These reforms can be the system was imposed from outside African countries, which classified in the following by colonization. Colonial education explains why further cur- categories: (i) education rejected or denigrated local cultures and ricular reforms have been In a rapidly changing, orientation reforms, languages, relegating them to the status undertaken in many coun- globalized world, (ii) linguistic reforms, of “folklore” and “dialects”. Its purpose, tries since the 1980s. one of the most vital (iii) pedagogical reforms, through the exclusive use of the colo- characteristics of a (iv) reforms related to the nial language in schools and programs What is meant relevant curriculum is organization and manage- directed by a Euro-centric vision, was ment of classes and student by relevance? flexibility, i.e. openness to extend and complete the colonial numbers. conquest by training, assimilating and and adaptability both co-opting an elite class of allies. When we say that curricula to local needs and are relevant, it may well be Education orienta- A first wave of curricular reform, asked: Relevant for whom? to future trends. tion reforms undertaken following independence, With respect to what? In Many observers think that was confined to expurgating the most terms of decision-making power and one indicator of the relevance of formal shocking aspects of school programs influence over the main lines of the basic education is the degree to which and “Africanizing” their content, par- curriculum (by the national govern- it prepares children for integration into ticularly in ideology-related subjects. ment, pressure groups, international their environment and into the labor This was done with the aim of asserting partners, etc.), standards of relevance force. This expectation is used to justify an African identity. African languages may be quite diverse, or even contra- the practices of professional predestina- were introduced in schools for the dictory. Nonetheless, with respect to tion, pre-professionalization and pro- same reason. There were also attempts learning and its relationship to real local ductive work, but these options are far to “ruralize” schooling in order to meet situations and requirements, three key from enjoying a consensus, particularly development needs, the best-known questions arise: because of the risk that they will limit children’s horizons and thus perpetuate social stratification. Curricular adaptation The relevance of this type of educa- tion is an issue of current interest, since The curriculum comprises all of the arrangements governing students’ education. productive activities (agriculture, animal It has three components: an orientation component (foundations, goals or skills, husbandry, market gardening, etc.) are profiles, etc.), astrategic component (program, methods, time allocation etc.) and re-emerging in several African educa- an application component (language of instruction, textbooks, classroom organiza- tion systems, including those of Niger, tion, etc.). Curricular adaptation means the revision of the curriculum to bring it into Burkina Faso and Ethiopia. line with local realities and needs, or to the development of a new curriculum to Moreover, the major challenges take account of these same realities or needs. facing sub-Saharan Africa today have led many countries to introduce new

16 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 17 Biennale 2003

content into school programs, relating, Pedagogical reforms Double-shift classes: Double-shift among other things, to the environment, One of the criticisms leveled at classes appeared during the 1980s and demographics, health, nutrition, peace, African schools is that pupils do not learn 1990s as a response to overcrowding in tolerance, human rights, gender equality, how to learn, nor how to be problem urban schools. In contrast to multigrade democratic citizenship, and informa- solvers or take initiatives. Research on instruction, double-shift systems seem tion and communication technologies. learning indicates that effective learning to have a negative effect on learning, Examples of promising experiences strategies, including meta-cognition and with the primary result being a substan- include the Program for Training and working methods, are just as important tial loss of teaching time: on average, Information for the Environment initiated as the content pupils are supposed to pupils under double-shift arrangements by the Permanent Inter-State Committee learn. These strategies should be taught receive 200 fewer hours of instruction for Drought Control in the Sahel (CILSS), in schools, since, once they have been per year. Unfortunately, population Uganda’s school-based program of AIDS learned, they can be applied to other pressure has led educators to give more education, and the Education-for-Peace learning situations or to tasks to be per- attention to double-shift classes than to curriculum in Sierra Leone. formed. This is a necessary condition for multigrade classes, with the result that lifelong learning and the ability to adapt the educational potential of the latter Linguistic reforms, or bilingua- to new situations. The curricular reforms has not been sufficiently tapped. lism as a strategic choice initiated as part of the EFA process Since the mid-1970s, the linguistic issue should take this into consideration and Overall trends has been framed in terms of using both put an end to the encyclopedism that African languages and the “colonial” characterizes school programs in many At the organizational level, multigrade language as a strategy for improving countries. The aim is to move from an classes appear to be a promising option, educational quality. The co-existence of approach focused on book learning to since they have no negative effect on the two in schools, commonly referred one centered on learning strategies and learning and allow more rational use of to as bilingual education, displays the the development of cross-cutting skills. infrastructure and teaching staff while following characteristics: improving access indicators. Moreover, That being the case, programs focus- the teaching strategies on which they 1. Use of the African language (L1) ing on the teaching of encyclopedic are based can be applied in a context of as the sole medium of instruction content, i.e. in which the various types large student bodies. during the first year or two of schoo- of content are not inter-related, have in But the main trend that emerges is ling; most countries gradually given way to that of bilingual education. This educa- an approach centered on pedagogical 2. Introduction of English, French or tional model has the merit of satisfying a objectives. In addition, since the 1990s Portuguese (L2) as subject matter number of expectations simultaneously: we have seen fairly widespread ac- toward the end of the first year or pedagogical effectiveness, assertion of ceptance of the skills-based approach. the beginning of the second; cultural identity through language, Unfortunately, only Djibouti has incorporation of local knowledge 3. Use of L1 and L2 as both subject reached the implementation stage in this into school programs, recognition of matter and media of instruction as respect, and its experience is too recent from the second or third year; the value of endogenous potential, to allow us to draw any conclusions. providing a social and cultural anchor 4. Gradual increase in use of L2 as The other countries are still at the stage for young people in school, and offering pupils move up through the grades, of designing or developing curricula of a gateway to the wider world through a with a corresponding decrease in this type. foreign language in which they are more use of L1. proficient owing to their initial literacy Although the details of the shift Reforms related to training in their mother tongue or first from L1 to L2 differ from one country the organization and language. In view of the positive results to the next, the underlying principle management of classes obtained through bilingual education, is the same: to lay the foundations in Multigrade classes: Some sub-Saharan one may ask why the use of African lan- the language with which children are African countries, such as Burkina Faso, guages is not more widespread in Africa. most familiar, so as to ensure effective Côte d’Ivoire, Guinea, Madagascar and Such reforms constitute a critical step learning in the second language later on. Senegal, have turned to the use of multi- forward in the reorientation of African The application of this principle carries grade classes, for reasons that are more schools, if we want them to become a number of advantages: a smoother qualitative than pedagogical in nature. genuine instruments for personal, social, transition between home and school; The fact is that multigrade instruction is economic and cultural development. » improved performance in L2 and in often a strategy for improving indicators subjects such as mathematics and the of access, since it enables school systems sciences; and education that is cultur- to record new enrollments every year in ally more relevant. These advantages some rural areas, and in others to coun- 1. This article is based on Chapter 6 of the forthcoming ADEA publication “The are cited by several of the case studies teract the decline in student numbers Challenge of Learning: Improving the prepared for the ADEA quality study due to migration or parents’ deciding Quality of Basic Education in Sub-Saharan (Burkina Faso, Mali, Niger, Zambia). not to send their children to school. Africa”.

18 ADEA Newsletter January - March 2004 Biennale 2003 7 Pillars of Quality Improvement

Create learning opportunities

Improve instructional practice

Manage the challenge of equity

Increase school autonomy and flexibility

Nurture community support

Ensure a realistic financial framework

Respond to HIV/AIDS and conflict

The ADEA exercise on quality undertaken in 2002-2003 contributed to the identification of seven pillars for improving the quality of education in sub-Saharan Africa. These pillars may be the basis for national strategic frameworks which aim at quality improvement.

5 Elements Towards a Culture of Quality

Values that make learning central

A belief that failure is not an inevitable part of the education process; and that all children can learn given time and appropriate instruction

A commitment to equitable outcomes and a readiness to manipulate inputs and processes to achieve these

An improvement process that does not simply define outcomes and standards; but that focuses, first and foremost, on the means, processes and skills re- quired to bring about quality results

A dedication to universal quality learning, yet diverse and flexible in delivery mechanisms and instructional practice

It is equally important to develop a culture that explicitly aims to promote quality and learning and that consistently moves forward a quality improvement agenda. The most important responsibility of the leaders of the education system is to: (i) establish a culture that is driven and sustained by a set of values and beliefs on the process of teaching and learning; (ii) make sure that it is widely shared; and (iii) model and encourage behavior that put it into practice.

Taken from “The Challenge of Learning: Improving the Quality of Basic Education in Sub-Saharan Africa” soon to be published by ADEA.

18 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 19 ADEA Briefs Cl se up on an Education System

WGCOMED WGECD The first Steering Committee meeting of the ADEA Working The Working Group on Early Childhood Development (WGECD) Group on Communication for Education and Development (WG has nominated Ms. Stella Etse as its new coordinator. Ms Etse COMED) took place from March 1 - 3, 2004 at the West African is based within the UNICEF Regional Office for West and News Media and Development Centre (WANAD) in Cotonou Central Africa in Dakar, Senegal. Ms. Jeannette Vogelaar, (Benin). Topics discussed included: reinforcing the capacities currently based at the Netherlands Royal Embassy in Maputo, of African education journalists and ministerial communication Mozambique, will continue to represent The Netherlands officers; the Intra-African Exchange Program; COMED visibility Ministry of Foreign Affairs, which is the WGECD lead agency. at country level, and the Akintola Fatoyinbo Africa Education In June 2004, the working group will organize its first Steering Journalism Award. Committee Meeting in Ghana.

Intra-African Exchange Program (IAEP) WGNFE In March 2004 a Burkina Faso team, conducted by the Hon. The Working Group on Non Formal Education organized Minister of Basic Education and Literacy of Burkina Faso, Mr. a consultative meeting January 28-29, 2004. In addition to Ouedraogo, visited Senegal in order to exchange experiences discussions on the evolution of the WGNFE, other issues such on teacher recruitment and training, teaching for non formal as the governance and management of the working group, education and the use and management of the Volontaires de the programmatic thrust in terms of operational priorities and l’éducation (volunteer teachers). Launched in 1996, the IAEP the gradual shift of the working group to Africa were also on promotes the sharing of experience and expertise between the agenda. professionals from African ministries of education. WGESA WGDEOL The Steering Committee of the Working Group on Education Mr. Anand Ramsamy Rumajogee, the former coordinator for Sector Analysis (WGESA) organized a meeting and seminar the Working Group on Distance Education and Open Learning in Maputo (Mozambique), March 29-31, 2004. WGES (WGDEOL) has left the group. The new coordinator, Mr. R.S. 2004 programmatic activities, including peer reviews, as Lutchmeah, is the Executive Director of the Tertiary Education well as WGESA’s coordination and anchorage in Africa were Commission, Mauritius. The WGDEOL Technical Committee met discussed. The seminar focused on strengthening the capacity in Mauritius on 25 and 26 March 2004 to discuss the working of African education managers to accompany national action group’s priorities for 2004. plans.

Ad Hoc Working Group on Quality WGES Adriaan Verspoor, Lead consultant for the ADEA Study on The Working Group on Education Statistics (WGES) has recently Quality, and Jordan Naidoo, one of the thematic coordinators, named Mr. Kokou Baninganti as the new WG Coordinator. Mr. presented the work of the Ad Hoc group on quality during the Glory Makwati, who served as the interim coordinator, will recent Comparative and International Education Society (CIES) continue to work for the NESIS project. In February 2004, WGES conference in Salt Lake City (USA). organized a workshop on school mapping in Niamey, (Niger). Documents produced within the framework of the ADEA study on quality, will be published in 2004 and 2005. Africa Education Journalism Award Charlotte Sedel, a coordinator the ADEA quality study, has The first round of pre-selection of articles entered for the 2004 recently left the ADEA Secretariat. She is currently based in edition of the prize took place in Paris April 19-22, 2004. The Dakar, (Senegal). jury will meet in July in Libreville, (Gabon) for the final selection of In light of the lessons learned from the quality study, ADEA will winning articles. The Akintola Fatoyinbo Africa Education Journalism conduct a number of activities in support of improving the quality Award recognizes the best articles on education written by African of education in Africa. journalists and published in the African press.»

20 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 21 ADEA Briefs Cl se up on an Education System

civil servants (and thus of teachers) and the elimination of grants for students Close-up on in higher education. The situation has improved considerably since 1995, but it is worth noting that it was only in 2002 that government revenue per capita the Cameroon reached the level in real terms that it had attained in 1989.

Education System 2. An educational system that has suffered, but is By Luc Gacougnolle, improving

under the guidance of Alain Mingat The educational system suffered a great

ameroon is a country with 15 million inhabitants and a GDP Figure 1: Profile of schooling by sub-system C per capita of about 600 US dollars. It is composed of ten provinces, ��� two of them English-speaking and eight �� French-speaking. Based to a great extent �� on this linguistic distinction, the country �� has two educational sub-systems with �� differing organizational structures: �� the English-speaking sub-system has a �� structure similar to that of other English- �� speaking African countries, whereas �� the French-speaking sub-system more �� closely resembles that of French-speak- � ing countries in the region. ���� ��� ���� ���� ���� ��������� ���������� ����� ����� ����� ����� ��� ��� ��� ��� ��� ��� ��� ��� ��� ��� ��� ��� ��� ���

1. A difficult, though improv- ����������� ���������� ing, macro-economic situation [Scale moving from kindergarden on the left to high school completion on the right.] The development of education in Cameroon, like that of any country, faces demographic and macro-economic to ensure the schooling of these vulner- deal from these macro-economic dif- constraints. In terms of demographics, able children. ficulties. Public spending on education despite an expected slowdown in popu- In macro-economic terms, the per child aged 6 to 15 was cut in half lation growth, it is estimated that the between 1990 and 1995 and, taking country was hit by a crisis between the school-age population could increase into account population growth, it has mid-1980s and mid-1990s. It was of by more than 30% between 2000 and still not regained the level of 1990. The 2015. In addition to this substantial course not the only African country to go gross enrolment rate in primary school increase, the educational system is also through such an experience, but the cri- fell 15 points between 1990 and 1995, likely to suffer the impact of an increase sis was particularly severe in Cameroon. although the secondary rate was rela- in AIDS, as it is expected that by 2015 The country undoubtedly was forced to tively stable and the coverage of higher slightly more than 10% of the school-age take stronger measures than elsewhere education improved. Since 1995, prima- population will have lost their mothers, to deal with the crisis, including a ry coverage has improved steadily, but which will necessitate targeted measures substantial reduction in the salaries of it was really only with the elimination

Close-up on an educational system The purpose of the Close-up section of the ADEA Newsletter is to summarize the characteristics of a country’s educational system based on statistical and comparative data in order to shed light on the constraints and maneuvering room a country has to meet its basic goals, in particular quality universal primary schooling by the year 2015. The analysis is organized into three parts: a description of the main results of the system; an analysis of education policy in terms of its efficiency and the trade-offs made; and paths to reform in the form of simulations that take into account the system’s constraints and degrees of freedom.

20 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 21 Cl se up on an Education System Cl se up on an Education System

of primary school fees at the start of the the French-speaking sub-system the 4. Inequalities in enrolment 2000-2001 year that substantial progress functioning of the primary schools is not was made. Between the start of the 1999 very satisfactory. While about 95% of Enrolments contrast sharply depending and 2000 school years, the number children have access to primary school in on gender, geographical region (rural or of non-repeating pupils increased by the two sub-systems, only 59% of enter- urban), province and level of household 59% in the first year of primary school, ing pupils in the French-speaking system income. To give an idea of the scale of showing that the direct cost is very much reach the 6th year of school, compared differences, about 90% or more of a dissuasive factor in school demand, with 80% in the English-speaking sub- urban boys residing in the provinces in particular for poor system. of the centre, the coast, the west or the families. south have at least completed primary Several reasons Since 1995, primary school school, whereas this is the case for only There has thus been for this have been about 40% of urban boys in the north progress in the cover- coverage has improved steadily, identified: (i) repeti- and extreme north, 15% of rural boys age of the system, but but it was above all with the tion rates are higher in from the same two provinces, and only the failings of the state elimination of fees demanded the French-speaking 5% of their sisters. with regard to providing for primary school at the start sub-system (28%, educational services are of 2000-2001 that substantial versus 17% in the Gender is the area showing least still having an effect. For progress was achieved. This shows English-speaking discrimination: a 14-point gap exists instance, in 2002, 25% sub-system), and it between the primary completion rate that direct costs do constitute a of teachers in public is estimated that one for girls and that for boys. In contrast, primary schools were dissuasive factor in school demand, additional point in the the gap is 25 points between young “parents’ teachers”; if especially for poor families. repetition rate leads people who are from the poorest 40% to this percentage are to about 0.8 point of the population and those from the added teachers paid by less in the percentage wealthiest 60% of the population. users of private schools (23% of primary of children who complete the primary Geographical factors show even greater staff are in the private sector, which is cycle; (ii) a certain number of schools, differences: a differential of 40 points only slightly subsidized), the total of pri- in particular in the northern (French- exists between urban and rural areas. mary school children who have a teacher speaking) part of the country, do not The differential between the provinces paid by parents rises to more than 40%. offer educational continuity over the of the north and extreme north and A recent household survey showed that entire cycle; (iii) there are different those of the centre, coast or south is family spending amounted to 44% of approaches to pupil evaluation, with 60 points. total spending at the primary level. the French-speaking sub-system em- phasizing penalties on pupils, whereas Nevertheless, it should be noted that gender-based inequalities in enrolment 3. Inadequate retention the English-speaking sub-system takes a more positive approach; and finally are moderate in primary school and the during the primary cycle (iv) there seems to be low demand for first cycle of secondary school, and then The progress achieved with regard to enrolment in the northern and eastern intensify. With regard to inequalities the GER should not obscure the fact that (French-speaking) parts of the country, between provinces, these arise from from the point of view of pupil flows in particularly for young girls. the time of access to the first cycle of

Table 1: Changes in school enrolment, 1990-2002, and employment status of university graduates in 2001

GER Employment status of 30 year olds (%) (2001) Level Modern job, mid- 1990 2002 Unemployed Informal sector Modern job, low skills level manager or + Pre-school 13.3 13.8 - - - - Primary 96.3 105.4 16 73 10 0 Secondary 1 25.3 32.1 26 52 21 2 Secondary 2 18.8 16.4 27 34 31 7 Technical 1 6.1 6.7 22 52 24 3 Technical 2 3.3 3.4 29 36 25 9 Higher* 254 510 34 13 16 38 Total - - 21 58 16 5

* The GER (Gross Enrolment Ratio) is replaced by the number of students per 100,000 inhabitants.

22 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 23 Cl se up on an Education System Cl se up on an Education System

Table 2: Distribution of current spending and unit costs per educational level in Cameroon and in several comparable countries, 1990 and 2000

Average comparable Cameroon Ratio Cameroon/average countries * Level Indicator 1992 2000 2000 2000

% Current expenditure - 42 53 0.79 Primary Unit cost (% GDP/capita) 10 7 13 0.54

% Current expenditure - 44 28 1.57 Secondary Unit cost (% GDP/capita) 21 36 36 1.00

% Current expenditure - 13 19 0.68 Higher Unit cost (% GDP/capita) 165 83 154 0.54

* This is the average for the following group of countries: Benin, Burkina Faso, Côte d’Ivoire, Madagascar, Mauritania, Senegal and Togo

secondary school and subsequently Kenya and Mauritius perform better than tion in inequalities and a substantial remain more or less stable, as if young Cameroon1. improvement in quality. people from disadvantaged geographic There are, however, significant dif- areas who have reached this level are ferences between schools with regard to 6. Financial trade-offs then able to continue their studies with- between levels, the regula- out any additional difficulties. Finally, the level of pupils, although there does while income-based inequalities do not seem to be any significant relation- tion of flows, and quantity- exist at primary level (a 25-point gap ship between the resources employed by quality trade-offs need to be between the two groups with regard a school and the results obtained. This reviewed to the completion of primary school), points to weaknesses in pedagogical the gap increases sharply after that, management in the system. Substantial Changes in quantitative coverage at with 10 times fewer young people in progress needs to be made in this regard different school levels since 1990 show the first cycle of secondary education in order to achieve a significant reduc- relatively modest progress at every level, from the poorest quintile than from the richest quintile. In the second cycle, children from richer families Figure 2: are 40 times more numerous than Relationship between number of pupils and teachers in public those from poorer families. In higher education, there are almost primary schools, 2002-2003 (schools with fewer than 1,000 no students at all from the lowest pupils) two income quintiles. These figures point to significant inequities in the 40 Cameroon educational system. 35 � �

5. The quality of learning � 30 �

is relatively good, but � � 25 �

additional progress is �

possible �

� 20 �

Pupil evaluations and the retention � 15 of literacy among adults show that � �

the Cameroon primary educational � 10

system performs relatively well � compared with those of many other 5 countries on the continent. On the 0 international scale of achievement 0 100 200 300 400 500 600 700 800 900 1000 of primary pupils that offers a com- parison of 18 African countries, only ������ �� ������

22 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 23 Technical Briefs Cl se up on an Education System

with the notable exception of higher z At primary level, it is undoubtedly be a functional relationship between education (r.e. the left part of Table 1). justifiable to increase resources and the number of teachers and pupils; to target these to include pupils who the points representing the schools in The right part of the table gives the do not have a complete a graphic showing these employment status of young people. It two magnitudes would all can be seen that those who have been in primary education and The general improvement of be situated along a com- higher education have difficulty finding to ensure the funding management is an essential mon level – yet this is not jobs. Only 38% have a white-collar of “parents’ teachers” the case. job, whereas 34% are unemployed; from public resour- element in the country’s 13% are in the informal sector, where ces; new educational policy. New While on average they earn only modest incomes. The z At the higher level, policies and the mobilization there is indeed a relation- observation that there is an excessive it is undoubtedly of additional resources are ship between the number number of students is confirmed by worthwhile to revise definitely needed. But this of teachers and pupils, the results of comparative analysis, the balance between will not be meaningful if the graphic shows that which shows that African countries quantity and qua- the points representing management is not taken in the schools are highly comparable to Cameroon from an lity in order to achieve economic standpoint have on average hand at the same time. dispersed around the better control over the 270 students per 100,000 inhabitants, a average. This is a sign of a number of students. significantly lower level than the average significant degree of haphazardness in Only 38% of students in higher of 510 students estimated for Cameroon the allocation of personnel to schools. in 2002. education find a job commensurate For example, schools with 400 pupils with their training. It would also be have from 5 to 12 teachers. Likewise, The structural assessment of the advisable to increase the level of ex- there are schools with 6 teachers that Cameroon educational system will be penditure per student, which fell by have from 150 to 420 pupils (without completed by an examination of the half between 1992 and 2002 (and is considering extreme cases). distribution of public resources and the very low compared with the other level of unit expenditure per study level, It is common in the African countries countries in 2002) in order to im- using a comparative approach over time to find inconsistencies in the allocation prove the quality of graduates. This and space. of teachers, but this is particularly could take the form of an increase marked in Cameroon, as the country Table 2 indicates that the distribution in resources per student, a better is ranked next to last among the 22 of public spending by educational level distribution of training to target countries included in the analysis. We and unit cost differs from what can be growth sectors (professionalizing) do not have any historical data on this seen in other countries in the region. In and diversification towards more issue, but it is likely that this problem 2000, the share allocated to primary effective training approaches that accentuated with the intensification of (42%) and higher (13%) education is are less costly for the government budget constraints during the 1990s. much lower than the comparable values and better meet market demand. (53% and 19%, respectively). The unit This inconsistency in the manage- cost is barely more than half of that for In addition, the system needs to ment of personnel can be compared the reference group. make trade-offs between primary with the weakness in pedagogical and higher education. There are plans management. There is no doubt that an The situation of secondary education to double the number of pupils who overall improvement in management is appears to be more comfortable, with a complete the primary cycle between an essential component in the country’s share of current public spending that 2000 and 2015. In addition, the number new educational policy. New policies is significantly higher than that of the of students in higher education must be and the mobilization of additional reference group and unit costs that are contained so as to bear a reasonable resources are of course necessary. But at a comparable level. Although these relationship with labor market demand. these will not be meaningful if manage- comparisons have limited significance, In what ways is enrolment in the two ment is not taken in hand at the same they are nonetheless interesting. This secondary cycles likely to change? time. » is even more the case if one considers What methods can be used to regulate 1. It has been said, although with no factual changes in unit costs over time, in flows? What is the role of technical and basis offered for confirmation, that quality particular a fall between 1992 and 2002 professional training? These questions may have deteriorated in recent years. of 30% in unit costs in primary and 50% are at the heart of the country’s future in higher education, while at the same educational policy. For more information, please contact: time per pupil expenditure in secondary Luc Gacougnolle, Education policy analyst education rose significantly. Dakar education sector analysis (Pôle de Dakar) 7. Significant efforts are Coopération Française/ Based on this information, it is clear needed to improve the UNESCO-BREDA that the structure of the Cameroon management of personnel [email protected] educational system is facing problems at Alain MINGAT, Principal economist both the primary and higher levels. The Ideally, the number of teachers in a Support team to define sector policies in the analysis points towards the following school should depend only on the social sectors Africa Region, World Bank conclusions: number of pupils. There would then

24 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 25 Technical Briefs Cl se up on an Education System

Enrolment Profile

Definition An enrolment profile is the graphical representation of the proportion of children reaching each level of schooling. Depending on usage, it can be either complete or restricted to the primary cycle or to the first and last levels of Example of enrolment profile (imaginary data) each cycle or even to a category of the popula- ���� tion (girls, rural, poor, etc.). The abscissa thus ��� shows the level of enrolment and the ordinate ��� ��� the proportion of children in the corresponding ��� age category who reach each of these levels. ��� ��� ��� Value ��� ��� The value of the enrolment profile is to visual- �� ���� � ���� � ���� � ���� � ���� � ���� � ize the losses that take place during schooling. In particular, it helps provide a more detailed view than the gross enrolment rate, which is an overall measure for a cycle, by providing details about the proportion of children who have access to school and those who complete the cycles.

Calculation There are several types of enrolment profile. Each type corresponds to different calculation methods and produces significantly dif- ferent results. The choice of profile is determined based on both the available data and the information desired. Three methods are explained hereafter for a profile calculated for 2003/2004 on a primary cycle of six years (theoretical entry age: 7 years).

The first method, calledlongitudinal , consists of following a cohort of children over the six years in the period. This method takes the number of children who are 7 years old in 1998/99 (six years before 2003/2004) and calculates how many actually enter the first year. This first value entitled "NonRedC198/99 / Pop798/99" is the first point in the profile. Next the number of children who reach the second year is calculated, and so on up to year six, with each of these values yielding points on the profile.

This method is used to measure the actual loss in pupils from the cohort over the six last years. But it has the disadvantage of requir- ing relatively distant school and demographic data so as to assess the state of the system over the last six years. This also means it is not possible to observe the effect of any improvements made to the system over that period.

A second method, called transversal, consists of measuring the proportion of the populations of each age group in 2003/04 that reach each level in the cycle. The calculation is made by comparing the number of non-repeating pupils at each level in 2003/04 to the population of the age group corresponding to that year. This enrolment profile has the advantage of requiring data only from the latest year, and of representing current access at each level.

A third method, called semi-longitudinal (or “zig-zag”), calculates the gross Data required to develop an enrolment access rate in the first year, and then, for access to higher grades, simulates profile using the various methods the transitions observed for each cohort between the two last years from one Required data Methods grade to the other. Access to a grade is thus obtained by multiplying the access School Population rate calculated for the preceding grade (by starting with the first year) by what 1998/99 to Longitudinal 1998/99 is called the actual transition rate, which is equal to the ratio of the number 2003/04 of non-repeating pupils in 2003/2004 to non-repeating pupils from the lower level in 2002/03. Transversal 2003/04 2003/04 This profile thus represents access to each grade that the children from the first 2002/2003 2003/04 year will experience if over the next six years, the access and transition condi- «Zig-zag» +2003/2004 (7 years) tions between the levels remain the same as it currently stands.

24 ADEA Newsletter January - March 2004 ADEA Newsletter January - March 2004 25 ADEA Activities Other Activities March 25 – 26, 2004 June 6-9, 2004 March 17-25, 2004 Working Group on Distance Second Regional Conference on Sub regional workshop on the Education and Open Learning Secondary Education in Africa Strengthening of Educational (WGDEOL) (SEIA) Planning Technical Workshop Meeting hosted by the Ministry Limbé, Cameroon Grand Baie, Mauritius of Education, Senegal, the World Bank, and organized in collabora- April 19-25, 2004 March 29-31, 2004 tion with The World Bank Institute, the Education for All week Working Group on Education International Institute for Educational UNESCO Sector Analysis, (WGESA) Planning, and ADEA Paris, France Steering Committee meeting, and Dakar, Senegal National Workshop June 14-16, 20047 Maputo, Mozambique June 14-15, 2004 Adult Education and Poverty Working Group on Early Childhood Reduction: A Global Priority, April 13-16, 2004 Development (WGECD) University of Botswana, ADEA Steering Committee Steering Committee Meeting, Gaborone, Botswana meeting Accra, Ghana Chavanne-de-Bogis, Switzerland June 23-25, 2004 July 6-8, 2004 “Scaling Up Good Practices in April 19-22, 2004 Africa Education Journalism Award Girls’ Education in Sub-Saharan Africa Education Journalism Award –Akintola Fatoyinbo Africa, –Akintola Fatoyinbo Meeting of the jury for final selection Technical workshop/ policy consul- Meeting of the jury for a first phase of articles tation of article selection Libreville, Gabon Hosted by FAWE, in consultation Paris, France with AfDB, the Commonwealth Sec- July 26-27, 2004 retariat, UNESCO, UNICEF, and the May 6-7, 2004 Technical Workshop to prepare World Bank Working Group on the Teaching the Sub-Regional Conference on Nairobi, Kenya Profession (WGTP) Integration of ICT in Education: Steering Committee meeting Issues and Challenges in West London, United Kingdom Africa Abuja, Nigeria June 2-4 2004 Ad hoc Group on HIV/AIDS July 28-30, 2004 Dates and venues may change. For Seminar to validate the Gabon HIV/ Sub-Regional Conference on more information please consult the AIDS national sector plan Integration of ICT in Education: ADEA web site (www.adeanet.org) Gabon Issues and Challenges in West Africa June 2-3, 2004 Abuja, Nigeria Working Group on Education Statistics (WGES) Steering Committee meeting Harare, Zimbabwe June 2-4, 2004 Quarterly Newsletter published by ADEA The views and opinions expressed Please address all correspondence to: Ministerial Conference on in authored articles of the ADEA The Editor, ADEA Newsletter Education in Countries in Crisis or Newsletter are those of the authors Association for the Development of Education in Africa Post-Conflict and should not be attributed to ADEA or to any other organization or 7-9 rue Eugène-Delacroix, 75116 Paris, France Meeting jointly organized with the individual. Minister of Education, Kenya, The Tel: +33 (0)14503 7757 Commonwealth Secretariat, and Fax: +33 (0)14503 3965 E-mail: [email protected] ADEA web site: www.adeanet.org Mombasa, Kenya