Morocco   SABER Country Report SCHOOL AUTONOMY AND ACCOUNTABILITY 2015    Policy Goals Status 1. AutonomyinPlanningandManagementoftheSchoolBudget TheSchoolManagementCouncilexpressestheschool’slearningand  administrativematerialsneedsbutthelegalauthorityforthepreparationand executionoftheoperationalbudgetrestwiththeregionallevel.Thereisno widerconsultationwithparentsandthecommunityonthepreparationand executionoftheoperationalbudget. 2. AutonomyinPersonnelManagement Recruitmentofallschoolpersonnel(teachingandnonͲteachingstaff)are  madeundertheauspicesofthePublicServiceandtheSpecialStatusof PersonneloftheEducationSectoratcentrallevel,andtheirdeploymentat regionallevel.Decisionsonselectionandplacementofschoolprincipalsare handledbytheregionalauthorities(AREFs)andtheirevaluationbytheLocal EducationAuthority. 3. ParticipationoftheSchoolCouncilinSchoolGovernance TheSchoolManagementCouncilrepresentingschoolpersonnelandthe  communityuponopenelectionsupportstheschoolprincipalinoperational managementandpartnershipprojectsbuthasnolegalrightonmatters relatedtostaffmanagementandlearninginputs. 4. AssessmentofSchoolandStudentPerformance NoschoolassessmentsexistinMorocco.Nationalexaminationsforstudents  takeplaceannuallyforcertificationandselectionpurposesandschoolsare notobligatedtouseresultstomakepedagogical,personnel,oroperational adjustments.Standardizedlearningprerequisiteassessmentsexistandcanbe usedtoidentifylearninggapsamongstudentsatGrades2,5,7,9and10,but theyarenotobligatoryandAREFscanusethemiftheyhavefunding. 5. AccountabilitytoStakeholders Regulationsareinplaceforcomplyingwithrulesforfinancialandschool  operations.Howevertherearenomandatestosimplifyandexplainresultsof assessmentstothegeneralpublictoholdschoolsandtheeducationsystem accountablefortheirperformancetoparents,communities,andthepublic.      MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015    TableofContents The geographical position of Morocco has made this country a multicultural space given the diversity of its Introduction………………………………………………………………..1 population: Arab, Amazigh and African. Linguistic CountryOverview……………………………………………………….1 pluralism is a challenge for the education and training I. EducationinMorocco…………………………………………….1 system due to the introduction of Arabic and Berber, II. TheCaseforSchoolAutonomyandAccountability..4 Morocco's two official languages in the constitution of III. Morocco’sPerformance:ASummaryofResults…….7 2011. IV. EnhancingEducationQuality:Policy…………………….13  RecommendationsforMorocco Between 2004 and 2014, the youth population declined Acknowledgements…………………………………………………..21 slightly. This affected all ages; however, the most Acronyms………………………………………………………………….21 pronounced decrease was for the age group 6Ͳ11. References………………………………………………………………..21 Overall, the decrease in the schoolͲage population aged  4Ͳ17 years is expected to continue until 2030 (MENFP 2014a). This is likely to reduce population pressure on Introduction the current and future school system, and will allow for financial resources to be redirected to other qualitative In2011,theWorldBankGroupcommencedamultiͲyear aspectsoftheeducationandtrainingsystem. programdesignedtosupportcountriesinsystematically  examining and strengthening the performance of their education systems. Part of the World Bank’s Education Sector Strategy, 1 the evidenceͲbased initiative called I. EducationinMorocco SABER(SystemsApproachforBetterEducationResults), SincethevalidationoftheNationalCharterofEducation is building a toolkit of diagnostics for examining and Training in 20002, Morocco has made considerable education systems and their component policy domains progress in the achievement of the Education for All against global standards, best practices, and in (EFA) goals, prioritizing access to general education and comparison with the policies and practices of countries increasing school supply for compulsory education around the world. By leveraging this global knowledge, cycles, namely primary and lower secondary (see Table the SABER tools fill a gap in the availability of data and 1). evidenceonwhatmattersmosttoimprovethequalityof   educationandachievementofbetterresults.Thisreport discusses the results of applying the SABER School AutonomyandAccountability(SAA)toolinMorocco.  CountryOverview Morocco is a country in the subtropical zone on the western side of Africa. It is spread over an area of 710,850squarekilometers,andcomposedof12regions and 82 provinces. The population of Morocco was estimatedat 33.8millionin2014,ofwhich60.3percent live in urban areas. The national economic growth was 4.4 percent in 2013, and the national per capita income wasestimatedat$7,000(PPP)(MENFP2014a).   1The World Bank Education Sector Strategy 2020: Learning for All (2011), 2CommissionSpécialeEducationFormation(COSEF)July1999:Charte which outlines an agenda for achieving “Learning for All” in the developing Nationaled’EducationetdeFormation. worldoverthenextdecade.  2 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   Table1:StructureoftheEducationSystem Table2:SelectedEducationIndicators* Level Ages Grades PublicExpenditureonEducation(2013) PreͲprimary 4Ͳ5 PreͲschool As%ofGDP 6.6 Primary 6Ͳ11 1Ͳ6 As%ofTotalGovernmentExpenditure 24.0 DistributionofPublicExpenditureperLevel(%)(2013) Lowersecondary 12Ͳ14 7Ͳ9 PreͲPrimary Ͳ Primary 37.69 Uppersecondary 15Ͳ17 10Ͳ12 Secondary 44.61 Tertiaryandother 17.70 Tertiary 18+ Collegesand Teacher/PupilRatioinPrimary(2014) 27.5 Universities PercentageofRepeatersinPrimary(2014) 11.0 Source:UNESCOInstituteforStatistics2014 PrimarytoSecondaryTransitionRate(2013) 85.4  Source:*EdStats,WorldBank(LastUpdated:09/26/2014); AccordingtotheEFANationalReport2013Ͳ2015,access MoroccoHigherCouncilforEducation,TrainingandScientific toalllevelsofeducationimproveddrasticallyfrom2000 Research(CSEFRS)2014;andMENFP,2013Ͳ14. to 2014. Indeed, the primary net enrolment rate for the  age group 6Ͳ11 increased from 79.1 percent to 99.5  percent.Forthesameperiod,thenetenrollmentratein Morocco has put high priority, in recent years, on the lowersecondary(agegroup12Ͳ14years)increasedfrom reduction of social and geographical inequalities in its 58.1 to 87.6 percent, while enrollments for upper public policies, especially in education, as evidenced by secondary (age group 15Ͳ17 years) increased from 35.4 the provisions and projects of the Emergency Program to61.1percent. set up by the Ministry of Education covering the period  2009Ͳ2012 (MENFP 2008). This program has helped to Quality of learning did not improve at the same rate as improveschoolprovisioninruralareasandtostrengthen access, as evidenced by the results of Moroccan fourth thesocialpolicyofsupportforpupilsfromdisadvantaged graders in TIMSS and PIRLS 2011. Few students (1Ͳ2 backgrounds, in addition to efforts aimed at developing percent) reached the high benchmarks in reading, human resources and improving governance of the mathematics,andscience,butaboutoneͲfourthreached sector. the low benchmark 3 in mathematics, 21 percent in  reading,and15percentinscience(Mullis2011). OnemethodthattheGovernmentofMoroccoisusingto  reduceregionalinequitiesisdecentralizationofdecisionͲ Despite the financial efforts allocated to the education making to the regional level. Decentralization policy in sector(6.6percentofgrossdomesticproduct[GDP]and Moroccobeganin1997withtheenactmentofAct96/43 24.0 percent of the government budget in 2013; see establishing and organizing the regions. From a legal Table2),thefindingsoftheEFAReport2013Ͳ2015show perspective, decentralization aims to involve citizens in that within Morocco, inequalities in access persist governancethroughtheirelectedrepresentativesbythe between regions, thus delaying the achievement of transferofpowersfromtheState tolocalgovernments. universal education. These differences reflect social Theapplicationofthisprincipletotheeducationsector, inequalities between economically rich regions and throughthecreationofRegionalAcademiesofEducation those that are poorly developed. This disadvantage and Training (AREFs) in 2000 4 , focused primarily on interactswithothervariablesincludingthegeographical technical and administrative management powers isolationofcertainpopulationsbecauseofmountainous (MENFP 2013). Autonomy is granted to the AREFs to terrain and floodͲprone areas, as well as cultural manage certain logistical and financial decisions, attitudes that remain hostile to the education of girls, following guidelines issued by the central government despite efforts made by Morocco to promote gender withinthecontextofnationalgoalsandprioritiesdefined equality.  3Studentsreachingthelowbenchmarkcanreadandcomprehendfacts,read 4Decreen°2.00.1016of24November2000relatingtotheapplicationofLaw avarietyofsimplegraphsandtables,knowsimplemathematics(suchas No.07Ͳ00of19May2000relatingtothecreationofRegionalAcademiesfor adding,subtracting,andbasicgeometricfigures),andknowsciencefacts EducationandTraining. abouthealth,ecosystems,andanimals.  3 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   bythegeneralpolicyoftheState.The2011Constitution II. The Case for School Autonomy and gaveastrongimpetustothestrategicdirectionsofgood institutionalgovernanceandthecreationofanewpublic SchoolAccountability School autonomy and accountability are key management system based on responsibility, resultsͲ components of an education system that ensure basedmanagement,andaccountability. educational quality. The transfer of core managerial  responsibilitiestoschoolspromoteslocalaccountability; Lever 15 of the National Charter of Education and helpsreflectlocalpriorities,values,andneeds;andgives Training states that “education and training authorities teachers the opportunity to establish a personal shall, in coordination with other relevant authorities, commitment to students and their parents (see Box 1). accelerate the implementation of the decentralization Benchmarking and monitoring indicators of school and deconcentration policy in this sector, as a decisive autonomy and accountability allows any country to choice, irreversible strategy and urgent responsibility.”5 rapidlyassessitseducationsystem,settingthestagefor Thispolicyhasessentiallybeenenactedthrough:6 improvingpolicyplanningandimplementation.   x Review of the administrative and management  Box1:WhatareSchoolAutonomyand competencies of the education sector’s central  Accountability? services to focus on strategic management,  School autonomy is a form of school management in defining general guidelines, assurance of equity  which schools are given decisionͲmaking authority between regions, and control of resource  overtheiroperations,includingthehiringandfiringof management;  personnel, and the assessment of teachers and x Creation of the AREFs as regional authorities  pedagogical practices. School management under enjoying legal recognition and planning and  autonomy may give an important role to the School management responsibilities such as the  Council, representing the interests of parents, in preparation of regional plans, school mapping,  budget planning and approval, as well as a voice/vote programming of construction and renovation of  in personnel decisions.   By including the School schoolbuildings,humanresourcesmanagement  Council in school management, school autonomy (including recruitment, training and evaluation),  fosters accountability (Di Gropello 2004, 2006; andmanagementofpartnershipinitiatives;  Barrera,FasihandPatrinos2009). x Strengthening the Local Education Authorities   (LEAs) by integrating them in the regional  In its basic form accountability is defined as the structure and delegating some competencies  acceptanceofresponsibilityandbeinganswerablefor related to human resources management,  one’s actions. In school management, accountability budget preparation, and local administrative  may take other additional meanings: (i) the act of processes;  compliance with the rules and regulations of school x CreationofSchoolManagementCouncils(SMCs)  governance; (ii) reporting to those with oversight consisting of a representation of the various  authorityovertheschool;and(iii)linkingrewardsand local stakeholders for participation in the  sanctions to expected results (Heim 1996; Rechebei managementofschoolaffairs.  2010).    School autonomy is a form of a decentralized education systeminwhichschoolpersonnelareinchargeofmaking most managerial decisions, frequently in partnership with parents and the community. More local control helps create better conditions for improving student  5CommissionSpécialeEducationFormation(COSEF)July1999.Charte 6MENFP.June2007.AREFExperiencesWithintheDecentralizationand Nationaled’EducationetdeFormation DeconcentrationFramework.LegalAffairsDepartment.  4 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   learning in a sustainable way, because it gives teachers Box2:DifferentpathstoSchoolͲBased and parents more opportunities to develop common Managementarefineaslongastheyallowfor goals, increase their mutual commitment to student systemclosure learning, and promote more efficient use of scarce  schoolresources. In many countries the implementation of SBM has  increased student enrollment, student and teacher To be effective, school autonomy must function on the attendance, and parent involvement. However, the basisofcompatibleincentives,takingintoaccountnational empirical evidence from Latin America shows very education policies, including incentives for the few cases in which SBM has made a significant implementationofthosepolicies.Havingmoremanagerial difference in learning outcomes (Patrinos 2010), responsibilities at the school level automatically implies whileinEuropethereissubstantialevidenceshowing thataschoolmustalsobeaccountabletolocalstakeholders a positive impact of school autonomy on learning as well as national and local authorities. The empirical (Eurydice2007).BoththegrassrootsͲbasedapproach evidence from education systems in which schools enjoy taken in Latin America, where the institutional managerial autonomy is that autonomy is beneficial for structurewasweakorservicedeliverywashampered restoring the social contract between parents and schools duetointernalconflict,andtheoperationalefficiency and instrumental in setting in motion policies to improve approach taken in Europe where institutions were studentlearning. stronger,coincideinapplyingmanagerialprinciplesto  promote better education quality, but driven by two The progression in school autonomy in the last two different modes of accountability to parents and the decades has led to the conceptualization of SchoolͲ community. One in Latin America where schools BasedManagement(SBM)asaformofdecentralization render accounts through participatory schoolͲbased in which the school is in charge of most managerial management (Di Gropello 2004) and another in decisions but with the participation of parents and the Europe where accountability is based on trust in community through school councils (Barrera, Fasih, and schoolsandtheirteachers,(Arcia,Patrinos,Portaand Patrinos2009).SBMisnotasetofpredeterminedpolicies Macdonald 2011). In either case, school autonomy andprocedures,butacontinuumofactivitiesandpolicies has begun to transform traditional education from a put into place to improve the functioning of schools, systembasedonprocessesandinputsintoonedriven allowingparentsandteacherstofocusonimprovements byresults(Hood2001). in learning. As such, SBM should foster a new social  contract between teachers and their community in  which local cooperation and local accountability drive  improvementsinprofessionalandpersonalperformance As components of a managerial system, SBM activities byteachers(Patrinos2010). may behave as mediating variables: they produce an enabling environment for teachers and students, TheempiricalevidencefromSBMshowsthatitcantake allowing for pedagogical variables, school inputs, and many forms or combine many activities (Barrera et al. personalefforttoworkasintended. 2009) with differing degrees of success (see Box 2).  UnlessSBMactivitiescontributetosystemclosure, they When do SBM components become critical for learning? are just a collection of isolated managerial decisions. Theimproperfunctioningofaschooloraschoolsystem Therefore, the indicators of SBM that relate to school can be a substantial barrier to success. The managerial quality must conform to the concept of a system, in component of a school system is a necessary but which the presence or absence of some critical insufficient condition for learning. One can fix some componentswithinthesystemalloworprecludesystem managerial components and obtain no results or alter closure. other components and obtain good results. What  combinationofcomponentsiscrucialforsuccessarestill understudy, buttheemergingbodyof practicepoint to a set of variables that foster managerial autonomy, the assessmentofresults,and theuseoftheassessmentto  5 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   promote accountability among all stakeholders (Bruns, In managerial terms it is clear that the point of contact Filmer, and Patrinos 2011). When these three between autonomous schools and their clients is componentsareinbalancewitheachother,theyforma primarily through the school council (Corrales 2006). “closedͲloopsystem.” Similarly, school assessments are the vehicles used by  schools to determine their needs for changes in Definingamanagerialsystemthatcanachieveclosureis pedagogical practices and to determine the training conceptually important for schoolͲbased management, needs of their teachers. Both pedagogical changes and since it transforms its components from a list of teacher training are determinant factors of teacher managerialactivitiestoasetofinterconnectedvariables quality (Vegas 2001). Finally, the role of EMIS on that when working together can improve system accountabilityhasbeenwellestablished,anditisbound performance. If an SBM system is unable to close, are to increase as technology makes it easier to report on partialsolutionseffective?Yes,inabroadsense,inwhich indicatorsofinternalefficiencyandonstandardizedtest schools can still function but their degree of scores(Bruns,Filmer,andPatrinos2011). effectiveness and efficiency would be lower than if the  systemcloses.Inthisregard,SBMcanachieveclosureof Results on the Programme for International Student the loop when it allows enough autonomy to make Assessment (PISA) suggest that, when autonomy and informed decisions, evaluate its results, and use those accountabilityareintelligentlycombined,theytendtobe resultstoholdsomeoneaccountable. associated with better student performance (OECD  2011). The experience of highͲperforming countries on This last conclusion is very important because it means PISAindicatesthefollowing:7 that SBM can achieve balance as a closedͲloop system x Education systems in which schools have more when autonomy, student assessment, and autonomy over teaching content and student accountability,areoperationallyinterrelatedthroughthe assessmenttendtoperformbetter. functionsoftheschoolcouncils,thepoliciesforimproving teacherquality,andEducationManagementInformation x Education systems in which schools have more Systems(seeFigure1). autonomy over resource allocation and that  publish test results perform better than schools Figure1 withlessautonomy.  x Education systems in which many schools compete for students do not systematically scorehigheronPISA. x Education systems with standardized student assessmenttendtodobetterthanthosewithout suchassessments. x PISA scores among schools with students from different social backgrounds differ less in education systems that use standardized student assessmentsthaninsystemsthatdonot. As of now, the empirical evidence from countries that  have implemented school autonomy suggests that a Source:DemasandArcia2015. certain set of policies and practices are effective in Note:EMIS–educationmanagementinformationsystem. fostering managerial autonomy, assessment of results,  and the use of assessments to promote accountability.  7ExamplesofhighperformingcountriesthathaveimplementedschoolͲ basedmanagementpoliciesandframeworksincludetheCanada,the Netherlands,andNewZealand,amongothers.  6 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   Benchmarking the policy intent of these variables using III.Morocco’sPerformance:ASummaryof SABER can be very useful for any country interested in improvingtheperformanceofitseducationsystem. Results  A summary of the results of the benchmarking exercise forMoroccoareshownbelow,followedbyabreakdown SABERSchoolAutonomyand bypolicygoal. Accountability:AnalyzingPerformance.  Summary. Budgetary autonomy is “Emerging.” The The SABER School Autonomy and Accountability tool entire school operational budget is prepared and assistsinanalyzinghowwelldevelopedthesetofpolicies executed by the AREFs at the regional level, taking into are in a given country to foster managerial autonomy, accounttheoperationalneedsvoicedbyschools.Schools assessresults,anduseinformationfromassessmentsto have the legal authority to prepare and execute small promote accountability. There are five policy goals for budgets related to the school development project and schoolautonomyandaccountability.Belowarethemain the ability to raise additional financial resources. indicators that can help benchmark an education Autonomy in personnel management is “Emerging.” system’s policies that enable school autonomy and TherecruitmentoftheteachingandnonͲteachingstaffis accountability: conductedatthecentrallevel,whiletheirdeploymentis 1. School autonomy in the planning and managedattheregionallevelbytheAREFs.Decisionson managementoftheschoolbudget the selection and placement of school principals are 2. Schoolautonomyinpersonnelmanagement handled by the AREFs, and the evaluation of school 3. RoleoftheSchoolCouncilinschoolgovernance principalsisconductedbytheLocalEducationAuthority. 4. Schoolandstudentassessments The role of the School Management Council in school 5. Accountability governanceis“Emerging.”TheSMCprovidesadviceon,  and validates the school’s operational activities and Eachofthesepolicygoalshasasetofpolicyactionsthat partnership projects but has no legal right or voice on make it possible to judge how far along an education mattersrelatedtothemanagementofteachingandnonͲ system’s policies are in enabling school autonomy and teachingstaffmanagementoronlearninginputs.School accountability.  Each policy goal and policy action is and student assessment is “Latent.” There is no school scoredonthebasisofits statusandtheresultsclassified assessment in Morocco to evaluate overall school asLatent,Emerging,Established,orAdvanced: performance.Studentknowledgecanbeevaluatedusing  standardized prerequisite assessments which are Latent Emerging Established Advanced available to schools to identify learning gaps among €{{{ €€{{ €€€{ €€€€ Reflects Reflectssome Reflectsgood Reflects studentsatthebeginningoftheschoolyear,buttheyare policynotin goodpractice; practice,with international notobligatoryandareusedonlyifAREFshavefundsfor placeor policywork some bestpractice them.Theannualnationalexaminationsareorganizedat limited stillin limitations the end of each level of education for the purposes of engagement progress certification and selection into the next stage of the  education system. Accountability to stakeholders is ALatentscoresignifiesthatthepolicybehindtheindicator “Emerging.”Regulationsareinplaceforcomplyingwith isnotyetinplaceor thatthereislimitedengagementin rules for financial and school operations. However, no developing the related education policy. An Emerging mandatesareestablishedtosimplifyandexplainresults score indicates that the policy in place reflects some of assessments to the general public, in order to hold good practice but that policy development is still in schools and the education system accountable for their progress.AnEstablishedscoreindicatesthattheprogram performancetoparents,communities,andthepublic. or policy reflects good practice and meets the minimum  standards, but limitations may exist in its content and scope.AnAdvancedscoreindicatesthattheprogramor policy reflects best practice and it can be considered on parwithinternationalstandards.  7 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   1. Autonomyintheplanningandmanagementof associations by the Ministry of Education. In addition, theschoolbudgetisemerging regulations in place allow the SMC and the AAER to Thispolicygoalfocusesonthedegreeofautonomythat establish partnership agreements with the private schoolshaveinplanningandmanagingtheirbudgets.To sector, nongovernmental organizations (NGOs) or any evaluate policy intent, the scoring rubric makes clear other association to supplement their financing needs. which areas should be backed by laws, regulations, These additional funds are managed directly by the and/or official rules in the public record. School schools or through the partners themselves. No wider autonomyintheplanningandmanagementoftheschool consultationisdonewithparentsandthecommunityon budget is considered desirable because it can increase preparation and execution of the operational budget the efficiency of financial resources, give schools more otherthanthroughtheSMCandAAERrepresentatives. flexibility in budget management, and give parents the  opportunitytohavemorevoiceonbudgetplanningand In Morocco, although the school principal initiates the execution. administrative process to adjust wages for teaching and  nonͲteaching staff (grade advancement, withdrawal of Althoughtheoperationalbudget8preparationprocessin days for absence, abandonment of post, etc.), all wageͲ Morocco takes into account the learning and related financial decisions are managed at the central administrative materials needs expressed by the School level. Salary scales for teaching and nonͲteaching staff Management Council (SMC) (according to Decree No. are defined by the Decree of the Public Service and the 2.02.376 of 17 July 2002, pertaining to the particular SpecialStatusofPersonneloftheEducationSector. legal status of public schools), legal authority for the  preparation and execution of the operational budget 1.Legalauthorityoverplanningandmanagementofthe schoolbudgetisEmerging rests with the regional level (Regional Academy for Indicator Score Justification Education and TrainingͲ AREF). In Morocco almost the Legalauthority Thelegalauthority entire operational budget for schools comes from the over Emerging overmanagementof government.AministerialnoteaddressedtoAREFsgives managementof €€{{ theoperationalbudget clear guidelines for the preparation of the operational theoperational  restswiththeregional budget according to which the AREFs send their budget budget level. proposals to the Ministry of National Education and Legalauthority NonͲteachingstaff Professional Training (MENFP) for review and overthe salariesaremanaged Latent endorsement prior to submitting it to the Ministry of managementof atcentrallevelbased nonͲteaching €{{{ onschooldirector Financeforvalidation.  staffsalaries administrativeacts. Decree 2.02.376 states that the schools define their Legalauthority Teachersalariesare operational requirements. The requirements or needs overthe managedatcentral managementof Latent levelbasedonschool arethentranslatedintoanoperatingbudgetbythelocal €{{{ teacher’s directoradministrative education authority (LEA) and sent to the AREFs. Since salaries acts. SMCs are not authorized to handle public funds, in Schoolshaveauthority parallel, Associations for Supporting School Success Legalauthority toraiseadditional (AAER)wereestablishedineachschooltoallowlocaland toraise Advanced funds,includingfrom additionalfunds €€€€ participatory budgetary and financial management and NGOs,privatesector, fortheschool to avoid the regulatory constraints of public finance. andothersources. They have legal authority to prepare and execute small Schoolsdefinetheir Collaborative Emerging operational budgets transferred from the AREF to manage school budgetplanning €€{{ development projects in close collaboration with the requirementsbutdo andpreparation  SMCs. They follow a procedural guide sent to these notproposeabudget.  8Operationalbudgetisdefinedasbudgettransferredthroughgovernment channelsforthedayͲtoͲdayoperationofschoolsexcludingsalariesfor teachersandnonͲteachingstaffandcapitalcostlikeschoolconstruction.  8 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   2. Schoolautonomyinpersonnelmanagementis School principals are appointed through a selection emerging process outlined in the Ministerial directive of the This policy goal measures policy intent in the Movement of Personnel. For the primary level, management of school personnel, which includes the candidates must be primary school teachers and for the principal, teachers, and nonͲteaching staff. Appointing secondary level candidates must be school anddeployingprincipalsandteacherscanbecentralized administrativestaffwhousedtobeteachers. at the level of the Ministry of Education or it can be the  responsibility of regional or municipal governments. In The initial selection is made by ranking the candidates decentralizededucationsystemsschoolshaveautonomy automatically at the central level according to criteria in teacher hiring and firing decisions. Budgetary including seniority in the position, an aptitude score autonomy includes giving schools responsibility for (attendance, organizational skills, etc.), the last negotiating and setting the salaries of its teaching and inspection evaluation of teaching skills, university nonͲteaching staff and using monetary and nonͲ degree,andseniorityinthelatterschool.ThentheAREFs monetary bonuses as rewards for good performance. In organize interviews for the top five candidates on the centralized systems, teachers are paid directly by the basisoftheirCVandawritteneducationalprojectoffour Ministry of Education or the Ministry of Finance under to six pages about the candidate’s vision of school union or civil service agreements. As a result, in management.Thevacantpositionisthenassignedbythe centralized systems schools have less influence over director of AREF to the selected candidate. New teacher performance because they have no financial applicants are confirmed in their posts by AREF after leverage over teachers. Inversely, if a school negotiates having successfully completed training sessions during teachers’salaries,asprivateschoolsroutinelydo,itmay their first year (a total of 150 hours) in various areas, be able to motivate teachers directly with rewards for a including but not limited to: pedagogy, administrative jobwelldone. and financial management; development of work plans  and school projects; processes of school census and InMorocco,allmanagerialdecisionsaboutteachingand school mapping; evaluation and learning support; nonͲteachingstaffthatimpactthebudget,andtherefore communication and facilitation of cultural and social the Ministry of Finance, remain under centralized events; and management of cooperation and control. This includes recruitment, grade to grade partnership programs. In 2014 the Ministry began a promotion, and retirement. Each year the Ministry of training program for 110 future school managers for a Finance allocates a number of vacant posts to various periodofsixmonthsattheregionaltrainingcenters.This sectors including Education. Recruitments are made isapilottrainingthatallowscandidatestobeevaluated under the auspices of the Public Service and the Special on their skills before being formally offered a post. The StatusofPersonneloftheEducationSector.TheMENFP training graduates will be favored in the allocation of proceeds to recruit at central level to fill the vacant newvacanciesforschoolprincipals. positions and assign new teachers to AREFs for their  deployment. Deployment decisions about newly Schoolprincipalsareevaluatedbytheirsupervisoratthe recruitedteachersare madeafter currentteaching staff LEA. The director of AREF has the right to suspend a have been redeployed or transferred within the school principal following the evaluation by the LEA, or educationsystemaccordingtotheneedsidentifiedbyan followinganauditcommissionedbytheDirectorofAREF annual school mapping process. Teachers’ promotion in or by the central service. But the final suspension is the steps within grades is based on a combination of the responsibilityoftheMinister. evaluation of the district inspectors and principals while   their promotion to a higher grade is subject to an examination or seniority. Staff unions are consulted in the development of the criteria for transfer and deployment.   9 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   2. School autonomy in personnel management is school principal, several teachers representing all levels Emerging and all disciplines in the school, a representative from Indicator Score Justification the administrative and technical staff, two student Autonomyin Initialrecruitmentof representatives (only for high schools), the president of teacher Emerging teachersismadeat the association of parents, and a representative of the appointmentand €€{{ centrallevelbythe local elected bodies (such as the mayor’s office or a deployment  MENFPand locally elected district official). Teachers are the most decisions deploymentbyAREFs. heavilyrepresentedgroupontheSMC,whichcanleadto AutonomyinnonͲ RecruitmentofnonͲ animbalanceofstakeholderviews.Theyalsomaynotbe teachingstaff Emerging teachingstaffismade servingon theSMCastrulyelectedrepresentatives. For appointmentand €€{{ atcentrallevelbythe example, if a teacher is the only faculty at the school deployment  MENFPand decisions deploymentbyAREFs. teaching a particular subject, then they are nominated Appointmentof automatically to be on the SMC regardless of whether Autonomyin theyareinterestedinservingornot. schoolprincipalsis schoolprincipal  appointmentand Established madeatregionallevel €€€{ andtheirevaluation TheSMC’srolesandresponsibilitiesconsistofsettingthe deployment belongstothelocal school’s internal rules and regulations (dress code, decisions. level. sanctions for students’ late arrival and absence,  communication with parents, etc.); providing advice on partnershipprojects;identifyingtheschool’soperational 3. Participation of the School Council in school needs;andvalidating the school’sannualreport.It has, governanceisemerging however, no authority on administrative and financial Participation of the School/Parent Council in school managementoversight,nolegalrightorvoiceonteacher administration is very important because it enables appointment, transfer and removal, or on matters of parents to exercise their real power as clients of the learninginputs. educationsystem.Ifthecouncilhastocosignpayments,  it automatically has purchasing power. The use of a A Procedural Guide for the use of Areas of Public detailed operational manual is extremely important in Institutions of Education and Training establishes the thisarea,sinceitallowscouncil memberstoadequately conditions for participation of external parties in school monitor school management performance, help the activitiesthroughpartnershipconventions. principalwithcashflowdecisions,andbecomeacatalyst  for seeking additional funds from the community. The The SMC’s members are elected for a period of three useofsuchmanualsbytheSchoolCouncilisthusagood years through direct and confidential elections. All staff vehicle for promoting increased accountability and from the institution are called to nominate their institutionalizingautonomy. representatives.Thelistofcandidatesiscompiledbythe  school principal and displayed one week before the Itisimportanttonotethatchangemanagementstudies electiondate.Acommissionisformedimmediatelyafter also have provided evidence that bringing stakeholders the election consisting of the school principal and two together to plan and implement meaningful activities membersoftheelectorate(theoldestandtheyoungest) also contributes to behavioral change in institutions, for counting the votes, and minutes are taken reporting including schools. Collective school planning activities ontheresultsofthevote. canprovideamutualvisionandsharedaccountabilityof  what parents and school staff can commit in terms of AccordingtoDecreeNo.2.02.376,theSMCshouldmeet support to the school. These processes provide an atleasttwiceayear,atthebeginningoftheschoolyear enablingenvironmentforbettergovernance. to review the plan of school activities prepared by the  other school councils (Subject Council, Class Council, In Morocco the SMC is established by Decree No. Pedagogic Council), and at the end of the year to 2.02.376 of 17 July 2002 pertaining to particular legal examine achievements and identify needs for the status of public schools. The SMC is composed of the following year. No guidelines are set up for calling  10 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   general assemblies with the whole school community, implementation, monitoring and evaluation of school leaving no avenue for further communication with the projects; complementarity and coherence of these communityatlarge. projects within the same school area; sharing school  management experiences; coordination and 3. Role of the School Council in School Governance collaboration around partnerships; and optimization of isEmerging administrativesupportefforts. Indicator Score Justification  Theschoolcouncil Participationof participatesinthe 4. Assessment of school and student theSchool Emerging identificationofthe performanceisemerging. Councilin €€{{ school’soperational budget  School assessments can have a big impact on school needsbutdoesnot preparation performance because it encourages parents and preparethebudget. teachers to agree on scoring rules regarding school TheSMChasauthority tocarryoutvalidation performanceandwaystokeeptrackofthem.Measuring oftheannualreport, student assessment is another important way to Participationin Emerging butnooversighton determineifaschooliseffectiveinimprovinglearning.A financial €€{{ budgetissues, key aspect of school autonomy is the regular oversight.  administrative,and measurement of student learning, with the intent of financialmanagement using the results to inform parents and society and to activities. make adjustments to managerial and pedagogical TheSMCshasnolegal practices. Without a regular assessment of learning Participationin rightorvoiceon outcomes, school accountability is reduced and Personnel Latent mattersofteacher €{{{ improvingeducationqualitybecomeslesscertain. Management appointment,transfers andremovals.  ThereisaProcedural Moroccan schools are not assessed following officially Community Guidelinestatingthe established performance evaluation criteria. Irregular participationin Established conditionsforexternal school inspections are conducted by the National or schoolactivities €€€{ parties’participation Regional Education Inspectorates of the MENFP to toschoolactivities. evaluate the principal’s compliance with the Ministerial Thereisnolegalright directives. School performance is not assessed in terms Community participationin Latent orvoiceforSMCson ofeducationaloutcomes.Schools’learningoutcomesare learninginputs €{{{ mattersoflearning onlyindirectlyevaluatedthroughthesystemfornational inputs. studentassessments.NopolicyisinplaceforschoolselfͲ Thereisaministerial notestatingelection evaluation, and inspection results from the district are Transparencyin proceduresof not a key contributor to pedagogical, personnel, or Community Established membersofSMC,but operational adjustments to improve the learning Participation €€€{ noguidelinesfor environment. callingwidegeneral  assemblies. Student performance is evaluated through two sets of  examinations:compulsoryannualnationalexaminations MoroccohascreatedaCollectiveofProfessionalPractice at the end of primary, lower and upper secondary; and (CPP), a consultative body composed of principals from optional prerequisite examinations at the beginning of the same school area, for sharing resources and each school year for selected grades. Annual national examples of best practice.  The goal of the CPPs is to examinations at the end of each cycle (primary, lower create a supportive and collaborative professional and upper secondary) are organized for the purposes of learning environment for school principals through certificationandselectionforfurtherlevelsofeducation. networking.Areasofparticularfocusinclude:ownership TheNationalExaminationsandEvaluationCentre(CNEE) of methods and tools for the preparation, conducts an analysis of the national exams results and  11 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   compares institutions according to their performance. amongstudentsatthebeginningoftheschoolyear.The Theresultsofthisanalysisareforinternalusewithinthe prerequisiteexamscanbeconductedatgrades2,5,7,9, Ministry only and are not made available to schools, and10,subjecttoavailabilityoffinancialresources.The teachers, parents or communities. A National results of prerequisite tests are analyzed by teachers at Programme for Student Assessment (PNEA) was theschoollevel. launched in 2008 by the National Authority for  Evaluation (INE) in collaboration with CNEE.  It was No policy obligates schools to use the results of the implemented just once in 2008 at grades 4, 5, 7, and 8 national exams or the prerequisite exams to make and assessed students’ performance in mathematics, pedagogical, operational, and personnel adjustments. science, Arabic, and French.  A plan is in place to However, the Ministerial note introducing the administertheassessmentforasecondtimein2016. assessment of learning prerequisites does encourage  teacherstousetheresultstoplanfortheircourses,and 4.SchoolandstudentassessmentisLatent itencouragespedagogicalinspectorsatthelocallevelto Indicator Score Justification provide technical and pedagogical support to teachers Schoolsarenot basedontheoutcomesoftheseassessments.Theschool Existenceand assessedfollowing principal also is asked to present a report on the results frequencyof Latent officiallyestablished school €{{{ of the prerequisite tests to the SMC and to inform performance parentsaboutgapsintheirchildren’slearning. assessments evaluationcriteria. Useofschool Thereisnoschool  assessmentsfor Latent assessment. makingschool €{{{ 5. School accountability to stakeholders is adjustments emerging Standardizedlearning prerequisite Accountability is at the heart of schoolͲbased assessmentpackages management. The systemic connection between Existenceand existforgrades2,5,7, budgetary and personnel autonomy, parent frequencyof Emerging 9,and10butarenot participationinthefinancialandoperationalaspectsofa standardized €€{{ obligatoryorfunded. school, and the measurement of learning outcomes are student  Annualnational all aimed to reinforce accountability. Only by being assessments examinationsare accountable to parents can educational quality be organizedattheend sustainable. The following indicators address aspects of ofeachlevelof accountability that can be implemented within the education. frameworkofschoolͲbasedmanagement. Aministerialnote Useof  requeststeachersto standardized Guidelines exist to support teachers in using the results usetheresultsofthe student Emerging assessmentof oftheprerequisiteteststoinformteachingandlearning. assessmentsfor pedagogical, €€{{ learningprerequisites The standardized learning prerequisite assessment is  toplanfortheir accompanied by a package of guidelines consisting of a operational,and coursesbutthetests test administration guide, a user guide, and a teacher’s personnel andtheirusearenot guide. The teacher’s guide provides teachers with adjustments obligatory. practicalexamplesaboutpotentialwaysofexploitingthe Theschoolprincipalis assessment results. However, no guidelines are in place Publicationof Emerging askedtoinform student €€{{ parentsonthe todemandaccountabilityfortheirapplication. assessments  learninggapsoftheir  children. TheDirectorateofEvaluation,throughtheCNEE,hasthe  mandate for the development of methods and tools for In 2009, standardized learning prerequisite assessment the evaluation of education and training units. No packages (tests and user guides) were developed to comparative analysis is done for the standardized enable schools and AREFs to identify learning gaps learning prerequisite assessment. However, the CNEE  12 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   analyzesnationalexams(baccalaureate)resultsdrawing 5.AccountabilitytostakeholdersisEmerging comparisonsbetweenregions,localities,andschools.No Indicator Score Justification feedback is provided to schools for improving learning. Guidelinesfor Thestandardized Onlybasicresults(volumeofsuccessesandfailures)and theuseof learningprerequisite resultsof Established assessmentintroduced examination scores are communicated to students and student €€€{ in2009isaccompanied parents.  assessments byaguidelinespackage. All acts of public finances are subject to the Regulations Nocomparativeanalysis isdoneforthe of Public Accounting according to Decree No. 330Ͳ66 of standardizedlearning 21 April 1967, whether at the central, regional, local or Analysisof schooland Emerging prerequisiteassessment. schoollevel.Allcivilservantsmanagingfundsaresubject €€{{ Howevernationalexams to financial control by their supervisors, the General student  resultsareanalyzed InspectorateoftheMENFPandtheGeneralInspectorate performance drawingcomparisons of Finance. An automatized monitoring of spending is betweenregions, operated through SIBͲAREF (budget information system localitiesandschools. forAREFs)bytheMENFP.However,noclearregulations Degreeof Regulationsfor are in place for linking rewards and sanctions to financial complyingwithrulesof compliance. accountability Established financialmanagement  atthecentral, €€€{ areinplaceateachlevel regional,and ofeducationsystem. Schoolshaveanobligationtoimplementtheinstructions schoollevel in the Ministerial Notes Concerning the Preparation of Regulationsfor the School Year with regard to the school calendar, Degreeof complyingwiththerules school councils, inspector activities, and exams. In accountability Established ofschooloperationsare addition, the MENFP has recently introduced a new inschool €€€{ inplace,butdonotlink operations online school information management tool "MASSAR" rewardstoperformance. that supports the governance and transparency of Therearenomandates Degreeof schools. MASSAR also allows parents to monitor their learning Latent tosimplifyandexplain children’s school life (class schedules, scores, and accountability €{{{ resultsofassessments attendance) using a personal login and password. So far tothegeneralpublic. onlyparentsofhighschoolstudentshaveaccesstotheir  children’s information. Incremental elements are  gradually incorporated each year to the system. No IV.Enhancingeducationquality:Policy incentivesareinplaceforbestperformingschools.  recommendationsforMorocco In Morocco the MENFP has the legal authority to  determine the content of the curriculum, but the Local The interrelations between autonomy, assessment, and Education Authority has a degree of flexibility in the accountability can be compared to a “closedͲloop selectionoftextbooksto be usedineachschool,froma system,” or one in which feedback constantly informs list of books approved by the central scientific output.InaclosedͲloopsystem,allelementsinbalance committee.Nomandatesareestablishedtosimplifyand are critical to achieving success. In this regard, schoolͲ explainresultsofassessmentstothegeneralpublic. based management can achieve closure of the loop  (balance) when it allows enough autonomy to make  informed decisions, evaluate its results and use that  information to hold someone accountable (Demas and  Arcia2015).    Regionalizationisatoppriorityinthepoliticalagendafor  Morocco.Morepowerhasbeenprovidedtotheregions  which have been consolidated from 16 to 12. For  13 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   education,itisclearfromthebenchmarkingsection,that AAERshavesomeauthoritytomanageasmallamountof Morocco madesomeprogressintheimplementationof budget. This has been effective in allowing schools to its decentralization strategy by transferring most of the quicklyaddresslowͲcost,essentialexpenditureswithout operational budget management and personnel waiting for funds to be approved and disbursed by deployment to the regional level, establishing rules and regional or central authorities. Expanding this model guidelines for supporting school management with the couldallowschoolstorespondquicklytoevolvingneeds creation of the SMC, AAER, and the CPP, as well as unique to their community and to implement lowͲcost introducing evaluation and accountability mechanisms school improvement projects within weeks or months, through developing prerequisite tests and the MASSAR ratherthanwaitingforthenextacademicyeartobegin. program.  Box3:PerCapitaFormulaFinancingofSchools  Autonomy in the management of the budget at the school level is beneficial for school operations and for accountability since funds can be allocated to relevant areas in need and monitored by local stakeholders. There are several ways for funds to be transferred to schools. Formula financing can be especially useful in addressing inequities. Formulas can be simple or complex andtherearebenefitstoboth.Asimpleformulaallowsfortransparencyandeasiermonitoring.Amorecomplexformulaprovides the opportunity to address multiple inequities (rural and urban, gender, socioeconomic, geographic, and so on) and provide incentives,butmaymakeitlessclearhowmuchtherecipientshouldbereceiving.  Formula financing has been used across Eastern Europe and Central Asia (ECA). In the last 20 years several countries changed theirschoolbudgetallocationprocessfrominputͲbasedornormativefunding,toformulafundingforschools.Theintentwasto improveefficiency,equity,transparencyandaccountabilityofpubliceducationexpenditures.Perstudentfundingallowscentral governmentstoensureaminimumlevelofeducationfinancinginalljurisdictions.Formulascanvaryinthedegreetowhichthey cover the school budget. In Armenia and Georgia, they cover all recurrent costs but no capital expenditures. In several ECA countries,thecentralgovernmentusesaformulathatyieldsaperstudentallocationtotheregions.Inturn,regionalgovernments used their own funds to top off allocations to schools depending on the size of its revenues. To improve equity, a few local governments in Poland adjusted the formula for per student funding across their own schools in order to mitigate differences amongschoolswithintheirterritories.  Accountabilityandtransparencydependontheprocessbywhichthegovernmentdeterminesschoolbudgetsandmakespublic therelevantdataforallstakeholders.InMorocco,theexistingMASSARsystemcouldbeusedtopublicizestudentenrolmentdata amongothersfortwoͲwayaccountability.Thiscouldincreasepredictabilityofoperatingcostfundingflowsforschoolsandtheir communitiesandreducetheriskoffundingghoststudents. Source:AlonsoandSanchez2011.   To ensure better learning outcomes through schoolͲ This could be implemented in a range of ways. One based management with accountability, Morocco could possibility is to strengthen the role of the SMCs and strengthen its SBM policies in a few key areas. Specific AAERstoincorporatebudgetpreparationandexecution measuresshouldbetakenvisͲàͲvisthelocalauthorityto as part of their responsibilities. This would require plan and manage school budgets, the composition and clarifying the respective roles and responsibilities of functions of the School Management Council, SMCs and AAERs with regard to financial management, participation of school communities, and school and defining a process of collaboration. SMCs should evaluationanduseoftheresultstoimprovelearning. have some authority to plan and budget their projected  operatingcosts.Asecondalternativeistostrengthenthe 1. Autonomy over planning and management of the CPPs and mandate collaboration between the CPPs and schoolbudget.Theoperationalbudgetismanagedatthe the LEAs to inform annual budget preparation and to regional level. To allow for closer and more efficient monitorbudgetexecution.Athirdoptionistocombine management of the budget against the actual needs of thesetwoapproachesbydesignatingtheSMCandAAER schools,theMENFPmaywishtodelegatesomeauthority asthecorefinancialmanagementteamforeachschool, for budget management to the school level. Currently supported by the CPPs where appropriate.  14 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   Operationalizing any of these three approaches would HandͲinͲhand with strengthening the school level’s facilitate a more efficient and transparent use of funds, authority to plan and execute operating budget is the tailoredtoeachschoolcommunityanditsuniqueneeds. actual transfer of operating funds to the school. Per  capita formula financing is one method that can be effective(seeBox3). Salaries is another area of the budget. In Morocco  responsibilityforsalariesremainshighlycentralizedwith Since the initial appointment, training and evaluation of wagesandpayscalesforteachersandnonͲteachingstaff school directors is fairly well established, the Ministry setbythecentralMENFPwithinthePublicService.While may want to turn its attention to ensuring a quality thisarrangementisnotlikelytobedecentralizedwithout process for training school director candidates. The majorsystemchanges,itisrecommendedthattheAREFs current six month pilot initiative for training 110 school play a role. The AREFs are well placed to understand director candidates should be evaluated and specific regional needs. Using wellͲdefined criteria, communicated to local stakeholders for their feedback established at the central level, AREFs could be given before the institutionalization of the new selection legal and budgetary responsibility to implement special processoffutureschoolprincipals.TheroleofCPPshere remuneration packages as incentives for teaching and is also important in the interview process for selecting nonͲteaching staff working in challenging areas. This newdirectors,theirworkplacetraining,andcoaching. could encourage experienced teachers to apply for  vacantpostsinremoteareasorsuburbs,wherelearning 3.RoleofSchoolCommitteeinSchoolGovernance outcomes are low. A better distribution of qualified and  wellͲexperienced teachers could also help address Morocco has established school governance policies to equitableaccesstoqualityeducationforall. facilitate community participation in school  management through the SMC and AAER. Their roles 2.Autonomyinpersonnelmanagement needtobestrengthenedtomakeSMCsandAAERsmore  effective in their contribution to schoolͲbased The Moroccan context does not allow schools to have managementandschoolimprovement. legalauthorityovertheappointmentsandmanagement  of teachers and principals. New hires of teaching and One challenge for school governance is that the nonͲteaching staff are made at the central level. composition of the SMC does not currently allow for However, significant powers are given to the AREFs to balanced representation or effective participation of all determine the local needs for teachers through a stakeholdergroupsinschoolmanagement.Themajority planning exercise and to manage their deployment. As of the SMC members are school staff, mainly teachers. stipulated by the National Charter for Education and Furthermore,althoughteachersarethedominantgroup, Training and to ensure the hiring of teaching and nonͲ manywhoarenominatedaredisinterestedinservingon teachingstaffwiththeappropriateknowledgeandskills the committee. It is recommended to revise both the to benefit their region, it is recommended that legal guidelines for SMC composition and the election authorityforrecruitmentbetransferredtotheAREFs. procedurestoserveasanSMCmember,andtoimprove  the election criteria of the SMC members in order to The National Education and Training Charter allow for balanced representation among the school acknowledges the role that schools play in communities stakeholders at least half of them representing the and advocates for a participatory management community stakeholders in order to avoid election of approach. It also recognizes school heads as agents of disinterestedpartiesandensureamorebalancedviewin change.Thereisasmalldegreeofdecentralizationinthe theschoolmanagement(seeBox4). hiringofschooldirectorsinMorocco,withresponsibility  for the appointment and training of school directors The creation of a school development plan (contains resting with the AREFs. The performance evaluation of school projects) is a good opportunity to involve school principals is devolved to their immediate communities together with the school administration in supervisor who is the MENFP delegate within the Local themanagementoftheirschool.Thistypeofplanallows EducationAuthority. a better understanding of how the school operates and  15 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   increases interest and awareness on how it is managed. engagementandimprovement,theapprovalprocessfor The school development plan is a way to forge the school projects identified by the SMC should be identityoftheinstitution,setitsgoalsforbetterlearning simplified to enable the SMC to implement their outcomes, and assert its independence. To strengthen decisions.Finally,iftheSMCistrulyassistinginmanaging this independence, the legal framework defining the the school, it would need to meet on a regular and SMCshouldprovideitwithmoredecisionͲmakingpower, frequent basis to monitor school activities and evaluate particularly with regard to defining its goals, the schoolandteacherperformance. selection and implementation of school projects with  monitorableindicatorsandclearaccountabilitycriteria.  Box4.CreatingEffectiveSchoolManagementCommittees:CountryExamples  School Management Committees have the potential to improve student learning and school quality when they engage in the rightkindsofactivities.TheCenterforPublicEducationidentifiesfivecharacteristicsassociatedwitheffectiveSMCs. x Focus on Student Achievement. Effective SMCs understand that student learning is the priority, and they focus their SchoolImprovementPlansandactivitiesongoalsthathelpimprovethequalityofeducationandlearningoutcomesof childreninschool. x Allocate resources to needs. These SMCs allocateavailableresources from school grants and their operating budget to focusontheirstudentͲlearningpriorities. x Are mindful of their own accountability to the community. Effective SMCs routinely and regularly measure and report thereturnoninvestmentoftheeducationdollarstheyspend. x Use data whenever possible. Effective SMCs track all available data about their schools through school report cards, studentassessmentscores,budgetdata,andanyotherdataavailableandmakethisinformationavailabletotheparents andcommunitiestheyserve. x Engagethecommunitiestheyserve.EffectiveSMCsinstitutionalizeparentandcommunityinvolvementinpolicyͲmaking andsettinggoalsfortheschool(WardandGriffinJr2005).  CompositionofSMCsinIndonesia.SMCsinIndonesiaareactivewithregularmeetingsthroughouttheyear,andtheiractivities havebeenseentocorrelatewithimprovedstudentlearningoutcomes,especiallywhentheSMCcoordinateswiththelocalvillage councilanddemocraticallyelectsitsmembers(Pradhanetal.2011).A2002MinisterialDecreerequiresthateachSMChaveat least 9 members, and thesemembers must include representatives from parents,community leaders, educationprofessionals, the private sector, teachers, communityͲbased organizations, and village officials. The degree further requires that SMCs encouragealargerroleforthecommunityandthattheyseektoaccommodatetheaspirationsofthecommunityintheiractivities (WorldBank2011).  TargetedSMCTrainingandImprovedStudentLearninginMexico.TargetedtrainingforparentsandtheSMConestablishing learninggoalsfortheschoolcanbeeffectiveforimprovingstudentlearning.ThroughMexico’sPECProgram(QualitySchools Program),parentsplayakeyroleinthecompositionandmanagementofSMCs.PECprovidedtargetedtrainingtoSMCson howtoimprovelearningoutcomesintheirschools.Thisputstheschoolcommunity’sfocusonlearningandallowsthemto bettersupporttheteachingandlearningeffortsoftheprincipalandteachersattheschool(Wangetal2015).Increasingthe responsibilityofparentsbyinvolvingtheminthemanagementofschoolgrants,madethemostdifferenceinlowering repetitionandfailureratesincomparisontocontrolschools(SkoufiasandShapiro2006;Gertleretal.2006).Targetedtraining toparentsinSchoolImprovementPlanning(SIP)andmonitoringalsosignificantlyincreasedlanguageandmathscores(LopezͲ CalvaandEspinosa2006;Arcia,Kattan,PatrinosandRiveraͲOlvera2013).   WellͲdeveloped and clear guidelines on the role and EnhancingtheperformanceofSMCswouldnotonlylead functions of the SMC in schoolͲlevel decisions also will to school improvement but also could facilitate the contribute to greater participation. The SMC members effective implementation of existing government will have more incentive to get involved in school policies.Forexample,theNationalCharterforEducation management if their contribution is truly impacting and Training stipulates that 15 percent of curriculum school improvement. To foster this attitude of should be determined at the local level. Reforming the  16 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   current SMC structure would enable the SMC to local management of quality should be promoted, implement this policy in an informed and effective through standardised school performance and school manner. selfͲevaluation, in order to guide allocation of human  andfinancialresources,betterschoolmanagement,and AspartoftheSMCstrengtheningitshouldbemandated pedagogical practices at the school level. Measures of that SMCs organize a public general assembly with the "value added" of schools performance, developed over widerschoolcommunityatleasttwiceayear,onceatthe the past decade, are representative of this approach beginningtopresenttheschooldevelopmentplanandat (Jarousse2011).Theyconstitutethebasisofareflection the end of the year to present the outcomes of the on the factors that explain differences in performance schoolperformanceandrequestfeedback. betweenschools.Theresultscanbethestartingpointof  collectivereflectionontheworkdoneortobedoneand Beyond the school, significant efforts are required to pedagogical, operational and personnel changes or improvethelevelofparticipationoflocalstakeholdersin reinforcements that need to be taken across individual schoolgovernance.Proactivemeasuresshouldbe taken schools,CPPs,andregions. toencourageandmotivatetheschoolcommunityandto engage actively in the school’s mission. To assist these Box5:Whyconductschoolassessments? efforts, education departments and civil society  organizations should be encouraged to undertake x ToprovideInformationonhowschoolsaremanaged, howmuchtheycost,andwhattheyproduce. nationalcampaignstoenhancetheawarenessoftherole x To strengthen accountability mechanisms that set of parents in monitoring school performance, including goalsandholdstudents,parents,teachers,principals financeandresourcesmanagement. andministriesresponsibleforresults.  x To bolster awareness and demand for quality.  Becauseeducationstakeholdersareoftenunawareof 4.EnhancingSchoolandStudentAssessment problems and are not used to playing a direct role in  improving learning, they seldom hold schools No formal criteria are in place to evaluate the accountableorpushforimprovements. performanceofschoolsandnocomparativeanalyseson x To create a shared vision.  Although most countries students’ standardized tests and consequently no feedͲ have a national curriculum, few have identified what backisprovidedtoschoolsinordertoimprovelearning. constitutesacceptable/unacceptableperformanceor Current approaches to the evaluation of school success make clear provisions for the resources needed to reachgoals. focus exclusively on test scores obtained in national x To determine what actions may need to be taken to examinations, and do not provide information about a improveperformance. school’s strengths or weaknesses, or how to improve. Source:OrtegaͲGoodspeed2006 Sincemanyfactorsplayacriticalroleintheadvancement of student performance and achievement, a school  assessmentsystemshouldbedevelopedtoreflect this.9 As a first step, schools could selfͲevaluate using criteria Accurate school assessment would guide appropriate from the central authorities on a range of school allocation of human and financial resources, facilitate practices to assess their own quality. Eventually, school better school management, and foster more effective assessment practices could evolve into regular internal pedagogical practices at the school level, leading to (school selfͲevaluation) and/or external assessment of improvedlearningoutcomesforstudents(seeBox5). school performance (the Regional Education  Inspectorate or district level carries out school Itisrecommendedthatregularschoolassessmentacross assessment) accompanied by written recommendations theeducationsystembemandatedandanationalschool foroperationalandpedagogicaladjustments.Theresults evaluation and inspection system10capable of ensuring of the school selfͲevaluation could take the form of a  9Manyformsofschoolassessmentsexist,suchasschoolinspection,teacher anduseofyearlyassessmentofteachersandstudentstoevaluateschool observationandappraisal,schoolselfͲevaluationorownqualityassurance, performanceandtakeactiontoimprove. 10Assessingbothqualityofschoolperformanceandcompliancewith schoolreportcards,andtestͲbasedranking.Whiletheytakemanyforms, theyshoulddealwithtwomainissues:integrityoftheassessmentprocess regulations.  17 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   simple school report and feed into an annual school localeducationauthorityaswellasthewidercommunity report card compiled by the SMC and shared with the (seeBox6).   Box6:SchoolReportCards  School report cards can be an effective tool for monitoring and communication at the school level and beyond if they are kept simple and direct, and if there is capacity to use them. School report cards can be a useful method for disseminating informationtoschoolͲlevelstakeholderssothattheycanbetterunderstandthefollowing: x Thecriteriaforassessingperformance. x Theperformanceoftheschoolfromyeartoyearandinrelationtootherschoolsintheeducationsystem. x Theactionsthatmayneedtobetakentoimproveperformance. Usedinthisway,schoolreportcardsengageparentsandthecommunity,andbuildapartnershipindemandforbetterresults andsolutionsforreachingtheintendedoutcomes.  ParanáStateinBrazilundertookanaccountabilityprogramandcollectedschoolͲlevelinformationforeachschooltogenerate individual school report cards. The stated goals of the initiative were to increase parental knowledge about the quality of instruction in schools, and to raise parents’ voice in school matters at the school council and state levels. The initiative also aimed to increase awareness among school personnel about their schools’ instructional quality and academic performance. ThereportcardswererelativelysimplethreeͲpagedocumentswhichincludedthefollowinginformation: x TestͲbasedperformance(4thand8thgradetestscores) x Studentflows(promotion,retentionanddropoutrates) x Schoolcharacteristics(averageclasssizeandteachers’qualifications) x Parental opinion and satisfaction with several aspects of the school (facilities, security, teaching practices, quality of education,andparentalinvolvement) x Parental opinion on the availability of information on school performance and activities (Bruns, Filmer and Patrinos 2011). The report cards also included comparative information on the performance of neighboring schools. The report cards were published in a newsletter and widely disseminated. Parents and communities were easily able to access them, and engage in discussionswithteachersandschoolofficialsabouthowtheymightimprovethequalityoftheirschools.  Sources:Wangetal2015;Brunsetal2011.   Incontrasttoschoolassessment,whicharenotcurrently school principal to present an annual report on the mandated, student assessments are in place, although resultsoftheprerequisiteteststotheSMCandtoinform they are not systematically used to improve student theparentsaboutgapsintheirchildren’slearning. learning. No comparative analyses are conducted on  students’ standardized tests, and no feedback is Furthermore, tracking school quality over time requires providedtoschoolstoenablethemtoimprovelearning. data about students’ learning performance at the The prerequisite exams are designed to inform entrance and at the end of the given education level. pedagogicalpractice,buttheyarenotmandated. Student learning outcomes should be tracked more  systematically, using already established mechanisms It is recommended that the MENFP upgrade the such as MASSAR. Currently, student learning ministerial note on the assessment of learning performance at the entrance and at the end of lower prerequisites to a policy with some dedicated funding secondary and high school are available through the that obligates schools to administer the prerequisite national exams at the end of primary, end of lower tests regularly and to use the results to make changes. secondary,andendofuppersecondary(baccalaureate). The MENFP should strengthen policies to require the However, little is known about student learning  18 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   performancethatiscomparativeacrossprimaryschools school, especially for rural and less sophisticated becausenostandardizedexamisgivenbeforetheendof communities that do not have easy access to the primary education. As part of its longer term planning, internet. the MENFP should consider establishing a standardized Improvement in policies related to the school and learningassessmentforthemasteryofreadingandmath studentevaluationwillprovidemoreaccountabilitytools atanappropriategradeofprimaryeducationasaninitial andanalysisthatshouldbesharedwithallstakeholders, referencefortheschoolevaluationatthislevel. AREF, LEA, schools, and parents. Making public policies  that link rewards and sanctions to operating  performancewillencourageschoolstoperformbetter. 5.FosterAccountabilitytoStakeholders    Waystoincreasevoice,transparency,andaccountability includesomeinnovativetoolssuchaspublicexpenditure tracking, school report cards, community monitoring, andsocialaudits(GaventaandMcGee2013).Tosupport financial and operational accountability, Morocco has fairly well developed regulations in place for financial management compliance at each level of the education systemandclearregulationsforcomplyingwiththerules of school operations. Accountability weaknesses, however, are much more prominent when it comes to communicating information to local stakeholders about school and student performance, analyzing that information, and enabling stakeholders to use the informationtorequestimprovementsortobemotivated bytheprogressthattheyareachieving.  Tocomplement theintroductionofschoolassessments, itisrecommendedthattheMENFPestablishapolicyfor packaging and disseminating the information for school level stakeholders. Some countries have introduced school report cards or school selfͲevaluations for this purpose. Often the country’s education management informationsystempullsrelevantdatatoinformpartsof thereportcards.TheMASSARprogramisadatabasethat couldbebetterdevelopedwithimproveddissemination of information on students’ achievement and other learning inputs to hold the school accountable for increases in learning outcomes and allow greater monitoring by parents and the school community. The information could also allow for the introduction of remedies and consequences for poor performance. Additionally,developingandupdatingaschoolwebpage displayingschoolrulesandregulations,activities,school projects,monitoringandevaluation,wouldbeagenuine bridgelinkingtheschooltoitscommunity.RadioandTV programs and faceͲtoͲface general assemblies with the school community are other venues through which to disseminate key messages to parentsabout their child’s  19 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   Acknowledgements TIMSS TrendsinInternationalMathematicsand ScienceStudy ThisreportwaspreparedbySaidBelkachla(Consultant), with Angela Demas (Senior Education Specialist, Human References Development Network, World Bank). Wenna Ross Price andClarkMatthewsalsocontributedtothedatareview Alonso,JuanDiegoandA.Sánchez.Eds.2011.Reforming and drafts. 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Décentralisation et déconcentration dans Selected Countries A Study of Decentralization and lesecteurdel’EducationetFormation.July.Rabat. SchoolͲBased Management for the Republic of Yemen” ———. 2014a. Rapport de l’Education pour Tous 2013– WashingtonDC:WorldBank. 2015.July.Rabat.  21 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015   Ward, Carter, and Arthur Griffin Jr. 2005. “Five Characteristics of an Effective School Board.” Center for PublicEducation, http://www.centerforpubliceducation.org/YouͲMayͲAlsoͲBeͲ InterestedͲInͲlandingͲpageͲlevel/AllͲinͲFavorͲYMABI/FiveͲ characteristicsͲofͲanͲeffectiveͲschoolͲboard.html.  World Bank. 2011. “Enhancing SchoolͲBased Management in Indonesia.” Policy Brief 60457. WashingtonDC:WorldBank.    22 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS MOROCCOۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2015    www.worldbank.org/education/saber  The Systems Approach for Better Education Results (SABER) initiative collects data on the policies and institutions of education systems around the world and benchmarks them against practices associated with student learning. SABER aims to give all parties with a stake in educational results—from students, administrators, teachers, and parents to policymakers and business people—an accessible, detailed, objective snapshot of how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of School Autonomy and Accountability. ThisworkisaproductofthestaffofTheWorldBankwithexternalcontributions.Thefindings,interpretations,andconclusionsexpressedinthis workdonotnecessarilyreflecttheviewsofTheWorldBank,itsBoardofExecutiveDirectors,orthegovernmentstheyrepresent.TheWorldBank doesnotguaranteetheaccuracyofthedataincludedinthiswork.Theboundaries,colors,denominations,andotherinformationshownonany mapinthisworkdonotimplyanyjudgmentonthepartofTheWorldBankconcerningthelegalstatusofanyterritoryortheendorsementor acceptanceofsuchboundaries.  23 SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS