Strengthening Basic Education System and Improving Learning Outcomes in Tanzania A World Bank Policy Note for Tanzania – Mainland STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 1 A World Bank Policy Note for Tanzania – Mainland August 31, 2023 1  This policy note was prepared by the World Bank Tanzania Education Team led by Xiaoyan Liang (Lead Education Specialist), including Gemma Todd (Education Specialist), Eilleen Xu (Consultant), Innocent Mulindwa (Senior Education Specialist), Kaboko Nkahiga (Senior Education Specialist), and Margreth Paul Mziray (Consultant), under the overall guidance of the Education Prac- tice Manager, Safaa El Tayeb El-Kogali. Advice was also received from Lianqin Wang (Lead Education Specialist), Huma Ali Wa- heed (Senior Education Specialist), Laura Gregory (Senior Education Specialist), Ruth Karimi Charo (Senior Education Specialist), and Kristeen Chachage (Consultant). The team is grateful for the guidance and support from the World Bank Tanzania Country Management led by Nathan Belete (Country Director), Preeti Arora (Operations Manager), and Aneesa Arur (Program Leader), as well as the administrative support provided by Caroline Kingu (AECE1), Celia Faias (HAEE1), and Yvonne Mwenewanda (AECE1). The note was discussed with the Tanzania Ministry of Education Science and Technology (MOEST) and President Office Regional Administration and Local Government (PO-RALG) on June 5, 2023. Written comments were received from the government and incorporated in the final note as relevant. We would also like to thank Arne Hoel, KwaPamoja Limited and Sarah Farhat for their outstanding photography that have enriched the visual content of this policy note. We would also like to acknowledge Mkuki na Nyota Publishers for the beautiful design and printing of this policy note. TABLE OF CONTENTS EXECUTIVE SUMMARY 1 INTRODUCTION 5 EDUCATION SECTOR CHALLENGES 7 ENABLING ACCESS AND LEARNING OUTCOMES 7 ENSURING AN ADEQUATE SUPPLY OF QUALIFIED TEACHERS 13 IMPROVING SCHOOL LEARNING ENVIRONMENT 18 EDUCATION GOVERNANCE AND FINANCING CHALLENGES 25 OPPORTUNITIES AND POLICY RECOMMENDATIONS 30 STREAMLINE EDUCATION GOVERNANCE AND EMPOWER LGA AND 31 SCHOOL MANAGEMENT INCREASE FUNDING AND ITS EFFICIENT USE TOWARD TEACHING AND 32 LEARNING IMPROVING TEACHER SUPPLY, STRENGTHEN THE TEACHING PROFESSION 33 ENSURING THE PROVISION OF INSTRUCTIONAL MATERIALS, AND 35 LEVERAGING ICT IMPROVING ACCESS AND QUALITY OF EARLY CHILDHOOD 37 EDUCATION (ECE) STRENGTHENING LEARNING ASSESSMENT AND PROMOTING 38 FORMATIVE ASSESSMENT SUMMARY OF RECOMMENDATIONS TABLE 40 ANNEX 42 REFERENCES 44 1 EXECUTIVE SUMMARY The implementation of the Fee-free Basic Education assessments at Standard 2. The average reading Policy (FBEP) in Tanzania since 2015 has led to fluency for Tanzanian Standard 2 students was 26.18 consistent growth in the education sector. However, correct words per minute (CWPM) compared to the the rapidly increasing school-age population has 50 CWPM global benchmark, and only 5 percent of been creating demands for additional resources and these students can be considered proficient readers. capacity that are often not met. Persistent challenges In mathematics, only 17.5 percent of the boys and 16.7 related to institutional governance and insufficient percent of the girls met the benchmark on addition education spending toward core teaching and learning and subtraction Level II. Annually about 20 percent of matters further hinder service delivery and result students fail the Primary School Leaving Examination in inadequate learning outcomes. This note draws (PSLE), the Standard Four National Assessment evidence from existing studies and available data, (SFNA), and the Certificate of Secondary Education taking a holistic approach to assess the performance Examination (CSEE). of the basic education system in Mainland Tanzania in the last decade. It describes the basic service Quantity, quality, and management of teachers. The delivery indicators but also goes beyond to analyze education system suffers from a significant shortage the underlying challenges in institutional governance of qualified and formally recruited educators. As of and basic education financing. Recognizing that basic 2022, there was a deficit of more than 98,000 teachers education can deliver fundamental literacy, numeracy, in primary schools. Preservice teacher education as well as socioemotional skills which are crucial struggles to attract the best candidates and train building blocks for continued education and training, subject-based teachers in mathematics, science, and employment and lifelong fulfillment for all Tanzanian English. The curriculum for teacher education has not citizens, the policy note highlights the following areas been updated since 2009. The government started that require attention: to roll out a national Teacher Continuous Professional Development (TCPD or Mafunzo ya Walimu Kazini Equitable access. The FBEP has expanded access (MEWAKA) in Swahili) program in 2022, but there to basic education and reduced gender disparity. remain significant knowledge and skill gaps among However, inclusive enrollment and retention remain Tanzania’s teachers. The often lack of coordination significant concerns. Of the student cohort entering and overlapping mandates among multiple ministries, preprimary education at age 6, in 2020, 68.7 percent departments, and agencies involved in teacher managed to graduate from primary education and management has negatively impacted on the quality only 33.2 percent graduated from lower secondary of services delivered and attractiveness of the education and rural, poor, and children with teaching profession. disabilities fare the worst. An estimated 3.2 million school-age children are still out of school. Gender School learning environment. Commendable equality and girls’ empowerment also need ongoing efforts have been made since 2013 to expand attention especially at secondary and higher levels of school infrastructure through a community-based education. construction approach. However, the speed of school construction has not kept pace with the increasing Learning outcomes. Learning outcomes are demand, and challenges have been observed in challenged when measured by internationally the use of force accounts and community-based benchmarked early reading and numeracy construction especially in the lack of quality supervision STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 2 on the part of the local government authorities (LGAs) The curriculum and language of instruction. due to lack of funds and technical capacity. At the Tanzania basic education curriculum which was last same time, insufficient budget releases and technical reviewed in 2015 to be competency-based, has not constraints prevent the Tanzania Institute of Education yet been fully implemented. There are disparities in (TIE) from fully distributing textbooks, and the quality the coverage of core competencies in the syllabus of textbooks requires action. The effective utilization and textbooks. Furthermore, not all teachers have of Information and Communication Technology (ICT) been trained in the new curriculum and textbooks, for education faces obstacles due to teachers’ lack except for early grade teachers in reading, writing, of ICT competencies and limited ICT infrastructure and arithmetic (3Rs). Large class sizes hinder the and internet access in many schools. Furthermore, teachers’ ability to adopt student-centered pedagogy there are limited options for good-quality content in the classrooms. The switch from Kiswahili to English service platforms in Swahili language, especially for as the language of instruction in secondary school, preprimary and primary education. without successful transition programs, negatively impacts learning outcomes due to inadequate English language proficiency on the part of students as well as teachers. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 3 National examinations and learning assessments. environment and hinder learning outcomes at the Tanzanian national examinations, including the SFNA, foundational primary school level. This, in turn, has the PSLE, and the CSEE, are de facto high-stakes a compounding effect on all subsequent levels of examinations with consequences on promotion and education and training. repetition. The predominant use of multiple-choice questions is not conducive to develop problem- While acknowledging the government commitment solving skills for the students. Misalignment between and progress made to date, the note is forward the curriculum, pedagogy, and assessment further looking in its recommendations to address the exacerbates the situation as teachers tend to teach challenges and improve the system performance to the assessment. Tanzania adopted internationally in the long run. The government’s ongoing plan benchmarked learning assessment at Standard 2 but to reform the education policy and curriculum has yet to introduce regional or international learning provides an opportunity for the recommendations assessment for higher primary and secondary grades. to be considered. Efforts are already under way There is a need to strengthen teachers’ capacity for to improve the school learning environment, formative assessment as a critical part of classroom such as expediting school construction, national pedagogy to monitor student learning and provide implementation of school based TCPD, and piloting ongoing feedback. of safe school program. The most challenging reform, however, will be in institutional governance and Governance and finance. Basic education in Tanzania financing. Yet it is crucial for the system to improve is overseen by MOEST and PO-RALG. The former is accountability for results by reducing overhead and responsible for policy and quality assurance while the truly empowering the lower level LGAs and school latter for administration and management via vertical management. Prioritization of education financing structure including ward, district, regional education towards core education matters of teachers, teaching offices. The fragmentation of governance, lack of and learning, and targeting vulnerable children is also capacity, and true empowerment at LGA and school essential. Without addressing these two fundamental levels result in diluted accountability in achieving challenges of governance and financing, education results. On finance, the Government of Tanzania has reforms will be merely window dressing and risk exhibited commendable commitment by spending not being implemented. The note recommends the 17 percent to 21 percent of the total government following: budget for education over the past five years. Yet the government can improve the equity and efficiency Review the education governance at the of education spending. The current allocation of national level across the relevant MDAs, education budget is not equitably distributed across to streamline the functions and potentially all levels and tends to be skewed towards higher integrate basic education policy and education. Per student recurrent expenditure for implementation functions into one single primary students is about US$64, compared to ministry responsible, strengthen LGA capacity, US$1194 for university students. The amount of the and empower education leaders and school government’s capitation grant released per primary management for policy coherence, stronger student is extremely low at less than US$2 per accountability, and better service delivery. primary student. Financing for core teaching learning programs such as TCPD is not assured and has been Increase funding for basic education on ad hoc. The insufficient investment in textbooks and per student basis and improve its efficient instructional materials, basic school operations, and utilization towards core teaching and learning TCPD can have a detrimental effect on the school such as TCPD, textbooks and teaching-learning materials. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 4 Adopt targeted equity-based financing for poor, education. Meanwhile, align the current efforts vulnerable and marginalized children, through on Learning Management System (LMS), bursary, school feeding and other demand- e-learning library, ICT integration strategy, side interventions. It is also recommended that digital skills framework, and hub schools to the government adopt a whole government effectively ensure adaptation in the classroom. approach and prioritize the bottom segment of rural poor LGAs for earmarked central transfers Ensure equitable access to and quality of and other development assistance. preprimary education. This needs government to strengthen the curriculum, effectively deploy Improve teacher supply, strengthen the teaching adequate qualified teachers, train teachers profession by raising entry requirements, and in play-based child-centered pedagogy consisten provision of TCPD linked to a career (preservice and in-service) and supply sufficient ladder. A single national policy framework for age-appropriate teaching-learning materials, teachers that focuses on higher professional especially picture and story books that reflect standards, more equitable deployment, better the Swahili culture and way of life. and regular support through TCPD, and continuous assessment of their content and Optimize learning assessments to contribute pedagogical knowledge would encourage effectively to teaching and learning. Learning higher performance outcomes within the assessment such as 3R assessment could teaching profession. be implemented regularly and better used to improve teaching and learning in schools. Improve the development and distribution of Regional or even international assessment textbooks and teaching-learning materials, as could be introduced at higher primary or well as the use of ICT for teaching and learning. secondary grades. Classroom-based formative It is critical to modernize and transform TIE assessment could be strengthened to to be a center of excellence in curriculum complement summative learning assessment development, research, and evaluation of and high-stake national examinations. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 5 INTRODUCTION After six decades of development since its independence,2 the United Republic of Tanzania achieved lower-middle-income status in July 2020 with a gross domestic product (GDP) per capita of US$1,100. Between 2007 and 2018, the national poverty rate fell from 34.4 percent to 26.4 percent (World Bank 2019). National aspirations laid out in the Tanzania Development Vision (TDV) 2025 are to transition to a middle- income country with a high level of human capital development, characterized by improvements in the quality of livelihood for the people. Education is recognized as a powerful instrument for social and economic development in Tanzania and a priority sector identified in the National Five- Year Development Plans (NFYDP). The sector has experienced steady growth, especially after the government formally introduced the Fee-free Basic Education Policy (FBEP) in 2015, which removed fees for one year of preprimary school, seven years of primary, four years of secondary (ordinary) level, and most recently, in 2022, the two years of advanced level secondary education (A level). Tanzania’s school-age population is growing at the same high pace as the population at 3.2 percent per annum. The latest population census and its estimates reveal that there are 14.0 million 6-year-olds and 7–13-year-olds ready for preprimary and primary education, 6.1 million 14–17-year-olds for lower secondary (O level) and 2.6 million for post basic education in Tanzania in 2022, as compared to the current schooling capacity of 12 million in basic education. The growing school-age population has increased demand for qualified teachers, infrastructure (classrooms, dormitories, latrines, libraries, laboratories, playgrounds, workshops), teaching-learning materials (textbooks, supplementary and reference books, chemicals, equipment, machines), as well as school water, sanitation, and hygiene (WASH) facilities. The government remains committed to FBEP and, in the past five years, it has allocated between 17 to 21 percent of the total government budget to education. However, education financing has experienced a decline after the initial boost in the beginning of the FBEP. Further, there are constraints in the governance, allocation of resources, and institutional capacity which prevent the most effective use of financing. The government has not yet been able to fully meet the demands of FBEP. Twenty percent to 25 percent of primary 2  Tanzania (then Tanganyika) gained independence in 1961 and Zanzibar in 1963. In 1964, the United Republic of Tanzania (URT) was formed. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 6 students drop out during or at the end of the primary cycle. The latest round of results from the national exams sounds another wave of alarm with more than 80 percent of students failing mathematics and English at the end of Form 2. The nation is confronting challenges in ensuring all children stay in school and achieve quality learning outcomes. At the same time, Tanzania is affected by multiple new and emerging challenges, such as the global pandemic, war, and climate change. While Tanzania emerged out of the COVID-19 pandemic without too much learning loss as compared to other countries, it is severely affected by other global forces such as climate change and supply chain disruptions caused by the Ukraine war. These forces directly impact the livelihood of average Tanzanians and pose concerns regarding the role of education in fostering resilience. Thus, a fundamental question needs to be asked: Is the Tanzanian education system equipping its young generation with requisite knowledge, skills, and attitude to live a productive and fulfilling life? The sixth phase government led by Her Excellency Dr. Samia Suluhu Hassan, the president of the United Republic of Tanzania, is intent on improving human development, and it has constituted education policy and curricula reform committee to review and renovate the Education and Training Policy and Curricula. The objective of this policy note is to provide a consolidated analytical snapshot of the challenges confronting the basic education sector in Tanzania, to suggest policy and institutional reforms, and to offer practical solutions to facilitate transformational changes. The note highlights the observable challenges in access, equity, and quality, but it also analyzes the education governance and financing constraints that underline the symptoms. It is based on a wealth of existing studies and data, complemented with insights and reflections from experienced education experts from the government, World Bank, and other development partners who have been tirelessly working at the frontlines of service delivery in Tanzania. The note benchmarks Tanzania with other education systems whenever relevant and feasible and provides broad policy recommendations to the government of Tanzania, as it deliberates on key reforms through the Education Policy Committee and the Curricula Review Committee. Huge efforts have been made by the government, especially Ministry of Education, Science and Technology (MOEST) and its implementing partner President’s Office – Regional Administration and Local Government (PO- RALG) and various agencies under the two ministries. While acknowledging the strides made toward reform, the note offers strong recommendations to streamline education governance and further deepen the decentralization and accountability of the education sector. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 7 EDUCATION SECTOR CHALLENGES ENABLING EQUITABLE ACCESS AND IMPROVING LEARNING OUTCOMES Tanzania has made significant progress in net enrollment rate (NER) for preprimary, primary, and expanding access to basic education over the ordinary secondary education (O level) increased Education Sector Development Plan (ESDP) from from 25.5 percent to 34.9 percent, 73.4 percent 2016/17 to 2020/21. Since the formal introduction of to 81.8 percent, and 24.3 percent to 38.3 percent FBEP in 2015, an additional 4.5 million children were respectively (see right panel of Figure 1). Enrollment enrolled in school between 2015 and 2022 (see left in ordinary secondary registered most improvement. panel of figure 1). Since the introduction of FBEP, the STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 8 Figure 1: School enrollment number (left) and Net Enrollment Rate (right) Source: Basic Education Statistics Tanzania; Annual Education Sector Performance Report; Education Sector Analysis; and National Panel Survey (NPS) (2022). The FBEP has helped alleviate gender disparity been widening since 2019 (left panel of figure 2). The in enrollment, but gender equality and girls’ transition from primary to lower secondary improved empowerment require vigilant attention. While significantly from 67.0 percent in 2016 to 78.0 percent girls have a slightly higher primary gross enrollment in 2022 with girls (76.7 percent) slightly lagging that rate (GER) than boys, the boy-girl enrollment gap, of boys (78.2 percent) (right panel of figure 2). which was initially closing from 2015 to 2019, has Figure 2: Primary Gross Enrollment Rate (left) and transition rate to lower secondary (right), by gender Source: BEMIS 2020. The preprimary subsector saw a decline trend school-age population are either out of school or in enrollment rate since 2017 (figure 3), and enrolled in primary school. Children residing in there is limited access to preprimary education marginalized geographies, such as remote, rural, for marginalized groups. The GER dropped 36 and impoverished areas, as well as those with percentage points between 2016 and 2020. The disabilities, face significant challenges in accessing NER of 2022 shows that 62.6 percent of the both preprimary education and high-quality early A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 9 learning opportunities. Children who lack or have rates of academic underperformance, repetition, and limited access to preprimary education tend to arrive early dropout (Shukia and Marobo 2022). at primary school ill-equipped, leading to increased Figure 3: GER and NER in preprimary education, 2016-2022 Source: MOEST 2020 and 2022. Enrollment and retention continue to be a concern, above rural children. Primary and lower secondary especially after primary school, for poor children completion rates have remained largely flat since in rural areas. The Household Budget Survey 2018 2016. Overall, about 30 percent of students drop out shows that school enrollment in Tanzania starts at 40 by the end of the primary cycle. Tanzania’s primary percent to 60 percent for preprimary school at age 5. completion rate is slightly below the Sub-Saharan It plateaus to about 90 percent at ages 10–11, but then African average whereas the secondary completion starts to decline significantly. Figures 4 and 5 indicate rate is significantly below the Sub-Saharan African that enrollment for the non-poor is consistently above average (figure 6). that of the poor; and that of urban children consistently Figure 4: GER by age and poverty status, 2011–2018 Figure 5: GER by age and location, 2011–2018 Source: Household Budget Survey (HBS) (2011/12 and 2017/18). STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 10 Of the 3.2 million school-age children who remain ‘satisfied’ with the level of education obtained. Other out of school, there are 1.2 million who have never contributing factors include long distances to school, attended school (Education Sector Analysis (ESA) failure in exams, informal fees, and the long wait 2021). Tanzania’s primary and secondary completion times between the completion of lower secondary rates are below the Sub-Saharan African averages and the transition to upper secondary (HBS report). (figure 6). The primary retention rate for children with In 2022, the government introduced a reentry disabilities is 66 percent (compared to 85 percent circular (MOEST 2022) clarifying that a student who for children without disabilities). According to the has dropped out of formal education, due to various national Basic Education Management Information reasons, is allowed to return. Out-of-school children System (BEMIS), the main reason for students (OOSC) may also return by enrolling in various dropping out of school is truancy (AESPR 2021), alternative education pathways (AEP) to complete while HBS data 2018 show that the main reason for their secondary education and obtain qualifications. dropping out is a believed perception that education However, there remain many children who have not is complete. According to the National Panel Survey finished their foundational learning but are in the job (NPS 2020/21), 36 percent of children/adolescents market, and considerable measures will be needed to in rural areas and 41 percent in urban areas did educate and retrain them. not attending schools because they were already Figure 6: Primary and lower secondary completion rate (percent of relevant age group) in Tanzania and Sub-Saharan Africa Source: World Bank database. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 11 Student pass rates in Primary School Leaving secondary education cycle. Mastery of the requisite Examination (PSLE) and Standard Four National lower secondary education competencies are Assessment (SFNA) exhibited an increasing trend stipulated in the national lower secondary curriculum. until 2020 when the PSLE and SFNA pass rate Of the 522,217 students (54 percent girls) who sat started to decline slightly (figure 7). More than 20 for the national examination at Form 4 in 2022, only percent of students fail the PSLE and SFNA exams. 37 percent demonstrated either excellent (passed in Similarly, while the national assessment Certificate Division 1, high (passed in Division 2), or good (passed of Secondary Education Examination (CSEE) results in Division 3). The general trend over the years is 3 have been improving slightly, 20 percent still out of every 5 students who sat for the CSEE shows continue to fail the exam. When looking at the results either poor mastery of the requisite competencies by subject, failure rates of mathematics, science, and (passed in Division 4) or failed mastery of the requisite English are high across all national examinations. competencies for the lower secondary education There are also low student learning outcomes curriculum upon completion of the four-year cycle. reflected in the examinations at the end of the lower Figure 7: PSLE, CSEE, and SFNA pass rates, 2011–2022 Source: BEST 2021; NECTA 2023. Tanzanian students’ learning outcomes are low girls outperform boys in reading, but they lag behind when measured by internationally benchmarked boys in mathematics. Only 2 percent of girls reached early reading and numeracy assessments. (To the proficiency benchmark on EGMA, and 52 percent date, there has been no participation in international got “0” marks (compared to 46 percent for boys) (RTI assessments at the secondary education level.) International 2018). The gender gap further widens Mainland Tanzania first participated in international when students proceed to secondary schools and or regional learning assessment in 2013 when it persists in higher learning, especially in science and administered the Early Grade Reading Assessment technology-related academic programs. This means (EGRA) and Early Grade Mathematics Assessment that girls are neither attending school nor learning to (EGMA) to rising Standard 3 students and continued their full potential, which results in untapped human its participation in 2016 and 2018. The 2018 EGRA and capital development for Tanzania (Tao 2018). Gender the EGMA indicate that among Standard 2 students, stereotypes also persist and manifest in the lack STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 12 of female head teachers. While half of the primary Foundational numeracy, and literacy and life skills teaching force is female, only 20 percent of primary are crucial building blocks for continued education school head teachers were female as of 2019. In and training, employment, and fulfillment. Studies 2020, the government adapted the EGRA and EGMA confirm that skills beget skills (Heckman 2008); it is instruments and carried out its own reading, writing important to invest early to put every child in a virtuous and arithmetic (3R) assessment. Results from this and continuous cycle of lifelong learning and active assessment, however, were poor. Proficient readers participation in society. The most recent Organisation are defined as being able to read 50 correct words for Economic Co-operation and Development per minute (CWPM), and the average reading fluency (OECD) study highlights that students who have for Tanzanian students was 26.18 CWPM, which higher levels of education tend to engage more means that only 5.0 percent of these students can be in continued education and training as adults. For considered proficient readers. In mathematics, more example, students who score higher in the Program than 8 out of 10 do not reach the benchmark: only for International Student Assessment (PISA) continue 17.5 percent of the boys and 16.7 percent of the girls to score higher in the Program for the International met the benchmark on addition and subtraction Level Assessment of Adult Competencies (PIAAC) II. The latest 2022 3R assessment results show little assessment. Foundational numeracy and literacy skills improvement since 2020. have been found to play a critical role in determining an individual’s productivity and ability to perform job- Inequitable access and learning outcomes in related tasks. Individuals with a strong foundation in education contribute to Tanzania’s overall low numeracy and literacy are more likely to experience ranking on the United Nations Human Development greater job satisfaction and fulfillment. Tanzania Index (HDI)3 and the World Bank’s Human Capital students are particularly weak in mathematics and Index (HCI).4 The HDI of Tanzania increased from 0.41 English competencies, two important skills that lay index in 2002 to 0.55 index in 2021, growing at an the foundation for critical thinking, further learning, average annual rate of 1.60 percent and ranking 160 and global communication. A weak foundation for (out of 191 countries). Tanzania’s HCI 2020 was about learning as observed in Tanzania, if not addressed, 0.40, ranking 152 (out of 174 countries), slightly below will have serious implications on the human capital that of Sub-Saharan Africa and well below other lower development of the country’s youth, and jeopardize middle-income countries (World Bank 2022). the country’s goals and aspirations to become a modern industrialized nation. 3  The Human Development Index (HDI) is a summary measure of average achievement in key dimensions of human development, encompassing a long and healthy life, being knowledgeable and having a decent standard of living. 4  The Human Capital Index (HCI) is a summary measure of the amount of human capital that a child born today can expect to acquire by age 18, given the risks of poor health and poor education that prevail in the country where she lives. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 13 ENSURING AN ADEQUATE SUPPLY OF QUALIFIED TEACHERS Shortage of Teachers Despite efforts to recruit more teachers, the PTRs were 37 and 43, respectively. The shortage education system suffers from a significant of mathematics and science teachers is particularly shortage of qualified educators. Teachers are acute in primary and secondary education. Many arguably the most important ingredient for education. schools, especially in rural areas, rely on volunteer To date, there is a pupil-teacher ratio (PTR) of 62:1 teachers. In Katavi region, for example, in 2022, the in government primary schools, as shown in figure average PTR was 94 in government primary schools. 8. There is a glaring regional disparity in PTR. The Even in the Dodoma region, in 2022, the average government standard PTR of 45 is only achieved PTR was 82:1 in the public schools. in two regions: Kilimanjaro and Njombe where the Figure 8: Government primary school pupil-teacher ratio by region, 2022 Source: BEST 2022. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 14 According to government official data in the if no efforts of recruitment is made to replenish the Tanzania Basic Education Dashboard, as of 2022, teachers who are retiring and to add new teachers there was a deficit of 98,161 teachers in primary to educate the growing student population (figure 9). education. This deficit is projected to double by 2030 Figure 9: Primary Teacher Requirement projections, 2022–2030 Source: EPforR calculations based on Tanzania Basic Education Dashboard (education-os.org). In response to the deficit of teachers, the for teachers to be recruited as formal teachers, and government has started to increase its annual adding them in official statistics. However, more effort to recruit teachers. In 2022, 9,800 teachers needs to be done to address the underlying issues. were recruited (5,000 primary and 4,800 secondary Ways to increase the number of teachers need to be teachers). In 2023, it announced a plan to recruit 13,130 an integral part of overall teacher workforce planning new teachers (7,801 primary and 5,329 in secondary and budgeting, with consideration for the population schools). It has also started building teacher housing growth of students and attrition rates of teachers, in remote areas, and there are plans to provide as well as a particular focus on the hardship of rural more support to volunteer teachers. This includes posts. formalizing teacher contracts, providing a fast track A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 15 Quality of Teachers The teaching profession in Tanzania is not yet proposals for improvement have been suggested at attracting the best students. The government all levels. raised the enrollment criteria for joining preservice Teacher Training Colleges (TTCs) from Division 4 to There is a shortage of subject-specific teachers in Division 1–3 for certificate and diploma levels, and mathematics, science, and English, which require most students admitted to TTCs have completed more intense subject-knowledge training. The two- their Form 4 studies with Division 3. There are still year primary teacher education curriculum (certificate) very few students with excellent marks of Division 1 covers all subjects taught in primary schools. Within or Division 2 entering the teaching profession. For two years’ time, student teachers must finish learning example, in 2021/22 and 2022/23, 95 percent of the all subjects including a two-block teaching sequence student intake at Vikindu Teachers’ College fell into (each eight weeks). While the amount of learning in a Division 3; there were none from Division 1. This is one two-year program may be sufficient to train teachers indication that many of those who choose TTCs have of cross-cutting general subjects, it is not sufficient to demonstrated weaknesses in some subjects. Some train subject-specific experts of mathematics, science, even failed mathematics or science, despite being and English, especially considering that most student trained to teach these subjects in primary schools. teachers had only Division 3 results. Furthermore, the curriculum places a heavy emphasis on theory, The lack of progress in reforming teacher preservice rote learning, and traditional teacher-centered education is a significant concern. The current two- “chalk and talk” teaching methods. Supervision and year teacher certificate program still reflects the mentoring during the block teaching sequences 2009 version of the school curriculum; it has not yet could also be strengthened. Student teachers are been adjusted to the 2015 curriculum, which leaves assigned to teach two of the most needed subjects new teachers ill-prepared to teach the new school each year, but the subjects may be changed in the curriculum. There is a similar consensus that the second year, losing an important opportunity for the three-year degree-level teacher programs are also student teachers to build upon their subject-specific insufficient. Teachers must grapple with familiarizing knowledge. Mentoring by schoolteachers is limited themselves with the new curriculum after they are and vary from school to school. While college tutors newly deployed. Despite donor programs aimed at are required to supervise the student teachers providing capacity building for college tutors and during the block teaching sequences, their visits are equipping colleges with classrooms, projectors, limited to assessing student performance rather than computers, and printers, these efforts have yet to be providing ongoing support. With limited learning time systematic and sufficient in addressing the challenges and inadequate guidance and mentoring, it is difficult in teacher preservice programs. Little attention is for student teachers to master the knowledge and paid to preparing teachers for the rapidly changing pedagogy required to be a subject specialist. The demands of the 21st century and equipping students ongoing policy and curricula review is planning to with critical thinking skills. Essential competencies, address some of these challenges by institutionalizing such as classroom-based formative assessment and internships for preservice teachers and raising the information and communication technology (ICT) entry qualification for the diploma level. skills, particularly needed in integrating teaching and learning, are largely missing from the current teacher Access to, and financing of, continuous professional education certificate, diploma, and degree programs. development for teachers has been ad hoc and The ongoing policy and curricula review identifies the project-based. In 2021, the Controller Auditor same challenges on teachers training and TCPD, and General (CAG) reported that more than 80 percent STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 16 of Tanzania’s teachers have not had any professional that teachers’ content knowledge is not improving in training in the past 3–5 years. The government, with some areas and could be much stronger. The World support from donors, had focused only on training Bank Service Delivery Indicator (SDI) was conducted early grade teachers since the last curriculum reform in 2010, 2014 and 2016 to capture the education in 2015, leaving most teachers of upper primary and service delivery experience. One indicator of the SDI secondary schools not yet been fully trained in the was the minimum knowledge required of Standard new curriculum and textbooks, let alone continuous 4 teachers to master the curriculum and quality of professional development. instruction. The SDI results of 2014 and 2016 showed that teachers are weak in tasks that require creativity Significant effort has been directed to a national and critical thinking, such as writing compositions or rollout of mainly school-based TCPD (MEWAKA) interpreting graphs. Between 2014 and 2016, while since 2022, however, it is still in its early stages and teachers improved in their knowledge of some is currently striving to get a foothold within schools. mathematics topics, their English-language skills Coupled with challenges in preservice teachers’ declined across the board (see figure 10) (Trako et al. education, this has led to knowledge and skills gaps 2019). among Tanzania’s teachers. There are indications Figure 10: Trend in teachers’ content knowledge in language and mathematics, by type of task Source: Trako et al. 2019. Teacher Workforce Planning and Management The management of the teacher life cycle in (TIE) develops the certificate and diploma teacher Tanzania is complex, cutting across the mandates preservice programs whereas the universities develop of not only MOEST and the PO-RALG but also the degree preservice programs subject to Tanzania other numerous institutions and ministries. The Commission of Universities (TCU) accreditation. The requirements for entry, preservice curriculum, and National Examination Council of Tanzania (NECTA) examinations are set by MOEST and its institutions. sets the examinations for student teachers graduating MOEST sets the requirements for Form 4 graduates from TTCs certificate and diploma programs, whereas entering certificate and diploma programs in the TTCs universities administer their own examination of the and for Form 6 graduates entering degree programs degree graduates. The complexity of institutions in the universities. Tanzania Institute of Education involved in managing teachers in Tanzania is found A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 17 in accordance with relevant governing laws. The contributes to the large disparity of PTR within LGAs, Teacher Service Commission (TSC) has conducted a especially in rural areas which suffer more from review of different policies, legislations, circulars, and teacher shortages. guidelines, to show the multiple institutions mandated to manage this lifecycle. There is a wide range of actors involved in the provision of the professional development for Once the Ministry of Finance and Planning (MOFP) teachers (figure 11). Although established in 2015, approves budget to recruit a certain number of new the TSC has still not been able to fully undertake teachers, the President’s Office – Public Service its broad mandates of teacher management due to Management and Good Governance (PO-PSMGG) inadequate human and financial resources. In 2018, approves issues a permit for recruitment, then the government approved the establishment of hiring and deployment are managed by PO-RALG Teacher Professional Board (TPB)5 to take charge through the TSC and LGAs. Deployment is currently of professional standards and teacher certification managed through a teacher deployment strategy that matters, as an agency under MOEST. Though the TPB centers on a formula that prioritizing LGAs based on has not yet been operationalized, there are already standards of PTR. TSC, which is constituted under overlapping mandates between TSC and TPB on the PO-RALG, contracts and registers the teachers teacher professional development. For example, and provides them with training on code of conduct. PO-RALG and LGAs have the mandate to oversee It also manages the Open Performance Review and the implementation of MEWAKA since its introduction Appraisal System (OPRAS). While teachers can apply in schools in 2022. However, to make MEWAKA to any specific openings, the most frequent transfer successful, it needs the policy, technical and financial requests are those seeking to move from rural to support. PO-RALG will need to work in close urban positions. These transfers are allowed under collaboration with MOEST and its agencies including the government policy. However, this approach TTCs, universities, and the quality assurance offices. Figure 11: Multiple actors in teacher life-cycle management Certificate & OTEAS, OPRAS: PRSP Salaries Diploma Selection & MOEST • to LGA • Scale/ MOEST TEU TIE • Curriculum: Deployment: and TSC Ceilings: TIE PORALG MOEST/PO • Exam: PSMGG NECTA School • Disbursem- • Implementa- based:HT, ent: MOFP tion: Contract: LGA DP Programs TSC & TPB Teacher WEO, DEO Colleges (LGA) Allowances/ Claims LGA Degree • Curriculum: Registration: SQA:SQAD TC Tutors LGA officers University TSC (MOEST) Promotion: with TCU TSC oversight • Implement- ation, Retirement: Universities exams: TSC, LGA (rarely) University Source: World Bank 2021. See annex table 1 for mapping conducted by TSC on the legally mandated institutions managing teachers throughout the life cycle. 5  The TPB has not yet been operationalized. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 18 Inadequate coordination between these agencies, university level but subsequent dwindling interest in as well as understanding and interpretation of diploma programs in the teacher training colleges. their roles and functions, has affected recruitment Meanwhile, the PO-PSMGG’s freeze on recruitment into the teaching profession, teachers’ motivation led to a low employment rate for teacher graduates, and finally the quality of services delivered. While while the FBEP resulted in escalating PTR levels. the MOEST increased pass-rate requirements With no promotion or increases in salary offered in and shortened the length of degree courses for compensation for the elevated PTRs, motivation preservice teacher education, the Higher Education among teachers decreased, affecting the quality of Students’ Loans Board (HESLB) offered loans for instruction and student achievement (World Bank education degrees but not diplomas. This led 2021). to an initial influx of teacher candidates at the IMPROVING SCHOOL LEARNING ENVIRONMENT Provision of Classrooms and School Water, Sanitation and Hygiene (WASH) Facilities Since 2013, the government has made efforts to at US$128/m2, compared to US$213/m2 under expand the school infrastructure to accommodate Secondary Education Development Program II the growing enrollment, by using a community- (SEDP II) (P114866) (construction based on LAGs) and based construction approach and force accounts. US$203/m2 (average) under the Tanzania Productive The Regulation of the Public Procurement Social Safety Net Project (P124045) (community- Regulations (2013) defines a force account as: “A based construction). In the government’s 2018 School construction by the procuring entity itself or use Construction and Maintenance Strategy, minimum of public or semi-public agencies or department standards were developed for preprimary, primary concerned, where procurement entity or the public and secondary school construction. The government or semi-public agency uses its own personnel also refined its targeting strategy to prioritize needy and equipment or hired labor.” In Regulation 168, communities for school construction and to reduce community participation in procurement is defined overcrowding and the average distance to schools. as: “Where it is desirable to: call for the participation Using community-based force accounts over the past of local communities or farmers’ groups, increase the 10 years, the government has constructed 1,080 new utilization of local know-how and locally manufactured primary and 474 new secondary schools. On average products, employ labor-intensive methods and over 2,000 classrooms have been constructed other appropriate technologies, the procurement annually. procedures, specifications and contract packaging shall be adopted to reflect such interest of objectives.” The supply of school construction has not kept pace with the increasing demand. Since 2017, the pupil- Community-based construction and force classroom ratio (PCR) in government schools has accounts have been shown to be more cost- and averaged 77:1 (figure 12), and in remote areas of the time-effective in increasing the supply of school country, it can be even higher, for instance, the PCR construction. For example, the average unit cost in Katavi region has reached to 130:1 (PO-RALG 2021). of classroom construction is 40 percent cheaper A shortage of WASH facilities and support also makes A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 19 it harder for girls to continue their education. There is formative years of education. Adequate furniture also a lack of furniture and other equipment to meet and instructional spaces are necessary for teachers the needs of the student population, particularly and students to effectively engage in the teaching- in lower classes. The inadequate infrastructure learning process. compromises students’ ability to learn in their Figure 12: Pupil-classroom ratio and pupil-latrine ratio in government primary school, 2016–2021 Source: PO-RALG 2021. Challenges have been observed in the use of force adequate orientation to understand the drawings accounts and community-based construction. for school construction. Furthermore, to reduce Reviews of the schools built through force accounts construction costs, there have been contributions and community-based construction show that the (in-kind or other) made by the community, and these quality, speed, and cost-effectiveness depend on community-based contracts do not specify safeguard several factors. Since funds are sent directly to the procedures to be followed. Community contributions registered school, or ‘mother school’, when a new vary and more is needed to ensure realization school is being constructed, the LGA engineers of the important role of communities in school and environmental officers have a fundamental role construction. More capacity building is required and in monitoring and supervising the works to ensure strengthening of the supervision process for quality quality and adherence to the approved drawings and and structural safety assurance in line with the World standards. However, the budget for supervision can Bank Environmental and Social Standards (ESS) and be limited and, in some cases, there has not been national regulations and policies is needed. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 20 Provision and Quality of Textbooks Textbook development, printing, and distribution college tutors, subject-expert teachers, and TIE in Tanzania is managed by Tanzania Institute curriculum developers. While there is generally good of Education (TIE). Through TIE, the government alignment between the syllabus and textbooks, a centralized the development, printing, and quick review of select textbooks shows that there distribution of textbooks in 2014/15. TIE has been at is a need to improve alignment in the coverage of the forefront of curriculum development and review, core competencies in the syllabus and textbooks. and it is responsible for the development of essential For example, while the current textbook for curriculum support materials such as textbooks, lower secondary history is expected to cover the manuals, guides, charts, kits, and multimedia competency to show “the ability to critically assess teaching-learning materials. TIE also approves all the events, conditions and factors which shaped the teaching-learning materials produced by the private past and present conditions of the world” (TIE 2005), sector, development partners, and MOEST through it contains insufficient references on world history the Commissioner of Education’s office, and it and modern Tanzania, particularly the critical national determines the acceptability of these materials for use reforms after its independence (e.g., self-reliance in schools. Once printed, textbooks are distributed to philosophy). While the competencies defined in the local government level and must be collected by the curriculum are expected to be developed the schools. progressively over time and not all competencies will be covered in-depth in one textbook, and while However, several factors prevent TIE from fully teachers are provided with teacher guides (primary) achieving its mandates, leaving schools with a or practical guides (secondary) to guide the teaching shortage of textbooks. TIE does not consistently and learning process, there is room for improvement receive the budget appropriations needed for printing in the quality of textbooks, which can be better and distribution of teaching-learning materials. Only determined after an in-depth textbook review. This is 39 percent of the budgeted amount for textbooks timely considering the ongoing curricula and policy was released in FY2020/21. In addition, there is a review. In a vocational skills textbook chapter on need to ensure technical capacity building to TIE. entrepreneurship, there is a critical gap in the concept In FY2021/22, the budget release increased to 89 of “value addition” for promising entrepreneurs. In percent overall, but only 28 percent of the lower English textbooks, very little emphasis is placed secondary textbook budget was utilized. The result is on foundational literacy skills, such as phonemic that there is a textbook shortage in schools, especially awareness, phonics, grammar, and vocabulary. in higher primary grades and select subjects. Other essential language learning elements, such According to BEMIS (2021), while there is a ratio of 2:1 as listening and speaking lessons, are also not well- in the 3R subjects for early grades, the average pupil- integrated into the textbook content. textbook ratio (PBR) is 3:1 in primary schools. In lower secondary schools, the PBR is higher, with civics The quantity and quality of information contained showing a PBR of 7:1, Kiswahili at 4:1, and English, in textbooks play a crucial role in safeguarding the basic mathematics, and physics at 2:1. quality of education, considering that textbooks are a uniform source of knowledge for all students in A review of the primary and secondary textbooks Tanzania. This is a particular concern in social science in Tanzania highlights key areas of improvement. subjects such as history and civics, as the accounts of The quality of Tanzania’s textbooks primarily historical events must be not only accurate and relevant depends on TIE’s capacity, even though the textbook but also engaging and stimulating for the development development team typically includes university/ of critical thinking. Textbooks should include more A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 21 than mere compilations of texts. Textbooks need to A high-quality textbook should provide a diverse be supported by other reading materials including range of challenging and engaging activities that reference and supplementary books. Key words promote higher-order thinking skills. However, many and concepts could be identified and highlighted, textbooks still lack these elements. For instance, with special attention given to Kiswahili textbooks. history textbooks frequently feature memory-based Instead of Kiswahili textbooks using only functional questions, such as multiple-choice items. In primary information (e.g., announcements or directions), they civic and moral education, the textbooks for social could include more literary materials (e.g., classic studies, science, and technology have a limited tales and indigenous stories). More reading passages number of open-reflection questions, which are not sourced from Kiswahili literary works would facilitate evenly distributed. Moreover, textbooks often contain language learning while also teaching students to an excessive amount of text-based information, appreciate their mother language, its beauty and even in subjects like geography or world history. culture. Incorporating more illustrations, such as maps, would be helpful for pedagogical instruction. To further Textbooks could be better structured and support learning, ancillary materials such as audio organized, considering the system of knowledge recordings in English could be provided to support and students’ cognitive abilities at their grade level. language acquisition. Overall, by incorporating varied This is especially crucial for mathematics textbooks. and meaningful activities, ancillary materials, and For example, the topic of functions is usually thought-provoking examples, textbooks can better introduced at Form 1, as it may be too challenging promote higher-order thinking and support students’ for most students prior to this age. The introduction learning. of new concepts should follow a concise and logical structure based on prior knowledge. For instance, Reforms to the provision and quality of textbooks when teaching the area of a triangle in Standard will require transformative changes for TIE to 5, the textbook could guide students to explore become a center of excellence, focusing on core how to assemble triangles to create a rectangle or matters of curricula guidelines and approval of all a square by reviewing previously taught lessons teaching learning materials. TIE has a monopoly on the area for these shapes. By emphasizing and over the curriculum and textbook supply chain, revisiting previously acquired knowledge, students although the private sector is being encouraged to can enhance their cognitive understanding and write and distribute supplementary and reference make progress in their learning. There is also a books to allow students to access more resources. need for more real-life problem solving that fosters TIE requires capacity building to be better able to critical thinking skills rather than focusing solely on nimbly respond to adjustments or updates needed to computational responses. meet school demands for teaching-learning materials. Systemwide changes are key to ensure TIE is able to ensure the development of quality textbooks and teaching-learning materials as well as their timely printing and distribution. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 22 Use of Information and Communications Technologies (ICT) for Education. Effective application of digital technology in especially for preprimary and primary education, education can help distribute quality content more in the Kiswahili language of instruction; English- broadly and equitably for students and teachers. language instruction tends to be the dominant The COVID-19 pandemic underscored the need medium for most of the available online platforms. TIE, to improve system resiliency through appropriate with support from the World Bank’s BOOST and other education technology such as in e-learning partners, is developing an LMS and e-learning library management. In Mainland Tanzania, the government to provide curriculum-aligned materials, accessible to distributed 300,000 tablets to primary and secondary all teachers. school teachers with complementary learning management systems (LMS); teachers’ continuous While guidelines on ICT integration exist, their professional development (TCPD) modules; school execution remains a challenge. Tanzania does not quality assurance offices; public teachers’ colleges; have an ICT in education policy, but MOEST developed folk development colleges; education offices at ICT Competency Standards for Teachers in 2015 with regional, district and ward levels; the Vocational support from the UNESCO-China Fund in Trust (CFIT) Education Training Authority (VETA); and the National program. Unfortunately, these standards have largely Examination Council of Tanzania (NECTA). School been overlooked and not implemented in practice. leadership and administration are important factors Recently, new guidelines have been formulated, to facilitate ICT integration into classrooms. Providing including the ICT in Education Inclusion Strategy for instructions on how to best use tablets in the teaching Tanzanian Schools and the Digital Skills Framework and learning process has become a concern because for Primary School Teachers under the Boosting teachers have inadequate ICT competencies, and Student Learning Outcomes Program (BOOST). only a small proportion of Tanzania schools have However, further efforts are required to ensure these access to internet connection. Further, there is a guidelines are effectively implemented and provide lack of good-quality digital content service platforms, tangible benefits to teachers and students. Curriculum and Language of Instruction Tanzania basic education curriculum was reviewed especially in the provision of educational materials, in 2015 when the government introduced the FBEP, and teacher competence (Fleisch et al. 2019). The but it has not yet been fully implemented. With the 2015 curriculum, which claims to be competency- exception of early grade teachers, teachers are not based, continues to be knowledge-centered. The all trained in the new curriculum and textbooks. In pedagogy tends to be mostly a traditional teacher- many rural schools, there is a shortage of teachers centered “chalk and talk” approach; the overcrowded and classrooms which prevent the adoption of the classroom also constrains teachers’ ability to adopt a new competency-based curriculum. Studies indicate more engaging, student-centered approach. that competency-based reform is more in name than in practice (Komba and Mwandanji 2015; Komba and Tanzania’s language of instruction switches Shukia 2019). Like other African countries, Tanzania from Kiswahili to English in secondary school, has faced barriers in its drive toward successful without adequate preparation of English-language implementation of a competency-based curriculum. instruction for students. This switch has been These barriers include a mix of inadequate resourcing, criticized for negatively impacting learning outcomes in secondary education as shown in the poor CSEE A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 23 results. The change in the language of instruction all levels. Extracurricular programs in English should has led students to struggle to understand English- be developed, especially as students transition from language materials and has prevented them from primary to secondary schools. sufficient language proficiency to perform well on national exams and in higher education. It can also Tanzania is seeking to implement another round of affect teachers who may not have the necessary reforms into its curriculum, with attention to basic language proficiency to effectively teach. Research skills as well as soft skills such as good manners that from both international and African language studies are useful in the labor market. However, the ambitious has indicated that language learning is generally goals of curriculum reform cannot be achieved more efficient after mastery of concepts and skills without equitably distributed, qualified and competent in the dominant language/mother tongue (Ouane teachers who are innovative, cooperative, and able and Glanz 2010). If the government continues the to continue in their professional development as they current language of instruction policy, proficiency adapt to new students as they prepare to enter a goals in both the Kiswahili and English languages growing and changing labor market. have to be strengthened for teachers and students at National Examinations and Learning Assessments The National Examination Council of Tanzania proceeding to Standard 5. Students are often asked (NECTA), a semi-autonomous agency under MOEST, to repeat if they fail the SFNA. Many end up dropping is mandated to administer all examinations and out after failing the SFNA. assessments in Tanzania, including the PSLE, the CSEE at the end of lower secondary education (Form Regular monitoring and evaluating student learning 4), the Advanced CSEE (ACSEE) at the end of upper through learning assessment and classroom-based secondary, the national exams at the end of Standard formative assessment are important for identifying 4 in primary and Form 2 in lower secondary education, areas of improvement and making necessary and the exams for teacher training. Additionally, changes. The government could establish a system NECTA is also leading the national 3R assessment, for monitoring and evaluating student learning which was modelled after the EGRA and EGMA, and outcomes to ensure that progress is being made. The assesses students in reading and arithmetic at the current 3R sample-based national assessment could end of Standard 2. be strengthened and institutionalized. Once the new education structure is introduced with 6 years of Tanzanian national examinations, including the primary education and 4 years ordinary secondary SFNA, are high-stakes examinations that have education (10 years of basic education), as well as consequences on promotion and repetition. As the elimination of the PSLE, Tanzania could consider illustrated in figures 3 and 4, students tend to drop out introducing a national assessment at Standards 5 or 6 of school at critical grade-level examination points: for diagnostic purposes (not for selection of students) Standard 4, Standard 7, Form 2, Form 4, and Form 6. At and based on lessons learned from the current SFNA. the end of Form 6, only slightly more than 10 percent The planned sample-based national assessment at of the cohort remain in school. These examinations Form 2 could be informed by two pilot cycles that are considered the guardians of education quality will be supported by the World Bank’s Secondary and serve as gateways to sift out underachieving Education Quality Improvement Project (SEQUIP). students. Although the SFNA is technically a learning Finally, there is a need to strengthen classroom- assessment, students are required to pass it before based formative assessment. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 24 Based on the analysis of examination items, the Overall, there is a lack of coherence and alignment use of multiple-choice questions in the SFNA and between curriculum, assessment, and teacher PSLE in mathematics may not adequately prepare instruction. In addition to the misalignment between students for the more complex questions they will curriculum and assessment illustrated above, encounter in secondary education. NECTA’s use teachers’ instructional content does not always match of multiple-choice questions enables it to assess curriculum standards and examinations (Atuhurra many students in a short period of time, and these and Kaffenberger 2022). Although teachers cover assessments have been found to be the best way to topics in accordance with the curriculum, they may maintain a high degree of objectivity. These types spend instructional time emphasizing material that of assessments are used in other countries such differs from the priorities of national examinations. as Turkey (Hannah et al. 2019). However, with the For example, according to curriculum standards new curriculum focusing on competencies, learning in mathematics, teachers should spend two-thirds assessments and examinations could play a larger of their total instruction time on number sense and role of supporting learning by using more open- measurement. However, studies have shown that ended questions that better assess competencies they spend less than half their instructional time on and higher-order skills. The discrepancy of results in these topics (Altuhurra and Kaffenberger 2022). the national versus international assessments points Moreover, teachers have been distributing an equal to the urgent need to review the current national amount of instruction time covering all five levels of Standard 4 assessment to bring it more in line with a cognitive skills development instead of spending competency-based curriculum. NECTA could use the more time on operations and measurements, which item types in the OECD-PISA assessments as a basis the exams prioritize. This suggests that there is an for updating national assessments and examinations imbalance between the priorities of the assessment exams and the instructional time spent on various . topics in the curriculum. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 25 EDUCATION GOVERNANCE AND FINANCING CHALLENGES Education Governance Basic education in Tanzania is overseen by been limited, and there are varying levels of financial MOEST and PO-RALG. The former is responsible and technical capacity for planning, coordination, for policy and quality assurance while the latter for and management. LGAs have little control over the administration and management via vertical structure earmarked funds at the central level and generate including ward, district, regional education offices limited own-source revenue to finance their own under the auspices of LGAs. Each of the two ministries three-year education plans. The latter are determined is headed by a minister, permanent secretary, deputy by an LGA’s capacity for revenue generation. This permanent secretary, education commissioner results in a mismatch between local needs and (MOEST), director of education administration centralized priorities. The poorer LGAs have had (PO-RALG), and various directors. There are semi- the greatest increase in student enrollment due to autonomous agencies, including TIE, which is FBEP and require extra support to bring them closer responsible for curriculum; NECTA for examinations; to national norms of education inputs, outputs, and TSC for teacher management; National Council of learning outcomes.  Technical and Vocational Education and Training (NACTVET) for TVET regulations; Tanzania Council Primary schools in Tanzania are led by head of Universities (TCU) for oversight of universities and teachers under the oversight of ward and district tertiary colleagues; and Tanzania Education Authority education officers of PO-RALG and supported by (TEA) for grants. Some of these agencies have been school management committees. Schools develop under legal acts dating back to the 1960s and 1970s. annual Whole School Development Plans but most These agencies all have semi-autonomous status, lack planning and budgeting guidelines, as well as and some directly receive budget provision from the the technical capacity and tools, to do so. The plans MOFP. They tend to be understaffed or underfunded, are often only partially funded due to the budget and often do not work in coordination with each other. ceiling set by LGAs. Even though funds are being For example, while TIE has introduced a competency- sent directly to the school via capitation grants (CGs), based curriculum, NECTA continues to adhere to a school managers have little autonomy on the use of content-based curriculum in which testing depends CGs as there are strict guidelines that govern the use mostly on rote memorization of facts and multiple- of capitation grants and the level of funding is low, choice questions. at about US$2 per primary student. A lack of clarity regarding the FBEP may also have inhibited the In the 1982 Tanzania Local Government Act, willingness of parents and community to contribute Tanzania devolved funding and responsibility for financially. Parents are expected to engage in the basic education to its 185 LGAs, but this has yet management of schools through school management to be fully operationalized. While ward, district and committees (SMCs), but the structures are not regional education officers have been put in place by adequately empowered, and training has been PO-RALG to aid decentralized service delivery, many lacking. Most head teachers and SMC members education policy and planning decisions remain at have not had access to continuous professional the national level. LGAs’ discretionary budget and development.  responsibility for basic education service delivery has STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 26 The fragmentation of governance, lack of capacity and institutional assessment which revealed the and true empowerment at LGAs and school levels governance “problem” in service delivery, pictured as result in diluted accountability in achieving results. a nine-step loop (figure 13). In 2020, the World Bank conducted a governance Figure 13: An evolving picture of systemic constraints (problem statements) for quality education service delivery 01. 02. Policy Overlapping strategies are mandates and parallel 03. fragmented across 'chains of command' for No clear direction to ministries and LGAs, decision-making(quality ensure that resource resulting in a weak 'culture' service delivery vs delivery mobilization and allocation for results-oriented of education services); at all levels is aligned with planning, as well as a lack policy dialogue lacks education reforms and coordinated targets. policy reforms. leadership. 06. 04. 05. Disjointed Complex and competing Limited capacities for data management, with LGAs implementation across MDAs for multiple digitized systems (activity) planning, autonomous planning by set up regardless of ICT matching school needs LGAs, and inconsistent environment. and LGA priorities. access to CPD for teachers. 07. 08. 09. No institutionalized No institutionalized School communities' school planning and weak linkage between school engagement is education capacities to mainstream planning and planning for development is driven by school-based SQA follow village development; up into potential of joint O & OD gaps. decision-making. is not maximized. And back to the beginning... Source: World Bank 2021. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 27 Education Financing In Tanzania, government spending on the education 2019/20. Although there has been a slight recovery sector has shown a declining trend. Immediately in the last financial year (2021/22), with the budget for after the introduction of FBEP, the government’s education rising to 19 percent, the government’s per budget allocation to the education sector increased student spending (including students of all levels) has to 22.2 percent of total government spending from de facto declined since 2015 due to the rise in school 2015/16 to 2016/17. However, the budget declined population (figure 14). in subsequent years, hitting a low of 18 percent in Figure 14: Education budget as percent of government budget, 2016/17 to 2021/22 Source: MOEST 2022. The government spending is not equitably secondary education budget has nearly doubled in distributed across all levels of education and favors nominal terms on account of the extension of FBEP secondary and higher education, especially on a per to secondary education, and per student spending capita basis. The budget allocation for preprimary remains higher than in 2016 despite large enrollment and primary education as a percent of total spending increases. The budget allocation for higher education has declined since 2017/18. There has been a 50 (including tertiary technical colleges) is relatively high percent drop in effective spending per primary at around 20 percent of total education spending, student since 2016/17. Over the same time frame, the and it has been on an increasing trend since 2018/19. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 28 Figure 15: Percentage of budgetary allocation to education sector by levels, 2014/15 to 2019/20 Source: MOEST 2020. Table 1: Education Recurrent Expenditures (total, per student) 2020 Recurrent Expenditures Per Student Expenditure Enrolment USD in Public in Thousands Relative Billions USD Millions % Thousands PCGDP to TSh TSh (approx) (approx) Primary Preprimary, Primary & non-formal 1,805 752 54.7 11,941 151 64.0 5.9 1 Secondary 1,086 452 32.9 2,172 500 212.0 19.4 3.3 Higher Education incl. Sci&Tech 330 137 10.0 120 2,748 1164.9 106.5 18.2 Teacher Education 27 11 0.8 13 2,063 874.5 79.9 13.6 Technical & Vocational 54 22 1.6 138 392 166.2 15.2 2.6 Total 3,302 1,375 100.0 Source: Education Sector Analysis 2021. Table 1 highlights that the per student recurrent secondary education it is 5.4 percent. The low level of expenditure for primary students was US$64 (T spending on textbooks and other teaching learning Sh151,000) in 2020, which is about 1/18th of the materials help explain the inadequacy of textbooks higher education per student expenditure. Within in schools described above. The government’s that, about 90.0 percent of recurrent spending are for capitation grant is supposed to cover maintenance, salary expenditures, resulting in very low spending small repairs, and teaching-learning materials, but for supporting the quality of education in textbooks, the amount released per student is extremely low, other teaching learning materials, and basic school at about US$2 per primary student and US$4 per maintenance. For primary education, only 7.2 percent secondary student (see figure 16). of total expenditures are for Instructional material; in A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 29 Figure 16: The actual release of capitation grants per student Source: MOEST 2022. Insufficient investment in instructional materials There is a need for targeted equity-based and basic school operations can have a detrimental approaches to support the poor, orphans, or other effect on the school environment and hinder learning vulnerable groups, or LGAs that lag behind in basic outcomes. The meager allocation of capitation grants education. This would help prioritize the scarce to schools undermines their capacity and autonomy, resources toward needy children and needy LGAs. as the funds fall far short of meeting essential needs Currently, teachers are assigned to schools using a at the school level. LGAs and schools in relatively deployment formula, but transfers are still permitted. better off regions could supplement with their own This system often leads to a concentration of more resources. Also, LGAs and school communities in qualified and experienced teachers in urban areas higher income regions tend to attract more and and regions with better socioeconomic conditions. better qualified teachers, so the per student recurrent Concurrently, the capitation grant remains the same expenditures vary greatly among the regions and across regions and does not account for varying LGAs. Higher primary education spending per student needs. If targeted measures, such as bursary schemes is correlated with better learning outcomes (World for orphans or hardship allowances for teachers, are Bank 2021). In regions where the average primary in place, children from disadvantaged households, education spending per student was higher, a greater such as poor, rural, and where the head of household proportion of Standard 2 students achieved the oral has no education, are more likely to enroll, and there reading fluency benchmark. In Iringa, where the per would likely be more equitable allocation of teachers student budget is US$108 (T Sh 255,622), 8.0 percent and other resources. of students achieved the benchmark. In contrast, in Katavi, where the per student budget is US$61 (T Sh 144,051), only 1.2 percent of students achieved the benchmark. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 30 OPPORTUNITIES AND POLICY RECOMMENDATIONS While Tanzania has made important strides in government is planning to update the Education expanding basic education, it faces challenges Sector Development Plan (ESDP) and has established in improving learning outcomes and achieving two committees to review the ETP and the basic inclusive, and equitable, education. While the education curriculum. government approved the current version of Education Sector Development Plan 2022–2026 The recommendations in this note provide timely in 2020, since then, the global and national input to the government reform process, and they environment has been significantly impacted by the represent the World Bank education team’s collective COVID-19 pandemic; the Ukraine war; fast-changing technical perspective on how to address the major technology, especially involving artificial intelligence challenges to reforms over the next plan period for (AI); and the increasing awareness of climate change, basic education. The recommendations also include its impact, and the critical role education needs references to policies and practices from high- to play for climate adaptation and mitigation. The performing education systems whenever relevant. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 31 STREAMLINE EDUCATION GOVERNANCE AND EMPOWER LGA AND SCHOOL MANAGEMENT In most country systems, education is under the annual operational plan that includes key performance jurisdiction of a single ministry, the Ministry of indicators (KPIs), such as the standardization of Education, which is responsible for the development multiple planning processes, financing channels, and of education policies and their implementation fiscal reporting. including public service delivery. For Tanzania going forward, it is also advisable to have one single national The central government is also responsible for the ministry responsible for policy and quality assurance, redistribution of resources using targeted financing as well as for implementation and public provision and other interventions to address the regional for basic education. Tanzania could streamline its disparities that arise between LGAs. LGAs’ own various ministries and agencies responsible for source revenues collection could be strengthened basic education, review their mandates, and improve across the board, but LGAs in rural and poverty- coordination at the national level. As of June 2023, stricken areas may suffer chronic shortage of funds. with two ministries responsible for education, neither A more targeted approach is needed to address the of them can afford to fully staff its basic education regional disparities in development. The government departments. There is also a higher overhead cost could agree on a system for ranking LGAs in terms associated with PO-RALG and diluted accountability of their own source revenues to target support to for student learning outcomes. A third-party low-ranking LGAs. Measures could include higher management consultant could be useful to provide capitation grant allocations for orphans and other the government with a new blueprint for coordinating vulnerable students, hardship allowances for education management and enhancing accountability teachers serving in those areas, and other central for student learning outcomes. transfers to low-income LGAs. The government could also provide training opportunities for LGA officials An effective education management system through a structured capacity-building system that balances centralization and decentralization. This combines training modalities and covers priority would enable the government to set and enforce capacity-building needs, which would be supported standards while also allowing for local autonomy by ICT support and linked to a career ladder. and decision-making. The structure could also have clear lines of accountability, effective mechanisms for Minimum quality standards for preprimary, primary, monitoring and evaluation, and sufficient resources and secondary schools could be established so that to support the education system. Tanzania could the government clarifies the minimum financing and operationalize decentralization by providing LGAs a inputs needed for schools to be functional. There clear and strong accountability framework by which are currently construction standards, but they are not they would have more discretionary budgets and fully adhered as illustrated above due to constraints autonomy to manage schools within their jurisdictions in financing, capacity, and lack of clear accountability and be directly accountable for results through toward service delivery. Once standards are key performance indicators. LGAs’ capacities for established, it is also important to update the per education service delivery could be institutionalize student recurrent expenditure, to increase the share through a 3–5-year strategic plan (e.g., Education that goes into teaching and learning, and the level of Sector Guidelines for Operational Planning) with an spending in preprimary and primary education. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 32 School leadership plays a critical role in Collaboration and networking. Encourage implementing education sector reforms. To collaboration and networking between strengthen school leadership and management in schools, communities, and other stakeholders Tanzania, the following policies and measures could to share best practices and address common be considered: challenges. Professional development. Provide Recognition and incentives. Provide opportunities for continuous professional recognition and incentives for successful development for school leaders and teachers school leaders and teachers to motivate them to enhance their skills and knowledge in school and encourage others to strive for excellence. management and leadership. Engaging the community strengthens the Performance evaluation. Implement a implementation of education reforms. FBEP had an comprehensive performance evaluation unintended negative consequence on the community system to assess the effectiveness of school engagement. To enhance community involvement, leaders and teachers, which could include the government could establish national guidelines regular feedback and coaching. for parents and community members’ engagement in their children’s education. In particular, communities Decentralization of authority. Delegate could be encouraged to develop sustainable and authority to school leaders and teachers to innovative approaches for school feeding, which make decisions related to school management could be shared with and emulated by other and operations, while maintaining overall communities. The government could commission government oversight. a comparative analysis of good practices for community-based monitoring, bringing success Resources allocation. Provide adequate stories from EQUIP-T, Tusome Pamoja, UNICEF, and resources such as funding, instructional civil society organizations (CSOs). materials, and facilities to schools to support effective leadership and management. INCREASE FUNDING AND ITS EFFICIENT USE TOWARD TEACHING AND LEARNING Adequate funding is essential for providing quality are achieved for each and every school and to education to students. While the government spends strengthen foundational learning for all. Specific a reasonable portion of the budget on education, measures include raising financing to 20 percent of per student nonsalary expenditures for preprimary government budget, reprioritizing preprimary and and primary education are extremely low at below primary education in relation to higher education and US$64 per student per year. The government increasing the share of spending on teaching-learning could allocate more resources to basic education materials, continuous professional development for to improve infrastructure, teacher training, and teachers, and capitation grants. educational materials to ensure minimum standards A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 33 There could be targeted equity-based financing buttressed by intensive monitoring of progress on for poor, vulnerable and marginalized children. selected education indicators. Setting a minimum The efficient use of resources is critical. Education set of inputs that must be attained by primary and financing is more effective when adequate provision secondary schools would be fundamental to the is made for core teaching-learning purposes such as realization of equitable service delivery across the higher capitation grants and more teaching-learning country. An intensive focus on equity-based financing materials. Areas that are lagging national indicators will generate an increase in the overall learning deserve attention in the distribution of resources outcome indicators for the country in the long term. IMPROVING TEACHER SUPPLY AND STRENGTHENING THE TEACHING PROFESSION Investing in higher-quality teacher education and the teacher-preparation curriculum to ensure it is continuous professional development of teachers better suited for the 21st century, providing better is crucial for improving student learning outcomes support for college tutors and newly qualified and the long-term health and competitiveness of teachers to meet the needs of the rapidly changing the education system. These improvements could education environment, and improving teachers’ include attracting higher-achieving students to the mastery of content and pedagogical requirements of teaching profession through interviews, revamping the curriculum. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 34 MEWAKA implementation should ensure quality in MEWAKA sessions. However, several challenges and sustainability. The government, with support were identified, including low teacher motivation, from Education Program for Results (EPforR) partners, budget constraints, limited access to ICT materials, developed the National TCPD Framework, which is and issues with electricity and internet connectivity. popularly known by its Kiswahili acronym MEWAKA. MEWAKA is primarily a school-based learning A single national policy framework for teachers is approach, complemented by cluster-based training essential to align all the government efforts. The conducted through Teacher Resource Centers policy could focus on higher professional standards, (TRCs), hub schools, or nearby teacher training more equitable deployment, better and regular colleges. This program has tremendous potential support through TCPD, and continuous assessment to address teaching skill gaps. The University of of teachers’ subject-based and pedagogical Dar es Salaam research team, commissioned by knowledge. The implementation of such a policy the World Bank, conducted a baseline study on would encourage higher performance outcomes MEWAKA. The preliminary report revealed that the within the teaching profession (see box 1). lecture method and peer facilitators were prevalent Box 1: Teacher management in Shanghai Preparing teachers with robust subject-based knowledge and teaching skills. The entry requirements of the preservice program depend on the candidate’s academic performance on the National College Entrance Examination. For preservice programs at Shanghai’s major universities, the entry standard is high. Teacher trainees are equipped with focused subject-based training and required to finish a six-month teaching practice. Attracting the best into the teaching force. There is an established set of requirements to enter the teaching profession. Primary school teachers must have at least a three-year tertiary college degree (da zhuan, which is equivalent to the International Standard Classification of Education (ISCED) 5B level) and secondary teachers need to have at least a four-year bachelor’s degree (equivalent to the ISCED 5A level). All candidates must also pass a written test and interview to obtain a teacher certificate to be eligible to teach in primary and secondary schools. Recruitment for teachers has been decentralized to local government and school level; during the selection process, candidates participate in interviews and a mock teaching assessment during which they teach a mini-lesson to demonstrate their teaching competencies. Promoting teaching excellence through an effective three-pillar teacher development system. Teachers are provided with a career ladder, supported with elaborate school-based professional development, and given in- service training through teaching-research groups. The teachers’ performance is linked to career progression and performance pay. This comprehensive professional development framework incorporates multiple layers of in- service training, evaluation of teacher performance, and a structured career ladder that provides both motivation and a mechanism for teachers to progress in their careers. These key factors contribute to Shanghai’s demonstrated excellence in education. Source: Liang et al. 2016. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 35 ENSURING THE PROVISION OF INSTRUCTIONAL MATERIALS AND LEVERAGING ICT Providing students with access to quality strengthen the Learning Management System (LMS) educational materials is vital for their learning. The and e-learning library. It is critical to support the use government could invest in creating and distributing of technology in the classroom by continuing to textbooks, workbooks, and other learning resources invest in ICT skills for teachers, education managers, to ensure that all students have access to the materials and students, as well as in technology infrastructure, they need to succeed. It is critical to modernize such as computers and internet access. To date, the and transform TIE to be a center of excellence in government, with support from the World Bank’s curriculum development, research, and evaluation Secondary Education Quality Improvement Project of education. There is the need to consider which (SEQUIP) and BOOST programs, has invested in ICT functions can be outsourced for improved efficiency skills in 800 primary hub schools and 500 secondary and effectiveness (see box 2). hub schools, enhancing school- and cluster-based teacher training and student learning. The vision of Align the current efforts on ICT integration to ensure having at least one hub school in each of the 4,000 technology can effectively enhance the process Tanzania wards can be realized with concerted of learning and teaching. Efforts are underway to investment efforts in technology. These hub schools STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 36 are expected to lead the way and act as ICT package and providing thorough training based on integration hubs for the entire country. Alongside this, these strategy and framework, a solid foundation can the government has formulated an ICT Integration be established, leading to improved effectiveness in Strategy for Schools and a Digital Skills Framework for ICT integration. Teachers. By equipping the hub schools with vital ICT Box 2: Kenya’s experience on providing affordable textbooks to every student Kenya’s government, with support from World Bank Secondary Education Quality Improvement Project, has initiated efforts to revamp its procurement and distribution systems of school textbooks. This move comes in response to past struggles to make textbooks affordable and available for every child in school. In the past, the Kenya Institute of Curricula Development (KICD) invited publishers to submit textbook content for each subject for every grade. KICD then reviewed the content based on the curricula along with the proposed cost and quality of paper and printing. It short-listed six titles for each subject for each grade, which were then listed in a government-approved catalogue called the “Orange Book.” Schools had the freedom to select any one of the six titles and purchase those books with annual grants provided by the government. However, due to inadequate funding, there were an insufficient number of books, the books did not arrive on time, or they were unaffordable. The government’s objective in reforming its textbook system was to provide textbooks to every student by reducing textbook prices, while maintaining a high quality of printing, paper and binding. A team of experts identified a core textbook for each subject and each grade, which the government could purchase for each child, with a focus on improving the distribution efficiency. After considering several options, the involved parties (public and private publishers, the Ministry of Education, the KICD, and other key local stakeholders) agreed to a commercial bidding process, which led to a framework agreement with the successful bidders. The competition was limited to the publishers listed in the “Orange Book,” and it was agreed that the lowest priced book would be the core textbook. Other bids, which were 20 percent of the lowest priced book, would be listed in the “Orange Book” for parents who wished to purchase supplementary materials. The price of the textbook included delivery to the school and a discount on large-volume orders. The bid also stipulated quality parameters for paper, printing, and binding, and further review of content by KICD upon being short-listed. The revised process resulted in significant cost savings for the country, although there were some initial challenges. Local publishers often lacked capacity to print the required volume in such a short time frame; they were also facing shortages of paper, skilled workers, or modern printing machines. To address these challenges, the World Bank collaborated with the local team, offering guidance on the procurement process, helping the publishers import quality paper, recruiting and training skilled workers, and outsourcing/managing some of the printing to meet Kenya’s demand and quality standards. Recognizing the potential benefits of the reform, the government decided to expand the process to all textbooks, all subjects, and all grades, from preschool through grade 12. Source: Jena 2018. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 37 IMPROVING ACCESS AND QUALITY OF EARLY CHILDHOOD EDUCATION (ECE) The sluggish progress on enrollment is largely due socioeconomic status, traditions, culture, disabilities, to ill-preparedness of the system to provide age- or geographical location. Further, the government appropriate teaching and learning for preprimary- could strengthen its capacity and invest more in the age children. To address these concerns, the foundational phase of learning including for younger government could make preprimary education more children ages 3–6. MOEST could develop a five- accessible to all children of the appropriate age and year plan to address these issues in early childhood ensure full participation irrespective of their gender, education by considering the following activities: a. Deepening the delivery of model ECE by constructing preprimary classrooms within existing primary schools, including age-appropriate furniture, latrines and water, health and sanitation (WASH) facilities, and by establishing one model preprimary school in each ward. b. Promoting community- and home-based ECE models, especially for children who live at long distances from their designated schools. c. Enhancing the quality of preprimary education by strengthening the capacity of ECE teachers and instructors through training on the newly developed age-appropriate learning framework for ECE and provision of the ECE teaching-learning materials package to all ECE classrooms and facilities. d. Establishing sustainable school meal programs for preprimary learners. e. Exploring innovative low-cost approaches of ECE delivery, including the use of Interactive Audio Instruction (IAI) as is the case in Malawi, Zambia and Zanzibar. f. Developing solid partnerships with private sector providers, especially in urban areas to ensure application of uniform curriculum and learning standards for ECE learners. g. Strengthening family and community engagement in ECE and to understand the benefits of early learning. ECE, including the preprimary education phase, urgent need to strengthen the curricular, effective requires adequate, sustained, well-targeted, equity- deployment of adequate qualified teachers, train based financing and efficient utilization of available teachers in play-based child-centered pedagogy resources. To improve access and inclusivity, the (preservice and in-service) and supply sufficient age- government needs to optimize the quality and appropriate teaching-learning materials. relevance of early childhood education. There is an STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 38 STRENGTHENING LEARNING ASSESSMENT AND PROMOTING FORMATIVE ASSESSMENT Learning assessments, such as 3R assessment, Classroom-based formative assessment could be could be implemented regularly and used better to strengthened to complement summative learning improve teaching and learning in schools. There is assessment and high-stake national examinations. a need to disseminate more widely the item analysis It is important to reconnect examination and of the 3R assessment and to support teachers in their assessment with the goal of improving instruction and efforts to improve instruction on the most challenging student learning. In this rethinking of examination and topics for students. MEWAKA sessions can be assessment, Tanzania would be joining education organized around diagnostic reports of 3R, SFNA, and reforms that are happening around the world. PSLE. Another learning assessment at higher primary Increasingly high-performing education systems grades, such as Standard 6 or 7, is also needed are placing more and more emphasis on training for monitoring learning outcomes before students their teachers to carry out routine classroom-based proceed to Form 1. This is particularly important if the formative assessment as a regular part of the teaching government decides to abolish PSLE and to allow all profession. Sufficient skills on formative assessment students to proceed to Form 1 because of fee-free are essential to student learning outcomes and must and compulsory basic education. be integrated into preservice and in-service teacher training (see box 3). A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 39 Box 3: National learning assessment system in Mauritius The recent Nine-Year Continuous Basic Education (NYCBE) reform has brought many changes to the education sector in Mauritius. As part of its six major pillars of education, meaningful assessment is emphasized, and the government advocates a paradigm shift in the conception of assessment and evaluation. As indicated in the 2015 National Curriculum Framework (NCF), a key feature of the proposed curriculum review is that assessment is curriculum-driven and is viewed from a three-fold perspective, namely assessment as, for and of learning. Assessment is seen as an integral part of teaching and learning, and it is optimized for support rather than used solely for measurement and reporting. The 2015 NCF adopts a comprehensive approach to assessment in a bid to making it more meaningful and useful to the learner, teacher, school, stakeholders, and country. Within an inclusive paradigm, teachers are required to use differentiated assessment, which is to have a manageable class assessment plan that is flexible enough to accommodate a range of learners’ needs. The comprehensive national assessments of learning at key stages are as follows: ∙ Primary school readiness at the beginning of grade 1. The Learner Development Profile (LDP) is introduced for every child starting at the preprimary level. ∙ Diagnostic assessment at the beginning of grade 3. The results will enable child-centered remedial work to be undertaken and allows progress to be recorded. A teacher’s handbook on how to use assessment instruments to support learning was developed in 2020. ∙ Assessment at the end of grade 6. Primary School Achievement Certificate (PSAC) has replaced the much- contested Certificate of Primary Education (CPE). It includes a school-based assessment component that is competency-based and aligned with the standards of learning prescribed in the curriculum. ∙ Assessment at the end of grade 9. National Certificate of Education is used to assess the progression of students to upper secondary and to general, technical, or vocational education. ∙ Assessment at the end of grade 11. The results include being awarded a School Certificate (SC) / O level, or an SC Technical, or Vocational Qualification, which can lead to A level, training centers /polytechnics for technical diplomas, or the labor market. ∙ Assessment at the end of grade 13. The results include being awarded an A-level / Higher School Certificate (HSC) or HSC Professional, which can lead to tertiary education, polytechnic education, or the labor market. Source: Mauritius Ministry of Education 2015 and 2016. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 40 SUMMARY OF RECOMMENDATIONS TABLE Challenges Government Efforts Recommendations • Review education governance with a view to streamline and strengthen coordination at the central level; potentially consolidate MOEST and PO-RALG at the national level with an emphasis on strengthening LGAs and school management. • Make operational the decentralization policy and strengthen the Governance • Ongoing capacity financial (discretionary budget) and technical capacity of LGAs management building of LGAs including leadership, planning, monitoring and evaluation, financial management, procurement, safeguards, and engineers and super- visors for quality school construction. • Empower school management through enhanced capitation grants and accountability. • Strengthen community engagement in education. • Ensure financing for the recruitment of teachers. • Ensure total education spending reaches at least 20 percent; or education spending as a percentage of GDP to reach at least 4 percent. • Education budget • Ensure capitation grant increases at par with GDP growth rate; increases since FBEP, varying capitation grants to cater to diverse differences in region, Financing but declining in students, and school size. subsequent years • Establish equity-based financing for vulnerable groups such as orphans, students with disabilities, and lagging LGAs. • Adequate funding for non-salary recurrent budget for quality ed- ucation MEWAKA, school quality assurance, TIE (textbooks), TSC (teachers management and life cycle), teachers’ education. • Reentry for all drop- outs • Fully Implement the non-barrier reentry to regular public schools for • Alternative education dropouts, as part of the compulsory 10-year basic education. pathways for preg- • Establish minimum standards for primary and secondary schools nant girls to return to including clear accountability system. Access, school. • Provide targeted approaches such as bursaries for needy children; especially for • Classroom construc- enhanced and differentiated capitation grants for hardship areas the rural poor tion to enable the and different student population; targeted school construction; and and enrollment of more school feeding programs. vulnerable children and reduce • Identify and designate the bottom quartile of LGAs for concentrated and the distance to support to channel development partner and government resourc- reducing schools. es to and to achieve synergy. gender • Primary and sec- • Offer hardship allowances and other incentives for teachers. disparity ondary safe school • Prioritize construction in areas where distance to school is large; programs to reduce ensure schools are built close to the community. dropout and ensure • Leverage EdTech through ICT hubs to improve teaching and learn- safety in schools ing in rural areas. A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 41 Challenges Government Efforts Recommendations • The National TCPD Framework and implementation of • Provide a need-based teacher workforce and recruitment plan. TCPD-MEWAKA • Review preservice curriculum to align with school curriculum, • Guidelines for increase practice, ensure funding for block teaching and migration managing volunteer from certificate to diploma and degree programs. teachers. • Decentralize teacher recruitment and use interview including mock • Yearly ad hoc effort to teaching to select the best candidates into teaching profession. recruit new teachers. • Provide induction, mentoring, coaching, appraisal, and career • Teacher-deployment ladder. Quality – strategy (primary and • Ensure sustainable implementation of MEWAKA for all teachers. Teachers secondary) • Review the mandates of the Teacher Service Commission (TSC) and • Establish (and plan Teacher Professional Board (TPB) and consider consolidating the to operationalize) teacher administrative management with the teacher professional Teacher Professional management of standards and certification; at the same time estab- Board lishing regional and LGA units of TSC/TPB). • Prepare a teachers’ • Introduce one single national teacher policy framework that covers management frame- the lifecycle development of teachers, to be managed. The consoli- work. dation of TSC/TPB is highly recommended. • Raise TTC entry re- quirements to Divisions 1 to 2 • Ensure alignment of curriculum, assessment, and teacher instruc- tion. • Develop TIE as a center of excellence for curriculum and teach- Quality – ing-learning resources development, and R&D for teaching and curriculum, learning. syllabus, • Introduce specific budget line for textbook directly managed by TIE. textbooks, • Ongoing curriculum Also develop text management policy to include issues of textbook other teach- reform life span and replenishment. ing-learning • Consider outsourcing textbook development, printing and distribu- materials, tion and start with a few titles as a pilot. and LMS • Ensure quality and sustainability of LMS; regularly conduct teaching skills competition to crowdsource the best teaching videos, aligned with curriculum, to be loaded onto the LMS. • Develop and operationalize quality assurance for early childhood education for 3–5-year-olds. • Pilot model preschools in select regions following successful mod- els of GPE and satellite schools. • Review the preprimary curriculum and pedagogy to be play based Early • One-year preprimary and child-centered. childhood education • Review existing preprimary teacher preservice curriculum to reflect education the teaching and learning practices in the ECE classrooms. • Introduce preprimary teacher preservice diploma programs. • Establish collaborative ECE workforce from ministerial to the village level. • To establish ECE sub sector planning and budget code/line. • Develop National Learning Assessment Framework in line with best regional/international practice. • Introduction of 3R • Continue implementation of 3R assessments. assessment at • Review NSFA, FTNA, and CSEE to align with competency-based Learning Standard 2 curriculum. assessment • Development of Form • Introduce learning assessment at the upper-primary level. 2 evaluation • Strengthen learning assessment including classroom-based forma- tive assessment and summative assessment by teachers. • Consider participating in regional or international assessments. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 42 ANNEX ANNEX TABLE 1: MAPPING OF INSTITUTIONS MANAGING TEACHERS AT DIFFERENT STAGES OF THE TEACHERS’ SERVICE LIFE CYCLE No. Role Institutions Involved Legal Mandates /Policy • Public Service Management and Employment Teacher • PO-PSMGG 1. Policy, 2008 planning • MOEST • Government Notice No. 385 • TSC • Teachers Service Commission Act. Cap 448 • PO-PSMGG • Public Service Management and Employment 2. Recruitment • PO-RALG Policy, 2008 • TSC • Public Service Act. Cap 298 • LGAs • Teachers Service Commission Act. Cap 448 3. Appointment • TSC • Teachers Service Commission Act. Cap 448 • PO-RALG 4. Deployment • Public Service Act. Cap 298 • TSC • Teachers Service Commission Act. Cap 448 • LGAs 5. Registration • TSC • Teachers Service Commission Act. Cap 448 • TPB • Teachers Professional Board Act, Cap 314 6. Confirmation • TSC • Teachers Service Commission Act. Cap 448 • LGAs • Public Service Act. Cap 298 • Public Service Management and Employment 7. Appraisal • LGAs Policy, 2008 • Public Service Act. Cap 298 • PO-PSMGG • Public Service Management and Employment • PO-RALG Policy, 2008 8. Development • TSC • Public Service Act. Cap 298 • TPB • Teachers Service Commission Act. Cap 448 • LGAs • Teachers Professional Board Act, Cap 314 • PO-RALG 9. Transfer • PO-PSMGG • Public Service Act. Cap 298 • Regional Administration • LGAs • PO-PSMGG 10. Promotion • Public Service Act. Cap 298 • TSC • Teachers Service Commission Act. Cap 448 • LGAs A WORLD BANK POLICY NOTE FOR TANZANIA – MAINLAND 43 No. Role Institutions Involved Legal Mandates /Policy • PO-PSMGG • Public Service Act. Cap 298 11. Recategorization • TSC • Government Circular on Teachers Recategoriza- • LGAs tion/ Promotion of 2011 12. Discipline • Teachers Service Commission Act. Cap 448 • TSC • President’s Office – 13. Appeal • Public Service Act. Cap 298 State House • Teachers Service Commission Act. Cap 448 • TSC • PO-PSMGG 14. Termination • Teachers Service Commission Act. Cap 448 • TSC • Public Service Act. Cap 298 • LGAs • LGAs • Public Service Act. Cap 298 15. Terminal benefit • Public Service Social • Public Service Social Security Fund Act. No. 2 Security Fund of 2018 • TSC • President’s Office – State House 16. Reengagement • Public Service Act. Cap 298 • PO-PSMGG • Teachers Service Commission Act. Cap 448 • TSC • LGAs Source: TSC 2023. Note: local government agencies: LGA; Ministry of Education, Science, and Technology: MOEST; President’s Office – Public Service Management and Good Governance: PO–PSMGG; President’s Office – Regional Administration and Local Government: PO-RALG; Teacher Service Commission: TSC. STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA 44 REFERENCES Atuhurra, J., and M. 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STRENGTHENING BASIC EDUCATION SYSTEM AND IMPROVING LEARNING OUTCOMES IN TANZANIA