77913 Djibouti SABER Country Report TEACHERS 2010 Policy Goals Status 1. Setting clear expectations for teachers Expectations for students’ learning exist, but low working time requirements may limit teachers’ ability to fulfill both teaching and non-teaching tasks effectively. 2. Attracting the best into teaching Teacher pay is competitive, but the salary schedule could be broadened to attract teachers to work in hard-to-staff areas and teach critical shortage subjects. 3. Preparing teachers with useful training and experience There are no accreditation rules in place for pre-service training providers, and induction programs are not offered to beginning teachers. 4. Matching teachers’ skills with students’ needs There are untapped incentives to get teachers to work in hard-to-staff areas and to teach critical shortage subjects. 5. Leading teachers with strong principals Selection criteria are vaguely defined and principals’ leadership role is administrative. 6. Monitoring teaching and learning While there are no national student learning assessments at the primary level, data management systems do include information on teacher performance. 7. Supporting teachers to improve instruction Some data are directed toward improving instruction, but there are no requirements for the amount of time allocated to professional development. 8. Motivating teachers to perform Few behavior-related accountability mechanisms exist, and performance incentives and sanctions are weak. 2 THE WORLD BANK DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 Figure 2. Number and share of public school students Education System at a Glance by level and location Djibouti is a small low-income country with a male-dominated teaching force. Low enrollment and completion rates are exacerbated by expenditures on high teacher salaries. In 2007, Djibouti spent 8.4 percent on public education as a percentage of GDP, and this figure has remained fairly consistent over the past decade. 1 In the same year, public spending on education as a percentage of government expenditure reached 22.8 percent. Over the Source: World Bank, SABER – Teachers 2010. past few years, Djibouti has been adversely affected by the global financial crisis. Djibouti was able to access the Eighty-one percent of Djibouti’s teaching force is Crisis Response Window, established within the IDA concentrated in the public sector. Of 728 private school financial architecture, earmarking education as a core teachers, 94 percent work in private government- service. 2 independent schools (Figure 3). A relative majority of private school teachers (65 percent) work in secondary Djibouti’s education system consists of 5 years of primary schools. All private schools are in urban areas . education (ages 6-11 years), and 7 years of secondary education (ages 11-18 years). A relative majority of Figure 3. Number of teachers by sector teachers is at the primary level, with 57 percent of all teachers in primary schools (Figure 1). Figure 1. Number and share of public school teachers by level and location Source: World Bank, SABER – Teachers 2010. Government schools account for 88 percent of total student enrollment (Figure 4). The distribution of enrollment between public and private schools mirrors the teaching force. Around 88 percent of students attend public schools. Of the 12 percent of the student body Source: World Bank, SABER – Teachers 2010. who attend private schools, the vast majority of these (85 percent) attend private government-independent schools. 1 UIS database (accessed on April 4, 2011). 2 World Bank, Country Assistance Strategy, 2009. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 Figure 4. Students by enrollment in school type Figure 6. Teacher-student ratios by region Source: World Bank, SABER – Teachers 2010. Around 78 percent of the total number of teachers and 86 percent of students attend schools in the urban areas Source: World Bank, SABER – Teachers 2010. (Figure 5). It is positive that data on student enrollment and teacher recruitment levels are available by urban and Figure 7. Number of out of school children by gender rural localities (Figure 6) even though Djibouti does suffer from a very weak statistical base: the previous census was carried out in 1983, and all population statistics are based on a demographic survey from 1991. The results from the new population census completed in 2010 and the more detailed household surveys should soon provide a sharper picture to guide education and teacher policy. 3 Figure 5. The regional breakdown of teachers and students Source: World Bank, World Development Indicators 2010. Djibouti should pay particular attention to gender inequality (Figure 7). Currently, Djibouti is listed as one of the 15 countries unlikely to reach gender parity in primary and secondary education by 2015. For example, in 2009, boys were more likely than girls to be enrolled in primary school (GPI of 0.89). 4 Enrollment rates are low (primary 54.5 percent; secondary 30.5 percent in 2009)5. Overall primary completion rates fare similarly, at only 35 Source: World Bank, SABER – Teachers 2010. percent (2006). There are far more male teachers and the teaching force is relatively young. The public school teaching force is largely male (72 percent) with 84 percent of teachers under the age of 40 years (Figure 8). This same pattern emerges among leadership positions: 70 percent of principals are male and have an average age of 30 years. 3 4 World Bank, Country Assistance Strategy, 2009. UIS database (accessed on April 18, 2011) 5 World Bank, World Development Indicators 2010. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 The majority of public school teachers (around 98 easier for teachers to know if their students are achieving percent) hold an open-ended employment status, while what is expected. the rest are employed under contractual arrangement. A completely different picture emerges in the private Tasks are guided by performance goals. However, sector where over 90 percent are contract teachers. teachers’ tasks and time management requirements are undefined. Teachers’ tasks in Djibouti are guided by The Ministry of Education (MoE) Cabinet is responsible performance goals, set by the MoE’s Director General of for setting teacher policies. The General Directorate of Pedagogy. The MoE’s Cabinet is responsible by law for Pedagogy within the MoE is tasked with implementation determining the tasks that teachers should carry out, but and overseeing implementation along with other MoE there are no specified requirements establishing what units - the General Inspectorate and General Directorate these tasks should be or any time stipulations for the of Central Administration. There are 2 teacher number of hours that teachers are expected to devote to organizations – one for primary school teachers and the teaching and other duties. Djibouti might look to high- other for secondary. After teacher strikes took place as performing systems, where teachers’ tasks are well teachers demanded increased pay in the mid-1990s, defined and may comprise teaching, grading these organizations have played a minimal role and assignments, supervising students, integrating difficult collective bargaining is prohibited. students, mentoring fellow staff members, providing substitute teachers, carrying out administrative functions Figure 8. Distribution of public school teachers by age and collaborating on school plans. and gender The school year is long enough to meet student learning time but is not well aligned to teachers’ required annual working time. The school year consists of 224 days at both primary and secondary levels (nearly all high- performing systems have more than 180 days of school). Annual schooling hours at both primary and secondary levels – 5 hours per day (1,120 hours) -- are also in line with those of high-performing systems. However, teachers are only required to work 192 days per year. Djibouti might look into how it reconciles the difference in days to ensure that teachers are there for students to attend school for 224 days per year. Source: World Bank, SABER – Teachers 2010. The definition of teachers’ working time should be broadened to account for work completed outside of Goal 1: Setting clear expectations for teachers the classroom and school grounds. A statutory definition Emerging  (established by the MoE’s Cabinet) of working time exists, acting as a common understanding of how teachers’ Expectations for students’ learning exist, but in- tasks are determined and remunerated, and refers to the class time is low and narrowly defined to teaching, number of hours that teachers spend in the classroom. In limiting teachers’ influence on student learning. high-performing systems, although most of teachers’ Both a national curriculum and student standards exist. time is spent in the classroom, teachers also spend The MoE sets the national curriculum (reformed in 2000) considerable time planning lessons, correcting prescribing the contents in detail, informing teachers of homework, and complying with administrative subject content that should be taught to students at requirements—among other tasks. Therefore, such different grades. It is positive that the General systems generally have a definition of working time that Inspectorate within the MoE sets standards for what includes the overall number of working hours. Djibouti students should know and be able to do at each grade could first consider expanding teachers’ roles to ensure level. Standards can be more useful than curricula in that time in the classroom is not the only official providing measurable goals of student learning, making it expectation of teachers’ working hours. Djibouti assigns SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 almost 100 percent of total working time to teaching (aside from professional development requirements). Goal 2: Attracting the best into teaching The world’s top-performing education systems prescribe Emerging  teaching time as generally less than 60 percent of total working time, suggesting that teachers are completing Admission rates into teacher training programs are other tasks (such as lesson-planning and grading), which low and teacher pay is competitive, but the entry maximize their ability to influence student learning. If the structure for the profession could be more flexible. definition of teachers’ tasks is widened, then Djibouti might wish to look into expanding the definition of The MoE’s Center for Teacher Training sets working time to either the number of hours teachers requirements to enter teaching, but a non-trivial spend at school or to overall working hours. proportion of teachers do not meet them. Primary school teachers are required to: finish secondary Total annual working time is well below that of high- school; complete required coursework; complete a performing systems. Primary school teachers are post-secondary qualification; pass both a written and expected to work a total of 28 hours per week: 26 hours interview stage assessment and participate in work for teaching and 2 hours for professional development. experience training. Secondary school teachers are Secondary school teachers work slightly less – 24 hours in required to graduate from a tertiary education total, 23 hours for teaching, and 1 hour for professional program, pass an interview stage assessment and development. All teachers are required to work a total of participate in work experience training. While Djibouti 192 days per year. For primary and secondary school does have high formal standards for entry into teachers, this equates to 1,075 and 922 hours per year, teaching, around 10 percent of teachers do not comply respectively (Figure 9). These required hours fall below with these requirements. Sixty-eight (68) percent of those of high-performing systems, where working time is those who do not meet the requirements are primary around 30 percent higher. Djibouti’s total working time school teachers – equating to around 13 percent of the requirements are similar to the amount of teaching time total number of primary school teachers Recruitment required in high-performing systems, but this represents of teachers for the primary level is done after 1 year at around 60 percent of total working time (1,400 hours). the teacher training school (CFPEN), or at the BEPC level with 2 years of teacher training. For lower and Figure 9. Total number of primary school teachers’ upper secondary, teachers are required to have at working hours least the CEUF (a two-year university degree) in either mathematics or French. A candidate must succeed at an interview-based assessment examining his/ her motivation to become a teacher and pass the entrance examination. According to data from 2009, entrance into teacher education programs is very competitive, with only 4.3 percent of applicants gaining acceptance. Primary school teachers can enter concurrent training programs (in the latter, subject matter knowledge and pedagogical skills are acquired simultaneously). However, for secondary school teachers, only consecutive programs exist where subject matter knowledge must be acquired first and then, at a later stage, pedagogical skills. Djibouti might consider enabling all teachers to train in the concurrent model and increasing alternative models of pre-service training to ensure that a large, diverse pool of potential teachers may be attracted into the Source: SABER-Teachers, 2010. profession. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 Pay and benefits are generous; but the salary scale is based on years of service alone. Around 98 percent of Goal 3: Preparing teachers with the useful teachers are employed as civil servants. Reported starting training and experience salaries are highly competitive by world standards. Emerging  Compensation packages incorporate several benefits, including health care, sick leave maternity/ paternity There are no designated course requirements or benefits, pension on retirement (the eligible retirement corresponding time allocations. age is 50 years for females and 55 years for males/or 25 years service), and housing support. Salaries rise Teachers receive focused training in subject discipline; moderately over a career, and after 15 years a teacher evaluating the impact of the reform implementation with the minimum education qualification (Brevet (Figure 10) could provide for an increased understanding d'enseignement fundamental) can expect to earn around of using training to improve teacher quality (Box 1). 1.5 times his/her starting salary. High-performing and Primary and secondary school teacher trainees devote rapidly-improving systems pay their teachers with 15 half of their time to pedagogy theory and methods, and years of service between 1.15 and 1.77 times the starting the other half is divided between subject disciplines. salary. In Djibouti, it currently takes a beginning teacher Djibouti should look carefully at examining the impact of 25 years to reach the top of the salary schedule. The the changes under the new reform and how teacher absence of performance-related pay is more concerning effectiveness is impacted. Currently, once students have because this could deter results-driven individuals from completed their training at CFPEN, they must pass a final entering into the profession. Further, the salary schedule exam; no repetition is allowed. While standards to be a and monetary bonuses are unrelated to staffing needs in teacher are high, this has contributed to a shortage of subject areas (potentially because there are no identified qualified primary school teachers and to high teacher- critical shortage subjects). However, while Djibouti does student ratios. Under the reform’s implementation, not seem to have an explicit policy on recruiting teachers Djibouti should examine the extent to which teachers will to work at hard-to-staff schools through monetary meet these requirements, especially given that currently incentives, the salary schedule does reward teachers on around 10 percent of the teaching force is unable to the school’s locality (rural/urban). As with other MENA comply with them. systems, the salary schedule is primarily based on educational attainment and years of teaching experience. Box 1. Reform of teacher education Leadership positions and performance-related  Since 1970, Initial teacher education programs promotions are limited, and no data exist on the have been open to primary school teachers. working conditions at schools. In order to be promoted,  Secondary school teachers did not undergo teachers can only apply to become principals. such training and entered the teaching force Lead/master/head of department posts are not available after completing their tertiary degree. as promotions for teachers who wish to remain in the  A reform process got underway in 2006 and classroom. However, it is positive that results from will be implemented in 2011. All teachers will performance evaluations (conducted by the national participate in initial teacher education educational authority) are used in determining programs. promotions to principal positions. The MoE’s  Only by competitive entrance to an initial Implementation Bureau is tasked with monitoring teacher education program and completing the infrastructure, hygiene and sanitation standards of requirements will teachers receive their schools but no data are available to determine the extent teaching qualification. to which schools comply with these standards. Student- teacher ratios are high by international standards (41 in primary; 34 in secondary). Classroom experience is a prerequisite before teachers can preside over their own classroom, but more time should be devoted to practical experience. Teachers in Djibouti are required to complete between 3-6 months of practical experience as part of their training. This falls significantly below the training requirements of top- SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 performing systems, which require classroom experience locality of a given school (urban/rural status), however. of 1 year or more. Given that the initial years in the Djibouti might consider refining its policies to target hard- teaching profession can impact long-term effectiveness, to-staff schools in particular. In many systems where Djibouti might look into whether practical experience incentives are lacking for teachers to take up posts in time requirements are aligned with preparing teachers hard-to-staff schools, the least qualified teachers end up well. working in schools that serve the most disadvantaged students; this contributes to further inequality in teaching Induction programs are available only to secondary quality and learning outcomes. school teachers, but their duration is comparatively short. Induction programs can assist in smoothing a Using teachers’ years of experience and position in the teacher’s transition from training to work or from profession as criteria for determining teacher transfers different classroom environments. Djibouti should may be leading to inequitable effects, exacerbating hard- consider introducing an induction program for its primary to-staff schools’ recruitment problems. In Djibouti, the school teachers, as do most high-performing systems. number of years of teaching experience and potentially a While secondary education teachers are required to teacher’s position in the hierarchy determines whether a participate in an induction program of up to a maximum teacher is able to transfer from one school to another. In of 6 months, its duration is much shorter than that of some education systems, using years of teaching high-performing systems (Table 1). experience to grant transfer requests has had undesired effects: when teachers gain greater experience and potentially reach a point where they can understand Table 1. Length of induction programs (primary more deeply the diverse needs of students, they are education teacher training requirements), selected allowed to transfer to better-performing schools. This systems could deny disadvantaged areas access to experienced teachers, leaving the least knowledgeable and potentially the least effective teachers in hard-to-staff schools (even if the system has not formally recognized or designated schools as hard-to-staff) and increasing turnover rates. Furthermore, Djibouti uses teacher performance (judged on the feedback of colleagues and principals as well as external evaluators) in accepting transfer requests. In the Sources: OECD 2005 for Japan and the United Kingdom; World Bank, SABER – Teachers 2010 for Chile, Djibouti, absence of a well-managed incentive scheme, this Yemen, Jordan, Lebanon, West Bank & Gaza, and Egypt criterion may also contribute to exacerbate education inequalities. Goal 4: Matching teachers’ skills with There are no identified critical shortage subjects. students’ needs Ensuring that there are skilled teachers in every subject area is a challenge faced by most education systems. Latent  Even in top-performing systems, principals report difficulties in recruiting for certain disciplines. Djibouti has There are untapped incentives to get teachers to not taken steps to identify a set of critical shortage work in hard-to-staff areas and to teach critical subjects which could potentially facilitate planning for shortage subjects. increased recruitment in these disciplines. Djibouti’s policies are more closely aligned with Lebanon or Egypt, Explicit policies and incentives (e.g., better chances of where these are not identified, than Jordan or the West promotion, higher basic salary, scholarships, housing Bank & Gaza which do identify critical shortage subjects. subsidies or food and travel stipends) to attract teachers Djibouti might consider looking into developing a policy to hard-to-staff schools can ensure that all schools are to identify critical shortage subjects. Furthermore, while a staffed with qualified teachers. Djibouti does not have a policy that identifies critical shortage subjects is the first specific policy to explicitly identify schools hard-to-staff step, the educational authorities must complement this schools or areas, or incentives for teachers to take up with incentives that will actually encourage teachers to such posts. It does differentiate salaries based on the SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 take up teaching posts in the identified subjects. High- defined application criteria. Djibouti might consider performing systems have dealt with shortages in subjects better defining the job profile of a principal. This could (mathematics, physics) by offering more flexible and ensure that principals understand clearly what is competitive job market opportunities through monetary expected of them in both applying for and performing and non-monetary incentives to entice qualified this role. In high-performing education systems and individuals considering other professions (e.g. other MENA systems, at a minimum, principals must hold engineering, medicine) to choose to enter teaching (Table a tertiary education degree and have teaching and 2). To attract mid-career professionals from other fields, administrative experience. More extensive selection Djibouti might look into more flexible routes into criteria could form part of the application process such teaching. as: performance in previous positions; completion of a training course specifically designed to prepare would-be principals; completion of an induction/mentoring Table 2. Monetary incentives for teachers in hard-to- program. The typical appointment length of a principal is staff areas: 10 years. At the primary level, the role of principals, referred to as directors, is formalized in regulations. However, the role of secondary education principals was until recently only informally defined. Principals can make some decisions to improve teacher quality and they have a role in evaluating school performance. It is desirable to enable principals to exert some decision-making authority over staffing decisions. While principals cannot hire the teachers at their schools, they can select substitutes for absent teachers, and they play some part in evaluating teachers’ performance and even in teacher dismissal decisions. Finally, as in many other education systems, principals carry out Sources: OECD, Teachers Matter 2005 for Australia, Finland, administrative tasks, such as managing the school budget Ireland, Japan, South Korea, New Zealand, Sweden, Belgium, and representing the school within the community. In Denmark, Netherlands and Switzerland; World Bank, SABER – most high-performing systems, principals play a larger Teachers 2010 for Chile, Egypt, Yemen, Djibouti, Lebanon and role with the corresponding governing agency in both West Bank hiring and firing decisions at their schools. In addition, a growing body of evidence shows that principals, when Goal 5: Leading teachers with strong allowed to carry out these functions, apply sound principals judgment (Table 3). Latent  Principals seem to play a key role in guiding their teachers to improve instruction. Principals have a strong Principals are able to provide instructional vision say in determining the duties and responsibilities of their to teachers at their school and foster a disciplined teachers, and very significantly they can have an explicit learning environment, but selection criteria for role in providing guidance for curriculum and teaching- this role are undefined. related tasks. Principals have the ability to reprimand their teachers for absenteeism and presumably can take Formal requirements to become a principal do not exist. action in curbing this behavior. Setting requirements for principal positions is important because they influence the type of candidate that will Principals are not required to participate in performance apply for this role. In Djibouti, the MoE’s Director of evaluations, but pay seems to be in line with that in Pedagogy sets the regulations determining the role of the high-performing systems. In high-performing education school principal and the MoE’s Cabinet controls the hiring systems and in other MENA systems, an education process. While the average principal is typically 30 years authority holds principals accountable through old and has 5 years of teaching experience, there are no SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 evaluations. Djibouti should look into introducing a Goal 6: Monitoring teaching and learning principal evaluation process to fill this gap. However, a principal’s total compensation package is 47 percent Established  above a regular teacher’s. Djibouti might wish to consider the extent to which candidates to principal positions There is some national student achievement data differ considerably from regular teachers. Principal pay only, but data on teacher performance are very appears highly competitive by international standards. limited. However, there is little variation between the average teacher’s basic salary and a principal’s (around 16 Some student achievement data exist to inform percent), potentially because the same salary schedule is teaching in primary education. At the primary level, applied to both principals and teachers. In addition, there are 2 national assessments (Terminal objectif principals do not receive monetary rewards based on d’integracion) administered annually to all students at performance. Djibouti would be advised to look into how ages 7 and 11 years old. These two assessments enable performance-related pay could act as an incentive for students’ scores to be linked to individual teachers. All motivating principals to perform at their best, as well as secondary school students of age 15 sit for the Brevet de for attracting results-driven individuals to apply to l’enseignement fundamental and then at age 18, all become school principals. students take the Baccalaureate. These two assessments constitute the main assessments for secondary school Table 3. Principals’ decision-making role in hiring and students and do not allow for student scores to be firing, selected systems matched to teachers. It is positive that Djibouti assesses students at these critical junctures–the middle and end points of both primary and secondary school. However, the assessments in secondary school would be better suited to informing, improving, and rewarding effective teaching if they allowed for students’ scores to be matched to either the school or teacher. Assessing learning in as many grades as possible not only has the benefit of providing teachers with comparable data on student learning, but it also offers teachers a better diagnostic of how students are performing at each grade and/or level (i.e., pre-primary, primary and secondary). Unfortunately, Djibouti has never participated in international student assessments. Participation in these assessments would give Djibouti the opportunity to see how its students’ achievement levels measure up with those of high-performing systems across the world. West Bank & Gaza and Yemen participated in Trends in International Mathematics and Science Study (TIMSS) in 2003 and 2007 and are scheduled to take part in the next round during 2011. Since 1979 Djibouti has been a member of CONFEMEN, the organization that Sources: OECD, 2008 – PISA 2006 for Denmark, Ireland, administers PASEC (the Africa regional assessment), and Netherlands, New Zealand, Slovenia, Switzerland, United it is considering taking part in the next PASEC assessment. Kingdom and the United States; World Bank, SABER – Djibouti might wish to look into securing funds to take Teachers 2010 for Chile, Djibouti, Egypt, Jordan Lebanon, part alongside other MENA systems. West Bank & Gaza and Yemen. There are no official regulations stating specifically when teacher evaluations should be conducted. In Djibouti the MoE evaluates teachers every 2-3 years through local education authorities. Inspectors are SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 responsible for evaluating around 10 schools and for Table 4. Sources used in teacher performance deciding how to manage the evaluation program. evaluations, selected systems Unfortunately, there are no defined specifications determining the length of time between each performance evaluation. There are no mandatory internal evaluations. For external performance evaluations, each teacher’s appraisal is informed by the principal’s individual assessment and classroom observation, while parental feedback can be considered (Table 4). This is in accordance with the education legislation of 2000, which provided for the inclusion of parents and students in school management committees. While colleagues and students are not consulted, it is positive that teachers under review are able to submit a self-assessment. This should enable a teacher to understand the extent to which his/her own personal appraisal tallies with the conclusions of the evaluator. Djibouti should consider widening the sources consulted; there are limitations to Sources: OECD, TALIS 2010 for Australia, Belgium, Denmark, Ireland and South Korea; World Bank, SABER – Teachers 2010 for Chile, Djibouti, Egypt, relying on direct classroom observation, since teachers Jordan Lebanon, Mexico, West Bank & Gaza and Yemen. tend to better perform under the scrutiny of evaluators. The evaluation considers varied criteria, including teachers’ knowledge of the subject they teach, compliance with the curriculum, teaching processes, Goal 7: Supporting teachers to improve examining methods used to assess students as well as instruction their participation, and potentially the use of homework assignments in the classroom. Emerging  Currently, data are not available to provide an Data are used to improve instruction, but there are indication on how many teachers fail their evaluations. no content-specific requirements for professional The weak data management systems limit the development. effectiveness of these evaluations as comparisons cannot be drawn between the performance of teachers at Teacher performance data from evaluations are used to different schools and across time. Teacher identification develop instructional practices and professional mechanisms that can track teachers over time should development. All professionals can constantly improve, facilitate data collection, enabling policy decisions to be and teachers are no exception. In Djibouti, even though made through reasoned justification, based on data external evaluations do not take place according to a collected. regular timetable, the information derived is used to inform teachers in developing their instructional practices and allocating professional development opportunities. While professional development for teachers is mandatory, Djibouti does not specifically assign under- performing teachers with professional development or other support to help improve instruction. Providing additional professional development to struggling teachers can offer them the tools they need to improve – but only if such activities are well designed. While teachers do not have to fund professional development from their own finances, there are no SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 requirements for content coverage. The Training Center will be finalized in 2012, Djibouti may look into these for Personnel within the MoE is responsible for options. In MENA, West Bank & Gaza offer teachers these overseeing the provision of professional development forms of professional development that are proving while the sub-national and local educational authorities effective in high-performing education systems, such as also play a role. Professional development is financed qualification programs, observation visits to other schools through the education sector budget under the MoE, as and teacher participation in school networks. well as supported by donor funding from international organizations and NGOs. It is positive that teachers in Figure 10. Number of required days of professional Djibouti are required to participate in professional development, selected systems development. As participation is mandatory, teachers can avoid prioritizing their immediate work agenda in order to participate in professional development. In Djibouti, primary school teachers are expected to devote 64 hours (11.4 days) annually, while secondary school teachers are required to spend half as much time to professional development (32 hours, or 6.6 days). With these time allocations, Djibouti falls in line with high-performing systems, where required days of professional development range from a minimum of 4 to a maximum of 28 days per year (Figure 10). Djibouti should examine carefully this policy choice – as all teachers, regardless of whether their students are at the primary or secondary level, gain from participation. Sources: OECD, Creating Effective Teaching and Learning Environments: First Results from TALIS 2009 for Netherlands, Although professional development is required of all Mexico, Sweden, South Korea, Brazil, Slovenia, United States and Australia; World Bank, SABER – Teachers 2010 for Egypt, teachers, there are no mandatory content guidelines on Djibouti and West Bank & Gaza. Notes: (1) The number of what should be covered. Djibouti could consider required days was calculated by dividing the total number of examining this under the Draft National Policy (2009) and annual hours by number of daily working hours. (2)These potentially propose requirements. Content of figures refer only to secondary school teachers. professional development should be broad, covering not only support in carrying out administrative tasks but aspects related to teaching, such as subject matter Goal 8: Motivating teachers to perform knowledge, teaching the curriculum, classroom management, instructional practices, training in applying Emerging  audio-visual tools in learning and providing guidance on teaching students with special needs. Few behavior-related accountability mechanisms exist, and performance incentives and sanctions Djibouti’s current definition of professional are weak. development, although still being determined, is restricted to traditional forms of professional Teachers do not have to fulfill continuing requirements, development. It focuses more on courses and seminars except for professional development activities where with less on applied activities on improving classroom content is unclear. Djibouti has professional development instruction that are most likely to lead to greater teacher requirements in place that teachers must fulfill on a effectiveness. In high-performing education systems, continuing basis to remain qualified as teachers (64 hours professional development not only includes activities annually for primary school teachers and 32 hours for such as education conferences and seminars but also secondary school teachers). In contrast, high-performing other types of professional development which have systems require that teachers perform consistently to a been shown can impact teacher performance, such as satisfactory standard in order to remain in the profession. teacher networks or mentoring programs. Under the Djibouti may consider looking into implementing further Draft National Policy on professional development, which requirements for staying in the profession. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 Terms of teacher dismissals administered by the Labor challenging. Much stricter probationary requirements are Ministry incorporate child abuse but not misconduct; enforced on private school teachers wishing to transfer to only teacher absenteeism and not poor performance can the public sector: in order to become a civil servant, a result in dismissal. Legal procedures to safeguard the teacher must pass a written test, possess 5 years of work protection of vulnerable students and ensure that experience, and upon entering the public sector, must teachers who engage in child abuse can be dismissed are successfully complete a 2-year probationary period with a in place. However, it is a concern that teacher misconduct final exam at the end. Further, once a teacher has an is not a specified as a type of behavior that can result in open-ended appointment, he or she cannot be dismissed dismissal. The sanctioning mechanism of withholding pay because of the results of the performance evaluation for each day of unauthorized absence exists; the prospect process. The fact that there were only 24 reported of dismissal should further discourage such behavior. dismissals in 2008 (0.76 percent of the total teaching force) makes it questionable whether the problem of Teacher performance-related incentives are largely teacher ineffectiveness is addressed adequately. absent. Teachers are offered few financial or other opportunities for public recognition to reward strong Table 5. Regulations for teacher dismissal and performance. Performance-related pay and monetary probationary periods bonuses for good performance by individual teachers or by school are not available. Djibouti may look to Jordan for policy guidance–the Queen Rania Award for Excellent Teachers introduced in 2005 provides 25 high-performing teachers with monetary bonuses. On the positive side, strong performance evaluations could result in promotional opportunities. Given the restricted set of incentives, it is important for Djibouti to explore alternatives to motivate strong teacher performance. Djibouti should recognize that the most powerful incentives are those that tie direct compensation (as opposed to non-monetary rewards) to the performance of the target behavior. In general, the exchange value of non-monetary for monetary incentives is low. People generally prefer their compensation in a form that allows them to choose the benefits of their work. When monetary benefits are small in either absolute or relative terms, however, interest in non-monetary incentives increases. Moreover, for the incentive to be effective, behavior and reward need to occur close together in time. A tight pairing of desired behaviors and rewards can maximize the efficacy of incentive systems in inducing strong teacher performance. Djibouti has put in place a probationary period prior to World Bank, SABER-Teachers 2011. awarding open-ended status to new teachers. This is positive, especially as the first years of teaching are among the best available predictors of a teacher’s performance later on in the career (Table 5). However, it is worrying that the determining criteria for granting open-ended appointments involve only a teacher’s age and educational qualifications. Further, the vast majority of public school teachers are employed as tenured civil servants, making employment termination later on very SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 DJIBOUTI | TEACHERS SABER COUNTRY REPORT |2010 Acknowledgements This report was prepared in 2011 by the SABER-Teachers Team, which included Lisa Kaufman, Nicole Goldstein, and Alejandro Ganimian and was led by Emiliana Vegas (Lead Economist, HDNED). The team would also like to thank Ahmed Dewidar for his assistance with data collection. Finally, the report also benefited from the collaboration of Kamel Braham and Tomomi Miyajima. Information and analysis is based on the data and SABER- Teachers conceptual model used in 2010-2011. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on teacher policy. This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. THE WORLD BANK SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2