SABER – SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS STUDENT ASSESSMENT 8 76733 Developing the Enabling Context for Student Assessment in Uganda Anil Kanjee and Sylvia Acana SABER – SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS STUDENT ASSESSMENT 8ȱ DevelopingȱtheȱEnablingȱ ContextȱforȱStudentȱ AssessmentȱinȱUgandaȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ©ȱ2013ȱTheȱInternationalȱBankȱforȱReconstructionȱandȱDevelopmentȱ/ȱ TheȱWorldȱBankȱ 1818ȱHȱStreetȱNWȱ WashingtonȱDCȱ20433ȱ Telephone:ȱ202Ȭ473Ȭ1000ȱ Internet:ȱwww.worldbank.orgȱ ȱ 1ȱ2ȱ3ȱ4ȱ 15ȱ14ȱ13ȱ12ȱȱ ȱ ThisȱworkȱisȱaȱproductȱofȱtheȱstaffȱofȱTheȱWorldȱBankȱwithȱexternalȱ contributions.ȱTheȱfindings,ȱinterpretations,ȱandȱconclusionsȱexpressedȱ inȱthisȱworkȱdoȱnotȱnecessarilyȱreflectȱtheȱviewsȱofȱTheȱWorldȱBank,ȱitsȱ BoardȱofȱExecutiveȱDirectors,ȱorȱtheȱgovernmentsȱtheyȱrepresent.ȱ TheȱWorldȱBankȱdoesȱnotȱguaranteeȱtheȱaccuracyȱofȱtheȱdataȱ includedȱinȱthisȱwork.ȱTheȱboundaries,ȱcolors,ȱdenominations,ȱandȱotherȱ 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Contentsȱ AboutȱtheȱSeriesȱ.................................................................................................ȱ v AboutȱtheȱAuthorsȱ ..........................................................................................ȱvii Acknowledgmentsȱ ix ............................................................................................ȱ ExecutiveȱSummaryȱ.........................................................................................ȱ xi Introductionȱ ........................................................................................................ȱ1 EnablingȱContextȱ...............................................................................................ȱ3 Examinationsȱ......................................................................................................ȱ6 LargeȬScaleȱAssessmentsȱ..................................................................................ȱ8 ClassroomȱAssessmentȱ...................................................................................ȱ10 DriversȱforȱAssessmentȱReformsȱ...................................................................ȱ12 LessonsȱLearnedȱ..............................................................................................ȱ15 Referencesȱ.........................................................................................................ȱ17 ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ iiiȱ ȱ ȱ ȱ AboutȱtheȱSeriesȱ Buildingȱ strongȱ educationȱsystemsȱ thatȱ promoteȱ learningȱisȱfundamentalȱ toȱ developmentȱ andȱ economicȱ growth.ȱ Overȱ theȱ pastȱ fewȱ years,ȱ asȱ developingȱ countriesȱ haveȱ succeededȱ inȱ buildingȱ moreȱ classrooms,ȱ andȱ gettingȱmillionsȱmoreȱchildrenȱintoȱschool,ȱtheȱeducationȱcommunityȱhasȱ begunȱ toȱ activelyȱ embraceȱ theȱ visionȱ ofȱ measurableȱ learningȱ forȱ allȱ childrenȱ inȱ school.ȱ However,ȱ learningȱ dependsȱ notȱ onlyȱ onȱ resourcesȱ investedȱ inȱ theȱ schoolȱ system,ȱ butȱ alsoȱ onȱ theȱ qualityȱ ofȱ theȱ policiesȱ andȱ institutionsȱ thatȱ enableȱ theirȱ useȱ andȱ onȱ howȱ wellȱ theȱ policiesȱ areȱ implemented.ȱȱ Inȱ 2011,ȱ theȱ Worldȱ Bankȱ Groupȱ launchedȱ Educationȱ Sectorȱ Strategyȱ 2020:ȱLearningȱforȱAll,ȱwhichȱoutlinesȱanȱagendaȱforȱachievingȱ“Learningȱ forȱ All�ȱ inȱ theȱ developingȱ worldȱ overȱ theȱ nextȱ decade.ȱ Toȱ supportȱ implementationȱofȱtheȱstrategy,ȱtheȱWorldȱBankȱcommencedȱaȱmultiȬyearȱ programȱ toȱ supportȱ countriesȱ inȱ systematicallyȱ examiningȱ andȱ strengtheningȱ theȱ performanceȱ ofȱ theirȱ educationȱ systems.ȱ Thisȱ evidenceȬbasedȱ initiative,ȱ calledȱ SABERȱ (Systemsȱ Approachȱ forȱ Betterȱ Educationȱ Results),ȱ isȱ buildingȱ aȱ toolkitȱ ofȱ diagnosticsȱ forȱ examiningȱ educationȱ systemsȱ andȱ theirȱ componentȱ policyȱ domainsȱ againstȱ globalȱ standards,ȱ bestȱ practices,ȱ andȱ inȱ comparisonȱ withȱ theȱ policiesȱ andȱ practicesȱ ofȱ countriesȱ aroundȱ theȱ world.ȱ Byȱ leveragingȱ thisȱ globalȱ knowledge,ȱ SABERȱ fillsȱ aȱ gapȱ inȱ theȱ availabilityȱ ofȱ dataȱ andȱ evidenceȱ onȱ whatȱ mattersȱ mostȱ toȱ improveȱ theȱ qualityȱ ofȱ educationȱ andȱ achievementȱ ofȱbetterȱresults.ȱȱ SABERȬStudentȱ Assessment,ȱ oneȱ ofȱ theȱ systemsȱ examinedȱ withinȱ theȱ SABERȱ program,ȱ hasȱ developedȱ toolsȱ toȱ analyzeȱ andȱ benchmarkȱ studentȱassessmentȱpoliciesȱandȱsystemsȱaroundȱtheȱworld,ȱwithȱtheȱgoalȱ ofȱ promotingȱ strongerȱ assessmentȱ systemsȱ thatȱ contributeȱ toȱ improvedȱ educationȱ qualityȱ andȱ learningȱ forȱ all.ȱ Toȱ helpȱ exploreȱ theȱ stateȱ ofȱ knowledgeȱ inȱ theȱ area,ȱ theȱ SABERȬStudentȱ Assessmentȱ teamȱ invitedȱ leadingȱ academics,ȱ assessmentȱ experts,ȱ andȱ practitionersȱ fromȱ developingȱ andȱ industrializedȱ countriesȱ toȱ comeȱ togetherȱ toȱ discussȱ assessmentȱ issuesȱ relevantȱ forȱ improvingȱ educationȱ qualityȱ andȱ learningȱ outcomes.ȱ Theȱ papersȱ andȱ caseȱ studiesȱ onȱ studentȱ assessmentȱ inȱ thisȱ seriesȱ areȱ theȱ resultȱ ofȱ thoseȱ conversationsȱ andȱ theȱ underlyingȱ research.ȱ Priorȱ toȱ publication,ȱ allȱ ofȱ theȱ papersȱ benefitedȱ fromȱ aȱ rigorousȱ reviewȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ vȱ process,ȱ whichȱ includedȱ commentsȱ fromȱ Worldȱ Bankȱ staff,ȱ academics,ȱ developmentȱpractitioners,ȱandȱcountryȱassessmentȱexperts.ȱ Allȱ SABERȬStudentȱ Assessmentȱ papersȱ inȱ thisȱ seriesȱ wereȱ madeȱ possibleȱ byȱ supportȱ fromȱ theȱ Russiaȱ Educationȱ Aidȱ forȱ Developmentȱ Trustȱ Fundȱ (READȱ TF).ȱ READȱ TFȱ isȱ aȱ collaborationȱ betweenȱ theȱ Russianȱ Federationȱ andȱ theȱ Worldȱ Bankȱ thatȱ supportsȱ theȱ improvementȱ ofȱ studentȱ learningȱ outcomesȱ inȱ lowȬincomeȱ countriesȱ throughȱ theȱ developmentȱofȱrobustȱstudentȱassessmentȱsystems.ȱȱ Theȱ SABERȱ workingȱ paperȱ seriesȱ wasȱ producedȱ underȱ theȱ generalȱ guidanceȱ ofȱ Elizabethȱ King,ȱ Educationȱ Director,ȱ andȱ Harryȱ Anthonyȱ Patrinos,ȱ Educationȱ Managerȱ inȱ theȱ Humanȱ Developmentȱ Networkȱ ofȱ theȱ Worldȱ Bank.ȱ Theȱ Studentȱ Assessmentȱ papersȱ inȱ theȱ seriesȱ wereȱ producedȱ underȱ theȱ technicalȱ leadershipȱ ofȱ Margueriteȱ Clarke,ȱ Seniorȱ Educationȱ Specialistȱ andȱ SABERȬStudentȱ Assessmentȱ Teamȱ Coordinatorȱ inȱ theȱ Humanȱ Developmentȱ Networkȱ ofȱ theȱ Worldȱ Bank.ȱ Papersȱ inȱ thisȱ seriesȱrepresentȱtheȱindependentȱviewsȱofȱtheȱauthors.ȱ ȱ ȱ ȱ ȱ ȱ viȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ AboutȱtheȱAuthorsȱ Anilȱ Kanjeeȱ isȱ aȱ Researchȱ Professorȱ atȱ Tshwaneȱ Universityȱ ofȱ Technology,ȱ Southȱ Africa.ȱ Heȱ hasȱ vastȱ experienceȱ asȱ anȱ independentȱ consultantȱ advisingȱ onȱ studentȱ assessment.ȱ Formerly,ȱ heȱ wasȱ anȱ ExecutiveȱDirectorȱatȱtheȱHumanȱSciencesȱResearchȱCouncil,ȱheadingȱtheȱ Centreȱ forȱ Educationȱ Qualityȱ Improvement.ȱ Hisȱ currentȱ researchȱ focusesȱ onȱ theȱ developmentȱ ofȱ effectiveȱ assessmentȱ systemsȱ atȱ theȱ localȱ andȱ nationalȱlevels,ȱtheȱdevelopmentȱandȱuseȱofȱeducationȱindicators,ȱandȱtheȱ applicationȱ ofȱ itemȱ responseȱ theoryȱ toȱ testȱ developmentȱ andȱ scoreȱ reporting.ȱ Heȱ hasȱ extensiveȱ experienceȱ inȱ nationalȱ andȱ internationalȱ studiesȱ andȱ hasȱ authoredȱ numerousȱ publicationsȱ onȱ educationalȱ assessmentȱ andȱ evaluation.ȱ Heȱ hasȱ aȱ doctorateȱ inȱ Educationȱ fromȱ theȱ ResearchȱandȱEvaluationȱMethodsȱProgram,ȱUniversityȱofȱMassachusettsȱ Amherstȱ(1995).ȱ ȱ Sylviaȱ Acanaȱ wasȱ aȱ Principalȱ Examinationsȱ Officerȱ atȱ Ugandaȱ Nationalȱ Examinationsȱ Boardȱ (UNEB).ȱ Sheȱ headedȱ theȱ Nationalȱ Assessmentȱ ofȱ ProgressȱinȱEducationȱ(NAPE)ȱprogramȱuntilȱsheȱpassedȱawayȱinȱ2012.ȱInȱ additionȱ toȱ herȱ workȱ onȱ NAPE,ȱ Acanaȱ providedȱ technicalȱ supportȱ inȱ assessmentȱ toȱ theȱ Economicȱ Policyȱ Researchȱ Centreȱ andȱ toȱ Saveȱ theȱ Children.ȱ Sheȱ wasȱ anȱ executiveȱ committeeȱ memberȱ ofȱ theȱ Internationalȱ Associationȱ forȱ Educationalȱ Assessmentȱ (IAEA)ȱ andȱ viceȱ chairpersonȱ ofȱ theȱ Boardȱ ofȱ Governors,ȱ Loroȱ Coreȱ Primaryȱ Teachersȱ College.ȱ Sheȱ wasȱ aȱ formerȱ secondaryȱ schoolȱ scienceȱ teacherȱ andȱ heldȱ aȱ master’sȱ degreeȱ inȱ educationalȱmeasurementȱandȱevaluation.ȱ ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ viiȱ ȱ ȱ ȱ ȱ ȱ Acknowledgmentsȱ Sylviaȱ Acanaȱ passedȱ awayȱ whileȱ thisȱ paperȱ wasȱ beingȱ preparedȱ forȱ publication.ȱ Thisȱ posthumousȱ publicationȱ isȱ aȱ tributeȱ toȱ herȱ workȱ andȱ dedicationȱ toȱ improveȱ educationȱ inȱ Uganda,ȱ andȱ inȱ Africa.ȱ Itȱ isȱ alsoȱ aȱ wayȱ toȱ channelȱ herȱ energyȱ andȱ keepȱ herȱ ideasȱ aliveȱ amongȱ friends,ȱ colleagues,ȱandȱtheȱbroaderȱeducationȱcommunity.ȱ ȱ ȱ ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ ixȱ ȱ ȱ ȱ ȱ ȱ ExecutiveȱSummaryȱ Uganda’sȱ commitmentȱ toȱ improvingȱ theȱ qualityȱ andȱ outcomesȱ ofȱ itsȱ educationȱ systemȱ hasȱ translatedȱ intoȱ aȱ parallelȱ commitmentȱ toȱ creatingȱȱ aȱ stronger,ȱ moreȱ sustainableȱ studentȱ assessmentȱ system,ȱ oneȱ thatȱ includesȱ (i)ȱexaminationsȱ forȱ selectionȱ andȱ certification;ȱ (ii)ȱlargeȬscaleȱ assessmentsȱ forȱ monitoringȱ educationȱ qualityȱ atȱ theȱ countryȱ level;ȱ andȱ (iii)ȱclassroomȱ assessmentsȱ forȱ evaluatingȱ studentȱ workȱ andȱ informingȱ ongoingȱteachingȱandȱlearning.ȱ Whatȱconditionsȱareȱnecessaryȱtoȱcreateȱaȱstronger,ȱmoreȱsustainableȱ studentȱ assessmentȱ system?ȱ Theȱ focusȱ ofȱ thisȱ paperȱ isȱ onȱ theȱ enablingȱ context—policies,ȱ institutions,ȱ humanȱ andȱ fiscalȱ resources—thatȱ hasȱ allowedȱUgandaȱtoȱbuildȱitsȱassessmentȱsystem.ȱȱ Aȱ combinationȱ ofȱ elementsȱ helpedȱ Ugandaȱ succeed.ȱ Theseȱ include:ȱ clearȱ policiesȱ mandatingȱ theȱ variousȱ assessmentȱ programs;ȱ havingȱ oneȱ institutionȱ provideȱ leadershipȱ forȱ allȱ assessmentȱ activities;ȱ andȱ havingȱ aȱ stableȱ andȱ wellȬqualifiedȱ teamȱ ofȱ staffȱ atȱ theȱ leadingȱ assessmentȱ institution.ȱȱ Aȱ numberȱ ofȱ lessonsȱ canȱ beȱ learnedȱ fromȱ Uganda’sȱ experience.ȱ First,ȱ politicalȱ stabilityȱ andȱ aȱ strongȱ commitmentȱ toȱ educationȱ areȱ keyȱ driversȱ forȱ buildingȱ aȱ strongȱ assessmentȱ system.ȱ Second,ȱ chargingȱ aȱ singleȱ institutionȱ withȱ allȱ assessmentȱ activitiesȱ canȱ allowȱ forȱ clearerȱ institutionalȱ structures,ȱ asȱ wellȱ asȱ efficientȱ coordination,ȱ development,ȱ andȱ implementationȱ ofȱ assessmentȱ programs.ȱ Third,ȱ competitiveȱ salariesȱ needȱ toȱ beȱ inȱ placeȱ toȱ attractȱ andȱ retainȱ personnel,ȱ andȱ trainingȱ needsȱ toȱ beȱ providedȱ forȱ capacityȱ building.ȱ Finally,ȱ aȱ strongȱ focusȱ onȱ studentȱ learningȱ andȱ curriculumȱ reformsȱ canȱ actȱ asȱ importantȱ catalystȱ forȱ strengtheningȱtheȱassessmentȱsystemȱ ȱ ȱ ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ xiȱ ȱ ȱ ȱ ȱ DevelopingȱtheȱEnablingȱContextȱ forȱStudentȱAssessmentȱinȱUgandaȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ Introductionȱ Governmentsȱ areȱ increasinglyȱ recognizingȱ studentȱ assessmentȱ systemsȱ asȱ aȱ crucialȱ componentȱ inȱ ensuringȱ studentȱ learningȱ andȱ educationȱ quality.ȱ Assessmentȱ systemsȱ typicallyȱ compriseȱ differentȱ typesȱ ofȱ assessmentsȱ forȱ differentȱ purposes:ȱ examinationsȱ forȱ studentȱ selectionȱ andȱ certification;ȱ largeȬscaleȱ assessmentsȱ forȱ monitoringȱ studentȱ performanceȱ atȱ theȱ nationalȱ levelȱ andȱ forȱ internationalȱ comparisons;ȱ andȱ classroomȱassessmentsȱforȱevaluatingȱandȱprovidingȱfeedbackȱonȱstudentȱ work,ȱ andȱ promotingȱ teachingȱ andȱ learning.ȱ Althoughȱ effortsȱ inȱ theseȱ areasȱ haveȱ grownȱ overȱ theȱ lastȱ decadeȱ orȱ so,ȱ tooȱ fewȱ countriesȱ haveȱ inȱ placeȱ theȱ rightȱ enablingȱ contextȱ forȱ aȱ sustainableȱ assessmentȱ system.1ȱ Whileȱ Ugandaȱ isȱ stillȱ inȱ theȱ processȱ ofȱ refiningȱ itsȱ assessmentȱ system,ȱ itȱ offersȱusefulȱlessonsȱinȱcreatingȱtheȱrightȱenablingȱcontextȱforȱsustainableȱ assessmentȱactivities.ȱȱ Inȱ learningȱ fromȱ theȱ Ugandaȱ story,ȱ itȱ isȱ importantȱ toȱ bearȱ inȱ mindȱ theȱ historicalȱandȱ socialȱ contextȱ inȱ whichȱ itsȱ assessmentȱ systemȱ operates.ȱ Uganda,ȱ aȱ countryȱ locatedȱ inȱ Eastȱ Africa,ȱ gainedȱ itsȱ independenceȱ fromȱ theȱ Unitedȱ Kingdomȱ inȱ 1962.ȱ However,ȱ theȱ country’sȱ firstȱ 25ȱ yearsȱ wereȱ filledȱwithȱoppression,ȱcorruption,ȱeconomicȱcollapse,ȱtribalism,ȱandȱcivilȱ war.ȱ Overcomingȱ itsȱ unstableȱ beginnings,ȱ Ugandaȱ hasȱ becomeȱ aȱ modelȱ forȱ developmentȱ inȱ Africaȱ (Wardȱ etȱ al.ȱ 2006).ȱ Sinceȱ theȱ 1990s,ȱ economicȱ policiesȱ haveȱ generatedȱ solidȱ economicȱ growthȱ inȱ theȱ country.ȱ Agricultureȱ isȱ theȱ mainȱ economicȱ activity,ȱ employingȱ overȱ 80ȱ percentȱ ofȱ theȱ workforce.ȱ Unsurprisingly,ȱ aroundȱ 80ȱ percentȱ ofȱ Uganda’sȱ nearlyȱ 34ȱ ȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱ 1ȱ Forȱ aȱ generalȱ discussionȱ ofȱ differentȱ typesȱ ofȱ assessments,ȱ andȱ theȱ enablingȱ contextȱ forȱ developingȱanȱassessmentȱsystem,ȱseeȱClarkeȱ(2012).ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 1ȱ ȱ millionȱ citizensȱ liveȱ inȱ villagesȱ andȱ smallȱ tradingȱ centers.ȱ Almostȱ 50ȱ percentȱofȱtheȱpopulationȱisȱunderȱtheȱageȱofȱ15.ȱȱ Ugandaȱ inheritedȱ fromȱ itsȱ colonialȱ pastȱ aȱ wellȬinstitutionalizedȱ schoolȱsystem.ȱTheȱstructureȱofȱtheȱschoolȱsystemȱinȱUgandaȱisȱ7Ȭ4Ȭ2;ȱthatȱ is,ȱ sevenȱ yearsȱ ofȱ primaryȱ education,ȱ fourȱ yearsȱ ofȱ lowerȱ secondaryȱ (Ordinaryȱ level),ȱ andȱ twoȱ yearsȱ ofȱ upperȱ secondaryȱ educationȱ (Advancedȱ level).ȱ Asȱ ofȱ 2009,ȱ Ugandaȱ spentȱ 3.2ȱ percentȱ ofȱ GDPȱ onȱ education,ȱ halfȱ ofȱ whichȱ wasȱ fundedȱ byȱ foreignȱ aidȱ (Wardȱ etȱ al.ȱ 2006).ȱ Greatȱ stridesȱ haveȱ beenȱ madeȱ inȱ expandingȱ accessȱ toȱ education.ȱ Uganda’sȱ preȬindependenceȱ primaryȱ enrollmentȱ rateȱ ofȱ 50ȱ percentȱ inȱ 1960ȱ climbedȱ toȱ 91ȱ percentȱ byȱ 2010.ȱ Theȱ Ministryȱ ofȱ Educationȱ andȱ Sportsȱ (MoES)ȱ continuesȱ toȱ struggleȱ toȱ improveȱ theȱ retention,ȱ quality,ȱ andȱequityȱofȱeducation.ȱ Theȱ expansionȱ ofȱ theȱ schoolȱ systemȱ hasȱ broughtȱ newȱ challengesȱ inȱ ensuringȱ qualityȱ andȱ equityȱ inȱ education.ȱ Theȱ implementationȱ ofȱ theȱ Universalȱ Primaryȱ Educationȱ programȱ inȱ 1997,ȱ followedȱ byȱ theȱ Universalȱ Secondaryȱ Educationȱ programȱ inȱ 2007,ȱ significantlyȱ contributedȱtoȱincreasedȱenrollment.ȱAsȱisȱcommonȱexperience,ȱhowever,ȱ theȱ focusȱ onȱ expansionȱ ofȱ accessȱ toȱ schoolingȱ wasȱ notȱ coupledȱ withȱ anȱ equallyȱaggressiveȱcommitmentȱtoȱstudentȱretentionȱandȱquality.ȱInȱ2010,ȱ moreȱ thanȱ 10ȱ yearsȱ intoȱ theȱ Universalȱ Primaryȱ Educationȱ program,ȱ theȱ primaryȱ completionȱ rateȱ wasȱ onlyȱ 57ȱ percent.2ȱ Althoughȱ thereȱ areȱ signsȱ ofȱ improvement,ȱ theȱ qualityȱ ofȱ educationȱ inȱ Ugandaȱ remainsȱ poor,ȱ withȱ lowȱ numeracyȱ andȱ literacyȱ ratesȱ amongȱ primaryȬagedȱ students.ȱ Additionally,ȱ significantȱ inequitiesȱ remainȱ acrossȱ regionsȱ andȱ socialȱ groupsȱ(Hedgerȱetȱal.ȱ2010).ȱ Ugandaȱ hasȱ aȱ comprehensiveȱ assessmentȱ systemȱ forȱ monitoringȱ andȱ supportingȱ educationȱ quality.ȱ Itsȱ Britishȱ colonialȱ pastȱ leftȱ aȱ strongȱ traditionȱ inȱ examinations.ȱ Theseȱ areȱ administeredȱ atȱ theȱ endȱ ofȱ eachȱ schoolȱ cycleȱ andȱ areȱ usedȱ asȱ certificationȱ andȱ selectionȱ mechanismsȱ forȱ studentȱ advancementȱ throughȱ theȱ educationȱ system.ȱ LargeȬscaleȱ assessmentsȱ wereȱ introducedȱ inȱ theȱ 1990sȱ andȱ areȱ usedȱ forȱ monitoringȱ educationȱ qualityȱ atȱ theȱ countryȱ level,ȱ andȱ forȱ makingȱ internationalȱ comparisons.ȱ Classroomȱ assessmentȱ hasȱ beenȱ traditionallyȱ usedȱ byȱ ȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱ 2 ȱDataȱgatheredȱfromȱtheȱWorldȱBankȱ(www.worldbank.org).ȱ ȱ 2ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ teachersȱ toȱ gradeȱ studentȱ work.ȱ Aȱ recentȱ reformȱ hasȱ pushedȱ forȱ itȱ toȱ beȱ usedȱtoȱinformȱpedagogyȱandȱsupportȱstudentȱlearning.3ȱ Keyȱ lessonsȱ fromȱ theȱ Ugandanȱ experienceȱ withȱ developingȱ anȱ effectiveȱ nationalȱ assessmentȱ systemȱ includeȱ theȱ following.ȱ First,ȱ thereȱ isȱ aȱ needȱ forȱ politicalȱ stability,ȱ aȱ highȱ degreeȱ ofȱ politicalȱ will,ȱ andȱ commitmentȱ andȱ supportȱ forȱ educationȱ policiesȱ thatȱ translateȱ intoȱ assessmentȱ reforms.ȱ Theȱ managementȱ ofȱ assessmentȱ activitiesȱ throughȱ aȱ singleȱ organizationȱ allowsȱ forȱ clearerȱ institutionalȱ structures,ȱ greaterȱ coordination,ȱ crossȬfertilizationȱ ofȱ experiencesȱ amongȱ staff,ȱ andȱ greaterȱ efficiencyȱ inȱ useȱ ofȱ resources.ȱ Aȱ sustainableȱ assessmentȱ systemȱ requiresȱ qualifiedȱ personnelȱ whoȱ stayȱ longȱ termȱ andȱ canȱ beȱ trained.ȱ Theȱ government’sȱ demandȱ forȱ dataȱ fromȱ theȱ variousȱ assessmentsȱ furtherȱ helpsȱ toȱ institutionalizeȱ theȱ system.ȱ Andȱ finally,ȱ curriculumȱ reformȱ isȱ anȱ importantȱ catalystȱ forȱ theȱ developmentȱ ofȱ continuousȱ classroomȱ assessment.ȱ Thisȱ paperȱ examinesȱ theȱ enablingȱ context—policies,ȱ institutions,ȱ humanȱ andȱ fiscalȱ resources—thatȱ hasȱ allowedȱ forȱ theȱ developmentȱ ofȱ aȱ strongerȱ andȱ moreȱ sustainableȱ assessmentȱ systemȱ inȱ Uganda.ȱ Theȱ paperȱ beginsȱ withȱ aȱ descriptionȱ ofȱ theȱ currentȱ contextȱ forȱ assessmentȱ activities,ȱ withȱ aȱ particularȱ focusȱ onȱ theȱ Ugandaȱ Nationalȱ Examinationsȱ Boardȱ (UNEB).ȱ Followingȱ that,ȱ keyȱ characteristicsȱ ofȱ theȱ typesȱ ofȱ assessmentȱ activitiesȱ carriedȱ outȱ inȱ Ugandaȱ areȱ described.ȱ Thisȱ isȱ followedȱ byȱ aȱ discussionȱ ofȱ someȱ ofȱ theȱ factorsȱ thatȱ haveȱ allowedȱ forȱ theȱ sustainedȱ developmentȱ ofȱ theseȱ assessmentȱ programs.ȱ Theȱ lastȱ sectionȱ presentsȱ lessonsȱthatȱotherȱcountriesȱcanȱdrawȱfromȱUganda’sȱexperience.ȱ EnablingȱContextȱ Ugandaȱ inheritedȱ fromȱ theȱ Britishȱ colonialȱ systemȱ aȱ strongȱ traditionȱ inȱ examinations.ȱ Evenȱ afterȱ independence,ȱ mostȱ subjectsȱ wereȱ taughtȱ accordingȱ toȱ theȱ Britishȱ syllabusȱ andȱ examinationsȱ wereȱ conductedȱ onȱ theȱ basisȱ ofȱ theȱ Britishȱ systemȱ underȱ theȱ auspicesȱ ofȱ theȱ Eastȱ Africanȱ Examinationsȱ Council.ȱ Theȱ Councilȱ wasȱ notȱ disbandedȱ untilȱ 1980,ȱ afterȱ ȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱȱ 3ȱ Thisȱ paperȱ focusesȱ onlyȱ onȱ studentȱ assessmentȱ programsȱ administeredȱ duringȱ primaryȱ andȱsecondaryȱeducation.ȱȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 3ȱ ȱ whichȱ theȱ Ugandaȱ Nationalȱ Examinationsȱ Boardȱ (UNEB)ȱ wasȱ establishedȱwithȱtheȱpassageȱofȱaȱ1983ȱlaw.ȱȱ Aȱ strongȱ policyȱ frameworkȱ supportsȱ assessmentȱ activitiesȱ inȱ Uganda.ȱ Theȱ Governmentȱ Whiteȱ Paperȱ onȱ Educationȱ ofȱ 1992ȱ isȱ theȱ cornerstoneȱ educationȱ policyȱ textȱ inȱ theȱ country.ȱ Itȱ callsȱ forȱ addressingȱ inadequaciesȱ inȱ theȱ assessmentȱ systemȱ detectedȱ byȱ theȱ Educationȱ Policyȱ Reviewȱ Committeeȱ ofȱ 1989.ȱ Theseȱ weaknessesȱ includedȱ aȱ narrowȱ testingȱ focus,ȱ whichȱ emphasizedȱ recallȱ ofȱ factualȱ informationȱ atȱ theȱ expenseȱ ofȱ application,ȱ reasoning,ȱ andȱ problemȬsolvingȱ skills;ȱ theȱ absenceȱ ofȱ attemptsȱ toȱ testȱ practicalȱ skillsȱ orȱ socialȱ attitudes;ȱ andȱ theȱ lackȱ ofȱ anyȱ attemptȱ atȱ continuousȱ classroomȱ assessment.ȱ Theȱ Whiteȱ Paperȱ andȱ otherȱ relatedȱ lawsȱ allowedȱ forȱ theȱ creationȱ ofȱ theȱ nationalȱ largeȬscaleȱ assessmentȱ program,ȱ NAPEȱ (Nationalȱ Assessmentȱ ofȱ Progressȱ inȱ Education),ȱandȱforȱtheȱreformȱofȱclassroomȱassessmentȱactivities.ȱ UNEB’sȱ responsibilitiesȱ expandedȱ overȱ theȱ years.ȱ Initially,ȱ theȱ boardȱ wasȱ responsibleȱ onlyȱ forȱ endȬofȬlevelȱ examinations.ȱ Gradually,ȱ itsȱ responsibilitiesȱ extendedȱ intoȱ theȱ areaȱ ofȱ nationalȱ andȱ internationalȱ largeȬscaleȱ assessmentȱ programs.ȱ Theȱ examinationȱ boardȱ wasȱ andȱ remainsȱ theȱ onlyȱ institutionȱ inȱ Ugandaȱ withȱ theȱ requiredȱ capacityȱ andȱ infrastructureȱ toȱ successfullyȱ conductȱ largeȬscaleȱ assessmentȱ activities.ȱ UNEBȱ alsoȱ hasȱ takenȱ theȱ leadȱ inȱ classroomȱ assessmentȱ reforms.ȱ Asȱ ofȱ 2012,ȱ UNEBȱ isȱ inȱ chargeȱ ofȱ allȱ majorȱ studentȱ assessmentȱ programsȱ inȱ Uganda.ȱ UNEBȱ isȱ highlyȱ institutionalizedȱ andȱ hasȱ clearȱ governance.ȱ Theȱ UNEBȱ executiveȱ secretaryȱ isȱ appointedȱ byȱ theȱ presidentȱ ofȱ Uganda.ȱ Theȱ executiveȱ secretaryȱ isȱ supportedȱ byȱ aȱ governingȱ boardȱ staffedȱ byȱ membersȱ fromȱ theȱ MoES’sȱ threeȱ technicalȱ directorates:ȱ theȱ Directorateȱ ofȱ BasicȱandȱSecondaryȱEducation;ȱtheȱDirectorateȱofȱHigher,ȱTechnical,ȱandȱ Vocationalȱ Educationȱ andȱ Training;ȱ andȱ theȱ Directorateȱ ofȱ Educationȱ Standards.ȱȱ UNEBȱ isȱ clearlyȱ structuredȱ toȱ carryȱ outȱ itsȱ responsibilities.ȱ Theȱ Primaryȱ Schoolȱ Examinationsȱ Departmentȱ andȱ theȱ Secondaryȱ Schoolȱ Examinationsȱ Departmentȱ areȱ directlyȱ responsibleȱ forȱ conductingȱ theȱ examinationsȱ relevantȱ toȱ eachȱ level.ȱ NAPEȱ isȱ responsibleȱ forȱ nationalȱ andȱ internationalȱ assessment.ȱ Thisȱ sectionȱ isȱ headedȱ byȱ aȱ Principalȱ Examinationsȱ Officerȱ (PEO),ȱ whoȱ isȱ directlyȱ supervisedȱ byȱ theȱ UNEBȱ executiveȱsecretary.ȱFiveȱotherȱofficers—twoȱseniorȱexaminationsȱofficersȱ ȱ 4ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ andȱ threeȱ examinationsȱ officers—workȱ underȱ theȱ PEO.ȱ Belowȱ theseȱ areȱ threeȱ examinationsȱ assistantsȱ andȱ twoȱ stenographers.ȱ Inȱ addition,ȱ anȱ Advisoryȱ Committee,ȱ comprisingȱ membersȱ drawnȱ fromȱ theȱ keyȱ educationȱ stakeholderȱ groupsȱ inȱ theȱ country,ȱ overseesȱ theȱ operationsȱ ofȱ theȱNAPEȱsection.ȱ UNEBȱ hasȱ aȱ stableȱ andȱ qualifiedȱ staffȱ toȱ carryȱ outȱ assessmentȱ activities.ȱ Stabilityȱ hasȱ beenȱ possibleȱ dueȱ toȱ theȱ statusȱ associatedȱ withȱ workingȱ forȱ UNEB,ȱ andȱ dueȱ toȱ theȱ higherȱ salariesȱ comparedȱ toȱ otherȱ institutionsȱ fromȱ whichȱ staffȱ areȱ drawn.ȱ Mostȱ staffȱ membersȱ haveȱ postgraduateȱ qualificationsȱ withȱ relevantȱ workȱ experience.ȱ However,ȱ staffȱcapacityȱisȱstretched,ȱgivenȱtheȱbroadȱremitȱofȱUNEB.ȱ Thereȱ haveȱ beenȱ significantȱ improvementsȱ inȱ theȱ capacityȱ ofȱ UNEBȱ staffȱ toȱ runȱ assessmentȱ programs.ȱ Forȱ example,ȱ dataȱ analysisȱ wasȱ initiallyȱ outsourcedȱ toȱ localȱ universityȱ staff;ȱ nowȱ itȱ isȱ carriedȱ outȱ inȬ house.ȱInȱ2002–03,ȱUNEBȱstaffȱreceivedȱtechnicalȱtrainingȱforȱtheȱnationalȱ largeȬscaleȱ assessmentȱ programȱ throughȱ theȱ supportȱ ofȱ theȱ Worldȱ Bank.ȱ Uganda’sȱ participationȱ inȱ internationalȱ assessmentsȱ hasȱ enabledȱ UNEBȱ staffȱ toȱ exchangeȱ experiencesȱ withȱ otherȱ countries.ȱ UNEBȱ hasȱ alsoȱ contributedȱ toȱ buildingȱ assessmentȱ capacityȱ withinȱ theȱ country.ȱ Asȱ ofȱ 2012,ȱ800ȱteachersȱhadȱreceivedȱtrainingȱfromȱUNEBȱstaffȱinȱtestȱquestionȱ writingȱandȱtestȱdevelopment.ȱȱ Havingȱ oneȱ institutionȱ runningȱ allȱ assessmentȱ programsȱ hasȱ allowedȱ forȱ synergiesȱ andȱ greaterȱ efficiency.ȱ UNEBȱ staffȱ canȱ provideȱ technicalȱ assistanceȱ andȱ trainȱ theȱ teamsȱ inȱ chargeȱ ofȱ internationalȱ assessments.ȱ Thisȱ supportȱ hasȱ beenȱ especiallyȱ importantȱ inȱ theȱ developmentȱofȱinstrumentsȱandȱreportingȱofȱresults.ȱ However,ȱeffortsȱtoȱbuildȱcapacityȱinȱclassroomȱassessmentȱhaveȱnotȱ beenȱ equallyȱ effective.ȱ Theȱ MoESȱ andȱ UNEBȱ conductedȱ aȱ massiveȱ campaignȱtoȱtrainȱdistrictȱstaff,ȱschoolȱheads,ȱandȱteachers,ȱbutȱthisȱseemsȱ toȱ haveȱ hadȱ littleȱ impactȱ onȱ teacherȱ knowledgeȱ andȱ practicesȱ (Altinyelkenȱ 2010).ȱ Monitoringȱ andȱ supportȱ ofȱ schoolsȱ andȱ teachersȱ byȱ theȱdistrictȱofficesȱremainȱweakȱ(Weerheȱ2010).ȱ Theȱ annualȱ incomeȱ forȱ UNEBȱ comesȱ fromȱ threeȱ primaryȱ sources:ȱ examinationȱ feesȱ (67.5ȱ percent),ȱ governmentȱ grantsȱ (16.4ȱ percent),ȱ andȱ otherȱ sourcesȱ suchȱ asȱ salesȱ ofȱ publicationsȱ andȱ donorȱ incomeȱ (16.1ȱ percent)ȱ (UNEBȱ 2012).ȱ Theȱ firstȱ threeȱ nationalȱ largeȬscaleȱ assessmentȱ surveysȱ (NAPE)ȱ wereȱ fullyȱ fundedȱ byȱ theȱ Worldȱ Bank.ȱ Sinceȱ then,ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 5ȱ ȱ fundingȱ hasȱ beenȱ providedȱ byȱ theȱ MoES.ȱ Fundingȱ forȱ theȱ Monitoringȱ ofȱ Learningȱ Achievementȱ (MLA)ȱ studyȱ wasȱ providedȱ byȱ UNICEFȱ andȱ theȱ MoES,ȱ whileȱ theȱ Southernȱ andȱ Easternȱ Africanȱ Consortiumȱ forȱ Monitoringȱ Educationȱ Qualityȱ (SACMEQ)ȱ assessmentȱ isȱ fundedȱ byȱ theȱ MoES.ȱ Examinationsȱ Inȱ Uganda,ȱ publicȱ examinationsȱ playȱ aȱ keyȱ roleȱ inȱ theȱ educationȱ system,ȱ asȱ theirȱ resultsȱ determineȱ educationalȱ opportunitiesȱ forȱ millionsȱ ofȱ students.ȱ Theyȱ actȱ asȱ gatekeepers,ȱ allocatingȱ theȱ scarceȱ numberȱ ofȱ placesȱ availableȱinȱtheȱschoolȱsystemȱamongȱtheȱstudentȱpopulation.ȱDespiteȱtheȱ highȱ pressureȱ theseȱ examinationsȱ placeȱ onȱ students,ȱ theyȱ areȱ consideredȱ theȱ mostȱ fair,ȱ meritocratic,ȱ objective,ȱ unbiased,ȱ andȱ efficientȱ wayȱ toȱ decideȱ whoȱ passesȱ toȱ theȱ nextȱ educationalȱ stage.ȱ Theyȱ alsoȱ areȱ believedȱ toȱ contributeȱ toȱ educationȱ qualityȱ byȱ motivatingȱ studentsȱ andȱ theirȱ teachersȱtoȱexcelȱ(MoESȱ2004).ȱ Inȱ Uganda,ȱ publicȱ examinationsȱ areȱ usedȱ forȱ studentȱ certification,ȱ forȱ tracking,ȱ andȱ forȱ selectionȱ intoȱ tertiaryȱ education.ȱ Studentsȱ sitȱ forȱ examinationsȱ inȱ gradeȱ 7,ȱ atȱ theȱ endȱ ofȱ primaryȱ educationȱ (Primaryȱ Leavingȱ Certificate,ȱ PLE);ȱ inȱ gradeȱ 11,ȱ atȱ theȱ endȱ ofȱ lowerȱ secondaryȱ educationȱ (Ugandaȱ Certificateȱ ofȱ Education,ȱ UCE);ȱ andȱ inȱ gradeȱ 13,ȱ atȱ theȱ endȱ ofȱ upperȱ secondaryȱ (Ugandaȱ Advancedȱ Certificateȱ ofȱ Education,ȱ UACE).ȱ Studentsȱ withȱ highȱ marksȱ onȱ primaryȱ andȱ lowerȱ secondaryȱ examinationsȱ continueȱ onȱ forȱ academicȱ training.ȱ Studentsȱ withȱ poorȱ marksȱ continueȱ onȱ toȱ technicalȱ trainingȱ orȱ leaveȱ theȱ schoolȱ system.ȱ Ssewanyana,ȱ Okoboi,ȱ andȱ Kasiryeȱ (2011)ȱ noteȱ thatȱ betweenȱ 2003ȱ andȱ 2006,ȱ onlyȱ 50ȱ percentȱ ofȱ pupilsȱ whoȱ passedȱ theȱ PLEȱ wentȱ onȱ toȱ secondaryȱ schooling,ȱ andȱ theȱ majorityȱ ofȱ thoseȱ whoȱ enrolledȱ inȱ lowerȱ secondaryȱ schoolsȱ droppedȱ outȱ beforeȱ theȱ ageȱ ofȱ 18ȱ years.ȱ Highȱ achievementȱonȱtheȱUACEȱisȱtheȱmostȱdirectȱrouteȱtoȱuniversityȱentrance.ȱ Administrationȱofȱtheseȱexaminationsȱpresentsȱaȱmajorȱchallenge.ȱInȱ 2012,ȱ nearlyȱ oneȱ millionȱ studentsȱ registeredȱ forȱ theȱ threeȱ endȬofȬschoolȬ cycleȱexaminations.ȱMalpracticeȱremainsȱaȱsubstantialȱproblem.ȱTheȱmostȱ commonȱ examplesȱ ofȱ malpracticeȱ includeȱ externalȱ assistanceȱ toȱ candidates;ȱ smugglingȱ ofȱ unauthorizedȱ materialsȱ intoȱ examinationȱ ȱ 6ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ rooms;ȱ collusionȱ orȱ copyingȱ amongȱ candidates;ȱ substitutionȱ ofȱ genuineȱ answerȱ scriptsȱ withȱ onesȱ writtenȱ outsideȱ examinationȱ roomsȱ orȱ outsideȱ theȱ examinationȱ period;ȱ andȱ anȱ impersonatorȱ takingȱ theȱ examinationȱ insteadȱ ofȱ anȱ actualȱ candidate.ȱ Inȱ 2007,ȱ UNEBȱ cancelledȱ examinationȱ resultsȱ forȱ 2,742ȱ candidatesȱ andȱ closedȱ examinationȱ centersȱ forȱ sevenȱ schoolsȱ (Monitorȱ 2007).ȱ Inȱ 2008,ȱ thereȱ wereȱ 290ȱ casesȱ ofȱ malpracticeȱ inȱ PLEȱ administration,ȱ 1,376ȱ inȱ UCE,ȱ andȱ 72ȱ inȱ UACEȱ (Ogwangȱ 2010).ȱ Whileȱ theseȱ malpracticesȱ persistȱ andȱ areȱ widespread,ȱ UNEBȱ isȱ awareȱ ofȱ theȱ problemȱ andȱ hasȱ takenȱ aȱ rangeȱ ofȱ measuresȱ toȱ limitȱ theȱ impactȱ (Magaraȱ andȱ Chandiruȱ 2012).ȱ Theseȱ includeȱ deployingȱ 8,600ȱ scoutsȱ andȱ 500ȱ officialsȱ toȱ monitorȱ theȱ administrationȱ ofȱ theȱ 2012ȱ examinations,ȱ andȱ warningȱ candidatesȱ andȱ schoolsȱ thatȱ UNEBȱ couldȱ cancelȱ resultsȱ orȱ closeȱ examinationȱ centersȱ provedȱ toȱ beȱ engagedȱ inȱ cheatingȱ (Magaraȱ andȱ Chandiruȱ2012).ȱ Criticsȱ haveȱ pointedȱ outȱ importantȱ weaknessesȱinȱ theȱ examinations,ȱ including:ȱ (i)ȱ theirȱ veryȱ highȬstakesȱ nature;ȱ (ii)ȱ theȱ narrowingȱ ofȱ theȱ curriculumȱ taughtȱ inȱ classȱ toȱ matchȱ materialsȱ coveredȱ inȱ theȱ examinations;ȱ (iii)ȱ excessiveȱ targetingȱ ofȱ lowerȬorderȱ thinkingȱ skills;ȱ andȱ (iv)ȱ havingȱ studentsȱ repeatȱ theȱ gradesȱ priorȱ toȱ theȱ examinationsȱ inȱ orderȱ toȱincreaseȱpassingȱratesȱ(Bukenyaȱ2001;ȱPennyȱetȱal.ȱ2008).ȱ Reformsȱ wereȱ implementedȱ toȱ addressȱ theseȱ weaknesses.ȱ Examinationȱ questionsȱ wereȱ revampedȱ toȱ includeȱ higherȬorderȱ thinkingȱ skills.ȱThereȱalsoȱisȱaȱplanȱtoȱcomputeȱexaminationȱresultsȱusingȱbothȱtheȱ examinationȱ testȱ scoresȱ andȱ classroomȱ assessmentȱ informationȱ (withȱ theȱ latterȱtoȱbeȱweightedȱatȱ25ȱpercentȱofȱtheȱtotalȱresult).ȱTheseȱchangesȱhaveȱ reinforcedȱ theȱ institutionalizationȱ ofȱ continuousȱ assessment.ȱ Newȱ policiesȱ haveȱ removedȱ financialȱ barriersȱ toȱ takingȱ theȱ examinations.ȱ Expansionȱ ofȱ accessȱ toȱ examinationsȱ cameȱ aboutȱ asȱ partȱ ofȱ aȱ policyȱ packageȱ thatȱ mandatedȱ theȱ governmentȱ toȱ payȱ allȱ candidates’ȱ feesȱ forȱ theȱ examinations.ȱ Forȱ example,ȱ theȱ 2002–05ȱ Mediumȱ Termȱ Budgetaryȱ Frameworkȱ allocatedȱ US$4ȱ millionȱ dollarsȱ (approximatelyȱ sevenȱ billionȱ shillings)ȱ toȱ coverȱ feesȱ forȱ theȱ primaryȱ examinations.ȱ Removingȱ feeȱ barriersȱ furtherȱ institutionalizedȱ theȱ examinations,ȱ asȱ theyȱ areȱ nowȱ openȱ toȱ allȱ students.ȱ Itȱ alsoȱ increasedȱ theȱ retentionȱ ofȱ studentsȱ inȱ schoolsȱ (MoESȱ2001).ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 7ȱ ȱ LargeȬScaleȱAssessmentsȱ Ugandaȱ hasȱ aȱ wellȬestablishedȱ largeȬscaleȱ assessmentȱ thatȱ isȱ usedȱ toȱ monitorȱ studentȱ performanceȱ atȱ theȱ nationalȱ level.ȱ Theȱ countryȱ isȱ alsoȱ takingȱ itsȱ firstȱ stepsȱ intoȱ theȱ realmȱ ofȱ internationalȱ largeȬscaleȱ assessments.ȱ NationalȱLargeȬScaleȱAssessmentȱ Theȱ nationalȱ largeȬscaleȱ assessmentȱ program,ȱ NAPE,ȱ wasȱ introducedȱ toȱ addressȱ importantȱ gapsȱ inȱ theȱ schoolȱ system.ȱ Beforeȱ NAPE,ȱ Ugandaȱ reliedȱ onȱ examinationsȱ dataȱ toȱ monitorȱ educationȱ quality.ȱ However,ȱ becauseȱ examinationsȱ wereȱ primarilyȱ aȱ toolȱ forȱ selection,ȱ theyȱ hadȱ limitationsȱ forȱ monitoringȱ quality.ȱ NAPEȱ wasȱ introducedȱ toȱ monitorȱ educationȱ qualityȱ inȱ theȱ contextȱ ofȱ theȱ Universalȱ Primaryȱ Educationȱ policies.ȱ Ugandaȱ didȱ notȱ haveȱ validȱ andȱ upȬtoȬdateȱ informationȱ onȱ studentȱ learningȱ overȱ time.ȱ Consequently,ȱ planningȱ andȱ administrationȱ suffered.ȱ Theȱ functionsȱ ofȱ NAPEȱ areȱ to:ȱ (i)ȱ monitorȱ studentȱ performanceȱ accordingȱ toȱ theȱ curriculumȱ standards;ȱ (ii)ȱ identifyȱ variablesȱ relatedȱ toȱ studentȱperformance;ȱ(iii)ȱprovideȱguidelinesȱforȱimprovingȱteachingȱandȱ studentȱlearning;ȱandȱ(iv)ȱinformȱplanningȱandȱresearch.ȱȱ Theȱ assessmentȱ instrumentsȱ areȱ criterionȬreferencedȱ testsȱ basedȱ onȱ theȱ nationalȱ curriculum.ȱ Atȱ gradesȱ 3ȱ andȱ 6,ȱ theȱ subjectsȱ testedȱ areȱ numeracyȱ andȱ literacy,ȱ whileȱ biologyȱ isȱ testedȱ atȱ gradeȱ 9.ȱ Inȱ additionȱ toȱ studentȱperformance,ȱdataȱonȱtheȱteachingȱandȱlearningȱenvironmentȱareȱ obtainedȱ fromȱ students,ȱ teachers,ȱ headȱ teachers,ȱ andȱ parentsȱ usingȱ questionnairesȱandȱinterviews.ȱ NAPEȱhasȱbeenȱexpandingȱgraduallyȱoverȱtheȱyears.ȱTheȱfirstȱNAPEȱ surveyȱ wasȱ administeredȱ inȱ 1996ȱ toȱ aȱ nationalȱ sampleȱ ofȱ gradeȱ 3ȱ andȱ gradeȱ 6ȱ students.ȱ Itȱ wasȱ conductedȱ againȱ inȱ 1999ȱ andȱ 2003ȱ beforeȱ becomingȱ anȱ annualȱ assessmentȱ inȱ 2005.ȱ Theȱ firstȱ secondaryȱ levelȱ NAPEȱ survey,ȱadministeredȱtoȱaȱnationalȱsampleȱofȱgradeȱ9ȱstudents,ȱtookȱplaceȱ inȱ 2008ȱ andȱ isȱ alsoȱ nowȱ conductedȱ annually.ȱ Theseȱ targetȱ gradesȱ wereȱ selectedȱ withȱ theȱ rationalȱ thatȱ thereȱ wouldȱ beȱ timeȱ toȱ applyȱ correctiveȱ measuresȱbeforeȱtheȱendȱofȱeachȱschoolȱcycle.ȱ ȱ 8ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ Theȱ nationalȱ assessmentȱ isȱ aȱ majorȱ operation.ȱ Inȱ 2011,ȱ NAPEȱ wasȱ administeredȱ toȱ 24,533ȱ gradeȱ 3ȱ andȱ 24,143ȱ gradeȱ 6ȱ primaryȱ studentsȱ drawnȱ fromȱ 1,232ȱ primaryȱ schoolsȱ selectedȱ fromȱ theȱ 112ȱ districtsȱ ofȱ Uganda.ȱAtȱtheȱsecondaryȱlevel,ȱNAPEȱwasȱadministeredȱtoȱ19,790ȱgradeȱ 9ȱ studentsȱ andȱ 500ȱ teachersȱ drawnȱ fromȱ 524ȱ governmentȱ andȱ privateȱ schoolsȱselectedȱfromȱtheȱ112ȱdistricts.ȱ Resultsȱ fromȱ theȱ nationalȱ assessmentȱ haveȱ beenȱ usedȱ toȱ pushȱ forȱ reformsȱ inȱ Uganda.ȱ NAPEȱ findingsȱ revealedȱ lowȱ levelsȱ ofȱ studentȱ achievementȱ inȱ literacyȱ andȱ numeracy.ȱ Consequently,ȱ theȱ MoES,ȱ jointlyȱ withȱ developmentȱ partners,ȱ developedȱ interventionsȱ toȱ raiseȱ learningȱ standards.ȱ Oneȱ ofȱ theȱ interventionsȱ involvedȱ placingȱ emphasisȱ onȱ literacyȱ andȱ numeracyȱ inȱ theȱ curriculumȱ forȱ lowerȱ primaryȱ grades,ȱ andȱ enforcingȱtheȱpolicyȱonȱtheȱuseȱofȱtheȱmotherȱtongueȱ(localȱlanguage)ȱasȱaȱ mediumȱofȱinstructionȱinȱtheseȱclasses.ȱ NAPEȱ resultsȱ alsoȱ haveȱ beenȱ usedȱ toȱ addressȱ publicȱ concernsȱ overȱ perceivedȱchangesȱinȱtheȱqualityȱofȱschooling.ȱInȱ1997,ȱUniversalȱPrimaryȱ Educationȱ (UPE)ȱ wasȱ implementedȱ toȱ extendȱ accessȱ toȱ educationȱ toȱ allȱ primaryȬagedȱ students.ȱ However,ȱ afterȱ itsȱ implementation,ȱ parents,ȱ asȱ wellȱ asȱ teachersȱ andȱ MoESȱ staff,ȱ perceivedȱ aȱ declineȱ inȱ theȱ qualityȱ ofȱ schoolingȱ dueȱ toȱ theȱ increaseȱ inȱ studentsȱ (Altinyelkenȱ 2010).ȱ NAPEȱ resultsȱ wereȱ usedȱ toȱ analyzeȱ changesȱ inȱ preȬȱ andȱ postȬUPEȱ studentȱ performance.ȱAnalysisȱshowedȱthatȱbothȱtheȱpercentageȱmeanȱscoresȱandȱ theȱ percentageȱ ofȱ pupilsȱ functioningȱ atȱ theȱ requiredȱ levelȱ decreasedȱ immediatelyȱ afterȱ UPEȱ wasȱ introducedȱ (Acanaȱ 2006).ȱ Laterȱ dataȱ indicatedȱ thatȱ theȱ trendȱ hadȱ generallyȱ reversed,ȱ asȱ overȱ theȱ yearsȱ relativelyȱ moreȱ pupilsȱ wereȱ reachingȱ theȱ requiredȱ ratings.ȱ Thisȱ useȱ ofȱ dataȱ underscoredȱ theȱ needȱ forȱ anȱ evidenceȬbasedȱ approachȱ toȱ assessingȱ qualityȱlevels.ȱ InternationalȱLargeȬScaleȱAssessmentsȱ Ugandaȱ participatedȱ inȱ theȱ internationalȱ largeȬscaleȱ assessmentȱ programȱ knownȱasȱSACMEQȱinȱ2000ȱandȱ2007.ȱTheȱ2007ȱSACMEQȱexerciseȱtestedȱ aȱ nationalȱ sampleȱ ofȱ gradeȱ 6ȱ studentsȱ inȱ readingȱ andȱ mathematics.ȱ Overall,ȱ 5,307ȱ studentsȱ fromȱ 264ȱ schoolsȱ wereȱ sampled.ȱ Theȱ resultsȱ showedȱ thatȱ Ugandaȱ rankedȱ 11ȱ outȱ ofȱ 15ȱ countriesȱ inȱ readingȱ andȱ mathematics.ȱ Scoresȱ wereȱ reportedȱ onȱ anȱ Itemȱ Responseȱ Theoryȱ scale,ȱ withȱ aȱ meanȱ ofȱ 500ȱ andȱ standardȱ deviationȱ ofȱ 100.ȱ Theȱ overallȱ nationalȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 9ȱ ȱ meanȱ scoreȱ forȱ readingȱ wasȱ 479,ȱ whileȱ forȱ mathematicsȱ theȱ meanȱ scoreȱ wasȱ 481.ȱ Inȱ addition,ȱ teacherȱ performanceȱ onȱ readingȱ testsȱ wasȱ reportedȱ asȱ 727ȱ inȱ 2007,ȱ indicatingȱ anȱ upwardȱ trendȱ fromȱ theȱ meanȱ scoreȱ ofȱ 696ȱ reportedȱinȱ2000ȱ(Makuwaȱ2011).ȱ Ugandaȱalsoȱparticipatedȱinȱtheȱ1999ȱMLAȱproject,ȱconductedȱbyȱtheȱ Unitedȱ Nationsȱ Educational,ȱ Scientificȱ andȱ Culturalȱ Organizationȱ (UNESCO)ȱ andȱ Theȱ Unitedȱ Nationsȱ Childrenȇsȱ Fundȱ (UNICEF).ȱ Thisȱ assessmentȱ aimedȱ toȱ monitorȱ goalsȱ ofȱ theȱ internationalȱ Educationȱforȱ Allȱ initiative.ȱ Theȱ MLAȱ measuredȱ theȱ performanceȱ ofȱ gradeȱ 4ȱ studentsȱ inȱ literacy,ȱ numeracy,ȱ andȱ lifeȱ skills,ȱ whileȱ questionnairesȱ wereȱ alsoȱ administeredȱ toȱ students,ȱ parents,ȱ teachers,ȱ andȱ theȱ schoolȱ head.ȱ Theȱ MLAȱ sampleȱ wasȱ composedȱ ofȱ 8,346ȱ students,ȱ 8,311ȱ parents,ȱ 295ȱ teachers,ȱ andȱ 280ȱ schoolȱ heads.ȱ Resultsȱ showedȱ thatȱ onlyȱ 10ȱ percentȱ ofȱ studentsȱ attainedȱ theȱ desiredȱ masteryȱ levelȱ forȱ numeracy,ȱ andȱ onlyȱ 23ȱ percentȱmasteredȱliteracyȱ(Chinapahȱ2003).ȱ Ugandaȱ hasȱ yetȱ toȱ participateȱ inȱ anyȱ ofȱ theȱ majorȱ internationalȱ surveysȱ suchȱ asȱ theȱ Trendsȱ inȱ Internationalȱ Mathematicsȱ andȱ Scienceȱ Studyȱ(TIMSS),ȱPerformanceȱinȱInternationalȱReadingȱandȱLiteracyȱStudyȱ (PIRLS),ȱorȱProgrammeȱforȱInternationalȱStudentȱAssessmentȱ(PISA).ȱ ClassroomȱAssessmentȱ Effortsȱ toȱ improveȱ theȱ studentȱ assessmentȱ systemȱ inȱ Ugandaȱ ledȱ toȱ aȱ reformȱ ofȱ classroomȱ assessmentȱ practices.ȱ Theȱ needȱ toȱ improveȱ teachingȱ andȱ learningȱ createdȱ aȱ pushȱ forȱ aȱ comprehensiveȱ curricularȱ reformȱ andȱ forȱtheȱlaunchingȱofȱaȱprogramȱtoȱimproveȱteacherȱpracticesȱinȱclassroomȱ assessment.ȱȱ Theȱ reformȱ toȱ classroomȱ assessmentȱ wasȱ basedȱ onȱ theȱ recommendationsȱ ofȱ theȱ 1989ȱ Educationȱ Policyȱ Reviewȱ Committee.ȱ Thisȱ committeeȱ notedȱ that,ȱ amongȱ otherȱ shortcomings,ȱ theȱ educationȱ systemȱ wasȱ examinationȱ ridden,ȱ andȱ thatȱ thereȱ wereȱ veryȱ fewȱ attemptsȱ atȱ continuousȱ monitoringȱ ofȱ studentȱ performanceȱ atȱ theȱ schoolȱ level.ȱ Consequently,ȱ theȱ 1992ȱ Governmentȱ Whiteȱ Paperȱ onȱ Educationȱ calledȱ forȱ curricularȱ reformȱ andȱ theȱ reformȱ ofȱ classroomȱ assessmentȱ practices.ȱ Theȱnewȱcurriculumȱbeganȱtoȱbeȱintroducedȱinȱtheȱlowerȱprimaryȱgradesȱ ȱ 10ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ inȱ 2007,ȱ andȱ isȱ expectedȱ toȱ beȱ completelyȱ implementedȱ atȱ theȱ primaryȱ levelȱbyȱ2013ȱ(ReadȱandȱEnyutuȱ2005).ȱ Implementationȱ ofȱ theȱ curricularȱ reformȱ setȱ theȱ stageȱ forȱ introducingȱ reformsȱ inȱ classroomȱ assessmentȱ (Altinyelkenȱ 2010).ȱ However,ȱasȱcurriculumȱandȱclassroomȱassessmentȱgoȱhandȬinȬhand,ȱtheȱ developmentȱ andȱ implementationȱ ofȱ reformsȱ inȱ theȱ latterȱ areaȱ wasȱ delayedȱ byȱ theȱ multiple,ȱ prolongedȱ challengesȱ encounteredȱ byȱ reformsȱ inȱ theȱ former.ȱ Inȱ 2007,ȱ theȱ MoES,ȱ leadȱ byȱ UNEBȱ andȱ withȱ theȱ collaborationȱ ofȱ theȱ Nationalȱ Curriculumȱ Developmentȱ Centre,ȱ introducedȱ aȱ reformȱ programȱ toȱ improveȱ classroomȱ assessment.ȱ Becauseȱ thisȱprogramȱemphasizedȱtheȱongoingȱnatureȱofȱclassroomȱassessment,ȱitȱ isȱreferredȱtoȱasȱcontinuousȱassessment.ȱ Theȱ reformȱ aimedȱ toȱ addressȱ importantȱ weaknessesȱ inȱ classroomȱ assessmentȱ practices.ȱ Teachersȱ wereȱ mainlyȱ usingȱ classroomȱ assessmentȱ forȱ summativeȱ purposes;ȱ thatȱ is,ȱ forȱ judgingȱ studentȱ performanceȱ andȱ forȱ makingȱ decisionsȱ aboutȱ studentȱ progression.ȱ Classroomȱ assessmentȱ wasȱ mainlyȱ understoodȱ asȱ assessmentȱ ofȱ learning.ȱ Thisȱ wasȱ consistentȱ withȱ theȱ useȱ ofȱ examinationsȱ toȱ judge,ȱ ratherȱ thanȱ toȱ support,ȱ studentȱ learning.ȱ Teachersȱ wereȱ developingȱ andȱ administeringȱ theirȱ ownȱ testsȱ toȱ gradeȱ andȱ promoteȱ pupilsȱ toȱ theȱ nextȱ grade.ȱ Teacherȱ skillsȱ inȱ testȱ developmentȱwereȱgenerallyȱpoor,ȱmainlyȱfocusingȱonȱlowerȬorderȱrecallȱ questionsȱ(Odongoȱ2006).ȱ Theȱ continuousȱ assessmentȱ reformȱ aimedȱ toȱ changeȱ theȱ teachingȱ cultureȱ soȱ thatȱ classroomȱ assessmentȱ wasȱ mainlyȱ usedȱ forȱ formativeȱ purposes;ȱ thatȱ is,ȱ toȱ informȱ pedagogy,ȱ toȱ provideȱ feedbackȱ toȱ students,ȱ andȱ toȱ promoteȱ learning.ȱ Assessmentȱ wouldȱ becomeȱ moreȱ meaningfulȱ andȱ supportiveȱ ofȱ theȱ curriculumȱ andȱ classroomȱ instruction.ȱ Theȱ goalȱ wasȱ toȱ makeȱ aȱ shiftȱ fromȱ assessmentȱ ofȱ learningȱ towardȱ assessmentȱ forȱ learning,ȱasȱespousedȱbyȱBlackȱandȱWiliamȱ(1998).ȱ Theȱreformȱalsoȱaimedȱtoȱimproveȱtheȱqualityȱofȱclassroomȱteachingȱ andȱ learningȱ throughȱ theȱ useȱ ofȱ validȱ andȱ reliableȱ teacherȬmadeȱ assessments.ȱ Continuousȱ assessmentȱ wasȱ conceptualizedȱ asȱ “aȱ systematic,ȱ objectiveȱ andȱ comprehensiveȱ wayȱ ofȱ regularlyȱ collectingȱ andȱ accumulatingȱ informationȱ aboutȱ aȱ studentȇsȱ learningȱ achievementȱ overȱ aȱ periodȱ ofȱ studyȱ andȱ usingȱ itȱ toȱ guideȱ theȱ studentȇsȱ learningȱ andȱ determineȱtheirȱlevelȱofȱattainment�ȱ(UNEBȱ2010).ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 11ȱ ȱ Teacherȱ practicesȱ wereȱ alsoȱ targetsȱ forȱ change.ȱ Afterȱ reform,ȱ teachersȱ wereȱ expectedȱ toȱ (i)ȱ observeȱ andȱ followȱ eachȱ studentȱ onȱ aȱ dailyȱ basis,ȱ (ii)ȱ recordȱ studentȱ progressȱ acrossȱ aȱ numberȱ ofȱ competencies,ȱ andȱ (iii)ȱ provideȱ qualitativeȱ descriptionsȱ ofȱ studentȱ performanceȱ insteadȱ ofȱ quantitativeȱmarks.ȱTheseȱchangesȱrequiredȱconsiderablyȱmoreȱresourcesȱ andȱsupportȱforȱimprovingȱteacherȱpractices.ȱ Theȱ reformȱ wasȱ alsoȱ designedȱ toȱ produceȱ changesȱ inȱ schoolȱ management.ȱ Atȱ primaryȱ gradesȱ 1ȱ toȱ 4,ȱ schoolsȱ andȱ districtsȱ wereȱ expectedȱ toȱ useȱ continuousȱ assessmentȱ informationȱ forȱ monitoringȱ learningȱ andȱ teaching.ȱ Theyȱ wereȱ alsoȱ expectedȱ toȱ useȱ thisȱ informationȱ forȱ planningȱ purposesȱ throughȱ integrationȱ intoȱ theȱ districtȬlevelȱ EducationȱManagementȱInformationȱSystemȱ(EMIS).ȱAtȱprimaryȱgradesȱ5ȱ toȱ 7,ȱ continuousȱassessmentȱ wasȱ toȱ beȱ usedȱ forȱreportingȱ onȱ endȬofȬcycleȱ attainment,ȱ withȱ 25ȱ percentȱ ofȱ theȱ continuousȱ assessmentȱ markȱ integratedȱintoȱtheȱfinalȱPLEȱexaminationȱscore.ȱ Continuousȱ assessmentȱ stillȱ hasȱ aȱ longȱ wayȱ toȱ goȱ beforeȱ becomingȱ anȱ establishedȱ partȱ ofȱ Ugandanȱ schoolȱ culture.ȱ Receptionȱ byȱ teachersȱ andȱ parentsȱ hasȱ beenȱ uneven,ȱ andȱ teacherȱ trainingsȱ haveȱ notȱ beenȱ thoroughȱ orȱ sufficient.ȱ Manyȱ teachersȱ areȱ confusedȱ andȱ unpreparedȱ toȱ fullyȱ andȱ properlyȱ implementȱ aȱ continuousȱ assessmentȱ reformȱ inȱ theirȱ classes.ȱȱ Parentsȱwereȱperplexedȱbyȱtheȱstudentȱreportȱcardsȱgeneratedȱunderȱ continuousȱ assessment.ȱ Beingȱ familiarȱ withȱ theȱ prior,ȱ simplerȱ reportingȱ systemȱ ofȱ marks,ȱ parentsȱ didȱ notȱ understandȱ theȱ implicationsȱ orȱ significanceȱ ofȱ theȱ moreȱ qualitativeȱ descriptionȱ ofȱ students’ȱ progress.ȱ Toȱ appeaseȱparents,ȱsomeȱschoolsȱcarriedȱoutȱexaminations,ȱorȱaddedȱmarksȱ andȱ theȱ positionȱ ofȱ theȱ childȱ withinȱ theȱ classȱ inȱ futureȱ progressȱ reportsȱ (Altinyelkenȱ 2010).ȱ Parentȱ oppositionȱ toȱ theȱ reportȱ cardsȱ wasȱ soȱ greatȱ thatȱ theȱ Nationalȱ Curriculumȱ Developmentȱ Centreȱ andȱ UNEBȱ alsoȱ revisedȱ theirȱ progressȱ reportsȱ toȱ includeȱ marksȱ andȱ descriptionsȱ aboutȱ studentȱachievementȱlevelsȱinȱselectedȱcompetencies.ȱ DriversȱforȱAssessmentȱReformsȱ Ugandaȱ hasȱ transitedȱaȱlongȱ journeyȱinȱdevelopingȱandȱ strengtheningȱitsȱ examinations,ȱ largeȬscaleȱ assessments,ȱ andȱ classroomȱ assessmentȱ ȱ 12ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ practices.ȱ Aȱ numberȱ ofȱ driversȱ contributedȱ toȱ theȱ currentȱ stateȱ ofȱ development:ȱ Politicalȱ stability.ȱ Theȱ MoESȱ andȱ UNEBȱ madeȱ aȱ sustainedȱ commitmentȱ toȱ keyȱ educationalȱ policies.ȱ Thisȱ allowedȱ forȱ theȱ longȬtermȱ planningȱandȱdevelopmentȱofȱvariousȱassessmentȱprograms.ȱȱ Leadership.ȱ Atȱ theȱ MoES,ȱ thereȱ wasȱ aȱ willȱ atȱ theȱ highestȱ levelsȱ toȱ improveȱeducationȱqualityȱandȱdevelopȱanȱeffectiveȱassessmentȱsystem.ȱȱ Internationalȱ policies.ȱ UNESCO,ȱ UNICEF,ȱ andȱ theȱ Worldȱ Bankȱ haveȱ highlightedȱ theȱ needȱ for,ȱ andȱ usefulnessȱ of,ȱ strongȱ assessmentȱ systems.ȱ Theȱ launchȱ ofȱ theȱ 1990ȱ Educationȱ forȱ Allȱ andȱ Millenniumȱ Developmentȱ Goalsȱ programsȱ pushedȱ Ugandaȱ toȱ implementȱ reforms,ȱ expandȱ theȱ schoolȱ system,ȱ andȱ monitorȱ quality.ȱ Theȱ governmentȱ ofȱ Uganda’sȱ commitmentȱ toȱ theseȱ goalsȱ ledȱ toȱ prioritizationȱ ofȱ theȱ developmentȱ ofȱ aȱ studentȱ assessmentȱ system.ȱ Theȱ government’sȱ useȱ of,ȱ andȱ subsequentȱ demandȱ for,ȱ dataȱ toȱ monitorȱ theȱ qualityȱ ofȱ theȱ educationȱ systemȱ furtherȱ institutionalizedȱtheȱneedȱforȱtheseȱassessments.ȱ Strongȱ policyȱ framework.ȱ Theȱ 1989ȱ Educationȱ Policyȱ Reviewȱ Commissionȱ (EPRC)ȱ report,ȱ theȱ consequentȱ 1992ȱ Governmentȱ Whiteȱ Paperȱ onȱ Education,ȱ andȱ theȱ 2008ȱ Educationȱ Actȱ setȱ theȱ stageȱ forȱ introducing,ȱ sustaining,ȱ andȱ improvingȱ theȱ examinations,ȱ theȱ nationalȱ largeȬscaleȱ assessmentȱ program,ȱ andȱ theȱ continuousȱ classroomȱ assessmentȱreform.ȱ Centralizingȱ assessmentȱ activitiesȱ inȱ UNEB.ȱ Theȱ institutionalizationȱ ofȱ theȱgovernment’sȱcommitmentȱtoȱassessmentsȱthroughȱtheȱestablishmentȱ ofȱ aȱ formalȱ agency,ȱ UNEB,ȱ initiatedȱ stabilityȱ inȱ assessmentȱ activities.ȱ UNEBȱ effectivelyȱ leadsȱ theȱ developmentȱ ofȱ theȱ nationalȱ assessmentȱ systemȱ andȱ itsȱ variousȱ activities.ȱ Theȱ directȱ lineȱ ofȱ accountabilityȱ betweenȱ theȱ UNEBȱ executiveȱ secretaryȱ andȱ theȱ MoESȱ facilitatesȱ coordinationȱandȱcommunicationȱregardingȱnationalȱgoalsȱandȱactivities.ȱ Competitiveȱ salaries.ȱ Thisȱ allowedȱ UNEBȱ toȱ haveȱ aȱ stable,ȱ wellȬ qualifiedȱ staff.ȱ Havingȱ aȱ stableȱ staffȱ preservesȱ institutionalȱ memoryȱ andȱ providesȱ collectiveȱ experienceȱ withinȱ theȱ organization.ȱ Thisȱ leadsȱ toȱ aȱ continuousȱstrengtheningȱofȱassessmentȱactivities.ȱ Qualified,ȱ longȬtermȱ personnel.ȱ Theȱ successȱ ofȱ Uganda’sȱ assessmentȱ activitiesȱ hasȱ beenȱ theȱ resultȱ ofȱ progressiveȱ developmentȱ ofȱ theȱ alreadyȱ wellȬqualifiedȱ UNEBȱ staff.ȱ Participationȱ inȱ internationalȱ assessmentȱ exercisesȱ andȱ receivingȱ technicalȱ assistanceȱ fromȱ theȱ Worldȱ Bankȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 13ȱ ȱ expandedȱ theȱ inȬhouseȱ experienceȱ andȱ skillsȱ ofȱ assessmentȱ personnelȱ asȱ theyȱ workedȱ withȱ regionalȱ andȱ internationalȱ assessmentȱ institutions.ȱ Inȱ contrast,ȱtheȱineffectiveȱtrainingȱofȱteachersȱandȱMoESȱstaffȱinȱcontinuousȱ assessmentȱleadȱtoȱaȱrockyȱstartȱtoȱtheȱprogram.ȱ Participationȱ inȱ internationalȱ assessments.ȱ Participatingȱ inȱ SACMEQȱ andȱ MLAȱ allowedȱ staffȱ atȱ UNEBȱ toȱ gainȱ newȱ experiences,ȱ extendȱ skills,ȱ andȱdevelopȱprofessionalȱnetworks.ȱ Curriculumȱ reform.ȱ Thisȱ wasȱ aȱ catalystȱ forȱ theȱ developmentȱ andȱ implementationȱofȱcontinuousȱassessment.ȱTheȱinterconnectednessȱofȱtheȱ curriculumȱ andȱ dayȬtoȬdayȱ classroomȱ assessmentȱ demandedȱ collaborationȱbetweenȱUNEBȱandȱtheȱNationalȱCurriculumȱDevelopmentȱ Centre.ȱ Initially,ȱ thisȱ collaborationȱ stymiedȱ theȱ implementationȱ ofȱ continuousȱ assessmentȱ dueȱ toȱ delaysȱ inȱ theȱ developmentȱ ofȱ theȱ curriculum.ȱ Anȱ integratedȱ curriculumȱ andȱ continuousȱ assessmentȱ programȱwasȱfinallyȱlaunched,ȱwithȱmixedȱresults.ȱ Publicȱ support.ȱ Inȱ Uganda,ȱ publicȱ supportȱ hasȱ allowedȱ forȱ theȱ continuationȱ andȱ strengtheningȱ ofȱ assessmentȱ policies.ȱ Concernsȱ aboutȱ theȱ qualityȱ ofȱ educationȱ haveȱ reinforcedȱ theȱ annualȱ largeȬscaleȱ assessmentȱ program,ȱ NAPE.ȱ Theȱ needȱ toȱ counterbalanceȱ theȱ examinationsȱ ledȱ toȱ strengtheningȱ classroomȱ assessmentȱ practices.ȱ Inȱ contrast,ȱ parents’ȱ initialȱ responseȱ ofȱ confusionȱ toȱ continuousȱ assessmentȱ reportȱcardsȱdemandedȱaȱstepȱbackȱfromȱimplementationȱpolicy.ȱ Situationalȱ factorsȱ complicatedȱ aȱ successfulȱ implementationȱ ofȱ continuousȱ assessment.ȱ Largeȱ classȱ sizesȱ wereȱ aȱ seriousȱ impedimentȱ toȱ theȱ implementationȱ ofȱ continuousȱ classroomȱ assessment.ȱ Itȱ isȱ unlikelyȱ thatȱ aȱ singleȱ teacherȱ wouldȱ beȱ ableȱ toȱ effectivelyȱ followȱ upȱ toȱ 70ȱ studentsȱ onȱ aȱ dailyȱ basis.ȱ Asȱ aȱ result,ȱ continuousȱ assessmentȱ isȱ rarelyȱ doneȱ (Altinyelkenȱ 2010).ȱ Theȱ resurgenceȱ ofȱ commerciallyȱ generatedȱ testsȱ alsoȱ hasȱ underminedȱ theȱ continuousȱ assessmentȱ reform.ȱ Often,ȱ theseȱ commercialȱweekly,ȱmonthly,ȱandȱendȬofȬtermȱtests,ȱwhichȱonlyȱfocusȱonȱ testing,ȱ recording,ȱ andȱ reporting,ȱ takeȱ precedenceȱ overȱ teacherȬ developedȱassessmentȱ(Weerheȱ2010).ȱ ȱ 14ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ LessonsȱLearnedȱ Uganda’sȱ visionȱ ofȱ aȱ qualityȱ educationȱ systemȱ withȱ aȱ focusȱ onȱ studentȱ learningȱ createdȱ theȱ pushȱ toȱ strengthenȱ theȱ country’sȱ systemȱ ofȱ assessmentȱ activities.ȱ Thisȱ paperȱ exploredȱ Uganda’sȱ journeyȱ inȱ developingȱ andȱ reinforcingȱ theȱ enablingȱ contextȱ forȱ thisȱ assessmentȱ system.ȱ Someȱ ofȱ theȱ keyȱ lessonsȱ toȱ beȱ learnedȱ fromȱ Uganda’sȱ experienceȱ includeȱtheȱfollowing:ȱ Politicalȱ stability.ȱ Thisȱ allowsȱ governmentsȱ toȱ sustainȱ theirȱ commitmentȱ toȱ keyȱ educationalȱ policiesȱ andȱ provideȱ consistentȱ leadershipȱ atȱ necessaryȱ institutions.ȱ Politicalȱ stabilityȱ alsoȱ allowsȱ forȱ longȬtermȱplanningȱandȱdevelopmentȱofȱvariousȱassessments.ȱ Commitmentȱ toȱ globalȱ educationȱ policiesȱ andȱ goals.ȱ Theȱ Educationȱ forȱ AllȱandȱMillenniumȱDevelopmentȱGoalsȱinitiatives,ȱandȱtheirȱlike,ȱcanȱactȱ asȱ catalystsȱ forȱ assessmentȱ reformsȱ inȱ manyȱ countries.ȱ Theȱ needȱ forȱ planningȱandȱmonitoring,ȱandȱforȱensuringȱthatȱallȱstudentsȱareȱlearning,ȱ hasȱcreatedȱurgencyȱforȱstrengtheningȱassessmentȱsystems.ȱȱ Strongȱ policyȱ framework.ȱ Policyȱ documentsȱ callingȱ forȱ improvementsȱ inȱeducationȱandȱforȱassessmentȱreformsȱprovideȱanȱinstitutionalȱbaseȱforȱ developingȱstrongerȱassessmentȱsystems.ȱ Oneȱ centralȱ assessmentȱ institution.ȱ Countriesȱ aimingȱ toȱ developȱ theirȱ assessmentȱ systemȱ mayȱ considerȱ havingȱ oneȱ leadingȱ assessmentȱ institution.ȱ Thisȱ hasȱ severalȱ benefits.ȱ Itȱ reducesȱ wastefulȱ duplicationȱ ofȱ fiscal,ȱ physical,ȱ andȱ humanȱ resources;ȱ streamlinesȱ communicationȱ betweenȱ coordinatingȱ bodies;ȱ andȱ facilitatesȱ crossȬfertilizationȱ ofȱ skillsȱ andȱknowledgeȱamongȱstaffȱinvolvedȱwithȱvariousȱassessments.ȱAȱsingleȱ institutionȱ alsoȱ canȱ provideȱ aȱ clearerȱ organizationalȱ structureȱ andȱ directȱ accountabilityȱ forȱ variousȱ assessments.ȱ Additionally,ȱ aȱ singleȱ organizationȱ facilitatesȱ theȱ alignment,ȱ compatibility,ȱ andȱ synergyȱ betweenȱ theȱ variousȱ assessments,ȱ asȱ wellȱ asȱ betweenȱ assessmentsȱ andȱ curriculum.ȱ Capacityȱ building.ȱ Theȱ successȱ ofȱ anyȱ assessmentȱ activityȱ isȱ directlyȱ relatedȱ toȱ theȱ capacityȱ ofȱ theȱ personnelȱ developingȱ andȱ implementingȱ it.ȱ Inȱ developingȱ countries,ȱ assessmentȱ institutionsȱ needȱ toȱ attractȱ personnelȱ whoȱ areȱ eagerȱ toȱ learn.ȱ Opportunitiesȱ forȱ learningȱ wouldȱ comeȱ fromȱ onȬtheȬjobȱ experience,ȱ fromȱ participatingȱ inȱ internationalȱ assessmentȱ programs,ȱ andȱ fromȱ formalȱ trainingȱ providedȱ byȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 15ȱ ȱ internationalȱ donors.ȱ Competitiveȱ salariesȱ areȱ requiredȱ toȱ keepȱ trainedȱ personnelȱinȱtheȱassessmentȱinstitution.ȱ Institutionalizedȱ useȱ ofȱ assessmentȱ data.ȱ Dueȱ toȱ limitedȱ accessȱ toȱ secondaryȱ educationȱ inȱUganda,ȱ theȱ publicȱ hasȱ comeȱ toȱ acceptȱ theȱ useȱ ofȱ endȬofȬlevelȱ examinationsȱ asȱ theȱ mostȱ democraticȱ wayȱ toȱ selectȱ studentsȱ forȱ furtherȱ schooling.ȱ Inȱ addition,ȱ dataȱ fromȱ theȱ nationalȱ largeȬscaleȱ assessment,ȱ NAPE,ȱ haveȱ beenȱ usefullyȱ employedȱ toȱ identifyȱ trendsȱ inȱ studentȱ performanceȱ soȱ asȱ toȱ developȱ interventionsȱ toȱ raiseȱ theȱ standardsȱ ofȱ studentȱ learning.ȱ NAPEȱ dataȱ alsoȱ haveȱ beenȱ usedȱ toȱ address,ȱ andȱ verify,ȱ publicȱ perceptionsȱ ofȱ reducedȱ qualityȱ afterȱ implementationȱ ofȱ Universalȱ Primaryȱ Education.ȱ Theȱ demonstratedȱ valueȱofȱtheseȱdataȱtoȱinformȱtheȱgovernmentȱandȱgeneralȱpopulationȱhasȱ bothȱ validatedȱ andȱ institutionalizedȱ theseȱ assessmentȱ activitiesȱ andȱ highlightedȱtheirȱutilityȱinȱeducationalȱplanningȱandȱmonitoring.ȱ Curriculumȱ reform.ȱ Curriculumȱ reformȱ isȱ anȱ importantȱ catalystȱ forȱ assessmentȱ reform.ȱ Theȱ developmentȱ ofȱ theȱ 2007ȱ Thematicȱ Curriculumȱ providedȱ aȱ strategicȱ opportunityȱ forȱ implementingȱ Uganda’sȱ continuousȱ assessmentȱ program.ȱ Collaborationȱ betweenȱ theȱ Nationalȱ Curriculumȱ Developmentȱ Centreȱ andȱ UNEBȱ inȱ developingȱ alignedȱ andȱ integratedȱ curriculumȱ andȱ assessmentȱ activitiesȱ providedȱ aȱ moreȱ structuredȱ wayȱ toȱ assistȱ teachersȱ inȱ enhancingȱ learnerȱ performance.ȱ Becauseȱ curriculumȱ andȱ continuousȱ assessmentȱ goȱ handȬinȬhand,ȱ theirȱ simultaneousȱ developmentȱ canȱ resultȱ inȱ theȱ mostȱ effectiveȱ coordinationȱ andȱ implementation.ȱȱ Everyȱ country’sȱ journeyȱ inȱ constructingȱ itsȱ assessmentȱ systemȱ willȱ beȱ unique.ȱ However,ȱ lookingȱ atȱ others’ȱ experiencesȱ inȱ buildingȱ coherentȱ andȱ effectiveȱ assessmentȱ systemsȱ allowsȱ countriesȱ toȱ betterȱ understandȱ theȱ processȱ andȱ toȱ learnȱ fromȱ others’ȱ successesȱ andȱ challenges.ȱ Hopefully,ȱ theȱ Ugandanȱ experienceȱ willȱ provideȱ someȱ helpfulȱ insightsȱ fromȱwhichȱotherȱcountriesȱcanȱlearn.ȱ ȱ 16ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ Referencesȱȱ Acana,ȱ S.ȱ 2006.ȱ “Reportingȱ Resultsȱ ofȱ Nationalȱ Assessment:ȱ Ugandaȱ Experience.�ȱPaperȱ presentedȱ atȱ theȱ32ndȱ Annualȱ Conferenceȱ ofȱ theȱ Internationalȱ Associationȱ forȱ Educationalȱ Assessment,ȱ Singapore,ȱ Mayȱ22–26,ȱ2006.ȱ Altinyelken,ȱ H.ȱ K.ȱ 2010.ȱ “Curriculumȱ Changeȱ inȱ Uganda:ȱ Teacherȱ Perspectivesȱ onȱ theȱ Newȱ Thematicȱ Curriculum.�ȱ Internationalȱ JournalȱofȱEducationalȱDevelopmentȱ30:ȱ151–161.ȱ Black,ȱ P.,ȱ andȱ D.ȱ Wiliam.ȱ 1998.ȱ “Assessmentȱ andȱ Classroomȱ Learning.�ȱ AssessmentȱinȱEducation:ȱPrinciples,ȱPolicyȱandȱPracticeȱ5(1):ȱ7–73.ȱ Bukenya,ȱ M.ȱ B.ȱ B.ȱ 2001.ȱ “Utilisationȱ ofȱ Primaryȱ Leavingȱ Examinationȱ inȱ Uganda.�ȱPaperȱpresentedȱatȱtheȱNationalȱAssessmentȱConference.ȱ Kampala.ȱ Chinapah,ȱV.ȱ2003.ȱ“MonitoringȱLearningȱ Achievementȱ (MLA)ȱProjectȱ inȱ Africa.�ȱPaperȱpresentedȱatȱtheȱBiennialȱMeetingȱofȱtheȱAssociationȱ forȱ theȱ Developmentȱ ofȱ Educationȱ inȱ Africaȱ (Grandȱ Baie,ȱ Mauritius,ȱDecemberȱ3–6,ȱ2003).ȱ Clarke,ȱM.ȱ2012.ȱ“WhatȱMattersȱMostȱforȱStudentȱAssessmentȱSystems:ȱAȱ Frameworkȱ Paper.�ȱ SABER–Studentȱ Assessmentȱ Workingȱ Paperȱ No.ȱ 1.ȱWorldȱBank,ȱWashington,ȱDC.ȱ Hedger,ȱE.,ȱT.ȱWilliamson,ȱT.ȱMuzoora,ȱandȱJ.ȱStroh.ȱ2010.ȱ“SectorȱBudgetȱ Supportȱ inȱ Practice:ȱ Caseȱ Studyȱ Educationȱ Sectorȱ inȱ Uganda.�ȱ London:ȱOverseasȱDevelopmentȱInstitute.ȱ Magara,ȱ D.,ȱ andȱ N.ȱ Chandiru.ȱ 2012.ȱ “PLEȱ Starts:ȱ UNEBȱ Warnsȱ Schoolsȱ onȱ Cheatingȱ Exams.�ȱ Newȱ Vision,ȱ Novemberȱ 5.ȱ Availableȱ at:ȱ http://allafrica.com/stories/201211050351.html.ȱ Makuwa,ȱ D.ȱ 2011.ȱ “Characteristicsȱ ofȱ Gradeȱ 6ȱ Teachers.�ȱ Workingȱ Paperȱ No.ȱ2.ȱSACMEQ,ȱParis.ȱ Ministryȱ ofȱ Educationȱ andȱ Sportsȱ (MoES).ȱ 2001.ȱ “Theȱ Developmentȱ ofȱ Educationȱ inȱ Ugandaȱ inȱ theȱ Lastȱ Tenȱ Years.�ȱ Reportȱ onȱ theȱ DevelopmentȱofȱEducationȱforȱtheȱ46thȱSessionȱofȱtheȱInternationalȱ ConferenceȱonȱEducation,ȱSeptemberȱ5–ȱ7,ȱ2001,ȱGeneva.ȱ ȱ DevelopingȱtheȱEnablingȱContextȱforȱStudentȱAssessmentȱinȱUgandaȱ 17ȱ ȱ ———.ȱ 2004.ȱ Theȱ Republicȱ ofȱ Uganda,ȱ Educationȱ Sectorȱ Strategicȱ Planȱ 2004–2015.ȱMoES,ȱKampala.ȱ Monitor,ȱ The.ȱ 2007.ȱ “Weȱ Needȱ Farȱ Moreȱ Strictȱ Measuresȱ toȱ Stopȱ Cheats.�ȱ Editorial,ȱ Februaryȱ 13.ȱ Retrievedȱ fromȱ http://allafrica.com/stories/ȱ 200702121391.html.ȱ Odongo,ȱ D.ȱ 2006.ȱ “Constructionȱ ofȱ Testsȱ forȱ Classroomȱ Assessment:ȱ Areȱ Teachersȱ upȱ toȱ theȱ Task?�ȱ Paperȱ presentedȱ atȱ theȱ annualȱ meetingȱ ofȱtheȱAssociationȱforȱAssessmentȱinȱAfrica,ȱCapeȱTown.ȱ Ogwang,ȱ S.ȱ 2010.ȱ “Theȱ Persistenceȱ ofȱ Malpracticeȱ inȱ Examinationsȱ ConductedȱbyȱUNEBȱatȱtheȱPLE,ȱUCEȱandȱUACEȱLevels.�ȱUgandaȱ Nationalȱ Educationȱ Board.ȱ Availableȱ at:ȱ http://www.uneb.ac.ug/ȱ Admin/images/exam_malpractice.pdf.ȱ Penny,ȱ A.,ȱ M.ȱ Ward,ȱ T.ȱ Read,ȱ andȱ H.ȱ Bine.ȱ 2008.ȱ “Educationȱ Sectorȱ Reform:ȱ Theȱ Ugandanȱ Experience.�ȱ Internationalȱ Journalȱ ofȱ EducationalȱDevelopmentȱ28:ȱ268–285.ȱ Read,ȱ T.,ȱ andȱ S.ȱ Enyutu.ȱ 2005.ȱ “Roadȱ Mapȱ forȱ theȱ Implementationȱ ofȱ theȱ Curriculumȱ Reformsȱ Recommendedȱ byȱ theȱ Primaryȱ Curriculumȱ ReviewȱReport.�ȱFinalȱrevisedȱversion.ȱMoES,ȱKampala.ȱ Ssewanyana,ȱ S.,ȱ G.ȱ Okoboi,ȱ andȱ I.ȱ Kasirye.ȱ 2011.ȱ “Costȱ Benefitȱ Analysisȱ ofȱ theȱ Ugandaȱ Postȱ Primaryȱ Educationȱ andȱ Trainingȱ Expansionȱ andȱ Improvementȱ (PPETEI)ȱ Project.�ȱ Aȱ researchȱ reportȱ submittedȱ toȱ theȱ Globalȱ Developmentȱ Networkȱ (GDN).ȱ Kampala:ȱ Economicȱ PolicyȱResearchȱCentre.ȱ Ugandaȱ Nationalȱ Examinationsȱ Boardȱ (UNEB).ȱ 2012.ȱ Financeȱ andȱ Accountsȱ Department:ȱ Incomeȱ andȱ Expenditure.ȱ UNEB,ȱ Kampala.ȱ Accessedȱ onȱ Decemberȱ 4,ȱ 2012,ȱ at:ȱ http://www.uneb.ac.ug/ȱ index.php?link=Departments&&Key=Finance_and_Accounts.ȱ ———.ȱ 2010.ȱ Continuousȱ Assessment.ȱ UNEB,ȱ Kampala.ȱ Availableȱ at:ȱ http://www.uneb.ac.ug/index.php?link=Departments&&Key=CAȱȱ Ward,ȱ M.,ȱA.ȱPenny,ȱandȱ T.ȱ Read.ȱ2006.ȱ“Educationȱ Reformȱ inȱ Uganda— 1997ȱ toȱ 2004:ȱ Reflectionsȱ onȱ Policy,ȱ Partnershipȱ Strategyȱ andȱ Implementation.�ȱDFID,ȱLondon.ȱ Weerhe,ȱ D.ȱ M.ȱ 2010.ȱ “Opportunitiesȱ forȱ andȱ Challengesȱ inȱ Usingȱ Feedbackȱ fromȱ Nationalȱ Examinationsȱ andȱ Teacherȱ Assessmentȱ toȱ ImproveȱClassroomȱInstruction.�ȱUNEB,ȱKampala.ȱȱ ȱ 18ȱ AnilȱKanjeeȱandȱSylviaȱAcanaȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ ȱ List of papers published in the current Working Paper series 1. Clarke, M. 2012. “What Matters Most for Student Assessment Systems: A Framework Paper.� $YDLODEOHLQ5XVVLDQDQG3RUWXJXHVH  2. Ramirez, M. 2012. “Developing the Enabling Context for Student Assessment in Chile.� $YDLODEOHLQ5XVVLDQ  3. Ramirez, M. 2012. “Disseminating and Using Student Assessment Information in Chile.� $YDLODEOHLQ5XVVLDQ  4. Liberman, J., and M. Clarke. 2012. “Review of World Bank Support for Student Assessment Activities in Client Countries.� $YDLODEOHLQ 5XVVLDQ  5. Flockton, L. 2012. “The Development of the Student Assessment System in New Zealand.� $YDLODEOHLQ5XVVLDQ  6. Allen, R. 2012. “Developing the Enabling Context for School-Based Assessment in Queensland, Australia.� 7. Castro, M. 2012. “Developing the Enabling Context for Student Assessment in Brazil.� 8. Kanjee, A., and S. Acana. 2013. “Developing the Enabling Context for Student Assessment in Uganda.� Forthcoming papers 9. Bolotov, V., G. Kovaleva, M. Pinskaya, and I. Valdman. 2013. “Developing the Enabling Context for Student Assessment in the Russian Federation.� This paper describes Uganda’s journey in developing a coherent assessment system. The journey must be viewed in the context of the government’s ongoing commitment to improving the quality of education and learning in its schools through the provision of better data on student performance. All key assessment activities in the country, namely examinations, large- scale assessments, and continuous classroom assessments, are formally mandated and institutionally supported. Key drivers for developing the assessment system in Uganda have included political stability and will, government commitment to key education policies and goals, having a single assessment institution, the institutionalized use of assessment data, and curriculum reform. Anil Kanjee, Research Professor, Tshwane University of Technology, South Africa Sylvia Acana, 3ULQFLSDO([DPLQDWLRQV2IÀFHU8JDQGD1DWLRQDO ([DPLQDWLRQV%RDUG 81(% The Russia Education Aid for Development Trust Fund is a collaboration between the Russian Federation and the World Bank that supports the improvement of student learning outcomes in low-income countries through the development of robust student assessment systems. Visit the READ website at www.worldbank.org/readtf for additional information.