An Investigation into Teacher Recruitment and Retention in the Punjab

1. An Investigation into Teacher Recruitment and Retention in the Punjab Faisal Bari HarisGazdar ReehanaRazaBismaHaseeb Khan MonazzaAslamNeelumMaqsood

2. Context • Public schools lag behind private schools in terms of student performance ( LEAPS; ASER 2011/12) • Literature indicates effective teaching to be an important determinant of school quality (Aslam and Kingdon, 2011; Behrman et al 1997) How can an effective teaching force be recruited, maintained and deployed?

3. Context • Recruitment, retention and deployment policies and the political economy surrounding these, play a key role in attracting quality teachers to the teaching sector and retaining them within the sector: • Merit-based hiring - Hanushek and Woesmann (2011) • Teacher training and support - Leu (2004) • Incentive structures - Solomon and Podgursky, (2000) • Teacher allocation across schools - Mulkeen (2007) • In this context, a number of reforms in teacher management policies have been introduced in the Punjab. Why have these policy reforms failed to achieve their desired goals?

4. Data and Methodology • Mixed-methods approach: • Scrutiny of policy documents • Data analysis • Ethnographic study – field visits to Attock, RahimYar Khan and Gujranwala • Case studies of 5 court cases • Data sources: • EMIS School Surveys (2007 – 2012) • Teacher Survey : PMIS (2006) • SchoolTells (2011) • RECOUP (2006-07) Policies relating to recruitment, retention and deployment are investigated. However, this presentation will concentrate on deployment

5. Policy Analysis - Deployment • Three main policy reforms affect teacher deployment: • Initial allocation of posts upon recruitment • Periodic introduction of rationalization policies • Transfer policy • Despite these reforms, weak deployment and inefficient allocation of teacher resources remains an issue.

6. Current Scenario: Variation in teacher supply across districts

7. Overall STRs Mask Deeper Concerns…

8. Overall STRs Mask Deeper Concerns…

9. Why does Weak Deployment Persist? • STRs alone accounted for in deployment policies • Headmasters not taken into confidence when allocating posts • No consistent policy regarding transfers These policy gaps leave open room for political interference, nepotism and corruption • =

10. Chapter 3 An insight from the Ethnographic research • Methodology • Districts: RahimYar Khan (south), Gujranwala (centre) and Attock (North) • Semi-structured Interviewed with key officials, clerks and teachers • Focus Group Discussions with teachers • Observation of the day to day interaction of officials with teachers and other office members

11. Political Economy of the Education Department Forward files of their favoured teachers/Manipulating the EDO with their superior knowledge of the department Clerks/PA Give bribes/Use political ties to gain favours Bribe-taking/Blackmail/Guide EDO Teachers Nepotism/ rent-seeking – either go through the clerks or directly exert pressure on the EDOs/DEOs Politically affiliated teachers ask for favors Politicians – MNAs/MPAs/Local Officials

12. Policy Level Factors Recruitment The decentralization versus centralization debate Undue political interference at the time of recruitment (hiring of Arabic teachers in 2007) Deployment The influence of Member of National Assembly/Provincial Assembly over transfers reduced with the introduction of new policy Lack of financial incentives to teach in far flung areas

13. Retention Flaws in training methodology (more result based than knowledge based) No training given to handle real situations (multi-grade classes etc)

14. Monitoring System undermining teachers’ motivation Unclear career path (flaws in the promotion policy)

15. Chapter 4: The Litigation Process and Case Study • Teachers first approach the Competent Authority • If case is not resolved within the Department, teachers either go to the Punjab Service Tribunal or the High Court • The department does not have the legal expertise to handle court cases • Higher officials resist decision of the courts and the department is constrained against taking action

16. Ashfaq Ahmed versus Government of Punjab In 1999 Government of Punjab introduced a policy whereby headmaster who had less than 20% passing rate in their schools were compulsorily retired from service Ashfaq Ahmed was one of the head masters in a school presiding as Head Master of a disadvantaged school. He approached the High Court to fight his case. The court decided in his favour but the secretary of Education refused to listen to court order and filed an appeal In 2002, Ashfaq Ahmed was reinstated after a long battle Illustrates how blanket policies have adverse effects especially if they punish teachers on variable they have no control over. Also highlights the role of government officials in constraining the court and how cases can waste energy and resources of everyone involved. Poor signal for potential teachers.

17. Policy Recommendations School based hiring-reduce number of transfers and little room for politically motivated transfers Mechanism to terminate the appointment of older teachers who do not fulfil the updated criterion or extensive training to update their skills Increasing grade cut-off to 1st division to improve quality of teaching force Mechanize system of applications and transfer. Reduce human involvement to limit role of clerks. Within-department transfer of clerks

18. Tailor training to specific needs of the teachers and in the context of the environment in which teachers have to work Tie performance with effort-Modify school bonus schemes STR 40:1 may not be adequate in some cases where teachers are teaching multiple grades or where there is lack of subject specialists Make service in rural/backward areas compulsory