UNICEF Mongolia - Teachers College Columbia University

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CHAPTER 1: INTRODUCTION 1 2 3 4 5 6 CHAPTER 1: INTRODUCTION The Government of Mongolia launched a salary reform in 2007 that significantly improved the situaon of teachers, making the teaching profession more aracve. The base salary was raised significantly; several salary supplements were integrated into the base salary; and the number of addional teaching hours that teachers were permied to teach was limited. The 2007 reform was fundamental and was subsequently accompanied by a series of other regulaons that dealt with ethical standards, licensing requirements, incenve schemes and promoon regulaons. The recent developments in Mongolia reflect an internaonal trend to pay greater aenon to teacher quality and movaon. In an effort to support the iniaves of the Ministry of Educaon, Culture and Science (MECS), UNICEF Mongolia provided funds to MECS to analyze more closely the current situaon of teachers in Mongolia. This UNICEF Mongolia Study on Teachers therefore describes the fundamental reforms that took place over the past few years, then examines their implementaon in pracce, and finally idenfies areas in need of improvement. The first chapter provides the larger context of the study and presents the research design of the study. 1.1. EDUCATION FOR ALL VERSUS LEARNING FOR ALL TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS 16 For the past few years, the effecveness of educaonal reforms—including those funded by development partners—has been typically measured in terms of whether a reform did indeed enhance student outcomes. Progress in assessment has been made in two direcons. On one hand, there are discernible aempts to move away from measuring student outcomes exclusively in terms of standardized test results. Clearly, the debate on competencies, and most recently on skills, has broadened the earlier focus on cognive skills. On the other hand, there is a growing number of researchers who are exploring factors that impact student learning. It is currently widely acknowledged that teacher quality scores very high among the drivers for student learning. One of the frequently cited studies even claims that teacher quality is a beer predictor of student outcomes than class size or the money spent per student (see McKinsey 2007). 1 The emphasis on student outcomes or student learning is reflected in the new educaon sector strategies of development partners. Both the UK Department for Internaonal Development (DFID) and the World Bank have moved away from emphasizing access to quality educaon (Educaon for All) and now propagate access and outcomes of quality educaon. The current DFID strategy is called 2010- 2015 Learning for All, and the recently released World Bank Educaon Strategy 2020 is entled Learning for All: Invesng in People’s Knowledge and Skills to Promote Development. Governments in different parts of the world, both in developing and in developed countries, are facing the challenge of how to best recruit graduates into teaching, to develop effecve teachers, and then to retain them on the job. The shortage of qualified and effecve teachers is a global phenomenon and has led to numerous organizaons ranging from the OECD (2005) to McKinsey (2007, 2010) emphasizing the importance of aracng, developing, and retaining effecve teachers. 2 1 McKinsey & Co. (2007). How the Best Performing School Systems Came Out on Top. London: McKinsey & Co.; see also: McKinsey Report (2010). Closing the talent gap: Aracng and retaining top third graduates to a career in teaching. London: McKinsey & Company. 2 OECD. (2005). Teachers Maer: Aracng, Developing, and Retaining Effecve Teachers. Paris: OECD; McKinsey & Co. (2007). How the Best Performing School Systems Came Out on Top. London: McKinsey & Co.; McKinsey Report (2010). Closing the talent gap: Aracng and retaining top third graduates to a career in teaching. London: McKinsey & Company.
CHAPTER 1: INTRODUCTION In line with other development partners, UNICEF has focused its aenon to the topic. Several country and regional offices of UNICEF commissioned studies on teacher supply and quality. There are nine other studies in parcular that have applied a similar interpreve framework and have used a similar methodological approach. They are as follows: UNICEF CEECIS Region (Central and Eastern Europe & Commonwealth of Independent States) with naonal studies in the following countries: • Armenia • Bosnia & Herzegovina • FYR Macedonia • Kyrgyzstan • Moldova • Uzbekistan UNICEF ESARO (Eastern and Southern Africa Office) with naonal studies in: • Lesotho • Malawi • Swaziland 1 2 3 4 5 6 One of the co-authors of this report, Gita Steiner-Khamsi, served as the research team leader of the two regional and nine naonal UNICEF studies listed above. The consistency in interpreve framework and methodological approach makes it possible to compare the situaon of teachers across regions and countries. The next secon demonstrates the similarity of the Mongolian teacher salary system with that in former socialist countries of the CEECIS Region. 1.2. THE TEACHER SALARY SYSTEM IN MONGOLIA: A COMPARISON WITH THE CEECIS REGION Since the salary reform of 2007, teachers in Mongolia have been earning on average higher salaries than other public servants. Only the salaries of those who work in government administraon or finance and insurance sectors are comparable to the wages of teachers. 3 As the pilot research project of the Ministry of Labor (2011) illuminated, public servants earn on average 230,500 MNT in terms of base salary (87.4 percent of the total monthly pay); 27,000 MNT in the form of supplements (10.2 percent); and 6,200 MNT for transportaon. As shown in Table 1 below, teachers in Mongolia, however, earn on average 324,292 MNT per month. The pilot study of the Ministry of Labor further demonstrates that the average teacher salary ranks among the top 5-10 percent of salaries in the public and private sector. Approximately one-third of the populaon in Mongolia (28-35 percent) lives on the minimum wage of 108,000 MNT or less. TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS 3 See report of the Ministry of Labor of Mongolia. (2011). Policy Analysis Report on Salary Structure. Pilot Research. Ulaanbaatar: Ministry of Labor. 17
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UNICEF Mongolia - Teachers College Columbia University

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