UNICEF Mongolia - Teachers College Columbia University

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CHAPTER 1: INTRODUCTION 1 2 3 4 5 6 As menoned previously, the weekly workload system is in effect in most EU countries, as well as in two of the parcipang countries of the UNICEF CEECIS study, namely, Bosnia and Herzegovina and FYR Macedonia. In the other parcipang countries of the UNICEF CEECIS study on teachers—Armenia, Kyrgyzstan, Moldova, Uzbekistan—teachers are hired under the stavka system. The 2007 salary reform in Mongolia is a remarkable case because it mirrors the shi from the weekly teaching load system to the total workload system. Thus, since September 1, 2007, teachers in schools and kindergartens of Mongolia have been paid for 40 hours of work per week, nineteen hours of which are assigned for teaching. 6 Prior to the fundamental salary reform of 2007, teachers were paid solely for the number of hours they were teaching. The next secon provides a historical overview of the teacher salary system in Mongolia. 1.3. THE TEACHER SALARY SYSTEM IN MONGOLIA: A HISTORICAL SKETCH The main features of the two employment systems—teaching workload versus total workload—are summarized in Figure 2. Figure 2: Main Disncons between the Two Salary Systems TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS Teaching Load System (stavka system) Salary Base Number of Teaching Hours per Week (19 hours/week) Role of Teacher The teacher is reduced to teaching, and all other activities (including pedagogical ones) are paid extra. Income of Teacher Unpredictable income, small base salary for 1 teaching load. Teachers are therefore encouraged to teach additional hours or take on a job outside of school. Weekly Workload System Salary Base Number of Work Hours per Week (40 hours/week) Role of Teacher The teacher is expected to carry out all activites related to instruction and is also expected to stay at school beyond the actual teaching hours. Áàãøèéí îðëîãî: Òîäîðõîé îðëîãî, áàãø íàð äàâõàð àæèë ýðõëýõèéã õîðèãëîäîã. /Öàãèéí áàãø áèø áîë/ 20 Source: Modified figure from UNICEF CEECIS (2011). 6 Joint Order of the Minister of Educaon, Culture and Science, the Minister of Social Protecon and Labor, and the Minister of Finance (2007).On adopng the procedure to set the work norms of kindergarten and generaon educaon school teachers, and to calculate and discharge the salaries of teachers and certain other officials. Date: August 31, 2007, Order: Number 307/91/237. Ulaanbaatar.
CHAPTER 1: INTRODUCTION The PETS Mongolia study clearly demonstrated that the teaching load or stavka system benefited teachers in urban and semi-urban schools of Mongolia who were able to teach more addional hours and get reimbursed for addional hours than teachers in soum-schools. 7 Under the previous teaching load system in Mongolia, a teacher’s total pay consisted of base salary for 19 hours, addional teaching hours, salary supplements (including supplement for a teacher’s rank), and bonuses. On average, 17.4 percent of the total pay of teachers in urban schools (schools in Ulaanbaatar and in aimag centers) consisted of payments for addional teaching hours. The rao was significantly lower for teachers in rural schools; their addional teaching hours only accounted for 13.4 percent of the total pay. As a result, teachers in rural schools had to rely on their meager base salary to make a living. In fact, the base salary accounted for 62 percent of the total pay for teachers who worked in rural schools. In contrast, the base salary only represented 55 percent of the total monthly pay of teachers in urban schools, as they could make addional money by taking on addional hours. The previous teaching working load system generated inequality, because it negavely affected those teachers who worked under difficult circumstances, such as those teachers in small rural schools with fewer opportunies to teach addional hours. On the other hand, it benefited teachers who worked in overcrowded semi-urban (aimag center) schools and in Ulaanbaatar who were able to take on addional teaching hours and boost their income. Educaonally, however, it was disadvantageous for students in all types of schools. In urban schools, teachers ended up with either too many instrucon hours or hours in subjects for which they had lile or no training. In rural schools, teachers were unmovated and only remained on the post because they lacked beer professional opportunies. Ulmately, the students were the ones who suffered from the low instruconal quality or, more precisely, from being instructed by teachers who took on addional teaching hours in subjects they knew very lile about. The Educaon for All Fast Track Iniave (EFA FTI) recognized the importance of teacher salaries for ensuring universal primary school compleon. The raonale was that an appropriate teacher salary does not only ensure a sufficient supply of teachers, but also enhances the quality of educaon. This benchmark was proposed in the EFA FTI Indicave Framework, whereby the teacher salary was recommended to be 3.5 mes the average GDP per capita in a country. In Mongolia, the average teacher salary was 1.7 mes the GDP per capita in 2005, but aer the structural reform of 2007/08, the average salary was increased to 3.58 mes the GDP per capita. Mongolia is the only country in the region that approximates, and in fact slightly exceeds, the EFA FTI benchmark. In short sequence, the Government of Mongolia raised the teacher salaries three mes in 2006 and 2007 to reflect the economic growth that the country had been experiencing since 2005. As Table 2 shows, teacher salaries in Mongolia were increased by 36 percent from 2006 to 2007. 1 2 3 4 5 6 TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS 7 World Bank. (2006). Public Financing of Educaon .Equity and Efficiency Implicaons .Washington, DC: World Bank; see Table 19 in the PETS report on the composion of total teacher pay in Mongolia. 21
Page 1 and 2: MINISTRY OF EDUCATION, AND SCIENCE
Page 3 and 4: ACKNOWLEDGEMENTS The current trend
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UNICEF Mongolia - Teachers College Columbia University

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