UNICEF Mongolia - Teachers College Columbia University

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CHAPTER 4: THE IMPLEMENTATION OF THE 2007 SALARY REFORM AT SCHOOL LEVEL 1 2 3 4 5 6 We would argue that the structure of the teacher salary has not changed post-reform, despite a major increase in the nominal value of the various components that make up the total pay. In other words, today’s salary structure is as fragmented as it was before 2007 with the following excepon: the number of salary supplements for funcon has been reduced to three funcons only—that is, class teacher, cabinet, head of secon. All other components already existed prior to the reform. As will be shown later in this report, performance bonuses have a much greater weight as a percentage of the total pay than before. The eliminaon of funconal supplements—in parcular notebook checking—seen as an integral part of the teaching profession in other educaonal systems has elicited protests among some group of teachers. The qualitave data from this study reveal that primary teachers especially complain about the lack of this addional supplement. A few educaon managers who had been working for many years in the system observed that teachers tended to grade less and provide less feedback to students than before. In general, there were many complaints about the eliminaon of the notebook-checking supplement by both educaon managers and primary teachers. However, these complaints need to be put into perspecve: the eliminaon of the notebook grading supplement should be viewed from an educaonal rather than a financial perspecve as a fundamental change that alters the role of the teacher as well as that of the educaon manager. Seen posively, the eliminaon of this parcular funconal supplement Figure 14: Composion of the Teacher Salary, 2011 TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS Total Pay Base Salary Additional Teaching Hours Supplements for Functions Supplements for Rank Bonuses for Performance General Benefits for all Public Servants Class Teacher Cabinet Head of Section Quarterly Performance Bonus Outcomes-Based Bonus Bonus for Olympiads 64
CHAPTER 4: THE IMPLEMENTATION OF THE 2007 SALARY REFORM AT SCHOOL LEVEL signals to teachers that the formave evaluaon of students is part and parcel of the teaching profession and, for this reason, does not need to be compensated addionally. For educaon managers, the eliminaon of the notebook-checking supplement entails less control and less micro-management of teachers. Their previous role involved meculously counng the number of notebooks checked by teachers and measuring it in terms of the frequency of red ink used on student notebooks. If necessary, the managers would determine deducons from the supplement and think of addional punive measures. Clearly, any reform that targets the change in professional identy needs to be considered fundamental, even if it is minor in financial terms, as was the case in the funconal supplement for notebook checking. Understandably, the professionals—teachers and managers—at first resisted such a fundamental change. It is important to point out that the funconal supplement for class teachers has been preserved. Primary school teachers earn slightly more than secondary school teachers because they are class teachers by default. However, their chances of making addional income from extra teaching hours are also smaller. The other two funconal supplements are less controversial. The supplement for head of secon is a proxy for the rank of the teacher who is heading the secon. <strong>Teachers</strong> who tend to serve as heads of the secon are typically teachers with professional qualificaons—that is, lead teachers, methodologists, or advisors who already earn a rank supplement. Thus, despite the fundamental reform of 2007, experienced teachers tend to be rewarded three mes more than young and inexperienced teachers. Older teachers earn more because: • their base salary is higher because their salary category, based exclusively on years of teaching, is higher (total: 5 categories) • they are more likely to receive a rank supplement for having been promoted to lead teacher, methodologist, and in a few cases to advisors; and • the chances of being entrusted with supervising a cabinet (resource center, class room, laboratory, etc.) or heading a secon are higher than for younger teachers. In fact, a fourth phenomenon needs to be menoned in this context. Even though there are far fewer addional hours assigned to teachers than before the 2007 salary reform, the ones that have the best chances of geng assigned addional hours are older or experienced teachers. In the interviews with educaon managers, the managers pointed out two selecon criteria for assigning teachers to addional hours: (a) subject match and (b) teaching experience. In the current salary system in which the nominal value of the base salary and the supplements were substanally raised, there seems to be lile jusficaon for having these kinds of retenon payments, which are more typical of systems that fear losing effecve and experienced teachers to other professions or the private sector. 4.2.2. Deduction of Salary Supplements One of the most intriguing findings of the PETS <strong>Mongolia</strong> Study that we managed to problemaze was the deducon of salary supplements. There used to be a very elaborate, me-consuming and, for teachers, humiliang control apparatus in place to review teachers’ work. The various salary supplements, each one of them only amounng to a small fracon of the total pay, served as an entry point for managers to sancon teachers. The PET study solicited informaon on deducons administered by principals, 1 2 3 4 5 6 TEACHERS IN MONGOLIA: AN EMPIRICAL STUDY ON RECRUITMENT INTO TEACHING, PROFESSIONAL DEVELOPMENT, AND RETENTION OF TEACHERS 65
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MINISTRY OF EDUCATION, AND SCIENCE
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ACKNOWLEDGEMENTS The current trend
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TABLE OF CONTENTS List of Tables an
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TABLES, FIGURES, AND APPENDICES Tab
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EXECUTIVE SUMMARY This study examin
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have a large number of teachers who
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UNICEF Mongolia - Teachers College Columbia University

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