Educational Policies Syndrome: Teacher Education Programmes and Teacher Recruitment Practices in Pakistan

Abstract

The major objectives of the study were to review the educational policies formulated by different governments with respect to teacher education programmes and teacher recruitment practices in Pakistan after independence during the period from 1947 to 2009. The method of document analysis was applied to conduct this study. The researcher critically reviewed the policies to establish the major trends and measures as well as their impacts on the development and quality of teacher education. The major conclusions are: slogan of merit based appointments was repeated as a point scoring game in the educational polices without any political will to implement it in letter and spirit. Formulation of educational policy remained the top priority of every government in Pakistan and no attention was paid to the continuity and implementation of the policy. It is recommended that the Public Teacher Education Commission may be established to appoint teachers at all levels, and the policy makers are required to attend not only the formulation but also the implementation of the policy. It is also recommended that separate head in budget for teacher education, improving the salary structure, recognizing the work of teachers may be made to attract the bright intellectuals in this profession. The promotion of teachers may be linked with their performance and contribution to the educational field instead of their length of service.

Headnote

Abstract

The major objectives of the study were to review the educational policies formulated by different governments with respect to teacher education programmes and teacher recruitment practices in Pakistan after independence during the period from 1947 to 2009. The method of document analysis was applied to conduct this study. The researcher critically reviewed the policies to establish the major trends and measures as well as their impacts on the development and quality of teacher education. The major conclusions are: slogan of merit based appointments was repeated as a point scoring game in the educational polices without any political will to implement it in letter and spirit. Formulation of educational policy remained the top priority of every government in Pakistan and no attention was paid to the continuity and implementation of the policy. It is recommended that the Public Teacher Education Commission may be established to appoint teachers at all levels, and the policy makers are required to attend not only the formulation but also the implementation of the policy. It is also recommended that separate head in budget for teacher education, improving the salary structure, recognizing the work of teachers may be made to attract the bright intellectuals in this profession. The promotion of teachers may be linked with their performance and contribution to the educational field instead of their length of service.

Keywords: Education Policy, Teacher Education, Teacher Recruitment

Introduction

Teachers are considered the linchpin of education system and play an important role in improving the quality as well as the success of the learning process in the classroom. No system of education could be better than its teachers. They (teachers) may make or mar the personality of a child in the classroom. They are the ladders that remain at their own place but help others to rise higher and higher. The quality and strength of this ladder depends on the quality and level of entry qualification for enrollment, learning process, curriculum, duration of the pre-service teacher training programmes; and recruitment process, retention and in-service training of the working teachers. In Pakistan, almost every political and military led government issued educational document in the form of educational policy to reform education. Teacher education was considered an important area to be addressed in these documents. As a result of these policies, some educational plans and measures were also taken from 1947 to 2009 to provide the educational opportunities to all the citizen of the state and to improve the quality of education. The public opinion by and large about the functioning of our public schools is not favourable. They (people) complain about the falling standard of education, teacher absenteeism, boring learning process in the classroom and so forth (Khalid, 2006). This paper is an attempt to revisit the measures proposed in different policies about teacher education programmes and recruitment practices so as to take a lesson for bringing some concrete changes to improve the quality of teacher education in Pakistan.

Methodology of the Study

The major focus of the study was to revisit the educational policies given by the different governments from 1947 to 2009 in respect to teacher education programmes and recruitment practices in Pakistan with the purpose to learn the lessons for proposing measures for the qualitative improvement in the area of teacher education. The method of document analyses was applied to conduct this study and the following educational policies were reviewed: Pakistan National Educational Conference 1947, Report of the Commission on National Educational 1959, The New Education Policy 1970, The Education Policy 1972-80, National Education Policy and Implementation Programme 1979, National Education Policy 1998-2010 and National Education Policy 2009. The emerging themes gathered through the document analysis were compared and contrasted as far as their applicability in the current situation. On the basis of analyses, the researcher drew the conclusions to propose recommendations for the qualitative improvement in the area of teacher education.

The Document Analyses of the Educational Policies

After the establishment of Pakistan, Quaid-i-Azam was highly concerned about the state of education in the newly emerged country on the map of the world. The first educational conference was organized from November 27 to December 1, 1947 in Karachi. The message of Quaid was: "you know that the importance of education and the right type of education cannot be over emphasized. Real and speedy progress depends on the quality of education that suited to the genius of our people, consonant with our history and culture, and having regards to the modern conditions and the developments in the field of science and technology. We should try to instill into the hearts and minds of people the highest sense of honors, integrity, selfless service, responsibility for sate and humanity". The committee organized for the area of teacher education recommended that a properly trained and reasonably well paid teaching profession was essential to build a great state. It is, therefore suggested that the provinces may take necessary steps to ensure the proper training of teachers and adequate scales of salary. The committee noted that the introduction of free and compulsory education would require an army of teachers and suggested that the provinces may adopt special measures to meet this need. In this connection, they suggested the adoption of short term courses for the training of teachers. The committee also stressed desirability of adding research department in training institutions for the study of special problems relating to teachers (Govt, of Pakistan, 1947). The recommendations would not be implemented without the provision of adequate funding. Education department remained lowest priority in the priority list right through the history of Pakistan. Education sector continued to be allocated funds less than 2 % of the national budget. To implement changes, we need resources and competent education personnel who work for the improvement of the quality of education. There was severe shortage of trained teachers that were filled through the inclusion of untrained teachers. The salary structure of the teachers was not compatible to the other departments. Teaching profession remained the last resort of educated youth throughout the history of Pakistan (Salim, 2008; Khalid, 2006).

The next policy document was issued by the first military Government in August, 1959 with the nomenclature of Report of the Commission on National Education 1959. The Commission put forth the following recommendations pertaining to selection, appointment and promotion of teachers. They recommended revisiting of existing procedure for the recruitment, evaluation and promotion of teachers, and also laid down requisite qualification for the appointment of teachers at different levels. They recommended merit based recruitment of teachers on the basis of teaching ability, knowledge of the subject and a record of constructive and helpful relationship with students. They also proposed probation period that may be enhanced to three years, promotion and increments be granted on the basis of performance rather than seniority and spending time period in the department. A confidential report comprising teaching, administration and students guidance proposed to be prepared. Minimum qualifications for the admission to the training courses for teachers at various stages of education was recommended Secondary School Certificate for teachers of class I-V, Higher Secondary School Examination Certificate for the teachers of class VI-VIII and Bachelor's Degree for the teachers of class IX-X. Duration of teachers training courses was recommended one year for the teachers of classes I to V, two years for the teachers of classes VI to VIII, two years for the teachers of classes IX to X and teachers for class XI-XII master with short courses in teaching methodology. The curriculum of the courses aimed at developing sound grip of subject content, knowledge of child psychology and insight into the growth and behavior of children at various stages of their lives, methodology of teaching and highest sense of professional ethics (Government of Pakistan, 1959).

Teachers Training Colleges (TTCs) were recommended to be established in each wing of the country, and teachers of Training Colleges would be seconded periodically to serve as teachers in schools. A separate post of lecturer in "ethics of the teaching profession" was recommended to be created. It was proposed to assign high priority to the training of the teachers of Science, Practical Arts and Crafts. Refresher Courses for teachers are necessary to update their knowledge and teaching techniques, and they were recommended to be organized in training schools at district and regional level. Administrative staff including Inspectors, Headmasters, and Subject Specialists was proposed to receive training through Education Extension Centers. Opportunities for provision of Post-Graduate Training and research in education at Doctorate and Post Doctorate levels within the country and abroad were also recommended for the educationists. Fundamental academic research in education was proposed to be centered in the TTC and university departments of education. Functional and practical research was proposed to be carried out in the proposed institutions of education in East and West Pakistan, and Council of Educational Research was proposed to be established at the Center to coordinate and stimulate research work on education (Govt, of Pakistan, 1959).

Pay structure of teachers' salary was recommended to be consonant with their responsibility, function and status in national life. They recommended provision of provident fund and retirement benefits. Teachers would also receive special awards of merit from President and Governors on appropriate occasion. The achievements of good teacher were also proposed to be featured in print and electronic media to recognize their performance. They thought that these measures would serve to promote the social recognition of teachers. The report laid emphasis on the placement of men of highest capabilities and structure in the educational institutions to inculcate leadership qualities in the students (Govt, of Pakistan, 1959). It is the most comprehensive document on education in the history of Pakistan and touched in detail all the areas related to the teacher education such as entry qualification for pre-service teacher training programme, duration of teacher training programme, salary structure and curriculum. The implementation aspect of the policy is a grim area in the history of Pakistan. The recommendations were not implemented in letter and spirit because of so many factors such as financial constraints, incompetent educational management, low political priority etc (Bengali, 1999).

The New Educational Policy 1970 also proposed some similar measures in the area of teacher education. They recommended the preparation of 1,28,000 new teachers to overcome the shortage of teaching staff. They also proposed a crash programme of two to six months for the training of teachers. The entry qualification of the teachers remained the same as was recommended in the Report of National Education Commission 1959. They also proposed pedagogy as a subject at intermediate and degree level programmes for meeting the increasing demands of teachers at primary and secondary level in the country. It was also proposed that programme learning approach as teaching method to train the future teachers would be followed. The electronic media: radio and television was also recommended to be used in the training of teachers (The Govt, of Pakistan, 1970).

There are some landmark recommendations proposed in The National Education Policy 1972-80. The policy makers realized the shortage of teachers and calculated the need of 2,35,000 teachers in the next five years. There were 12 Teacher Training Colleges, 55 teacher training institutions with the capacity of producing 104,000 teachers in the next 8 years. They recommended Education as an optional subject at secondary, intermediate and graduation level to qualify as a teacher to teach primary, middle and secondary classes. They also focused to increase the number of women teachers which was then only 30 % as compared to men in primary schools. This percentage was simultaneously far below than other countries such as USSR and USA where it was 71 % and over 75 % respecively. National pay scales were made compatible to other department and it was proposed that all types of discrepancies as far as pay structure of the teachers was concerned would be removed. They also recommended to provide opportunities to teachers to improve their qualification by awarding them sabbatical leave with full pay. They also recommended construction of rent free houses for the teachers to fulfil the long standing demands of the teachers. The recommendations of rent free houses were not implemented due to political turmoil and financial constraints in the country. Separate recruitment committees for the appointment of non-gazetted teachers were proposed replacing the divisional recruitment boards. The nature of teacher job may be given consideration in the process of selection. Two members of education cadres were proposed to be included in the members of Public Education Commission to expedite the process of recruitment of the gazetted teachers, headmasters, principals. It was also proposed to provide opportunities to teachers for administrative, supervisory and advisory jobs (The Govt, of Pakistan, 1972).

The National Education Policy 1979 envisages teacher as the pivot of the entire educational system. Effective teaching demands that besides possessing adequate knowledge of the subject matter and techniques of teaching, our teachers must also exhibit full commitment to the ideology of Pakistan. Candidates admitted to the teachers training institutions were recommended to possess strong commitment to the ideology of Pakistan, and it was proposed to be checked through interview at the time of admission. In order to ensure continuous professional growth, all teachers were recommended to undergo at least one in-service training course during every five years. Under the policy, there was provision for the establishment of Elementary Teachers Training Colleges, launching of pre-service and in-service training programmes from Allama Iqbal Open University (AIOU) and establishment of Academy of Higher Education in the then University Grants Commission (UGC) to impart in-service training to the college and university teachers, and establishment of Academy of Educational Planning & Management (AEPAM) to impart training to Educational Administrators and Planners. They recommended the inclusion of Islamic study as a compulsory subject in the curriculum of TTP for strengthening the ideological perspective of teachers. They also recommended raising the status of Teacher Training Institutions and Normal schools as elementary colleges. All the benefits and privileges granted to lecturers of colleges were also recommended to be granted to the teachers of Elementary Colleges (The Govt, of Pakistan, 1979).

National Education Policy 1992 proposed the appointment of 265000 new Primary school teachers to fulfil the shortage of teaching staff at schools. They recommended the recruitment of female teachers for primary schools, relaxing of upper age limit of primary school teacher, utilization of all types of human resources including retired and un-employed educated persons for teaching at primary level, improving of salary structure and service conditions of primary teachers, linking of primary school teacher salary with his/her qualification, revision in the remuneration of Moallima of Mohalla School and Imam in the mosque School, minimizing the difference in the salary of urban and rural areas' teachers, periodical training for updating knowledge and teaching methods of primary school teachers, encouraging and facilitating Non Governmental Organization (NGO) to set up teacher resource centers for the in-service training of teachers. The recommendations of this policy were not implemented due to certain political instability and the change of the Government (Govt, of Pakistan, 1979).

National Education Policy 1998-2010 envisaged the following important recommendations pertaining to teacher education such as merit based appointment of primary school teachers, transparent management mechanism, revision in attendance and leave regulations, revamping of In-service training of existing teachers, cluster delivery mechanism, mobile teachers training. They also recommended changes in raising the entry qualification for primary teacher certificate from secondary to Higher Secondary School certificate gradually. Simultaneously a new stream of (10+3) Diploma course for elementary education was proposed to be launched. They recommended thorough revisiting in Pre-Service teachers training by revising curricula, revamping textbooks and instructional material. A career structure for teachers at elementary level was proposed to be instituted including promotion possibilities & revising and enforcing the standards of professional behavior. Annual Confidential Report (ACR) was also recommended to be revised to record performance and link it to promotion possibilities. They also proposed relaxation in qualification and age limit for the appointment of female teacher (Govt, of Pakistan, 1998-2010).

They also recommended learner oriented teaching, active learning, critical thinking, interactive learning and creative learning environment in the classroom by improving the pedagogical process. They also proposed to introduce many forms of teaching and learning e.g. peer group discussion, class observation, distance education, self study, on site visits and multi-grade teaching. They recommended the school based training model for the in-service teacher training rather than bringing the teacher to the training site. They proposed to expand partnership between the public and private sector for providing teacher training opportunities. They focused on the assessment of training needs before launching teacher training programme through consultation with teachers and designing the programs according to their priority needs. Code of ethics for teachers would be developed and enforced. Teachers were suggested to act as a role model, failing which they might be held accountable. B.S.Ed. (Bachelor of Science Education) and B.A.Ed. (Bachelor of Arts Education Programs were recommended to be launched throughout the country parallel to B.Ed. Program. The budget book for the financial year 2000 suggested reflecting posts for science and mathematics teachers as per actual need to be identified by an independent survey. Anomalies existing between teachers with Master degrees who are directly recruited by the Public Service commission, and the promotes of the educational institutions, with Bachelor degrees, were also suggested to be resolved by the respective governments. Throughout the history of Pakistan training has been imparted to teachers without any viable policy and planning framework, resulting in imbalance between demand and supply situation. The poor quality of textual material used in teachers training institutions neither relates to real teacher education environment nor inspires and motivates the prospective teachers for further studies. There is no standardized procedure for the appointment of teachers in teachers training institutions. Poor of the poorest is posted in teachers training institutions (Govt, of Pakistan, 19982010). They focused on need based approach for the preparation of teachers and establishment of the National Institute of Teacher Education to design, coordinate and implement teacher training programmes throughout the country. A new stream of Technical Training of Teachers was also proposed to be introduced for B.ED technical teacher training programme.

The current New National Education Policy 2009 recommends Bachelor degree with B.Ed as a minimum requirement for teaching at the elementary level, and a Masters Degree with B.ED/M.ED for the Secondary shall be ensured by 2018. It also recommends to phase out the present lot of P.T.C and C.T. teachers by encouraging them to improve their qualification, and to base fresh induction on the advanced criteria. It, however, suggests exceptions in case of less developed areas where teachers with relevant qualification are not available. Diploma in the subject of Education may be used as an intermediate qualification until B.Ed teachers are available universally. They ( the policy makers) recommended teachers training arrangements, accreditation and certification procedures to be standardized and institutionalized. They dreamt of Teachers Education Curriculum to be adjusted to the needs of the school curriculum and scheme of studies. The curriculum shall include training for student centered teaching, cross-curriculum competencies and an on-site component. A separate cadre of special teachers may be developed and Governments may take steps to ensure that teacher recruitment, professional development, promotions and postings are based on merit. All teachers shall have opportunities for professional development through a programme organized on a three-year cyclic basis. Progress in career shall be linked to such professional development (Govt, of Pakistan, 2009).

In-service teachers training in mathematics shall be provided with due attention to develop conceptual understanding, procedural knowledge, problem solving and practical reasoning skills. In-service teachers training shall be based on use of science kits. Teacher allocation plans, likewise, shall be based on school needs and qualifications of teachers. Over the next two years, Governments shall develop a rationalized and needbased school allocation of teachers, which should be revised and modified annually. Provincial and Area Administrations shall develop effective accountability mechanisms, including EMIS data on teacher deployment to control absenteeism and multiple job holding. Institutionalized and standardized in-service training regime may be established in those provinces where it has not already been done. In service training shall cover a wide range of areas: pedagogy and pedagogical content knowledge, subject content knowledge, testing and assessment practices, multi-grade programmes to cater for emerging needs like training in languages and Information Communication Technology ( ICT). Training needs shall be assessed on the basis of research and training programmes (Govt, of Pakistan, 2009).

Governments may take steps to improve social status and morale of teachers. These includes: up-scaling of teachers salaries as part of establishing a separate teaching cadre and teaching career. Incentives shall be given to teachers in rural or other hard areas, at least to compensate for loss in salary through various allowances given for urban but not for rural postings. The teaching workforce needs to be managed on a truly professional basis, organized as a specialized function. In-service teachers training instituting shall emphasize on developing the capacity of teachers and school managers for school development plans, to overcome low achievement scores. Special short term courses for improvement of language skills for rural area teachers shall be designed. The voice of teachers associations shall be given due consideration in decisions on collective issues affecting teachers. Government should aim at drawing upon resources from the private sector through public private partnership, especially in the areas of teacher education and professional development programmes. International development partner's resources shall be harnessed with in a broad national programme of teachers' improvement for the country as a whole through inter-tier collaboration. Maximum age limit shall be waived off for recruitment of female teachers (Government of Pakistan, 2009).

USAID is working on teacher education to improve the curriculum of teacher education programmes. B.ED 4 years (Hons) programme has been launched to train the teachers to teach in Primary and Middle schools. This program has become more demanding because of the need of great number of teachers at elementary level. It is planned for four years, consisting on 8 semesters having 135 total credit hours. It has 19 credit hours for professional courses, 51 credit hours for foundation courses, 26 credit hours for content courses and 15 credit hours for teaching courses. It is a unique program that offers courses in the form of compulsory, professional, foundation, content and practice area. It will make a shift from the traditional Education curriculum by adopting a strong interrelationship with educational practice, theoretical awareness and policy development within the existing school system. In this way it would develop human resources, carry out schoolbased research and further collaboration through international linkages for innovative programs. It would also lead to a variety of career options.

Conclusions and Recommendation

The education policies formulated by different Governments after the independence proposed landmark steps in the area of teacher education and recruitment of the teachers. They proposed merit based appointment, teacher education cadre, changes in the selection boards to appoint teachers who have aptitude for teaching profession, gradually improving the entry qualification of teachers, providing opportunities to teachers to update their qualification, changes in the curricula to practice learner centered teaching, rent free houses, recognition of the work of the teacher in the society. Inspite of almost a dozen documents and reforms, Pakistan is still at the bottom in the comity of nations as far as quantity and quality of education is concerned. On the basis of analyses of the past efforts, following steps may be proposed to bring changes in the TEP and recruitment procedure in the appointment of teachers. They are:

1. As far as teacher education and recruitment procedure is concerned the Government may not establish its thrust on formulation of the education policy but on its implementation. There must be a political will to take education as a top priority and belief that the solution of the problems in Pakistan likewise in the world lies in education. Political interference in the appointment of teachers may be taken as grim an offence as treason against the state.

2. We cannot improve the quality of education without improving the quality of teacher education. Therefore, the merit based appointment may not be merely political slogan but its implementation in letter and spirit must be ensured. Teacher Public Service Commission may be established which may be headed by the educationists of high caliber, integrity, character to design and implement recruitment process. In this respect, he/she may be granted constitutional protections and authority to do the job like the Chairman of Pakistan Election Commission.

3. No business can be run without any financial support, but only allocation of greater budget cannot solve all the problems without efficient and calculated use of it. The practice of establishing Teacher Training Institutions (TTI) on political consideration may be stopped immediately. TTI may produce quality teachers on demand based approach. A separate financial head for Teacher Education may be established. Current overall education budget may not be less than 4 % of GNP and it may gradually be increased to 7 % in the next seven years.

4. To attract the quality students for the teaching profession, the salary structure must not be less than any other public sector department in Pakistan. Conveyance and housing facilities may be provided to teachers on the basis of performance in teaching and research. The promotion of the teachers on the basis of seniority may be replaced by their promotion on the basis of their performance. The criteria for promotion may be designed by the Teacher Education Commission must be imposed in its truest spirit. There must be tests for all the administrative posts through the Education Service Commission. The administrative, supervisory and advisory posts may be offered to the teachers on the basis of their experience in the relevant field instead of spending number of years in the education department and affiliation to any political party.

5. Words and proposals without follow up actions are useless. In all the educational policies there is frequent rhetoric about the appointment of female teachers in primary schools. The recommendation could not be materialized even up till now when a great number of female trained teachers is available in Pakistan. Therefore, the male teaching staff of primary schools may be replaced by female teachers with immediate effect.

6. It is also concluded that the recruitment and preparation of teachers in Pakistan is not need based. The educational institutions are facing acute shortage of Science, Mathematics and English teachers but there is no updated data available to identify the number of the teachers in these areas. The educational management under the strong thumb of politicians overlooks merit and appoints the Arts subject teachers to fulfil the demands of voters.

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