The 27th ASEAN COUNCIL OF TEACHERS (ACT) CONVENTION

24th - 28th February 2012 Rizqun Internation Hotel, Gadong, Bandar Seri Begawan BRUNEI DARUSSALAM

COUNTRY REPORT

Cambodian Independent Teachers Association

Challenges & Opportunities: Quality Education in Cambodia

ENHANCING QUALITY EDUCATION TOWARDS THE REALISATION of ASEAN COMMUNITY 2015

Challenges & Opportunities: Quality Education in Cambodia

Introduction The approach to this paper is inspired by the OECD Report How the Worlds Best-performing School Systems Come Out on Top and the work of John Hattie 1 on the impact of teachers on student learning. The OECD report provides an analysis of what the best-performing education systems do to ensure quality teaching and learning. The report came to three conclusions about high performing education systems. These are: They get the right people to become teachers (the quality of the education system cannot exceed the quality of its teachers). They develop these people into effective teaches (the only way to improve outcomes is to improve teachers). They put in place systems and targeted support to ensure that every child is able to benefit from excellent teaching (the only way for the system to reach the highest performance is to raise the standard of every student).

Hatties research highlighted that of all variables that makes a difference to student achievement, the variable with the greatest impact on learning is the teacher. He states that: we need to ensure that this greatest influence (the teacher) is optimised to have powerful and sensationally positive effects on the learner. 2 The research highlights the importance of quality teachers to the development of a quality education system. This paper provides an overview of three key issues: 1. Low teachers salaries and poor terms and conditions 2. Lack of teachers labour rights 3. Lack of teacher participation in education decision making All three issues occur concurrently in Cambodia and are having a significant negative impact on the motivation of teachers and on the quality of teaching and learning, impairing further improvement in the sector and posing a threat to the improvements that have already been achieved.

Hattie, J, Teachers Make a Difference: What is the Research Evidence? Paper presented at the Australian Council for Educational Research Annual Conference 2003= 2 Ibid

The paper is presented in five short sections. The Current State of the Teaching Profession in Cambodia This section provides an overview of the current state of the Cambodian Education system and introduces the three key issues for teachers. Issue 1: Teachers Salaries, Terms and Conditions This section outlines the challenges relating to teachers salaries, terms and conditions, that impact on the quality of education, and provides regional comparisons on education spending. Issue 2: Teachers Labour Rights This section outlines the issues of teachers labour rights and how the failure to recognize these rights negatively impacts the quality of the education system. Issue 3: Teachers Participation in Education Decision Making This section outlines the issues connected to teacher participation in education decision making especially at policy and school level, and how these are impacting on the quality of education. Recommendations This section provides a series of recommendations on each of the three key issues outlined above in order to enhance the quality of the education system.

The State of the Teaching Profession in Cambodia

(nothing is) as important to the school system and its leaders as three guiding principles: (1) the quality of an education system cannot exceed the quality of its teachers, (2) the only way to improve outcomes is to improve instruction and, (3) achieving universally high outcomes is only possible by putting in place mechanisms to ensure that schools deliver high-quality instruction to every child. 3 Reviewing the Education Strategic Plan 2010-2013 4 it is clear that MoEYS is resolved to move the Cambodian education system forward and increase quality at policy level. MoEYS has clearly stated that it holds firmly to the belief that the economic future of Cambodia depends on the quality of education offered to all school-aged children. Despite there being a clear strategic plan currently in place, MoEYS still faces many challenges in meeting the goals of Education For All (EFA). In essence the current failure of MoEYS is not in terms of policy but in consistently implementing and resourcing policies at school, district, and provincial and national level. Many teachers in Cambodia live in poverty and suffer very poor working conditions preventing them from embedding quality education reforms. The current strategies used by MoEYS to develop and implement education policy do not offer sufficient hope that this situation will be resolved. This is compounded by the lack of power held by individual teachers or their representative associations to constructively engage with MoEYS in the reform and implementation of the necessary policies to improve the quality of education. Based on 2010 data 5, there are 81,350 teachers in Cambodia. It is widely recognized that teachers make a significant contribution to social development, yet the working conditions teachers face do not reflect the value of their social and economic contribution. The primary issue is the vastly inadequate basic salary, ranging between $40-$100 per month (depending on the level, education, experience and number of shifts worked). 6 To put this into context, the cost of purchasing the absolute minimum food to meet basic calorie requirements for an individual is $19.80 per month 7. Compounding this problem, there has been double-digit inflation since 2008, and although inflation is expected to return to a trend of 5% in 2011-12, this has caused serious erosion in teachers real incomes. 8 The limited revenue generating capacity of the Royal Government of Cambodia (RGC) and dependency on international aid has placed the Cambodian education sector under considerable fiscal pressure for a number of years. The weak fiscal situation has affected teachers salaries in two ways: teachers salaries are kept low so that employing more teachers does not increase the overall wage bill and little attention is paid to providing an adequate range of administrative and support staff.
3 4

McKinsey & Company, How the Worlds Best-performing School Systems Come Out on Top, OECD 2007 ESP 2006-2010 & ESP 2010-2013 Ministry of Education Youth and Sport. Hereafter ESP 2006 and ESP 2010 5 EMIS 2009-2010, MoEYS 6 VSO 2008 Teaching Matters: A policy report on the Morale of Teachers in Cambodia p23 hereafter VSO Teaching Matters 7 Costs are based on July 2008 prices as indicated in VSO Teaching Matters p24 8 Asian Development Outlook 2009, p. 1,

The combination of low salaries, their late and infrequent payment brings financial accountability at district and provincial level into disrepute, with teachers feeling that there is a lack of respect for their welfare. This also affects their position and status in society as they may be unable to make ends meet without supplementing their income by holding a second job or charging informal fees. Non-salary related issues that prevent teachers from preparing and delivering lessons to the best of their ability; include the quality of initial teacher training, continuing professional developments, class sizes, availability of teaching and learning resources and school buildings. Resolving these issues through appropriate policy implementation would dramatically improve that quality of the education system 9. Successful education reform cannot be achieved without the involvement and consent of teachers, and school communities. Unfortunately, many potentially effective reforms have been undermined by the failure of MoEYS to work jointly with teachers to negotiate and implement reforms. This disengagement between MoeYS and teachers is placed in sharp comparison with virtually all the top performing countries in education, including Finland, Korea, Japan, Singapore, Canada and Australia which are characterised by having strong and engaged teacher unions. The quality of education and strong teacher participation in these countries implies some causation and illustrates that there is no contradiction between having strong engaged teachers unions and high performing education systems. Prof. Nina Bascia, who has studied the relations between teachers unions and governments, makes the following observation: '...teacher unions are nearly the only organisations that have paid substantive attention to the actual conditions of teachers' work....(but)....because they are rarely invited to the table to discuss substantive policy issues with education decision makers, teachers' organisations can only react after the fact to decisions that have already been made. 10 It is in this challenging socio-economic and political context that Cambodian teachers are endeavoring to find a voice so that they can be effective stakeholders in development and implementation of education policies at school and national level. This process can be achieved by teacher unions in their pursuit of a long-term policy agenda which seeks to promote teacher participation in education policies.

Cooper J.M & Alvarado A. Preparation , Recruitment and Retention of Teachers IIEP/UNESCO 2006 here after Cooper & Alvarado, Vaillant D. Education reforms and teachers unions: avenues for action UNESCO 2005 hereafter Vaillant, Vegas, E. (Ed.). Incentives to Improve Teaching: Lessons from Latin America. World Bank 2005 hereafter Vegas, E. 2005 10 Bascia, N. "Pushing on the Paradigm." Handbook of Education Policy Research.. New York: Routledge, 2009.

Issue 1: Teachers Salaries, Terms and Conditions

Teacher salaries should reflect the importance to society of the teaching function and hence the importance of teachers as well as the responsibilities of all kinds that fall upon them 11 The basic terms and conditions for teacher employment in Cambodia are in need of urgent reform. There are three key issues relating to salary that need to be addressed. These are: Inadequate level of basic salary Method of payment Leakage from the payment system (i.e.: various forms of corruption) These issues are major contributors to low levels of teacher motivation which directly undermines a core objective of MoEYSs to create Quality and Efficiency of Education Services 12. The impact of low salaries was also highlighted by the World Bank in a report which stated that: Salary reform has been on top of the Education Strategic Plan 2006-2010 agenda, as well as its several predecessors, and it is considered a critical stumbling block for improving educational quality. 13 MoEYS has made several efforts to reform teachers salaries, the most recent being an increase of 20% of the basic salary in January 2011. There is still continuing discontent caused by inadequate salaries that fail to meet the cost of living and there is consensus among teachers leaders, administrators, Ministers and society in general that further reform will require a major review of teachers salaries 14. In addition to the fundamental problem of low salary, teachers face the following interconnected issues:
Second Jobs: Research has found that 93% of teachers were required to take a second job to

survive. 15 Corruption: There are many instances of money being cut from teachers salaries before they are received and as a result teachers must supplement their income through a system of informal fees. Late Payment of Salary: Late payment of salary makes it difficult for teachers to budget. Research has found that 50% of teachers had not received their salary in a regular and timely manner. 16 Formal Contracts: Teachers terms and conditions are governed by civil service regulations and thus teachers working conditions are not subject to collective bargaining processes or negotiation.

11 12

ILO/UNESCO Recommendation on Status of Teachers (1966) Article X para 115 (a) ESP 2006-2010 13 Benveniste, L. et al Teaching in Cambodia World Bank June 2008 hereafter Benveniste et al 14 Former Secretary for State (Education) Pok Than acknowledged the low level of teachers salaries in Development Weekly in 2006. 15 VSO Teaching Matters p. 25. 16 Ibid.

The Facts & Figures Salary reform has in theory been an area of significant improvement for over a decade, but the fact remains that teachers salaries have declined in real terms. Even after the implementation of a 20% basic salary increase in January 2011, teachers salaries still fall behind the cost of living increases experienced since 2005. The current basic salary rate (as of November 2011), along with the percentage of salary required to cover the minimal calories requirements for one person is outlined below: Teaching Level Primary Lower Secondary Upper Secondary Basic Salary Jan 2011 $55 $80 $100 Basic Food Costs per Person per Month 17 $19.80 $19.80 $19.80 Percentage of Salary Required for Food 39.6% 26.4% 19.8%

In absolute terms a teachers salary would place a small family of four below the poverty line. International comparisons corroborate that primary teacher salaries in Cambodia are at the low end of the spectrum. Cambodian teachers salaries are significantly below the average GDP per capita meaning that in the context of the labour market teacher remuneration is critically low. In terms of regional comparison the basic salary of Cambodian teachers lags far behind that of teachers in neighboring countries (with the exception of Laos) as illustrated in the table below: Primary Teacher Basic Salary & GDP 2010 18 Cambodia Laos Vietnam Thailand Malaysia Indonesia $660 $468- $1,404 $5,820 $7,944 $2,851 $540 $795 $1,177 $1,224 $4,608 $8,373 $2,946

Annual Salary 19 GDP per capita

Philippines $3,696 $2,140

Low salaries bring about wide distortions in the provision of education services. Teachers are forced to undertake double shifts and second jobs or using informal fees to supplement their income. These and other unethical practices irrevocably undermines the principle of education as a human right, poses a threat to the quality of education, and how the Cambodian education system is viewed internationally. Recognised the dire standard of teachers salaries and as part of the Sector Wide Policy Action Matrix of the ESSP 2006-2010 MoEYS as developed a plan to increase teachers salaries against agreed criteria and responsibilities. This promised reform falls short of what is required increase to ensure the reduction of the practices which are negatively impacting the quality of the education system.
17 18

Economic Institute of Cambodia Survey June 2008 and UN World Food Programme basic food requirements World Development Indicator Database, World Bank Accessed on December 21st, 2011. 19 Figures are estimated from limited data available for basic teacher salary for 2010.

There is a clear need for increase in teachers salaries beyond the governments commitment. This increase is at best only an incremental step towards the goal of a basic salary of $250 per month 20. Furthermore, the World Bank recommends a once-off increase in teachers salaries so to recognise the contribution of teachers to society and the economy. across the board increases (to salaries), although necessary at present, need not act as stimulus for improved efficiency and better services provision 21 Future increases in salaries would then be linked to reforms and improvements in education quality. CITAs approach is holistic and committed to reforming the education sector with salaries forming important method among several that will ensure the delivery of the highest quality education. The long term effects of low salaries have contributed to the educational status of the population remaining amongst the lowest in the region. This presents a major obstacle to greater social and economic development. Cambodias education expenditure as a percentage of GDP still lags far behind the average for low-income countries. The proportion of education expenditure on teachers salaries has dropped to unsustainably low levels, highlighting the urgency of salary reform. 22 In 2011 Cambodia spent a lower percentage of its GDP on education than any of its three neighbouring countries and was ranked last among them in key related indicators and statistics. 23 The RGC spent just 2.1% of GDP on education, less than half that of Vietnam and well below the international average. The target salary of $250 by 2015 has been determined by CITA has reflective of the education and training teachers undergo. In terms of human capital teachers have more years of education and are more likely to speak at least one additional language than any other civil servants or workers. Teachers are also more likely to attend continuing education programs. 24 This increase in the base salary is required to reduce soft corruption, promote teaching as a viable career, and increase the caliber of teachers leading to significant improvements in the quality of the education system.

According to the World Bank in 2005, it was estimated that a teacher needs a minimum salary of $150 to support a typical Cambodian family with five members. Linking this with inflation over the past five years we reach a figure of $218.34 and have included addition $31.65 to provide for saving and other costs incurred. 21 Benveniste et al 22 EU Cambodia country paper 23 The United Nations Development Program Human Development Index 24 Benveniste, L. et al p19-20

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Issue 2: Teachers Labour Rights

Working conditions for teachers should be such as will best promote effective learning and enable teachers to concentrate on their professional tasks. 25 Several existing legislative measures relate to the labour rights of teachers. The Cambodian Constitution (1999) acknowledges the right to the freedom of association to all Cambodian citizens in Article 36, Khmer citizens of either sex shall have the right to form and to be member of trade unions., Article 42 of the constitution supports freedom of association stating that Khmer citizens may take part in mass organizations for mutual benefit to protect national achievement and social order. These rights are qualified by Article 36, which requires that regulatory laws on trade unions can be determined by national law. Despite these commitments to the right to freedom of association, teachers are in reality denied both rights under the Common Statute of Civil Servants (1994) which explicitly prevent them from forming trade unions or engaging in collective bargaining agreements. In addition there is no labour law covering the rights of teachers and their exclusion from the current Draft Trade Union Law is a continued impediment to their labour rights. Teachers rights and duties are outlined under Article 37 of the Education Law (2007) that states: The rights of educational personnel are as follows: The right to achieve career value dignity and social high respect The right to develop their careers The right to establish or participate in educational personnel associations or other career associations in accordance with existing law The right to organize public education meetings The right to participate in political affairs in compliance with the existing law The right to actively and fully participate in developing educational standards at local and national levels, directly or through their representatives The right to access other educational services equitably and the others right accordance with existing law. The obligations of the educational personnel are: To respect the professional code of ethics To fulfil other duties that are stipulated in valid law To undertake and develop their work with due high diligence and responsibility Private educational personnel shall have other rights and obligations as stipulated by the existing Labour Law. 26

25 26

ILO/UNESOC Status on Teachers Article III para 8 Education Law 2007 Article 37

The Education Law provides the right to form associations, organize public meetings and participate in developing educational standards in accordance with existing laws. However these aspects of the Education Law have not been given any practical effect and teachers associations have often had their meetings interfered with. Despite legal and policy commitments there are no mechanisms for the participation of teachers in education policy 27 or collective bargaining discussions. This impairs the ability of teachers to engage with MoEYS and contribute to improvements in the quality of education. ILO on Teachers Labour Rights ILO case no. 2222 filed with the ILO Committee on Freedom of Association (ILO CFA) goes to the heart of the issue, specifically the concern that the Common Statute of Civil Servants violates both ILO Conventions 87 and 98 which have been ratified by Cambodia. The ILO-CFA vindicated this concern by calling on the RGC to bring the Statute into compliance with these two ILO conventions. The ILO CFA further requested the Government to: Take measures to ensure that Cambodian police cease actions that interfere in trade union matters and restrict trade union activities; Take actions to ensure that officials of local educational offices and school directors are educated about freedom of association and collective bargaining rights of teachers; Authorize local authorities to negotiate with teachers about how and where trade union meetings will be held and investigate the allegations in an impartial way. Teachers welcome the recommendations of the ILO Committees regarding the amendment of the Common Statute of Civil Servants and other legislation to ensure that their labour rights are given effect in accordance with the ILO conventions. Furthermore, teachers have asserted their willingness to work with the RGC to implement these recommendations but are disappointed to report that there have been no efforts to made to implement the recommendations so far.

In 2011 CITA requested permission to attend the annual Education Congress the primer education planning and policy forum in Cambodia and was refused. At provincial and district level there is little or no consultation with teachers about education policy development.

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Issue 3: Teachers Participation in Education Decisions

Teachers organizations should be recognized as force which can contribute greatly to educational advances and which therefore should be associated with the determination of educational policy 28 To bring about real and sustainable improvements in the quality of education, it is necessary that teachers be officially recognized as key stakeholders at education policy forums. This involvement would have three major benefits: 1. Teachers would be active participants in the development of future education policies. 2. Teachers awareness of new education policies would be increased thus creating increased capacity and ownership of the change. 3. MOEYS, teachers and other stakeholders work together to develop quality education. Under a number of legislative and policy documents MoEYS has stated a commitment to stakeholder participation. The Education Law (2007) Article 29 states: The state shall widely open participation of the relevant stakeholders in the process of development, draft, monitoring and assessing implementation, the review and the amendment of national education policies. Article 37 paragraph 4 states: Educational Personnel have the right to actively and fully participate in developing educational standards at local and national levels, directly or through their representatives. Also in the current MOEYS ESP 2009-2013 section 7.2.2 G states: The overall annual performance of the education sector is reviewed through the annual National Education Congress by the MOEYS, provincial representatives, development partners, NGOs and civil society. MOEYS is clearly aware of international best practice ensuring that teachers contribute to development of education policies. There is however a significant gap between policy and practice. MoEYS has never enacted any of the commitments regarding teacher participation and there is no framework for engagement between teachers and MoEYS in policy development or implementation.

28

ILO/UNESCO Status of Teachers Article III para 9

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In addition to the legislative and policy commitments outlined, the ILO/UNESCO Recommendations on the Status of Teachers (1966) provides an international frame of reference for best practice 29. The Status on Teachers states that: There should be close co-operation between the competent authorities, organizations of teachers parents as well as cultural organizations and institutions of learning and research of the purpose of defining educational policy and its precise objectives. 30 Education Forums Numerous Education Forums such as the Education Sector Working Group (ESWG), the Education Joint Technical Working (EJTW), and the Education Congress. These forums are generally constituted by education consultants, MoEYS officials and donors agencies. As successful improvements in the quality of education require all education stakeholders to be engaged and participate on an equal terms, it is surprising that the participation of teachers has been neglected. The exclusion of teachers from forums where policies are discussed, especially those polices that impact directly on them, causes a sense of disempowerment and disengagement. This impact negatively on teachers motivation and creates a scenario where the teachers views are never captured or considered when creating policy. Education Congress The Education Congress is a prominent education event in Cambodia at which the achievements, challenges and prospects for future developments in education are discussed, key decisions are made and feedback given. Teachers have been consistently excluded from the organization of and participation in the Education Congress, despite the obvious benefits their inclusion would have in terms of their empowerment, their invaluable insights and ensuring their support for the implementation of policies. Education Sector Working Group & Joint Technical Working Group These two groups are important forums for discussions on education policy, funding and projects. The ESWG primarily acts as a coordinating forum for donors while the JTWG provides technical advice on policy development and implementation across the entire sector. Some examples of the policy areas that are discussed by the ESWG and JTWG or their sub-committees include: Policy on Curriculum Development for General Education 2010-2014 Policy on Child Friendly School Policy on Basic Education Draft Teacher Policy Draft Education Management & Teacher Policy

They were designed to serve as a basis for national laws and practices concerning teaching and to influence the development of those laws and practices. 30 ILO/UNESCO Article IV 10 (k)

29

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All of these policies have been drafted without teacher consultation even though they impact directly on the day to day functions of the teacher. Most worryingly are the developments of policies regarding teacher training, education management, terms and conditions and the education curriculum. The failure to ensure teacher participation is the responsibility of both the MoEYS and education donors who have not adhered to the best practice set out in the ILO/UNESCO Status of teacher which states: In order that teachers may discharge their responsibilities, authorities should establish and regularly use recognized means of consultation with teacher organizations on such matters as education policy, school organization and new development in education 31 The inclusion of teachers in the Education Congress, ESWG, JTWG and other forums would send a clear signal to provincial education officials that they should encourage the participation of teachers at a school, district and provincial level. This would ensure more effective implementation of policies leading to an increase the quality of education. Finally, the participation of teachers in education policy would address a major problem highlighted by the CITA National survey 2011 that found over 43% of teachers had no knowledge of the Education Strategic Plan and that 37% felt significantly disengaged from decision making. By developing a framework for dialogue with teachers, these knowledge and implementation gaps would be addressed, and training, and communication programs would build teachers capacity at all levels and see a significant and sustainable improvement in the quality of education.

31

ILO/UNESCO article VIII para 75

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Recommendations
Salary, Terms & Conditions Key Problems Attracting & Retaining Teachers Double Jobbing Key Solutions Increase basic salary to $250 per month by 2015 Provide structured & incentivized career development opportunities Salary increases require teachers to commit to teaching or salary reductions Provide training to school managers to end double jobbing Sliding scale for disciplinary action Establish anti-corruption unit within MoEYS to investigate allegations in a fair and transparent manner CITA to provide anti-corruptions training School budgets to be made public Centralised payment system to implemented Use of the banking system for disbursement of basic salary Double shifting to be phased out No more than two grades should be combined in one class Training and resources must be provided to multi-grade teachers A ratio of 1:40 maximum in line with international standards Education spending to be increased to international standards The amount of the recurrent budget spent on salaries to be raised from 65% to 75% Block grant (PB) spending to be approved by school committees

Corruption informal fees and facilitation fees

Late Payments Double Shifting & Multi-grade Teaching

Spending on Education

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Teachers Labour Rights Key Problems ILO Conventions Teaching Contract Key Solutions Implement all the recommendation of the ILO Committees Teaching contract outlining: contact hours, preparation hours, number of teaching weeks, terms & conditions, entitlements, incentives, training and salary 38 weeks teaching in a year 35hrs/week, 25hrs contact, 10hrs preparation for primary teachers 30hrs/week, 20hrs contact, 10hrs preparation for secondary teachers Include coverage of teachers in the Draft Trade Union Law Ensure greater participation of teachers in the review of teachers salaries, terms and conditions under a national mechanism 32 Ensure that both that national and provincial government authorities do not hinder teachers union/association activities Ensure that cases of discrimination against teachers are investigated Set up participatory processes for review of labour, trade union and association laws at regular intervals Support the technical training needed to develop and use of labour resolution processes

Draft Trade Union Law Collective Bargaining Right to Association Discrimination Legislation Labour Courts and Training Teacher Participation Key Problems Teachers as Key Stakeholders Education Taskforces Continuous Professional Development 33 Curriculum Reform Teaching Council Participation at all Levels Framework for Dialogue
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Key Solutions Recognize teachers as professional stakeholders Teachers involved in policy development and implementation Legalization to allocate seats to teachers on school committees Establish special taskforces with teachers participation to undertake research, policy and implementation on key education issues All teachers to have at least one CPD course per year CPD courses to be incentivised MoEYS ensures the quality of and certify CPD courses Curriculum changes to involve consultation with teachers Resources and training to be in place before changes to curriculum Teachers participation in development of professional standards Ensure integrity and quality of the teaching profession Teachers to be involved in decision making at school, district and provincial level Extend participation in public policy forums to teachers

Both salaries and working condition for teachers should be determined through a process of negotiation between teacher organisation and the employers of teachers ILO/UNESOC Article VIII Para 82-84 33 ILO/UNESCO Status on Teacher Article 6 para 32

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