Namibia National Textbook Policy

Textbook Policy March 2008

March 2008

Republic of Namibia

“Building a Learning Nation”

2

Table of Contents

Explanation of terms ......................................................................................................................... 3

The Vision of the Textbook Policy ................................................................................................... 3

Mission of the Textbook Policy ......................................................................................................... 3

Introduction........................................................................................................................................ 4

Background and Context ................................................................................................................................ 4

Textbook provision: the international context ................................................................................................ 4

Providing textbooks to schools ....................................................................................................................... 4

Textbook supply chain: current operational status ......................................................................................... 5

Policy Framework .............................................................................................................................. 5

Policy Goal ..................................................................................................................................................... 5

Guiding Principles .......................................................................................................................................... 5

Policy Objectives ............................................................................................................................................ 5

Priority Policy Strategies ................................................................................................................................ 6

3

Explanation of terms

Some terms used in this draft policy require a brief explanation.

Book provision: denotes the supply of learning support materials, including textbooks, to the education sector.

Learning Support Materials (LSMs): LSMs and textbooks are both used in this policy as terms to describe

learning materials. LSMs is regarded as a more generic term and includes non-print learning materials (e.g.

materials for the study of science and design and technology and computer software such as CD-Roms).

Supply chain: This is an expression for the processes involved in bringing textbooks and other learning support

materials from the hands of the author (or creator) to the end user and for linkages between author and consumers

(in this case learners and teachers).

Textbook: refers specifically to printed curriculum materials in book format.

The Vision of the Textbook Policy

The Textbook Policy aims to pave the way forward for learners in formal education to have equitable access to learning support materials (LSMs) to develop to their full potential in order to make a meaningful contribution to

economic development.

Mission of the Textbook Policy

To plan and implement an integrated, sustainable and coordinated learning support materials (LSMs) supply chain

that will provide the best value, curriculum relevant textbooks and other LSMs in an equitable way to all learners

and teachers. This will have a direct and measurable impact on the quality of learning opportunity for all learners.

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Introduction

The National Textbook Policy was prepared following a review of current textbook and other learning materials

development procedures and practices which included field visits and wide consultation with all stakeholders

including MoE central and regional officials, representatives of commercial publishing and distribution companies,

school personnel and local communities.

Background and Context

Textbook provision: the international context

Textbooks often determine what learners learn and decide what they should be taught. Teachers base their lessons

on and choose lesson content from what textbooks contain. They are frequently the only reading matter students

have access to and examinations are often to a considerable extent based on an ability to reproduce what is to be

found in textbooks.

Without a textbook, many teachers may not be able to teach effectively. In many developing countries, where

teachers might be inadequately trained, the textbook is an indispensable resource. It is often perceived as the sole

authority for what is to be taught, whereas in developed countries where a greater variety of books and reading

materials are available, it may only be a supplement to learning.

Research has shown that textbooks are a cost-effective means of improving educational achievement, especially in

the short to medium term. In countries where reading materials are scarce, they have an important role to play.

Learning can be enhanced even when there is only one mediocre textbook for every 2-3 students. Even when not

mediated by a qualified and experienced teacher, textbooks can have a significant impact on educational

achievement.

The importance of book development as an essential pre-requisite for social and economic development is

neglected nationally.

The development of materials in support of curriculum implementation is a complicated and time consuming

exercise, fraught with difficulties compared with, say, writing and publishing a novel.

An important driver for putting this new policy in place at this time is the planned six-fold increase in government

investment in LSMs over the next five years through Phase 1 of the Education and Training Sector Improvement

Programme (ETSIP). This policy will determine the nature of that essential relationship with publishers which will

be modified to improve the performance of the textbook supply chain so that it performs better, provides better

value for money by reducing unit costs, and will deliver in a cost effective way, relevant learning support materials

on an equitable basis.

Providing textbooks to schools

Textbooks are developed by publishing houses in the private sector, following the curriculum and syllabi developed

by the National Institute for Educational Development (NIED).

The textbooks for teaching in Namibia’s educationally recognized 13 languages of instruction are developed by the

commercial publishers in collaboration with NIED, GTZ (Afrila) and the curriculum unit of the MoE. All textbooks

in education require the evaluation and approval of NIED’s curriculum panels. The approved textbook titles are

listed in the official catalogue which is sent to schools annually from which schools select books to order. Book

capitation allowances are set by the regional education offices (REOs) for the schools in their region, but vary

widely suggesting that REOs use different formula for calculating the per capita book allowance.

Book orders are reviewed by school inspectors at the circuit (district) level, consolidated at the 13 regional

education offices, and sent to the contracted distributors. They raise proforma quotations and return them to REOs

who check them against the school book budget and then submit to the Directorate of General Services of the MoE

for procurement. The textbooks are issued to teachers who use them in the classroom as their principal instructional

tools. At schools where there is adequate supply of textbooks, teachers issue the books to their learners to take

books home for study and homework.

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Textbook supply chain: current operational status

The three key stages in the textbook supply chain are evaluation and selection, procurement and delivery and

payment.

The provision of textbooks is inadequate and seriously constrains the quality of education, especially at schools in

disadvantaged and poor communities, where buying a textbook is not an option as these are not easily available.

English, mathematics and the sciences are identified as critical subjects that affect students’ overall performance.

Policy Framework

Policy Goal

The policy goal is to direct the effective and efficient planning and management of the national selection, provision

and distribution of textbooks and other LSMs so as to achieve the highest standards, best value and equity in the

selection, procurement and delivery of all LSMs to assist and facilitate quality learning across the curriculum for

the benefit of all learners and teachers.

The overall objective of the policy is to ultimately achieve a textbook to learner ratio of 1:1 for core subjects in the

first instance. At primary level this would mean eight textbooks per learner and at secondary level thirteen.

With the introduction of curriculum changes over the past few years and the lack of information on current

textbooks inventories at school level it is difficult to project the investment needed to reach and sustain the ideal

ratios. In future the revision of curricula and textbooks will be aligned.

Guiding Principles

All aspects of LSMs management and the provision of LSMs to schools need to acknowledge the integrity of an

integrated LSMs supply chain cycle. LSMs, their selection, procurement, distribution, use, coordination and

management are central to improving educational standards, equality of access and improving the efficiency of the

system. With the right LSMs, in the right place at the right time, teachers can be expected to provide a holistic

teaching and learning environment which responds to the needs of the curriculum. In the process they will be

providing all learners with the essential foundation literacy and numeracy skills that they need to gain full benefit

from their educational programme and gain the skills to compete effectively in a knowledge-based economy.

All learners, irrespective of any special educational and other needs they may have, should have access to relevant

and appropriate LSMs. The essential LSMs will be specified in the curricula.

Policy Objectives

To promote the cost effective and timely supply of good quality, relevant curriculum materials to all learners

and teachers as a basis for the teaching and learning of skills vital to personal, social and national development

in a knowledge-based economy.

To ensure equal access to quality LSMs for all learners in all schools, in all regions.

To ensure that the textbook supply chain (procurement and distribution) is managed efficiently and

transparently and provides best value for money whilst catalysing the growth of the indigenous publishing

industry so as to contribute to the improvement in the quality of educational opportunities and learning

outcomes.

To improve the efficiency of educational management and administration at every stage of the supply chain

process.

To ensure that the best value and educationally relevant LSMs are made available to all learners.

To broaden access to LSMs and other reading materials to improve the reading culture in schools.

To ensure that those learners with special educational needs are catered for.

To ensure that LSMs are attractive and durable and reflect current, regional and international perspectives and

approaches.

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To increase the annual per-learner allocation for LSMs.

To establish an autonomous and independent National Textbook Board whose members will represent a wide

range of stakeholders

Priority Policy Strategies

The following strategies have been identified to achieve the objectives of the National Textbook Policy:

Establishment of a National Textbook Development Board to provide the authority to govern all aspects of

national textbook development. It could have a similar role to that of the National Examination and Assessment

Board.

Establishment of a supply chain management unit within the Directorate of Programmes and Quality

Assurance to take responsibility for ensuring all operational stages and logistical processes of the textbook

supply chain are working in a synchronised and effective way.

Provision of mother-tongue literacy materials.

Teacher training and support especially for Grades 1–3 in order to improve functional literacy standards and

the utilisation of LSMs.

Reviews by the National Institute for Educational Development of the existing policy on the curriculum

reform cycle and its articulation with the timetable for new textbook development, field testing and

publication.

Review of the policy on evaluation of textbooks by subject committees; and the purpose, design and

functionality of the annual textbook catalogue.

Changed MoE tendering and contracting of textbook distributors including the introduction of a minimum

of three-year tender in recognition of the major investment needed to establish efficient distribution,

administration and logistics that must be amortised over a reasonable period.

Use of the latest Education Management Information System) (EMIS) 15-day school survey enrolment data as

well as the annual census to calculate the textbooks capitation allowance for schools based on an agreed

transparent standardised formula and ring fenced.

Modify collection of data for EMIS to monitor availability, utilisation and distribution of relevant textbooks

annually.

Establishment of performance and service standards with regard to all aspects of order processing and

administration and the introduction of a system to monitor them.

Engagement at regular intervals of a textbook development expert to review and evaluate the effectiveness of

the field testing and use of textbooks provided to schools.

Improvements in teacher:learner textbook ratios so as to achieve a 1:1 ratio for core subjects by 2013-2014.

Standard stock control practices apply to textbooks and LSMs.

The policy will be implemented with assistance from ETSIP for in-country advisory support, on-the-job training,

operational costs and textbook procurement.

Textbook Policy Supporting Documentation

March 2008

Republic of Namibia

“Building a Learning Nation”

ii

Table of Contents Abbreviations and acronyms ........................................................................................................... iii

Policy Strategies ................................................................................................................................. 1

Policy Implementation: institutional framework, coordination and management ..................... 4

Coordination and Management .................................................................................................................. 4

Implementation framework (indicative) .................................................................................................... 4

National Textbook Board .................................................................................................................. 9

Indicative terms of reference ..................................................................................................................... 9

Introduction ............................................................................................................................................... 9

Purpose ...................................................................................................................................................... 9

Funding ...................................................................................................................................................... 9

Indicative structure and functions .............................................................................................................. 9

Establishment of National Textbook Board............................................................................................. 10

Constitution of Board .............................................................................................................................. 10

Term of office of the Board ..................................................................................................................... 10

Vacation of office and filling of casual vacancies ................................................................................... 10

Secretariat to the Board ........................................................................................................................... 11

Committees of Board ............................................................................................................................... 11

Meetings and decisions of Board ............................................................................................................. 11

Payment of allowances to non-staff members ......................................................................................... 12

Functions of Board .................................................................................................................................. 12

Rules by Board ........................................................................................................................................ 12

Textbook Supply Chain ................................................................................................................... 13

Current annual integrated textbook supply chain processes .................................................................... 13

Summary of the findings from the review of the LSMs Supply Chain ................................................... 14

Suggested future supply chain schedule .................................................................................................. 29

Strengthening the Management of the Supply Chain .................................................................. 26

Terms of reference ................................................................................................................................... 26

SCMU: Proposed roles and responsibilities ............................................................................................ 27

SCMU: Organisational Structure ............................................................................................................. 27

Proposed Organisational Structure for the Textbook Supply Chain Management Unit .......................... 28

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Abbreviations and acronyms

CBO Community-based Organisation

ECD Early Childhood Development

EMIS Education Management Information System

ETSIP Education and Training Sector Improvement Programme

EU European Union

GRN Government of the Republic of Namibia

IALS International Adult Literacy Survey

ICT Information Communication Technology

KBE Knowledge-Based Economy

LSM Learning Support Materials

M&E Monitoring and Evaluation

MLA Monitoring Learning Achievement

MoE Ministry of Education

NGO Non-government Organisation

NIED National Institute for Educational Development

NTB National Textbook Board

OVCs Orphans and Vulnerable Children

PQA Programmes and Quality Assurance

SADC Southern African Development Community

SDF School Development Fund

VAT Value Added Tax

VTC Vocational Training Centre

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Policy Strategies

Reform of integrated textbooks and other LSMs supply chain

The management and administration of all parts of the chain need re-designing and new sets of rules put in place

that those responsible will be required to adhere if the performance targets are to be achieved.

The following strategies have been identified to achieve the above policy objectives. Their order of priority will be

determined during the detailed policy implementation planning stage and influenced by human and material

resource constraints. The Ministry of Education sees the provision of LSMs as a continuous process in which

effective management of the whole textbook supply chain cycle is required.

To ensure effective planning and management the following policy strategies will be adopted.

1. Development of a detailed action plan for the planning and implementation of the improved, integrated

textbook supply chain and related policy priorities.

Establishment of a National Textbook Board

2. Establishment of an independent National Textbook Board which, working on an agency basis, would

provide the authority to guide all aspects of national textbook provision.

The Board would support and monitor every stage of the supply chain and performance standards,

coordinate the interests of the various stakeholders, review and formulate strategic policy, ensure that there

is compliance with the agreed articulation between the curriculum renewal cycle and textbook development

by the publishing industry, price regulation, commission research into national textbook development

programmes, broker and facilitate regional initiatives in collaborative textbook co-publishing and joint

curriculum development and alignment programmes (with NIED); and raise public awareness.

It would also work with NIED to set minimum standards for the field testing (by publishers) of curriculum

materials; and regularly review the assessment and evaluation criteria used by subject panels for the

curriculum material (with teacher guides) submitted by publishers and independently monitor these.

Poor numeracy and literacy standards

3. In response to the serious situation regarding functional literacy and numeracy standards, there must be a

focus on the provision of mother-tongue literacy materials and teacher training and support for Grades 1-3

to improve foundation skills, with a pro-poor focus on the six most disadvantaged regions. The strategy

should be to adopt the Upgrading African Languages (Afrila) model successfully developed by the

Ministry (with GTZ). This would be enhanced by classroom libraries/book corners, ‘flooding’ the classes

with mother-tongue (11 to 13) literacy and reading materials; and utilising Grade 12 graduates, working in

their mother tongue, as teaching assistants. Implementation of this strategy would require Ministry and

ETSIP budget re-orientation over the next 3-5 years; and for the Ministry to kick start the local publishing

of vernacular language reading material through publishing subsidies.

4. Work closely with the ICT Policy Steering Committee to ensure that every opportunity is exploited for ICT

in schools to be used to enhance and support the use of LSMs for teaching and learning.

5. The NTB would work closely with the NIED and the four teacher training colleges to ensure that the

teacher education syllabus for the Basic Education Teaching Diploma puts greater emphasis on teaching

and learning foundation literacy and numeracy skills in mother-tongue languages.

6. Recognising that to create effective libraries in all primary schools is a long term target, it is essential to

provide a wide range of reading materials in Grades 1-3 classrooms immediately. To achieve this, book

boxes containing a prescribed collection of reading materials, posters, cards, games, would be provided for

all classrooms.

Review of existing NIED policies

7. NIED, in collaboration with the proposed NTB, will review existing policy on the curriculum reform cycle

and its articulation with the timetable for new LSMs development, field testing and publication. A revised

policy will be formally adopted – after taking into account possible benefits of aligning with SADC

regional curricula – and then will become the key driver for the development and provision of new LSMs

after the redefinition of NIED’s curriculum materials development role.

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8. The policy on the evaluation of LSMs will be submitted to the subject evaluation committees for evaluation

and review. Key issues include limiting numbers of textbooks per subject grade in the annual catalogue,

commissioning textbooks, royalties, prescribed textbooks and their lifespan, charging evaluation fees and

articulation with curriculum reform. The outcome will be a new policy directive determining how this part

of the supply chain would function and NIED’s role therein.

9. The purpose, design, functionality (e.g. every new title has a synopsis), pricing and approval criteria for

inclusion in the annual catalogue will be reviewed. It is a key instrument in determining the relationship

between the Ministry, NIED and the publishers. Publishers must formally sign off on the prices including

VAT of all of their titles in the catalogue. The outcome would be a new protocol governing this

relationship and would be reflected in the contract between the Ministry, the distributors and the

publishers. The review will also look at inclusion in the catalogue – possibly as supplements – of LSMs for

special education, science equipment and materials as well as the option for the Ministry to advance bulk

purchase copies of the textbooks for core subjects so introducing economies of scale and reducing the unit

cost.

Procurement: tendering and contracting for distributors

10. The Ministry tender for the procurement of distributors should be allocated for a minimum of three years

recognising the major investment that is needed to establish efficient distribution, administration and

logistics and that this needs amortising over a reasonable period.

11. A detailed review of the technical specifications, compliance and performance standards of the tender for

distributors to the primary and secondary school levels should be carried out. The aim would be to achieve

a balance of competitiveness and value for money whilst providing commercial opportunities for smaller

indigenous distributors through applying the standard price preference criteria.

12. The transparency of the relationship between bidders that are part of the same commercial group as the

main publishers is subject to careful scrutiny as conflicts of interest could arise. Cash flow constraints will

be a major factor with the increase in volume of LSMs orders and the Ministry needs to put in place

mechanisms for assisting distributors with their cash flow position by part payment of orders when they are

placed as long as a bank guarantee is in place.

Finance and budgeting

13. The LSMs capitation allowance for schools, calculated by REOs from the budget allocated by the Ministry,

should be based on an agreed and transparent standardised formula and ring fenced. It should use the latest

EMIS 15 day school survey enrolment data. The formula will be linked to the per capita funding formula

when introduced, which will also allow for achieving textbook ratio norms within the resource constraints

applicable annually and provide extra provision for disadvantaged regions and targeting early years

mother-tongue literacy activity.

14. The Ministry aims to decentralise the textbook provision. Target textbook student ratios and in turn

accurate budget forecasts against these ratios should be based on a known school LSMs stock position.

15. The Ministry is exploring ways of school-based purchasing methods such as vouchers linked to proven

school-based monitoring and control systems.

Order processing and administration

16. Key to the early delivery of orders is the availability of textbook stock held by the publishers. Further

negotiations with the publishers and distributors regarding this need to be commenced so that an agreement

can be reached where both parties gain by introducing stability which results from the Ministry’s longer

term plans for textbook supply and delivery. The key objectives are to reduce unit costs and decrease

delivery times.

17. Progress with decentralisation of administrative and financial operations to the regional education offices

should be accelerated. This would provide the opportunity to remove at least three time-consuming steps in

the current supply chain paper trail.

Selection and management of LSMs by schools

18. In order to promote the effective use of LSMs it is necessary to educate teachers, learners and the

community and to employ systems of management and control. All schools should receive training in

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managing and caring for LSMs: their storage, use, lifespan extension, stock management system, basic

library management skills and old book stock disposal procedures. Teachers will receive additional training

to assist them with utilisation of textbooks and setting up and managing a book corner/book boxes.

19. Providing additional, targeted learning support to the 20-30% OVCs in classes through possibly utilising

classroom assistants in the form of Grade 12 leavers and collaboration with other ministries and NGOs and

CBOs is essential if these young learners are to achieve functional mother-tongue literacy skills and not

slip behind as they progress through the system.

20. The textbook asset management procedures should be captured in a basic school level LSMs management

manual available to all schools.

21. The teacher education curriculum development at NIED will ensure that the teacher training includes a

module on the selection, use, care and management of LSMs.

Monitoring and evaluation

22. The Ministry could from time to time contract a textbook expert to review and evaluate the effectiveness of

the field testing and use of curriculum materials provided to schools. This will be integrated into the overall

monitoring and evaluation design methodology.

23. The monitoring and evaluation of the supply chain and textbook provision and use will form part of the

overall ETSIP monitoring and evaluation system integrated into EMIS.

Setting targets textbook:learner ratios

24. The overall objective of the policy is to ultimately achieve a textbook:learner ratio of 1:1 for core subjects

in the first instance. At primary level this would mean eight textbooks per student and 13 at secondary

level. With the introduction of curriculum changes over the past few years and the lack of information on

current LSMs inventories at school level it is difficult to project the investment needed to reach and sustain

the ideal ratios.

4

Policy Implementation: institutional framework, coordination and management

Coordination and Management

There are three key players responsible for coordinating and managing the implementation of the policy strategies:

The National Institute for Educational Development — curriculum reform/renewal and synchronising with

publishing of new curriculum materials, evaluating curriculum materials and LSMs catalogue.

The proposed National Textbook Board — an independent body responsible for governance, monitoring

standards, policy review, regional collaboration

The key players at schools, the principals, at Regional Directorates, General Services and Programmes and

Quality Assurance Directorate direct coordination and management of all participants and processes involved

in supply chain operations and logistics; HR planning and development.

Implementation framework (indicative)

Objective By 20?? achieve a textbook : learner ratio of 1:1 for core subjects.

Scope Grades 1–12: primary (8 textbooks/learner), secondary (13 textbooks/learner)

Activity Inputs Outputs Indicators Deadline

1. National

Textbook Policy

formulated and

adopted.

TA in textbook

development.

Policy document

submitted to Permanent

Secretary.

Policy approved and

launched by Minister.

Fourth quarter

2007

2. Introduction of

National Textbook

Policy.

Induction workshops

for stakeholders and

key central, regional

and district personnel in

the MoE including

inspectors and advisory

teachers, commercial

publishing and

distribution companies.

3 days x 13 workshops

1 day x 1 workshop

54 inspectors, 33

resource centre

managers and 108

advisory teachers

trained.

All stakeholders fully

informed about

implementation plan.

54 inspectors, 33

resource centre

managers and 108

advisory teachers

trained to implement

National Textbook

Policy.

All MoE, commercial

and other stakeholders

fully informed about

implementation plan.

First quarter

2008

3. National

Textbook Development

Board established.

Stakeholders nominate

Board representatives.

Expressions of interest

called for position of

Chair.

Secretariat structure

developed.

Secretariat positions

advertised.

Board premises sought.

Representatives

nominated.

Chair appointed.

Secretariat structure

approved.

Secretariat positions

filled.

Board premises

established..

First Board meeting

held.

Secretariat operational.

First quarter

2008

4. Supply Chain

Management Unit

(SCMU) established.

TORs and structure

developed.

SCMU positions

TORs and structure

completed and

submitted for approval.

TORs and structure and

SCMU approved and

becomes operational.

First quarter

2008

5


advertised.

SCMU training needs

analysis.

SCMU training

programme developed.

need to know needs

SCMU positions filled.

SCMU training

programme completed.

SCMU personnel

trained in all aspects of

role

5. Provision of

mother-tongue literacy

materials and support

for Grades 1–3.

6. Existing NIED

policy on curriculum

reform cycle reviewed.

TA to assist NTDB and

NIED review policy on

curriculum reform cycle

and link with timetable

for development and

publication of new

textbooks.

1 x person month.

Revised policy

completed and


Revised policy

approved and adopted.

Curriculum reform

cycle gives publishers

realistic time in which

to develop, field test,

submit for approval and

publish textbooks that

support changes to the

curriculum.

Second quarter

2008

7. Existing NIED

Policy on evaluation of

textbooks by subject

committees reviewed.


NIED review policy on

evaluation of textbooks

by subject committees.

1 x person month.

Revised policy

completed and


Revised policy


New policy directive

introduced determining

how this part of the

supply chain will

function.

Second quarter

2008

8. Purpose, design

and functionality of

textbook catalogue

reviewed.


NIED review purpose,

design and functionality

of annual textbook

catalogue.

TA also to assist with

catalogue designers

training needs analysis

and development of

catalogue designers and

catalogue users training

programmes.

2 x person months.

Revised catalogue

design completed and


Catalogue designers

training programme

completed.

Catalogue users training


Revised design


Catalogue with revised

design published and

distributed.

Schools use revised

catalogue effectively to

select and order

textbooks.

First quarter

2009

9. Changes to

tendering and

contracting of

distributors.

MoF to assist MoE

review technical

specifications,

compliance and

performance standards

of tender for

distributors.

Review completed and

report recommending

changes submitted for

approval.

Recommendations

approved and adopted

including minimum

three-year contracting

of distributors.

Second quarter

2009

10. Textbooks

capitation allowance to

be based on

standardised formula

and ring fenced.

SCMU to prepare

annual textbook

budgets using standard

formula using latest

EMIS 15-day school

Textbook capitation

allowances for schools

based on standardised

formula completed

using latest EMIS 15-

Schools receive

textbook capitation

allowances based on

standardised formula

using latest EMIS 15-

Second quarter

2009

6


survey enrolment data. day school survey data. day school survey data.

11. Improved use,

management and care

of textbooks by schools.

TA to assist MoE with

training needs analysis

and development of

management and care

training programme.

SCMU to ensure

textbook asset

management

procedures available to

all schools and that

NTDB and NIED to

ensure teacher training

syllabus to include

module on the use, care

and management of

textbooks.

Textbook management

and care training


Basic school level

textbooks management

manual completed and

despatched.

Module on use, care

and management of

textbooks developed

and included in teacher

training syllabus.

Teachers trained in the

effective use,

management and care

of textbooks so adding

to the shelf-life of

books.

All trainee teachers

trained in use,

management and care

of textbooks.

Third quarter

2009

12. Performance and

service standards for

order processing

adopted.

TA to assist SCMU

develop textbooks

supply chain operations

manual and training

program.

TA also to assist SCMU

review order processing

capacity and

effectiveness of current

administrative systems.

Operations manual and

training program

completed and


Bottlenecks and

capacity issues

identified and report

completed

recommending

improvements.

Supply chain operations

manual approved and

adopted.

Textbook orders and

payments to suppliers

processed more

efficiently and

effectively.

Third quarter

2009

13. Effectiveness of

field testing and use of

textbooks reviewed and

evaluated.

TA will be engaged at

regular intervals to

review and evaluate the

effectiveness of the

field testing and use of

textbooks by schools.

Regular reports with

recommendations

submitted.

Recommendations

approved and adopted

resulting in increased

effectiveness of field

testing and textbook

use.

2008–???

14. Progressively

improve and ultimately

achieve

textbook:learner ratio of

1:1 for core subjects

15 day EMIS school

survey; improved

literacy/numeracy

standards; improved

efficiency

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Summary of Implementation Schedule

Activity 2007 2008 2009 2010 2011 2012 2013

Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4

1. National Textbook Policy formulated

and adopted.

2. Introduction of National Textbook

Policy

3. Supply Chain Management Unit

established and operational.

Prioritise and schedule activities, job

specs, organise offices and equipment

(with TA support).

3a. Recruit and train unit staff at all

levels ( with ETSIP capacity

building programme)

3b. Prepare unit interim and annual

operational, human resource and

financial plan (with TA support)

3c. Prepare and trial supply chain

operations manual (outsource

using TA)

3d. Prepare supply chain calendar

(with stakeholders)

3e. Work with NIED to review and

redesign catalogue

3f. Coordinate tender process for 3 yr

textbook distribution contracts

3g. Implement comprehensive training

framework/road map for regions,

circuits, schools and other

participants (TA support)

3h. Design and implement service

contract monitoring system.

3i. Evaluate supply chain performance

(KPIs) and logistics efficiency

3j. Quarterly reporting to Textbook

Board.

8

Summary of Implementation Schedule

Activity 2007 2008 2009 2010 2011 2012 2013

Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4

4. National Textbook Development

Board established.

5. Agree strategy for achieving targets for

textbook norms and implement.

Provision of mother-tongue literacy

materials for Grades 1–3 high priority

6. Existing NIED policy on curriculum

reform cycle reviewed.

7. Existing NIED Policy on evaluation of

textbooks by subject committees

reviewed.

8. Purpose, design and functionality of

textbook catalogue reviewed.

9. Changes to tendering and contracting

of distributors adopted.

10. Textbooks capitation allowance to be

based on standardised formula and ring fenced.

11. Improved use, management and care of

textbooks by schools.

12. Performance and service standards for

order processing adopted.

13. Effectiveness of field testing and use

of textbooks reviewed and evaluated.

14. Progressively improve and ultimately

achieve textbook:learner ratio of 1:1 for core subjects

9

National Textbook Board

Indicative terms of reference

Introduction

The National Textbook Board (hereafter referred to as the ‘Board’) is an independent body responsible for

coordinating and managing all aspects of the Textbook Policy. The Board, whose members represent a wide range

of stakeholders, replaces the current Textbook Liaison Committee.

Purpose

The policy goal is to effectively and efficiently plan and manage the national selection, provision and distribution

of textbooks and other Learning Support Materials so as to achieve the highest standards, best value and equity in

the selection, procurement and delivery of all LSMs to assist and facilitate quality learning across the curriculum

for the benefit of all learners and teachers.

The Board will be responsible for monitoring all stages of the textbook and learning support materials (LSMs)

supply chain and performance standards; coordinating the interests of the various stakeholders; reviewing and

formulating strategic policy to ensure realistic scheduling between the curriculum renewal cycle and the

development of new textbooks and LSMs by the commercial publishing industry; and price regulation

The Board will also work with NIED to set minimum standards for the field testing of curriculum materials, and

regularly review and monitor the processes used by subject panels to assess textbooks and other LSMs (including

teacher guides) submitted for evaluation by publishers.

Funding

The Board and Secretariat will be funded by the MoE and private sector stakeholders. This funding will include a

levy, to be suggested by the Board on the basis of a budget prepared by the chairperson, which comprises a

percentage of the annual cost of the textbooks and all other learning support materials.

Fees will be charged for the evaluation of all new materials submitted by publishers for inclusion in the annual

textbook and LSM catalogue. Income from these fees will be used to pay NIED subject panels.

Board members will be paid travel and subsistence allowances, should the need arise. Staff of the Secretariat will

be paid salaries in accordance with government employment regulations.

Indicative structure and functions

National Textbook Board

Ministry of Education

NIED

Supply Chain:

School Principals

Regional Directorate: Inspectors

General Services: Procurement &

Stock Control

PQA Directorate, MoE

MoE representatives

Publishers’ representatives

Distributors’ representatives

Printers’ representative

Teachers’ Union representative

National Library representative

Secretariat

Literacy NGO representative

10

Establishment of National Textbook Board

It is proposed to establish a board to be known as the National Textbook Board.

Constitution of Board

1. The Board will consist of 13 members appointed by the Minister, in line with gender-balanced

representation, as follows:

a) one person selected by the Minister;

b) one person representing the 13 directors of Regional Directorates;

c) the Director of the Directorate: General Services of the Ministry;

d) the Director of the Directorate: National Libraries and Archive Services of the Ministry;

e) the Director of the Directorate: National Institute for Educational Development of the Ministry;

f) the Director of the Directorate: Programmes and Quality Assurance of the Ministry;

g) one person nominated by recognised teachers' union or associations;

h) three persons nominated by the Association of Namibian Publishers;

i) one person nominated by the Book Traders’ Association;

j) one person nominated by the printers’ trade association;

k) one person nominated by the literacy non-governmental organisation.

2. The Minister must, for the purposes of appointment of members of the Board, in writing invite the bodies

referred to in subsection 1(g) to 1(k), inclusive, to nominate persons within a specified period.

3. If a nomination referred to in subsection 2 is not received by the Minister within the period specified in the

invitation, the Minister may appoint such person as the Minister thinks fit.

4. The Minister must appoint one member of the Board who must be a staff member of the Ministry as

chairperson of the Board.

5. The Minister may, for each member of the Board, appoint an alternate member and must, for the purposes of

such appointment for the members' contemplated subsection 1(g) to 1(l), inclusive, in writing invite the

bodies referred to above to nominate persons within a specific time period.

6. If a nomination referred to in subsection 5 is not received by the Minister within the period specified in the

invitation, the Minister may appoint such person as the Minister thinks fit.

Term of office of the Board

A member of the Board will hold office for a term of three years and is eligible for reappointment at the expiration

of that term.

Vacation of office and filling of casual vacancies

1. A member of the Board vacates office, if such member:

a) is convicted of an offence and sentenced to imprisonment without the option of a fine;

b) has been absent for three meetings of the Board in a year, without the permission of the

chairperson of the Board;

c) is withdrawn by the nominating body; or

d) is removed by the Minister under subsection 2.

2. The Minister may remove a member of the Board, if such member:

a) is guilty of misconduct;

b) fails to comply with or contravenes the Education Act 2001; or

c) is by reason of physical or mental illness or for any other reason incapable of acting as a member

of the Board.

3. If a member of the Board dies or vacates office, the vacancy must be filled for the unexpired portion of the

term of office of that member in the manner contemplated in section 2.

11

Secretariat to the Board

The Board will be supported by a full-time Secretariat.

1. There must be a directorate/division/component/unit in the Ministry to act as the Secretariat to the Board,

consisting of:

a) a staff member of the Ministry designated by the Permanent Secretary as the secretary of the

Board; and

b) such other staff members of the Ministry as the Permanent Secretary may designate, one of whom

must be designated as the deputy-secretary of the Board.

2. The functions of the Secretariat will be:

a) to provide the required administrative and clerical assistance to the Board and any committee of

the Board; and

b) to provide all technical support required by the Board and any committee of the Board.

3. The secretariat must attend meetings of the Board but has no right to vote on any matter before the Board.

Committees of Board

1. The Board may establish one of more committees of the Board for the purpose of exercising and performing

any power of function of the Board which the Board may delegate to the committee.

2. A committee established under subsection 1 must consist of such members of the Board, including alternate

members, as the Board may appoint to the committee.

3. The Board may delegate any member of a committee to be the chairperson of that committee.

4. The Board is not divested of any power and function which has been delegated by it to a committee and may

amend or set aside any decision of such a committee.

Meetings and decisions of Board

1. The first meeting of the Board must be held at a place and time as the chairperson of the Board may

determine and, subject to subsection 3, any meeting of the Board thereafter must be held at a place and

time as the Board may determine.

2. If the Board has determined the place and time of a meeting and there cannot for any reason be a meeting

held at that place and time, the secretary of the board must, in consultation with the chairperson of the

Board, determine the place and time of the next meeting of the Board.

3. The chairperson of the Board may at any time convene a special meeting of the Board.

4. The majority of members of the Board forms a quorum for any meeting of the Board.

5. The chairperson of the Board or, in the absence of the chairperson, the vice-chairperson presides at all

meetings of the Board.

6. If both the chairperson and the vice-chairperson of the Board are absent from any meeting, the members

present must elect a member to preside at that meeting and that member may perform all the functions and

exercise all the powers of the chairperson.

7. The decision of the majority of the members present at any meeting of the Board constitutes a decision of the

Board and, in the event of any equality of votes, the member presiding has the casting vote in addition to a

deliberative vote.

8. The Board may, subject to the Education Act 2001, determine rules of the Board governing meetings and

procedures at meetings.

9. The expenses relating to the functions of the board must be defrayed from money appropriated for this

purpose by Parliament.

12

Payment of allowances to non-staff members

Members of the Board who are non-staff members must be paid such allowances, including travel and subsistence

allowances, as the Minister, with concurrence of the Minister of Finance, may determine.

Functions of Board

1. To monitor and evaluate all stages of the textbook and LSMs supply chain including selection, ordering,

pricing, distribution and payment of suppliers.

2. To ensure all textbook and other LSM development processes support the interests of both public and private

sector stakeholders.

3. To review and formulate strategic policy to ensure that there is compliance with the agreed articulation

between the curriculum renewal cycle and textbook development by the private sector publishing industry.

4. To regularly review and monitor the processes used by NIED subject panels to assess textbooks and other

LSMs (including teacher guides) submitted for evaluation by publishers.

5. To work with NIED to set minimum standards for field testing all new curriculum materials.

6. To broker and facilitate, in collaboration with NIED, regional initiatives in collaborative textbook and other

LSM co-publishing and joint curriculum development and alignment programmes; and to encourage the

growth of indigenous educational publishers.

7. To independently monitor school literacy and numeracy standards and, where appropriate, work with

regional and international bodies to establish comparative standards.

8. To commission studies and make recommendations regarding the application of value added tax (VAT) to

educational materials including textbooks and other LSMs.

9. To commission studies and make recommendations regarding and the requirements of current copyright

legislation in relation to the photocopying of textbooks and other print materials by schools.

10. To foster the delegation of authority and responsibility to regional education offices (and, ultimately, to

individual schools) for processing school textbook and other LSM orders, the issuance of purchase orders

and the processing of payments to suppliers.

11. To consult regularly with learners, teachers, school administrators, community members, tertiary

institutions, private sector suppliers and all other stakeholders regarding all aspects of textbook and other

LSM development and distribution to schools.

12. To advise the Minister for Education on all aspects of textbook and other LSM development and

distribution to schools.

Rules by Board

Subject to the Education Act 2001, the Board may, for the purpose of performing the Board’s functions referred to

in section 9, make rules relating to:

1. Ensuring cost effective and timely selection, procurement and delivery of textbooks to all schools.

2. Improving quality of textbooks provided to all schools.

3. Increasing quantities of textbooks in all schools.

4. Ensuring the textbook and other LSM requirements of all learners with special educational needs are catered

for.

5. Ensure that by working with the National Examinations and Assessment Board there is a close articulation

and coordination between the curriculum reform process and cycle and the textbook development cycle.

13

Textbook Supply Chain

Current annual integrated textbook supply chain processes

Curriculum planning and development

NIED

Call for submissions for annual textbook catalogue

NIED

Develop new textbooks and revise existing titles

Publishers

Plan textbook evaluation meetings

NIED

Textbook evaluations completed

NIED subject panels

Submit materials for inclusion in catalogue

Publishers

Finalisation of catalogue

NIED

Prepare inspection copies of new textbooks

Publishers

Catalogue printed and despatched to schools

NIED

Plan regional marketing

Publishers

Regional marketing

Publishers, schools

Schools select materials and place requisitions

sent to regions via circuit office

Proforma invoices requested from distributors

Regional offices

Requisitions sent to MoE

Regional offices

Continue development of approved new textbooks

Publishers

Field testing of approved new textbooks

Publishers, selected schools

Complete development of approved new textbooks

Publishers

Complete printing of all textbooks

Publishers

Proforma invoices sent to regional offices

Distributors

Textbooks ordered

MoE

Textbooks delivered to distributors

Publishers

Textbooks delivered to schools

Distributors

Delivery notes sent to regional offices

Schools

Proforma invoices and delivery notes sent to MoE

Regional offices

Payments made to distributors

MoE

14

Summary of the findings from the review of the LSMs Supply Chain

Supply chain issue Current shortcomings/

constraints/inefficiencies Proposed changes Policy implications/objectives

Global issues

Writing of new textbooks and/or revision of existing titles

Very limited commissioning by

Ministry/NIED.

Publishers develop new titles or revise

existing ones — based on syllabus changes.

Whole supply chain cycle starts too late in the

year as needs bringing forward to ensure

distribution of orders to all schools is

completed before end of school year.

Linked to planned curriculum changes to

reduce number of titles submitted for

evaluation and in turn approved for inclusion

in catalogue.

Also to become mandatory for publishers to

field test LSMs in collaboration with

Ministry/NIED and to submit related teacher

guide for approval with LSMs.

LSMs without teacher guides will not be

approved.

Supply chain must be demand driven.

Ministry is main customer so must take more

control of quality (content and format)

relevance and price through active

implementation of policies.

Use of other media to support learners

No schools broadcasting production unit in

Ministry.

As yet, very limited use of other media except

for Internet and CDs in some schools.

Tech/Na! (ETSIP) will equip and train school

staff in using ICT to support learning.

Currently no distance learning programmes

being used to upgrade teacher skills.

A lot of scope for e-learning/ICT to be used as

teaching resource as the ICT programme is

rolled out into more schools over the next 2

years. However significant numbers of rural

schools do not have electricity.

Integrate growth of school-based ICT capacity

into range of learner support strategies.

Co-publishing/support for publishing industry/regional partnerships

To date, lack of collaboration between

Namibian and other Southern Africa

publishers that might bring about economies

of scale. Prevented by Namibian curricula

which are not well aligned with other

Southern African countries.

Establish capacity (within NIED?) to research

where adaptations of other Southern Africa

textbooks are possible through co-publishing

arrangements to reduce development costs

and introduce economies of scale with

printing. Slow down the pace of curriculum

reform – only essential changes in the next 3-

5 years and then a minimum lead in time of 3

years for the introduction of new curricula.

Restrict the Namibian-isation of the curricula

particular in maths, English and sciences;

align with Southern African nations.

Encourage possible co-publishing agreements

between Namibian and other Southern

African publishers.

Link between supply chain cycle and academic year

Not synchronised with need to have all LSMs

orders delivered before the end of the school

year so that they are ready for use at the

beginning of the following school year.

Curricula changes introduced too quickly

Whole cycle to be brought forward to allow

adequate time so that all school orders are

processed and delivered by November each

year. All publishers with titles in the

catalogue must guarantee maximum delivery

times to distributor (penalty clauses in

Simplify supply chain and remove

bureaucratic bottlenecks. Tighter procedures

to ensure timely completion, approval and

submissions of orders for all schools.

Tighter contractual relationship with

15



leaving much too little time to develop, trial,

print and deliver new revised titles so they are

available in schools when new syllabus is

scheduled to take effect.

agreement between MoE/ National Textbook

Development Board and publishers).

publishers/distributors to ensure LSM orders

are fulfilled within agreed deadlines.

Textbook shortage in classrooms

Budget constraints and high unit prices result

in serious shortage in most schools. Most

serious impact is poor mother-tongue literacy

in Grades 1-3 leading to poor literacy and

numeracy skills from Grade 4 onwards –

major cause of system inefficiency, repetition

and dropouts right up through system

Focus on ‘flooding’ early years with mother-

tongue literacy/reading materials.

Resources used to support continuation of

Ministry’s Afrila programme, book corners in

classroom, family literacy programmes in

most disadvantaged regions.

National Institute for Educational Development (NIED)

Role Perhaps not as proactive in determining range

and quality of LSMs as it could or should be

and not coordinating textbook commissioning

with curriculum reform.

Too many curriculum changes introduced too

quickly (external pressures on NIED)

Accountable to the proposed National

Textbook Development Board (NTDB) for

coordinating curriculum reform with textbook

publishing and procurement cycle.

NIED has a more arms length relationship

with MoE regarding publishing and

procurement of LSMs.

Textbook (manuscript) evaluation procedures/processes and compliance with syllabi

No fees charged so publishers submit many

unsolicited textbook manuscripts and

textbooks.

Panel members (subject specialists)

independence?

Very little field testing.

Synergy with curriculum reform limited. Is

NIED carrying out research on best titles and

value for money?

Should meet more frequently and/or for

longer.

Publishers submitting titles for evaluation

should be charged fees. Income from these

fees should be used to pay panel members.

Options for new core subject textbooks to be

commissioned through open tender. This

would then allow the result to be named as the

prescribed textbook/s for that subject and

some royalties may accrue to the Ministry.

Possibly report to proposed NTDB and NIED

act as ‘contractors’ to carry out evaluations so

protecting them from undue pressure to bring

about rapid curriculum change. Clear policy

on limiting number of titles per subject grade

listed in the catalogue and requirements

regarding compliance with current syllabi.

Copyright (intellectual property issues)

Many schools extensively photocopying

textbooks because of severe shortages of

printed copies so contravening copyright

laws.

More efficient textbook supply chain should

increase the ratio of textbooks per student.

Eradication of the illegal photocopying

practices.

Enforce existing strict legislation about

intellectual property.

Clear policy regarding requirements of

copyright legislation and possible sanctions

for those who not comply.

Curriculum lifespan of textbooks

Recently the rapid curriculum reform process

has resulted in stocks of new, unused

textbooks being held in school book stores as

it is believed that they are no longer useful for

As referred to in other sections, the whole

curriculum reform process needs careful

advance planning and take into account the

affect on the existing textbook stock. It is

Clear policy directive on how curriculum

reform should be planned and managed with

consideration for the introduction of new

LSMs and the use of existing LSM stock.

16



teaching the new syllabus in that subject

grade.

unlikely that existing complete copies of

LSMs are made redundant as a result of the

introduction of new syllabi particularly in

maths, English and sciences.

Introduction of a book stock disposal policy

for any LSMs made entirely redundant by

curriculum changes or worn out books.

Relationship between publishers and Ministry (including NIED)

Communication difficulties

Some suspicion of excessive profit motive by

MoE staff.

Lack of understanding of each others’ roles.

Distributors’ contracts do not ensure

independence from publishers.

Parties would be responsible to new Board

which would monitor/broker relationships and

ensure no conflicts of interest.

Policy would be to establish new, independent

Board providing policy direction. NTDB

would play a pivotal role in coordinating

sector, monitoring effectiveness of supply

chain, monitoring and policy development.

Overall coordinating unit within MoE

No dedicated logistics/coordinating unit

within Ministry with responsibility for

ensuring all stages and processes are working

in synchronised fashion, progress chasing

problems and delays, actively monitoring

service contracts and contractors’

performance targets, REOs, publishers etc.

The massive increase in the provision of

LSMs justifies the creation of a small

dedicated unit of experienced staff.

Policy priority

Annual Textbook Catalogue, Grades 1–12

General functionality Too many titles per subject grade. Layout

sometimes confusing.

Not enough guidance for teachers on new

titles.

Not available to schools early enough in

school year.

No section for special needs education or

science equipment and materials.

Needs cleansing/purging and redesigning.

Order forms need redesigning too.

New layout should include subject coding.

New rules for publishers/suppliers relating to:

submission of new titles and revisions for

inclusion; availability; delivery times.

Book promotion fairs to coincide with

distribution of catalogue and order forms.

Responsibility for final approval with

National Textbook Development Board

(NIED in agency role?).

Catalogue becomes a key instrument to

determine relationship between MoE and

publishers/distributors mediated through new

National Textbook Development Board.

Status/number of titles per subject grade

Catalogue is difficult to use for the teachers.

Too many titles are old and need reviewing

for relevance and suitability for the new

curricula.

Restrict new titles per subject grade to

maximum of 3

or

Competitive tender for publishers to publish

specific new titles for each subject and grade

New policy will prescribe how this stage in

the supply chain will operate.

Publishers with titles in the catalogue will be

required to organise and fund a programme of

book fairs every year throughout the country

17



No guidance for teachers on strengths and

weaknesses of titles.

level (each with a teacher guide), which

become the prescribed textbook/LSM for that

subject/grade.

Look for regional co-publishing

opportunities/adaptation of existing LSMs to

reduce origination costs and, therefore, unit

costs. Catalogue will contain mini reviews of

all new titles prepared by the evaluators or by

the publishers and endorsed by the evaluators

to assist schools with evaluation.

where inspection copies of new titles will be

available to schools through sets for all cluster

centres (160)

Pricing and VAT Prices on the catalogue are sometimes wrong

or not stated. They appear as publisher’s price

and not as actual purchase price (including

discount). Clarity over whether VAT

included.

Stricter controls of the price and to indicate

the actual purchase price (to be exclusive of

distributor’s discount). This will include

publishers being asked to inspect proofs of the

catalogue prior to it being printed, and

‘signing off’ that each of their prices shown is

correct.

Prices to be the same in every region.

Seek change in VAT status of educational

materials so they become VAT exempt.

All educational publishers with titles in

catalogue in Namibia should have in country

representation.

Policy should ensure that rules applicable to

pricing and discounting by publishers and

distributors are transparent.

Apply Florence agreement re no VAT on

educational materials

Needs of special education Not met in current catalogue particularly in

relation to specialised equipment and

computer software applications for different

disabilities.

Separate or supplementary catalogue required. Policy would ensure inclusive approach and

service.

Science equipment/materials

Lack of clarity about REOs budget for

equipment and materials. Some labs not using

science handbook. Procurement needs review.

Introduce capitation allowance for equipment

and materials. Develop a section for the

catalogue with approved suppliers.

Use tendering process to pre-qualify

suppliers.

Section in catalogue specifically for this core

subject area.

Tendering and contracting distributors

Scope of tender Too many contracts (13) leads to many

different book prices and discounts.

Rationalise scope of tendering to achieve

fewer but bigger contracts with geographic

and price/discount equity across ‘super’

Policy should dictate scope of tender

specification/contract balancing

competitiveness, and unit costs whilst

18



Tender/contracts do not specify in sufficient

detail performance standards leading to

excessive delivery visits and delays to order

completion.

Commercial marketing information not made

available to all publishers.

regions (e.g.3-4 regions in each contract area).

Performance criteria need to be clearer so can

be monitored. Commercial relationship

between publishers and distributors must be

explicit and transparent.

providing commercial opportunities for

smaller, indigenous distributors.

Tendering for distribution contracts and specification

Could conclude from the tender evaluation

records that possibly some collusion took

place between bidders before submitting bids

leading to a possible cartel situation which

excluded smaller companies.

Technical specifications of tender need

reviewing along with contract period (e.g.

minimum 3 years) to strike a better balance

between competitiveness and service quality.

Must specify that tenderers must declare any

direct commercial relationship with

publishers.

Policy will determine key parameters of

tenders and objectives of value for money

whilst ensuring that the smaller local

companies are competing on a level playing

field.

New board to have role in monitoring this

contract for services.

Finance and budgeting

Budgets for LSMs Gap between available budget and cost of

textbook target of 1/student/subject (8)

estimated at US$89 (2004 prices).

Specific LSMs expenditure targets needs to be

set (% of recurrent budget) and ring fenced.

Pro-poor focus on improving early years’

literacy standards.

Policy will commit Ministry/GRN to

sustained support to achieve targets. Linked to

proposed per capita funding formula.

Textbook capitation allowances

Wide variations in regional primary and

secondary allowances.

Not always ring-fenced so some ‘drift’ into

stationery budgets.

No pro-poor policy focus in place. To date

mostly focused on ‘textbooks’ not general

reading materials, building up libraries and/or

book corners for early learners etc.

Standardisation of basis for calculating

allowances.

Develop pro-poor formula which focuses on

early years literacy and takes into account

disadvantage (e.g. no. of

OVCs/remoteness/literacy performance).

Policy will determine formula for calculating

Ministry’s LSMs regional recurrent budget

allocation and ETSIP (pro-poor) allocations.

Linked to PCF formula.

ETSIP funding for LSMs Delayed confirmation of annual ETSIP LSMs

budget means ordering will be out of step

with recurrent budget ordering leading to

duplication.

ETSIP (budget support funds) and recurrent

budget funds merged and used as single LSMs

budget line for determining allocation to

regions taking into account ETSIP pro-poor

focus.

Policy objective to rationalise LSMs budget

lines to make them more transparent.

Apply PCF formula when introduced.

Late payment of invoices Late completion of orders means that invoices

are spread across two financial years creating

underspend/overspend.

Order processing capacity at different stages

needs improving through clear deadlines,

adequate and trained human resources.

Policy will determine timetable and

responsibilities for processing orders within

an agreed supply chain timetable.

School development fund contribution to LSMs

Parent payment for lost books – income to

School Development Fund?

Requirement that % of SDF used to purchase

LSMs. Could create sense of value/ownership

Policy could be hard to implement and may

not be acceptable to REOs and schools.

19



leading to improved care of textbooks.

Ordering and delivery

General System is complex and communication

between parties is sometimes poor.

Rationalisation of delivery schedules to

reduce number of school visits (combine with

stationery deliveries -- could cause delays)

and reduce environmental impact and costs.

Curriculum reform not synchronised with rest

of supply chain cycle leading to delays (and

redundant textbooks in the last year).

Will need to bring whole supply chain cycle

forward by at least 3 months to ensure orders

are completed before end of school year.

Listing in catalogue means publishers have to

guarantee maximum delivery times for their

listed titles following receipt of all completed

orders.

Timetable for introduction of curriculum

changes must be synchronised better with

supply chain cycle to ensure that new LSMs

are in catalogue.

Policy will set out requirements for this part

of the supply chain cycle in terms of required

performance standards

Ordering (school level)

Teachers not trained in evaluating new

textbooks against syllabi requirements.

Errors on the orders (titles, prices). Some

delays by REOs in notifying schools of

capitation allowance leading to tight order

deadlines.

Delays in some schools receiving catalogues

and order forms.

Train teachers responsible for ordering (see

sections above on evaluation of new

textbooks).

Provide them with more information on (new)

LSMs (catalogue reviews by NIED and

inspection copies).

In return for reducing number of titles per

subject grade, publishers required to supply

inspection copies of new titles (with syllabus

guide/checklist) through proposed book fairs

in every region. Integrated into contract with

accredited publishers.

Will benefit small, local publishers who are

currently disadvantaged by not being able to

reach all schools with individual visits.

Policy on new administrative processes and

responsibilities for each stage in the supply

chain.

Processing school LSMs orders

Delays with processing orders, requisitions,

raising orders by MoE leading to delays in

completing school orders.

Paper trail is too long.

Government cash flow constraints cause

delays in issuing orders to distributors.

Revise and simplify supply chain cycle where

possible.

Identify where order processing bottlenecks

are and if necessary redesign

administrative/processing systems and build

capacity to implement.

Policy on new administrative process and

responsibilities for each stage in the supply

chain.

20



Questions over whether capacity of existing

system can cope with planned 600% increase

in volume of textbook orders.

Payments to distributors Long delays causing cash flow problems.

Will become a serious problem with planned

increase in volume of orders.

Could exclude smaller companies from

tendering.

Contracts will allow part payment to

distributors in return for bank guarantees and

compliance with agreed delivery deadlines

Policy to streamline and speed up processing

of payments to distributors in return for

improved textbook delivery performance.

Availability of textbooks from publishers

Delays in the availability of the ordered

LSMs. Publishers do not hold stocks of new

textbooks but print on demand resulting in

delays and high unit prices because of

relatively small annual print runs.

Inclusion in the catalogue will be on the basis

that publishers comply with specific supply

conditions relating to orders from distributors.

MoE could ‘guarantee’ print runs of the main

prescribed textbooks so stocks so bringing

down unit prices.

Policy will indicate performance parameters

and possible sanctions in the event of non-

compliance.

At school level

Assessment/evaluation of LSMs by teachers

Very few inspection copies available

Teachers not trained to evaluate and compare

new titles against curriculum; or to use parts

of ‘redundant’ textbooks to enhance the

limited learning resources.

Pre-service and in-service training of teachers

(jointly with NIED and Association of

Namibian Publishers).

Policy objective.

Also all textbooks must be trialled and have

teachers guides

Book fairs and inspection copies

Currently rather hit and miss.

Likelihood that many schools do not see any

inspection copies of new titles.

See above. A programme of book fairs (3-4

per region) organised by ANP to include all

accredited publishers who are represented in

that year’s catalogue.

All non-Namibian publishers must be

represented by local companies.

Formalised arrangement between ANP, new

Board and MoE and should be a contractual

requirement for all publishers.

Availability of LSMs in the classroom

Well-documented shortage, severe in most

schools caused by chronic underfunding;

particularly critical for early vernacular

literacy learners where the acquisition of

foundation mother-tongue literacy skills is

seriously affected.

Evidence that standards of Grades 1-3

Focus on early years vernacular literacy skills

as the key foundation for acquisition of

second language functional literacy and

numeracy skills. Includes supporting school

as agent for developing reading culture in

local community.

Ensure libraries and/or book corners are

Key focus of policy statement will be to target

resources to improving early years

literacy/numeracy standards.

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literacy/numeracy teaching are poor leading to

difficulty in acquiring functional English

literacy at Grade 4.

available in all Grades 1-3 classes. Justified

by reducing repeaters/attrition rates (est. cost

c. N$100-200million p.a.) and improved

second language literacy up through system.

Need to be closely articulated with national

language policy and book policy.

LSM stock management Poor or absence of book stock management

system in most schools visited.

Poor monitoring of the book position at

regional level.

Regional/national audit of LSM stocks not yet

complete.

Implement the standardised procedure for

book stock management under the direct

responsibility of the school. Principals and

make returns to REOs.

Large increase in investment in LSMs

requires improved stock control at all levels.

Important part of the LSMs supply chain and

should be part of the policy.

School libraries/book corners/book boxes

Generally poor provision and access for early

years’ learners. Range of vernacular literature

(primers, storybooks, general interest material

etc) v. limited. School libraries poorly

stocked, often not suitable for early learners

and cannot take home readers etc.

All Grades 1-3 should have as a minimum a

book corner/book box stocked with prescribed

vernacular reading materials, posters, flash

cards, wall charts, games etc.

Schools will be required to use their book

capitation to purchase work books for Grades

1-3 and other vernacular reading material.

The pro-poor policy will focus strategy on this

critical group of early learners and focus

resources in a sustained way.

Monitoring and Evaluation systems will be

needed to establish baseline and monitor

standards on annually.

Storage/disposal of obsolete and redundant books

Some school book stores are clogged up with

old LSMs as no disposal policy in place.

Many examples of new books made

redundant by curriculum changes.

Primary schools do not have adequate storage

facilities.

Disposal policy needed to write off totally

obsolete books.

Directive needed for schools to utilize

newer/new books made partially redundant by

curriculum reform.

Include in policy.

LSM lifespan (physical) The official lifespan of a book is five years -

the period between curriculum reviews.

However this is somewhat arbitrary and

depends on the nature of the LSMs and the

number of users.

MoE should develop specifications for

different LSMs which publishers’ products

have to conform to.

Training in basic book care for schools.

Provision of adequate book storage facilities.

Include in policy

Community literacy (adult literacy/parent engagement and support)

Apart from the few pilot family literacy

programmes, schools have no programme to

engage parents (from surrounding

communities) in assisting learners with

vernacular literacy.

No additional support for 20-30% of learners

To use policy to generate a reading

culture/habit school and community

(parents/guardians) need to engage in early

literacy programme.

Clear policy to enable schools with extra

resources to encourage community

Comprehensive policy focus on an integrated

approach to the school and community as

change agents to improve early vernacular

literacy standards.

22



that are OVCs. participation.

Consider scheme to use Grade 12 graduates as

volunteer teaching assistants

OVCs (impact on literacy levels)

Current literacy teaching practice does not

recognise special literacy learning problems

of the 20-30% OVCs in many schools in

Northern regions.

Most OVCs have reduced support from home

situation so slower to acquire literacy skills.

Possible extension of family literacy

programme with increase in vernacular LSMs

for classroom and home.

Pro-poor policy focus on most disadvantaged

regions and learners to improve literacy skills

through increase in publishing of vernacular

materials.

Training, monitoring and evaluation

LSM management information system

No integrated system in place. Basic LSMs

stock take being carried out to establish a

baseline.

New system should be integrated with overall

ETSIP M&E system.

Essential to assess effectiveness of

investment.

Skills training in textbook use, care and asset management

No formal training programme in place at this

time; not include in the teacher education

curriculum

Component 3 of the Phase I of ETSIP

provides funding for.

29

Suggested future supply chain schedule

26

Strengthening the Management of the Supply Chain

The policy will be implemented with assistance from ETSIP for in-country advisory support, on-the-job training,

operational costs and textbook procurement.

The implementation plan acknowledges the need for increased operational and management devolution of textbook

procurement, the strengthening of textbook evaluation and selection mechanisms and the need for a new method of

calculating textbook capitation allowances. The also recognises that such changes must be made gradually and that

effective monitoring and evaluation of implementation and its impact is critical.

The review of the textbook supply chain highlighted several steps and processes in the chain which are not

functioning well resulting in many inefficiencies in the system including late deliveries of LSMs to schools,

inequities in textbook capitation allowances between regions, high unit costs in some cases, wastage due to poor

articulation between curriculum reform and textbook development, publishing and supply.

The Directorate: Programmes and Quality Assurance recognises that, to implement the textbook policy objectives,

to coordinate and manage a more efficient LSM supply chain delivering best value and to accommodate a 500 to

600% increase in textbook value, it will need a dedicated Supply Chain Management Unit (SCMU).

The Unit will enable the Directorate to take a more strategic approach to the planning, coordination and

management of procuring, distributing and safeguarding LSMs; to have the skilled capacity to operationalise key,

new procedures and logistical processes; and to work closely with the other critical Ministry Directorates and

stakeholders and to ensure that training and support is given BEFORE new or re-organised processes are

introduced. Improving communication channels between all supply chain participants should underpin all activities

and these will provide the prime channel through which policy decisions made by the National Textbook

Development Board are implemented.

The SCMU will allow PQA to focus expertise on supporting and proactively managing the supply chain and

coordinating the Ministry’s administrative and financial processes with the other stakeholders in the chain.

The SCMU should become PQA’s key management function for all matters relating to the efficient functioning of

the LSMs supply chain and the interaction and collaboration with the key stakeholders essential to the successful

implementation of the textbook policy objectives.

Terms of reference

To coordinate and manage all participants and processes involved in textbook supply chain operations and

logistics; and HR planning and development.

To monitor all textbook tendering and procurement activity; budgets and expenditure targets; service contracts,

contractors’ performance targets, liaison with regional education offices and publishers; resolving other

problems and supply chain bottlenecks; and implementing and monitoring stock management systems at all

levels.

To negotiate with all key stakeholders on an annual supply chain schedule/calendar which sets out all dates,

deadlines and key responsibilities for each participant in the supply chain.

To prepare annual LSMs budgets against target budgets for textbook provision, training and stocking libraries

and monitor these expenditure targets.

To explore options for advance bulk purchasing of textbooks for core subjects with a view to reducing unit

costs.

To assess the causes of delays in processing invoices from the distributors for payment and make

recommendations to facilitate payments.

To undertake studies and make recommendations into the viability of introducing a textbook rental scheme for

secondary schools and the place of the school development fund in managing and administering any scheme.

To develop, in partnership with NIED and the commercial publishing sector, a human resource capacity

building programme which will include management and technical training programmes for all MoE staff and

teachers involved with the textbook supply chain.

To facilitate, as part of a planned decentralisation programme, the delegation of authority and responsibility to

regional education offices for processing school textbook and other LSM orders, the issuance of purchase

orders and the processing of payments to suppliers.

To provide the Secretariat support to the proposed National Textbook Selection Board.

27

SCMU: Proposed roles and responsibilities

The Supply Chain Management Unit will:

coordinate and manage all participants and processes involved in textbook supply chain operations and

logistics;

have responsibility for HR planning and development (coordinated with the ETSIP capacity development

programme)

review order processing capacity and the effectiveness of current administrative systems at all levels;

identify bottlenecks and capacity issues;

recommend simplification and improvements with particular reference to the planned large increase in size and

value of orders and

provide the Secretariat support for the proposed National Textbook Development Board.

Management responsibilities will include:

progress chasing;

monitoring tendering and procurement activity;

actively monitor budgets and expenditure targets;

monitor service contracts and contractors’ performance targets (including value for money, quality issues,

processing of orders, delivery deadlines);

liaise with regional education offices and publishers;

resolve other problems and supply chain bottlenecks; and

implementing and monitoring stock management systems at all levels.

The Unit will negotiate, in advance with all key stakeholders, an annual supply chain schedule/calendar for the

following year which sets out all dates, deadlines and key responsibilities for each participant in the supply chain.

The schedule will aim to ensure that all textbooks and other LSMs are in schools before the end of that school year

in readiness for use in the next school year. An important resource will be the comprehensive Supply Chain

Operations Manual which will become a key management and coordination tool available to all stakeholders and

used as a training resource for personnel at all levels.

Unit staff, working with other relevant directorates, will also:

prepare annual LSMs budgets against target (ETSIP) budgets for textbook provision (using agreed norms); and

be responsible for monitoring these expenditure targets;

prepare procurement plans and schedules,

review order and invoice processing procedures;

implement new systems where necessary; and

carry out studies into the viability of introducing a textbook rental scheme for secondary schools and the place

of the school development fund in managing and administering any scheme.

It will also be responsible for the development (in partnership with the publishing sector) of a human resource

capacity building programme which will include management and technical training programmes for all Ministry

staff and teachers involved with the supply chain. These activities will be coordinated with NIED and undertaken in

collaboration with the Association of Namibian Publishers.

This will include training for:

teachers on the effective selection and use of textbooks;

administrators/teachers on the care and maintenance of textbooks and other LSMs; and

school communities on textbook rental schemes and assistance to disadvantaged students.

SCMU: Organisational Structure

The Unit will be linked to one of the existing divisions. It is proposed that Unit Staff will be seconded/assigned

from existing divisions of the Directorate; from other Directorates in the MoE (e.g. NIED); and/or from current

supernumerary staff in the MoE or other ministries. Unit operating costs will be met out of the ETSIP budget for

the first 3 years.

The unit will have close links with NIED, procurement staff in the Directorate: General Services.

28

Establishment of the new SCMU will need to take place as soon as Cabinet approval has been given for the

Textbook policy and agreement reached on staffing establishment and recruitment. A team of approximately five

people will be required: a unit head, two project officers and two administrative support staff.

The diagram below shows how the Unit could be accommodated within the Ministry’s current organisational

structure:

Proposed Organisational Structure for the Textbook Supply Chain Management Unit

NIED

(Directorate)

General Services

and Finance

Directorates

(procurement, etc)

Regional Education Offices

Circuit

Cluster

School

MINISTER

Permanent Secretary

Programmes and Quality Assurance Directorate

Diagnostic, Advisory and Training Services Division

Research & Information Division

Supply Chain Management Unit

Staff: 1 Unit Manager; 1 procurement / publishing officer; 1 logistics officer;

2 admin staff

Secretariat to Textbook Development Board

National Textbook Development Board

Audit Standard & Quality Assurance

Other divisions

Under Secretary Formal Education/

ETSIP Programme Manager

Advisory/Coordination function

_______ Operational function & Reporting

Documents

Namibia National Textbook Policy