SABER Teachers Kazakhstan CR Final 2013 - World Bankwbgfiles.worldbank.org/documents/hdn/ed/saber/supporting... · 2015-04-02 · TEACHERS SABER Country Report 2013 Policy Goals Status

THE WORLD BANK

Kazakhstan

TEACHERSSABER Country Report

2013

Policy Goals Status1. Setting Clear Expectations for Teachers

There are clear expectations for what students should learn and what teachers are supposed to do. There are also clear guidelines regarding the proportion of school time dedicated to instructional improvement.

2. Attracting the Best into TeachingEntry requirements and teacher pay may not be appealing for talented candidates, signaling teaching as a low-status profession. Despite substantial increases in teacher pay since 2000, it remains one of the lowest-paid skilled professions in the country.

3. Preparing Teachers with Useful Training and ExperienceCurrent initial teacher education programs may not be best suited to building a strong teaching corps. Teachers-in-training have the opportunity to develop practical teaching skills. There is more than one pathway to becoming a secondary school teacher, which provides opportunities for skilled candidates who may wish to join the profession

4. Matching Teachers’ Skills with Students’ NeedsThere are official systems in place to address teacher shortages in hard-to-staff schools, but no official policies to attract teachers to teach critical-shortage subjects.

5. Leading Teachers with Strong PrincipalsPrincipals are expected to monitor teacher performance and provide support to teachers to improve instructional practice, but their performance is not rewarded. At present, there are no specific training requirements to ensure that principals have the necessary skills to act as either instructional leaders or school administrators.

6. Monitoring Teaching and LearningThere are systems in place to assess student learning in order to inform policy, but the results are not used to inform teaching. Teacher performance is evaluated annually using criteria that assess effective teaching.

7. Supporting Teachers to Improve InstructionThere are multiple opportunities for teacher professional development that are aligned with global best practices

8. Motivating Teachers to PerformThere are mechanisms in place to hold teachers accountable. Career opportunities and salaries are linked to teacher performance but high-performing teachers do not receive monetary bonuses or recognition for their efforts.

KAZAKHSTAN | TEACHER POLICY SABER COUNTRY REPORT |2013

SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2

Table of ContentsOverview of SABER Teachers............................................................................................................................... ................... 3

Kazakhstan’s Teacher Policy System Results .......................................................................................................................... 5

Goal 1: Setting clear expectations for teachers .................................................................................................................. 5

Goal 2: Attracting the best into teaching............................................................................................................................ 6

Goal 3: Preparing teachers with useful training and experience........................................................................................ 8

Goal 4: Matching teachers’ skills with students’ needs...................................................................................................... 9

Goal 5: Leading teachers with strong principals ............................................................................................................... 10

Goal 6: Monitoring teaching and learning ........................................................................................................................ 12

Goal 7: Supporting teachers to improve instruction ........................................................................................................ 13

Goal 8: Motivating teachers to perform ........................................................................................................................... 14

Policy Options ............................................................................................................................... ........................................ 16

Goal 1: Setting clear expectations for teachers ................................................................................................................ 16

Goal 2: Attracting the best into teaching.......................................................................................................................... 16

Goal 3: Preparing teachers with useful training and experience...................................................................................... 16

Goal 4: Matching teachers’ skills with students’ needs.................................................................................................... 16

Goal 5: Leading teachers with strong principals ............................................................................................................... 17

Goal 6: Monitoring teaching and learning ........................................................................................................................ 17

Goal 7: Supporting teachers to improve instruction ........................................................................................................ 17

Goal 8: Motivating teachers to perform ........................................................................................................................... 17

Acronyms ............................................................................................................................... ............................................... 17

Acknowledgements............................................................................................................................... ................................ 18

References ............................................................................................................................... ............................................. 18

Annex 1. SABER Teachers Ratings........................................................................................................................ ................. 22



Overview of SABER Teachers

There is increasing interest across the globe in attracting,retaining, developing, and motivating great teachers.Student achievement has been found to correlate witheconomic and social progress (Hanushek & Woessmann2007, 2009; Pritchett & Viarengo 2009; Campante &Glaeser 2009), and teachers are key: recent studies haveshown that teacher quality is the main school basedpredictor of student achievement and that severalconsecutive years of outstanding teaching can offset thelearning deficits of disadvantaged students (Hanushek &Rivkin 2010; Rivkin, et al. 2005; Nye et al. 2004; Rockoff2004; Park & Hannum 2001; Sanders & Rivers 1996).However, achieving the right teacher policies to ensurethat every classroom has a motivated, supported, andcompetent teacher remains a challenge, becauseevidence on the impacts of many teacher policiesremains insufficient and scattered, the impact of manyreforms depends on specific design features, and teacherpolicies can have very different impacts depending onthe context and other education policies in place.

A new tool, SABER Teachers, aims to help fill this gap bycollecting, analyzing, synthesizing, and disseminatingcomprehensive information on teacher policies inprimary and secondary education systems around theworld. SABER Teachers is a core component of SABER(Systems Approach for Better Education Results), aninitiative launched by the Human Development Networkof the World Bank. SABER collects information aboutdifferent education systems’ policy domains, analyzes itto identify common challenges and promising solutions,and makes it widely available to inform countries’decisions onwhere and how to invest in order to improveeducation quality.

SABER Teachers collects data on 10 core teacher policyareas to offer a comprehensive descriptive overview ofthe teacher policies that are in place in eachparticipating education system (see Box 1). Data arecollected in each participating education system by aspecialized consultant using a questionnaire that ensurescomparability of information across different educationsystems. Data collection focuses on the rules andregulations governing teacher management systems.This information is compiled in a comparative databasewhere interested stakeholders can access detailedinformation organized along relevant categories that

describe how different education systems manage theirteacher force, as well as copies of supporting documents.Data collection and scoring followed the methodologydeveloped for SABER Teachers to maximizecomparability while also ensuring appropriateness forKazakhstan.

The full database is available at the SABER Teacherwebsite.

Box 1. Teacher policy areas for data collection

1. Requirements to enter and remain in teaching

2. Initial teacher education

3. Recruitment and employment

4. Teachers’ workload and autonomy

5. Professional development

6. Compensation (salary and non salary benefits)

7. Retirement rules and benefits

8. Monitoring and evaluation of teacher quality

9. Teacher representation and voice

10. School leadership

To offer informed policy guidance, SABER Teachersanalyzes the information collected to assess the extenttowhich the teacher policies of an education system arealigned with those policies that research evidence todate has shown to have a positive effect on studentachievement. SABER Teachers analyzes the teacherpolicy data collected to assess each education system’sprogress in achieving eight teacher policy goals: 1.Setting clear expectations for teachers; 2. Attracting thebest into teaching; 3. Preparing teachers with usefultraining and experience; 4. Matching teachers’ skills withstudents’ needs; 5. Leading teachers with strongprincipals; 6. Monitoring teaching and learning; 7.Supporting teachers to improve instruction; and 8.Motivating teachers to perform (see Figure 1).



Figure 1: Eight teacher policy goals

The eight teacher policy Goals are functions that allhigh performing education systems fulfill to a certainextent in order to ensure that every classroom has amotivated, supported, and competent teacher. Thesegoals were identified through a review of evidence ofresearch studies on teacher policies, and the analysis ofpolicies of top performing and rapidly improvingeducation systems. Three criteria were used to identifythem: teacher policy goals had to be (i) linked to studentperformance through empirical evidence, (ii) a priorityfor resource allocation, and (iii) actionable, that is,actions governments can take to improve educationpolicy. The eight teacher policy goals exclude otherobjectives that countries might want to pursue toincrease the effectiveness of their teachers, but on whichthere is, to date, insufficient empirical evidence to makespecific policy recommendations.

By classifying countries according to their performanceon each of the eight teacher policy goals, SABERTeachers can help diagnose the key challenges thatcountries face in ensuring they have effective teachers.For each policy goal, the SABER Teachers team identifiedpolicy levers (actions that governments can take to reachthese goals) and indicators (which measure the extent towhich governments are making effective use of thesepolicy levers). Using these policy levers and indicators,SABER Teachers classifies education systems’performance on each of the eight teacher policy goalsusing a four category scale (latent, emerging,established, and advanced), which describes the extentto which a given education system has in place teacher

policies that are known to be related to improvedstudent outcomes. Themain objective of this assessmentis to identify the strengths and weaknesses of theteacher policies of an education system and pinpointpossible areas for improvement. For a more detailedreport on the eight teacher policy goals, policy levers andindicators, as well as the evidence base supporting them,see Vegas et al. (2012). The main focus of SABERTeachers is policy design, rather than policyimplementation. SABER Teachers analyzes the teacherpolicies formally adopted by education systems.However, policies “on the ground”, that is, policies asthey are actually implemented, may differ quitesubstantially from policies as originally designed. In fact,they often do differ due to the political economy of thereform process, lack of capacity of the organizations incharge of implementing them, or the interactionbetween these policies and specific contextual factors.Since SABER Teachers collects limited data on policyimplementation, the assessment of teacher policiespresented in this report needs to be complemented withdetailed information that describes the actualconfiguration of teacher policies on the ground. Thisreport comprises one piece of the Kazakhstan EducationJoint Economic Research Program (JERP). Its objective isto enhance the Government of Kazakhstan’s policy andinstitutional capacity towards evidence based decisionmaking in order to raise the quality of education. Itdescribes Kazakhstan’s performance in each of the eightteacher policy goals, alongside comparative informationfrom education systems that have consistently scoredhigh results in international student achievement testsand have participated in SABER Teachers. Additionaldetailed descriptive information on Kazakhstan’s andother education systems’ teacher policies can be foundon the SABER Teachers website.

Although learning outcomes have improved accordingto the results of the 2012 Programme for InternationalStudent Assessment (PISA), Kazakh students remainbehind the equivalent of 1.5 and 2.5 years of schoolingin math and reading respectively. Given the emergingevidence that several consecutive years of outstandingteaching have been found to offset the learningdeficits of even disadvantaged students, it is critical toexamine Kazakhstan’s mix of policies on teachers.



Kazakhstan’s Teacher Policy SystemResults

Goal 1: Setting clear expectations for teachersAdvancedIndicator Score Justification1. Are thereclearexpectationsfor teachers?

Established There are standards forwhat students must knowand be able to do, and thetasks that teachers areexpected to carry out arestipulated.

2. Is thereusefulguidance onthe use ofteachers’workingtime?

Advanced Teachers’ official tasksinclude tasks related toinstructionalimprovement. Thestatutory definition ofworking time for primaryschool teachers recognizesnon teaching hours, andthe share of working timeallocated to teaching forprimary school teachers isless than 50 percent.

Setting clear expectations for student and teacherperformance is important to guide teachers’ daily workand align necessary resources to make sure that teacherscan constantly improve instructional practice. Inaddition, clear expectations can help ensure there iscoherence among different key aspects of the teachingprofession such as teacher initial education, professionaldevelopment, and teacher appraisal.

SABER Teachers considers two policy levers that schoolsystems can use to reach this goal: (1) clear expectationsfor what students should know and be able to do, andhow teachers can help students reach these goals; (2)useful guidance on how teachers’ can use their time toimprove instruction at the school level.

(1) In Kazakhstan, there are expectations for whatstudents are expected to learn and for what teachersare supposed to do. The Ministry of Education andScience (MoES) is responsible for setting education goalsand controlling the national curriculum. State standardsare set by MoES and approved by GovernmentResolution. There are official education requirements forthe knowledge and skills that students must attain ateach educational level.

The tasks that teachers are expected to carry out areofficially stipulated (Law on Education, Article 51 andModel Professional Qualification Characteristics forTeachers, adopted by Government Resolution). Teachertasks go beyond classroom teaching to include tasksrelated to instructional improvement such as: providingsupport to other teachers, collaborating on the schoolplan, designing the curriculum, and taking part in theinternal evaluation activities of the school.

(2) Guidance on teachers’ use of time could focus moreon ensuring that they are given the time needed toimprove instruction. Teachers’ working time inKazakhstan is officially defined as the overall number ofworking hours (as opposed to merely counting contacttime with students or hours spent at the school). Globalexperience suggests this definition may be conducive tolearning, because it recognizes that teachers normallyneed to devote some time to non teaching tasks, such aslesson planning, analysis of student work, professionaldevelopment, and administrative tasks. However, whilethere are clearly defined teacher tasks in Kazakhstan,there is no clear statement in the law as to whatpercentage of time teachers should allocate to any ofthese tasks.

In contrast, successful education systems such as thoseof Ontario, Finland, Japan, South Korea, and Singaporedevote considerable time at the school level to activitiesthat are related to instructional improvement, such ascollaboration among teachers on the analysis ofinstructional practice as well as mentoring andprofessional development (Darling Hammond &Rothman 2011, Darling Hammond 2010, Levin 2008). Inaddition, when compared with other systems, thesesystems tend to devote a smaller share of teachers’ timeto actual contact time with students and a larger shareof teachers’ time to teacher collaboration, on siteprofessional development, and research on theeffectiveness of various teaching strategies. Japan, forexample, devotes about 40 percent of teachers’ workingtime to these type of activities, while Ontario currentlydevotes 30 percent (Darling Hammond & Rothman2011).



Figure 2. Teachers’ official tasks related to schoolimprovement

Kazakhstan

Japan

Shanghai

Singapore

Mentor peers

Collaborate on school plan

Design the curriculum

Participate in school evaluationSource: SABER Teachers data

Goal 2: Attracting the best into teaching

Emerging

Indicator Score Justification1. Are entryrequirementsset up toattract talentedcandidates?

Emerging Entry requirements forincoming teachers arenot that stringentrelative to many highperforming educationsystems, and there isonly one model of initialteacher education (aconcurrent model).

2. Is teacherpay appealingfor talentedcandidates?

Latent Teacher pay may not beappealing for talentedcandidates, and pay doesnot vary according toperformance.

3. Are workingconditionsappealing fortalentedapplicants?

Established

There are standards, butonly 50 percent to 85percent of schoolscomply with them.Student teacher ratiosare low (less than 30students per class inprimary school and lessthan 20 in secondaryschool).

4. Are thereattractivecareeropportunities?

Advanced Teachers can apply toboth administrative andacademic posts, andpromotion opportunitiesare linked toperformance.

The structure and characteristics of the teaching careercan make it more or less attractive for talentedindividuals to decide to become teachers. Talentedpeople may be more inclined to become teachers if theysee that entry requirements are on par with those ofwell regarded professions, compensation and workingconditions are adequate, and there are attractive careeropportunities for them to develop as professionals.

SABER Teachers considers four policy levers that schoolsystems can use to reach this goal: (1) requirements toenter the teaching profession (2) competitive pay (3)appealing working conditions and (4) attractive careeropportunities.

(1) In Kazakhstan, primary school teachers are requiredto have completed secondary education and to haveearned at least a two year technical vocationaleducation degree. Secondary school teachers musthave completed a minimum of a four year Bachelor’sdegree. In 2012 2013, there were a total of 292,064teachers; of these, 87.9 percent possessed a highereducation degree, 11.3 percent held a vocationaleducation degree and 0.8 percent had only secondaryeducation or incomplete higher education. In practice,due to a shortage of teachers, particularly in rural areas,some primary school teachers have completed onlysecondary education. Primary and secondary educationteachers in Kazakhstan receive their initial teachertraining in courses taken after 11 years of schooling.Formal requirements to become a primary or secondaryschool teacher are below those in top performinginternational education systems. Primary schoolteachers in Kazakhstan need only a technical vocationaleducation degree, while secondary school teachers mustcomplete a four year Bachelor’s degree. Collegegraduates seeking to become secondary school teachersmust show that they have mastered sufficient subjectknowledge as evaluated through exams beforegraduation. Teacher candidates are required to have aminimum amount of practical professional experience(part of their initial teacher training) and complete aformal interview. By contrast, top performing systemsusually require a minimum of a Bachelor’s degree forboth primary and secondary education teachers.Systems such as Singapore and Finland require teachersto have practical professional experience and to pass anassessment conducted by a supervisor based on theirprevious practical professional experience. In many



systems, written exams are also required. In Kazakhstan,written exams are not required to enter the profession,although MOES is taking steps to implement creativeexams for entrants.

In Kazakhstan, there is only one type of pre serviceteacher training available for primary educationteachers. Concurrent programs—programs that teachsubject knowledge and pedagogic skills relativelysimultaneously—are the only pathway for entering theteaching profession. By contrast, at the secondary levelthere are two avenues for entering the teacherprofession: concurrent and alternative programs.

Many top performing systems allow for more than onepathway to enter the teaching profession. Specifically,many programs offer a consecutive model for initialteacher training in addition to the concurrent model.Consecutive programs allow individuals who have aBachelor’s degree in a discipline other than education togain a teaching certificate after some period of study atuniversity. For instance, Ontario, Canada, has aconsecutive program. In Ontario, all teachers must becertified to teach by the Ontario College of Teachers. Inaddition to a Bachelor’s degree in a specialized subject,teachers are required to have at least a one year postsecondary degree in education. The one year programmust dedicate at least 40 percent of the academic yearto teaching methods (defined as how to teach studentsin particular grades and subjects); 20 percent of the yearto education foundations (the history, philosophy andpsychology of education); 20 percent of the year to anyother area of education; and 40 days of practicalprofessional experience in the classroom (OntarioCollege of Teachers, 2013). Such programs may helpattract a larger pool of teaching candidates, becausethere is more than one pathway to enter the teachingprofession.

(2) Teacher pay may not be appealing for talentedcandidates. The minimum starting salary for a teacher is35,747 Tenge (US$1=154 Tenge in December 2013), andthe average salary in the education sector is 68,971Tenge. These salaries are considerably lower than thoseof other skilled professions. By comparison, the averagesalary in the banking sector is 210,000 Tenge (the sectorwith the highest average salary), and in the healthcaresector, the average salary is 81,340 Tenge. In addition,

other sectors have many more options for careeradvancement and salary increases.

In Kazakhstan, teacher salary can vary depending onseniority and other factors such as professionaldevelopment activities. The basic teacher salary (BTS) isdefined by the government and set at 17,697 Tenge. Thesalary is calculated with fixed rates depending on yearsof experience and professional category. Theprofessional category is a grading system with threegrade levels—second category (for starting teachers),first category and highest category. When teachers entera higher professional category, they receive a highersalary. There are specific requirements for teachers tomeet in order to obtain a category. The decision aboutawarding a category is based on three types of criteria.The first criterion is teacher’s education. For instance, abeginning teacher with a Bachelor’s degree with honors,a PhD, or a Master’s degree may automatically bepromoted to a higher category. The second criteria isteacher’s performance, which is assessed using:students’ achievements, Unified National Testing (UNT)results, general academic ratings of students, and thenumber of winners or the number of participants thatteachers send to Students’ Country (or International)Competitions on different subjects. The final criteria is ateacher’s professional achievements (e.g. teacherparticipation in Teachers’ Professional Competitions). Inthe pay scale (Government Resolution # 1400 datedDecember 29, 2007) there are salary indices based onteachers’ category and experience. Salaries can also varybased on teachers’ classroom supervision duties,teaching location, participation in different pilotprojects, and grading responsibilities.

As of 2012, teachers who pass multi level professionaldevelopment courses receive 30 percent, 70 percent and100 percent bonuses to their salaries. There areadditional bonuses available for teaching Russian inKazakh schools, and Kazakh in Russian schools. Also,additional compensation is available to teachers whochoose to teach in schools for pupils with deviantbehavior, and, at the other end of the spectrum, forteaching in schools for talented pupils.

(3) Working conditions may be appealing enough toattract talented individuals to the teaching profession.Working conditions may play an important role in thedecision to become a teacher. Talented candidates who



have opportunities in other professions may bediscouraged from choosing the teaching profession ifworking conditions are poor. In Kazakhstan, there arenational standards for infrastructure, hygiene, andsanitation in schools (Sanitary rules, art. 332; Law oneducation, art. 6.5). As of 2011, 76 percent of schoolscomplied with these national standards (5,591 out of7,384 schools).

Student teacher ratios, which are another indicator ofteacher working conditions, are similar to those in topperforming international education systems. Theprimary school student teacher ratio is 17:1, and thesecondary school ratio is 7:1. It is important to note thatthese figures are national figures, and not necessarilyrepresentative of schools throughout Kazakhstan.

Figure 3. Student teacher ratio, primary school

Source: SABER Teachers data

(4) Opportunities for career advancement may beappealing enough to help attract talented individuals tothe teaching profession. Teachers in most educationsystems are offered opportunities for promotion toprincipal positions at some point in their careers. Inaddition to these “vertical” promotions, most highperforming education systems offer teachers thepossibility of “horizontal” promotions to academicpositions that allow them to grow professionally asteachers and yet remain closely connected toinstruction, instead of moving up to managerial positions(OECD 2012, Darling Hammond 2010). Policies inKazakhstan offer various opportunities for careeradvancement to teachers. Teachers have the option ofapplying to either school administration posts (such asschool principals) or academic leadership positions.Additionally, promotion opportunities in Kazakhstan areofficially linked to teacher performance. Improving

career opportunities in the teaching profession in theseways will help to attract the best candidates.

Goal 3: Preparing teachers with usefultraining and experience

Emerging

Indicator Score Justification1. Are thereminimumstandards forpre serviceteachingeducationprograms?

Emerging The minimum level ofeducation required tobecome a teacher forboth primary andsecondary schoolteachers is at the level ofISCED 5B.

2. To whatextent areteacherentrantsrequired tobe familiarwithclassroompractice?

Established Teachers are required tohave classroomexperience (465 hours forprimary teachers and 900hours for secondaryteachers) in initial teachereducation; there is anoptional mentoringprogram.

Equipping teachers with the skills they need to succeedin the classroom is crucial. Teachers need subject matterand pedagogic knowledge, as well as classroommanagement skills and lots of teaching practice in orderto be successful in the classroom. In addition, effectivepreparation can put all teachers on an equal footing,giving them a common framework to improve theirpractice.

SABER Teachers considers two policy levers that schoolsystems can use to reach this goal: (1) minimumstandards for pre service training programs; (2) requiredclassroom experience for all teachers.

(1) Teacher initial education may not be providingprospective teachers with the knowledge and skillsneeded to be successful in the classroom. Virtually allhigh performing countries require that teachers have aneducational level equivalent to ISCED 5A (a Bachelor’sdegree), and some systems, such as Finland’s, require, inaddition, a research basedmaster’s degree (OECD 2011).As mentioned earlier, primary school teachers inKazakhstan are required only to complete a practically

0 5 10 15 20 25

Kazakhstan

Japan

Shanghai

Singapore

South Korea



oriented two year technical vocational degree course,which means that teacher initial education is equivalentonly to the ISCED 5B level.

(2) Practical classroom experience requirements fornovice teachers could be strengthened. Practicalexperience is an important factor in teaching quality. Themore teachers try out their pedagogical theories,subject matter knowledge, and classroom managementskills, the better prepared they will be for their job. Mosthigh performing systems require teacher entrants tohave a considerable amount of classroom experiencebefore becoming independent teachers, and some ofthese systems provide mentoring and support during thefirst and even second year on the job (Darling Hammond2010, Ingersoll 2007). In Kazakhstan, student teachersfor primary and secondary education positions candevelop classroom experience during their teacher initialeducation program. The classroom experience requiredof teacher trainees during initial education is less than 12months (465 hours for primary teachers and 900 hoursfor secondary teachers), and teachers are not requiredto participate in mentoring programs. During the firstyear, each new teacher is supposed to receive supportfrom a "senior" teacher. However, the new teacher is notobliged to use that support. In high performing systems,programs aimed at facilitating new teachers’ transitioninto teaching for both primary and secondary schoolteachers are usually at least seven months. Theseprograms have the potential to make teachers moreeffective in the classroom and to reduce teacherturnover.

Figure 4. Required classroom experience, primaryschool teachers

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

3 months or less

12 months or less

12 24 months

More than 24 monthsSource: SABER Teachers data

Goal 4: Matching teachers’ skills withstudents’ needs

Established

Indicator Score Justification1. Are thereincentivesfor teachersto work athard to staffschools?

Advanced Teachers are providedmultiple incentives towork at hard to staffschools, and teachingexperience is not the onlyfactor used in decidingtransfer priorities.

2. Are thereincentivesfor teachersto teachcriticalshortagesubjects?

Established There is a policy toaddress critical shortagesubject areas, andteachers are providedincentive opportunities toteach critical shortagesubjects.

Ensuring that teachers work in schools where their skillsare most needed is important for both equity andefficiency. First, it is a way of ensuring that teachers aredistributed as efficiently as possible, making sure thatthere are no shortages of qualified teachers at any givengrade, education level, or subject. Second, it is a meansof ensuring that all students in a school system have anequal opportunity to learn. Without purposefulallocation systems, it is likely that teachers will gravitatetowards schools serving better off students or located inmore desirable areas, deepening inequalities in thesystem.

SABER Teachers considers two policy levers schoolsystems can use to reach this goal: (1) incentives forteachers to work in hard to staff schools and (2)incentives for teachers to teach in critical shortage areas.

(1) There are mechanisms to ensure that there are noteacher shortages in hard to staff schools. Attractingeffective teachers to work in hard to staff schools(schools that are in disadvantaged locations or serveunderprivileged populations) is a challenge for manycountries and often requires a specific set of incentives.In Kazakhstan, there is a policy for teachers to teach inhard to staff schools (Law in Education, art. 53). There isa scholarship program which provides state grants toentrants from rural areas. After graduation, recipients of



the scholarship are required to teach in rural areas for aminimum of three years.

According to the Law on Education, teachers in ruralareas receive a 25 percent bonus to their basic salary.They are also eligible for additional incentives, includingbetter chances of promotion, compensation for utilities,heating, and cattle food by decision of local authorities.All incentives are determined by local authorities andbudget availability.

(2) Kazakhstan has identified critical shortage subjects,but policy does not systematically identify or addresscritical shortage subjects. Some measures have beentaken to account for critical shortage subjects. Forexample, data on personnel demand is collected andaccumulated at MoES at the end of each academic year.In some cases, monetary bonuses may also be availablefor teachers in these subjects; this is determined by localauthorities and paid for out of local budgets.

Figure 5. Incentives for teachers to teach in hard tostaff schools

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

PromotionHigher basic salaryMonetary bonus

Subsidized educationHousing support


Note: Singapore has no specific incentives to attract qualified teachers to hardto staff schools, but it does have a centrally managed teacher deploymentsystem that ensures an equitable and efficient distribution of teachers.

Goal 5: Leading teachers with strongprincipals

Latent

Indicator Score Justification1. Does theeducationsysteminvest indevelopingqualifiedschoolleaders?

Latent There are no specifictraining programs tosupport the developmentof leadership skills, andprincipal performance isnot rewarded.

2. Areprincipalsexpected tosupport andimproveinstructionalpractice?

Established Principals are explicitlyrequired to provideguidance for curriculumand teaching relatedtasks, and they arerequired to evaluateteacher performance.

The quality of school heads is an important predictor ofstudent learning. Capable principals can act asinstructional leaders, providing direction and support tothe improvement of instructional practice at the schoollevel. In addition, capable principals can help attract andretain competent teachers.

SABER Teachers considers two policy levers schoolsystems can use to reach this goal: (1) education system’sinvestment in developing qualified school leaders; (2)decision making authority for school principals tosupport and improve instructional practice.

(1) In Kazakhstan, there are no specific establishedprograms to support the development of principals’leadership skills, but a mentor program is proposed inthe Regulation onMentoring recently drafted byMoES.Research from top performing education systemssuggests principals can develop leadership skills throughsupported work experience or through specific trainingcourses. High performing systems such as those ofFinland, Japan, South Korea, Shanghai, and Singaporerequire the participation of applicants to principalpositions in specific coursework and/or a specializedinternship or mentoring program aimed at developingessential leadership skills (OECD, 2012; DarlingHammond 2010).For instance, the Ontario governmentlaunched the Ontario Leadership Strategy in 2008 to



respond to pressures facing principals in Ontario,Canada. One aspect of this strategy includes increasedmentorship for new principals. Mentors can play animportant role in the Ontario education system sincenearly half of the school principals have five years ofexperience or less (People for Education 2011).

To become a school principal in Kazakhstan, an applicantmust have a teaching certificate and a minimum of fiveyears teaching experience and three years administrativeexperience. There are currently no specific trainingmechanisms, such as specific coursework orparticipation in a mentoring or internship program, toensure that applicants to principal positions develop thenecessary skills to act as instructional leaders.

Legislation states that MoES is to assess principalperformance every year, but no official criteria forevaluating principals’ performance exist, and principals’compensation is not linked to performance. In practice,evaluation is done by assessing students’ achievements,average rates on UNT results, annual reports onteachers’ professional development, and the number ofstudents in the principal’s school who win Olympiadcompetitions.

(2) Principals in Kazakhstan are explicitly expected tomonitor teacher performance and to provide supportand guidance to teachers for the improvement ofinstructional practice. Once education systems gettalented candidates to become principals, they need tostructure their time to focus on improving instruction(OECD 2012, Barber &Mourshed 2007). High performingeducation systems such as those of Finland, Ontario, andSingapore think of their principals as instructionalleaders. Principals are expected to be knowledgeable inteaching and curriculum matters, as well as to provideguidance and support to teachers. They evaluateteachers, provide feedback, assess the school’s needs forprofessional development, and direct instructionalresources where they are most needed (DarlingHammond & Rothman 2011).

In Kazakhstan, principals are expected to hire and dismissteachers, assess teachers’ performance, evaluate theoverall school’s performance, manage the schoolbudget, represent the school, respond to subnationaland local authorities, and maintain student discipline.Many of the tasks that are expected from principals in

Kazakhstan are aligned with instructional leadershiptasks that research suggests are associated with highstudent performance, although their administrative loadmay be especially burdensome and may detract fromtheir ability to manage teachers effectively.

Figure 6. Mechanisms to support the development ofprincipals’ leadership skills

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

Courses or other trainingrequirementsMentoring or internshipprogram




Goal 6: Monitoring teaching and learning

Established

Indicator Score Justification1. Are theresystems inplace to assessstudentlearning inorder toinformteaching andpolicy?

Emerging Teachers are not trainedto assess studentachievement. There arelarge national exams usedto assess student learning,but these exams are notused to inform the qualityof teaching or lessonplans.

2. Are theresystems inplace tomonitorteacherperformance?

Emerging Teachers are required toparticipate in both internaland external evaluations.Local authorities monitorteacher performance, butit is not possible to trackteachers over time.

3. Are theremultiplemechanismsto evaluateteacherperformance?

Advanced Classroom observationsare part of the teacherassessment system. Bothprincipal and colleaguesparticipate in teacherassessments, and a varietyof criteria are used toevaluate teacherperformance.

Assessing how well teachers are teaching and whetherstudents are learning or not is essential to devisestrategies for improving teaching and learning. First,identifying low performing teachers and students iscritical for education systems to be able to providestruggling classroomswith adequate support to improve.Second, teacher and student evaluation also helpsidentify good practices which can be shared across thesystem to improve school performance.

SABER Teachers considers three policy levers schoolsystems can use to reach this goal: (1) availability of dataon student achievement in order to inform teaching andpolicy (2) adequate systems to monitor teacherperformance (3) multiple mechanisms to evaluateteacher performance.

(1) In Kazakhstan, there are systems in place to assessstudent learning in order to inform teaching and policy,but data collected from national exams are not used to

inform teaching. All high performing education systemsensure that there is enough student data to informteaching and policy, but they do so in very different ways.Regardless of themechanism they decide to follow, highperforming systems ensure that threemain functions arefulfilled: (1) there is a system to collect relevant andcomplete data on student achievement regularly (2)there is a mechanism for public authorities to haveaccess to these data so that they can use it to informpolicy and (3) there is a mechanism to feed these dataand relevant analyses back to the school level, so thatteachers can use it to inform the improvement ofinstructional practice.

In Kazakhstan, there are obligatory national studentexaminations administered to students of 11th grade inorder to assess a certain volume of knowledge at thesecondary education level. As of now, the UNT is the onlytool of external assessment for the overall republic andensures comparability of results achieved by each schoolin time dynamics. The results are used to revealsystematic gaps in teaching school subjects.

Student learning is monitored through regularstandardized national assessments. Assessemnts includeend of year subject specific tests (known as interimassessments) and and final examinations for generalrequirements after the 9th and 11th grades). The NationalTesting Center under MoES administers an ExternalAssessment of Student Achievement, but thisassessment only covers a sample of 9th grade studentswith the purpose of monitoring and informing potentialstudents and parents on the state of the quality ofeducation in every school. Results of these examinationsare somewhat limited and, at present, not used to informteachers of their performance.

(2) There are systems in place—both internal andexternal evaluations—tomonitor teacher performance.In Kazakhstan, a formal internal assessment is conductedonce a year. In practice, the process of internalassessment is highly subjective and based on the schoolauthority's judgment, supported by the observations ofcolleagues, parents, and, occasionally, students. Theexternal evaluation system is used to assess teachers’compliance with qualification requirements and toupgrade teachers’ qualification category, which alsoresults in an increase in their salary. Kazakhstan hasattestation procedures that are obligatory for every



teacher every five years. Attestation is an officialprocedure to determine whether a teacher’s skills matchqualification requirements.

(3) According to policy, the criteria used to evaluateteacher performance focus heavily on criteria thatresearch has found to influence student achievement.Research suggests that no single method of evaluatingteacher performance is fail safe. Most high performingsystems conduct teacher evaluations using a multiplicityof mechanisms of data collection and varied criteria forassessment.

In Kazakhstan, the criteria taken into account during thisteacher appraisal include teachers’ knowledge of subjectmatter, teaching methods, student assessmentmethods, and students’ academic achievement (Figure7). If evaluations are carried out in a systematic andobjective manner, such criteria could provide a balancedapproach for evaluating teacher performance.

Figure 7. Criteria to evaluate teacher performance

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

Subject matter knowledge

Teaching methods

Student assessment methods

Students’ academic achievement


Goal 7: Supporting teachers to improveinstruction

Established

Indicator Score Justification1. Are thereopportunitiesfor professionaldevelopment?

Advanced Teachers are required toparticipate inprofessionaldevelopment, andprofessionaldevelopment activitiesare provided free ofcharge to teachers.

2. Is teacherprofessionaldevelopmentcollaborativeand focused oninstructionalimprovement?

Established Professionaldevelopment includesactivities that maypromote best practicesharing.

3. Is teacherprofessionaldevelopmentassigned basedon perceivedneeds?

Latent If teachers obtain anunsatisfactory result inan evaluation, they arenot assigned to asupervisor, or to specificprofessionaldevelopment activities.

Support systems are necessary to help improveinstruction at the school level. In order to constantlyimprove instructional practice, teachers and schoolsneed to be able to analyze specific challenges that theyface in classroom teaching, have access to informationon best practices to address these challenges, andreceive specific external support tailored to their needs.

SABER Teachers considers three policy levers schoolsystems can use to reach this goal: (1) availability ofopportunities for teacher professional development (2)teacher professional development activities that arecollaborative and focused on instructional improvement(3) making sure teacher professional development isassigned based on perceived needs.

(1) Teachers are required to participate in teacherprofessional development. In Kazakhstan, participatingin professional development is required both to stay inthe profession and to be eligible for promotion. Teachershave to pass professional development requirements



every five years. Professional development throughmulti level programs at the National Skills UpgradingCenter, Orleu, has been required since 2011. Teachersare required to have participated in a number ofprofessional development seminars or workshopsaccording to their rank (Law on Education 51,Professional Qualification Requirement). Outside ofrequired professional development courses, it is up toindividual teachers to choose the type of qualificationand kinds of development courses in which they want toparticipate. Required professional developmentactivities are financed by MoES, and principals areresponsible for administering these activities to teachersin their schools. Teachers typically do not fundprofessional development, due to their low wages.

(2) Teacher professional development includesactivities that have been found by research to beassociated with instructional improvement. Researchsuggests that effective teacher professionaldevelopment is collaborative and provides opportunitiesfor the in school analysis of instructional practice, asopposed to being limited to one time workshops orconferences. As mentioned earlier, high performingeducation systems such as those of Japan and Ontariodevote as much as 30 per cent of school time toprofessional development and instructionalimprovement activities. Such activities includeobservation visits to other schools, participation inteacher or school networks, and opportunities to engagein research, mentoring, or coaching. Most of theseopportunities exist in Kazakhstan (Figure 8).

(3) Some teacher professional development activitiesare formally assigned based on perceived needs. Ifteachers obtain an unsatisfactory performanceevaluation, they may be advised, though not required, toattend some professional development activity.Assigning professional development to teachers whenthey score low on performance evaluations is one way ofpotentially improving instructional practice. Teacherprofessional development can be targeted to meet theneeds of specific teachers.

Figure 8.Types of professional development

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

Observation visits

Teacher networks

School networks

Research

Mentoring/coachingSource: SABER Teachers data

Goal 8: Motivating teachers to perform

Emerging

Indicator Score Justification1. Are careeropportunitieslinked toperformance?

Latent Promotion opportunitiesare linked to high teacherperformance. There is amandatory probationperiod, but open endedappointments are notgranted based on teacherperformance.

2. Are theremechanismsto holdteachersaccountable?

Advanced Teacher performanceevaluations andprofessional developmentactivities are required forteachers to remain inteaching, and teachers canbe dismissed withreasonable cause (e.g.misconduct orabsenteeism).

3. Is teachercompensationlinked toperformance?

Latent Performance reviews carrysalary implications, buthigh performing teachersdo not receive monetarybonuses.



Adequate mechanisms to motivate teachers are a wayfor school systems to signal their seriousness in achievingeducation goals, make the teaching career attractive tocompetent individuals, and reward good performancewhile ensuring accountability.

SABER Teachers considers three policy levers schoolsystems can use to reach this goal: (1) linking careeropportunities to teachers’ performance (2) havingmechanisms to hold teachers accountable (3) linkingteacher compensation to performance.

(1) In Kazakhstan, promotion opportunities are linkedto performance on the job. There is no official policymandating probation periods for teachers before theyare granted open ended appointments, but officialpolicy does stipulate that performance on the job factorsinto whether teachers receive this type of appointment.In addition, there is a common practice at the schoollevel of having probation periods, and principals havediscretion over whether to renew a teacher’s contract ornot.

(2) There are mechanisms in place to hold teachersaccountable. Requiring teachers to meet somestandards to remain in the teaching profession canfacilitate the removal of ineffective teachers. InKazakhstan, teacher performance is evaluated annually,and there are official mechanisms to address cases ofmisconduct, child abuse, absenteeism and poorperformance. In practice, however, there are noeffective mechanisms for dismissing teachers.

(3) Teacher compensation is linked to performance.Performance reviews in Kazakhstan do carry salaryimplications, but high performing teachers do notreceive monetary bonuses for good individual or schoolperformance. Such pecuniary rewards can be effectivetools for improving teacher performance, assuming thatthere is a valid and well accepted system of performanceevaluation in place.

Figure 9. Incentives for high performance

Kazakhstan

Japan

Shanghai

Singapore

SouthKo

rea

Individual monetary bonus

School level bonusSource: SABER Teachers data



Policy OptionsThis SABER country report has offered a snapshot ofKazakhstan’s key policies on teachers and how theycompare with those of top global performers ineducation. Building on that diagnosis, this section offerssome options for further strengthening the teacherpolicy framework.

Goal 1: Setting clear expectations for teachersThere are clear expectations for what students shouldlearn and what teachers are supposed to do. There arealso clear guidelines regarding the proportion of schooltime dedicated to instructional improvement.Option:

Set expectations for what percentage ofteachers’ working time should be dedicated toteaching and what percentage should be usedfor other necessary activities that maycontribute to instructional improvement(including working on lesson plans, having officehours for students, grading assessments and thetasks mentioned above).

Goal 2: Attracting the best into teachingEntry requirements, teacher pay, and working conditionsmay not be appealing for talented candidates, signalingteaching as a low status profession. Despite substantialincreases in teacher pay since 2000, it remains one of thelowest paid skilled professions in the country.Options:

Strengthen selectivity and attractiveness ofentry requirements for teacher trainingprograms at universities.Ensure that teachers are paid competitivesalaries, especially at entry level.Ensure that teacher incentives and additionalbonuses to teachers’ salaries are attractiveenough to motivate and appeal to potentialcandidates.Ensure that teacher performance andeffectiveness are criteria used for teacherpromotion and career advancement.Introduce alternative models to teacher training.For instance, consecutive programs allowindividuals who have a Bachelor’s degree in adiscipline other than education to gain a

teaching certificate after some period of study ata university.

Since Kazakhstan scored as Emerging for this Goal, it isrecommended that policy identify ways to attract thebest graduates to the teaching profession.

Goal 3: Preparing teachers with usefultraining and experienceCurrent initial teacher education programs may not bebest suited to ensuring good quality teachers. Teachersin training have the opportunity to develop practicalteaching skills.Option:

Require more extensive teaching practice beforeteachers obtain certification. For instance, manytop performing systems such as Singapore andJapan require at least 12 months of teachingpractice, and this practice is tied up withsupervised mentoring programs.

This goal is also scored as Emerging, calling for betterarticulated and targeted policy actions to ensurecomprehensive teacher preparation.

Goal 4: Matching teachers’ skills withstudents’ needsThere are official systems in place to address teachershortages in hard to staff schools, but no official policiesto attract teachers to teach critical shortage subjects.Options:

Develop a system that systematically identifiesshortages both in critical subject shortages andin hard to staff schools.Ensure that local authorities provide visibleincentives to teachers to work in hard to staffschools (e.g. promotion, higher salary,scholarships for education, or housing).Provide incentives for teachers to teach criticalshortage subjects. “Special incentives could beprovided for scarce skills, such as effective mathand science teachers. First identifying and thenbenchmarking and disseminating good practicesfrom the better performing ‘Russian speaking’schools in the country could also improve theoverall teacher effectiveness in Kazakhstan.Based on PISA 2009 results, Russian schoolsoutperform their Kazakh counterparts by up to



two and half additional years of schooling”(World Bank, 2012).

Goal 5: Leading teachers with strongprincipalsPrincipals are expected to monitor teacher performanceand provide support to teachers to improve instructionalpractice, but their performance is not rewarded. Atpresent, there are no specific training requirements toensure that principals have the necessary skills to act aseither instructional leaders or school administrators.Options:

Provide additional support to new principalsPrincipal performance could be enhanced byproviding principals with an obligatorymentorship program and/or specificcoursework to promote leadership skills.Ensure that student and teacher outcomes arefactored into principal performance reviewsand that they carry as much weight ascompliance with specified regulations.Provide training for principals and ensure that itfocuses on school leadership.

Since Kazakhstan has scored the lowest in this categoryout of all eight goals, it is recommended thatpolicymakers focus on improving the quality andperformance of school principals.

Goal 6: Monitoring teaching and learningThere are systems in place to assess student learning inorder to inform policy but not teaching. Teacherperformance is evaluated annually using criteria thatassess effective teaching.Options:

Ensure that student achievement data collectedthrough national exams are used to monitorand inform teachers about their classroominstruction.Ensure that student achievement data collectedare comparable year on year, so that itbecomes possible to evaluate teacher andschool performance over time.

Ensure that evaluation systems use objectivecriteria to systematically evaluate teacherperformance.

Goal 7: Supporting teachers to improveinstructionThere aremultiple opportunities for teacher professionaldevelopment that are aligned with global best practices.Option:

Provide collaborative professional developmentopportunities that include in school analysis ofinstructional practice, as opposed to beinglimited to one time workshops or conferences.For instance, professional developmentactivities that require teachers to meet multipletimes throughout the school year and thatrequire teachers to incorporate activities intotheir day to day activities, have been found tobe more successful than one day workshops andactivities that do not follow up with teachers onhow they utilize the professional developmentactivity.

Goal 8: Motivating teachers to performThere are mechanisms in place to hold teachersaccountable. Career opportunities and salaries are linkedto teacher performance but high performing teachers donot receive monetary bonuses or recognition for theirefforts. Kazakhstan is Emerging in this category,supporting the need to strengthen the linkage betweenteacher performance and payOptions:

Reward high performing teachers with desirableincentives—both monetary and non monetaryawards.Ensure that the results of teacher evaluationsand feedback reach teachers and thatevaluations are not simply pro forma.Develop a system to reward high performingteachers (e.g., national awards and other typesof recognition for high performers).



AcronymsMoES Ministry of Education and ScienceUNT Unified National Testing

AcknowledgementsThis report was prepared by Mary Breeding (Consultant,Education Global Practice), with inputs from AndrewTrembley (Consultant, Education Global Practice), andunder the direction of Halsey Rogers (Lead Economist,Education Global Practice). We are especially grateful forthe assistance of Keiko Inoue (Senior EducationSpecialist, Education Global Practice), AnarSheshmukhanova (Consultant, Education GlobaPractice), and Aliya Bizhanova (Consultant, EducationGlobal Practice).

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Annex 1. SABER Teachers RatingsThe SABER Teachers team has identified policy levers(actions that governments can take) and indicators(which measure the extent to which governments aremaking effective use of these policy levers) for each ofthe eight policy goals referenced in this country report.For example, for Teacher Policy Goal 1, Setting ClearExpectations for Teachers, the SABER Teachers team hasidentified the following policy levers and indicators:

Table 2. Setting Clear Expectations for Teachers

For each goal in the country report, we define the goal inthe first paragraph of the country report, identify thelevers in the second paragraph, and use the remainingparagraphs to provide details about the indicators thatmeasure each of the levers.

Using the policy levers and indicators, SABER Teachersclassifies education systems’ performance on each of theeight teacher policy goals using a four category scale(latent, emerging, established, and advanced), whichdescribes the extent to which a given education systemhas in place teacher policies that are known to be relatedto improved student outcomes.

This four tiered rating system represents a continuumfrom systems with more comprehensive, developedpolicies oriented toward learning to systems with nopolicies at all (or, in some cases, policies that aredetrimental from the perspective of encouraginglearning). SABER Teacher ratings can be defined in thefollowing manner:

Advanced—Systems that are rated “advanced”toward a particular policy goal are those thathave multiple policies conducive to learning in

place under each of the policy levers used todefine a policy goal.

Established—“Established” systems are thosethat have at least one policy/law in place thatuses those policy levers.

Emerging—“Emerging” systems may have onlysome appropriate policies in place under thepolicy goal.

Latent—“Latent” systems are those that havenone or few policies in place. Please refer toVegas et al. 2012 for a detailed review of policylevers and indicators assessed for each goal.

For more details about these definitions and a detailedreview of policy levers and indicators used by SABERTeachers, please refer to the Vegas et al. (2012)background paper, ’What matters most for teacherpolicies? A framework for building a more effectiveteaching profession’.



The Systems Approach for Better Education Results (SABER) initiativeproduces comparative data and knowledge on education policies andinstitutions, with the aim of helping countries systematically strengthentheir education systems. SABER evaluates the quality of educationpolicies against evidence based global standards, using new diagnostictools and detailed policy data. The SABER country reports give all partieswith a stake in educational results—from administrators, teachers, andparents to policymakers and business people—an accessible, objectivesnapshot showing how well the policies of their country's educationsystem are oriented toward ensuring that all children and youth learn.

This report focuses specifically on policies in the area of teacher policies.

This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusionsexpressed in this work do not necessarily reflect the views of TheWorld Bank, its Board of Executive Directors, or the governmentsthey represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors,denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bankconcerning the legal status of any territory or the endorsement or acceptance of such boundaries.

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