OVERVIEW JOB-READY GRADUATES OF SECONDARY EDUCATION IN BOTSWANA, LESOTHO AND ZAMBIA Reforming Instruction, Curriculum, Assessment, and Structure to Teach Vocational and 21st Century Skills Andreas Blom, Xiaonan Cao, Harisoa Andriamihamina, and Iyioluwa Teleola Akinlawon Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia Reforming Instruction, Curriculum, Assessment, and Structure to Teach Vocational and 21st Century Skills © 2017 The International Bank for Reconstruction and Development/The World Bank Group 1818 H St. NW Washington, DC 20433 Telephone: (202) 473-1000 Web site: http://www.worldbank.org E-mail: feedback@worldbank.org All rights reserved. Copyright Statement: The material in this publication is copyrighted. Copying and/or transmitting portions or all of this work without per- mis-sion may be a violation of applicable law. 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The findings, interpretations, and conclusions expressed in this paper do not necessarily reflect the views of the Ex- ecu-tive Directors of The World Bank or the governments they 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 Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Cover photos courtesy of World Bank Africa https://www.flickr.com/photos/worldbank/20038869031/in/ album-72157601463732327/. Table of Contents Acronyms  v Acknowledgements  vii I: Introduction  1 II: Review of Teachers’ Instruction Techniques for the Development of 21st Century Skills   11 III. Do Curriculum and Assessment Structure Foster 21st Century Skills? Curriculum and Assessment Review at Junior and Senior Secondary Levels   19 IV: A Structure that Incorporates Multiple Pathways for Senior Secondary Education Will Best Develop Job-Ready Graduates   23 V: Main Findings and Recommendations—with Country-Level Recommendations   29 References  35 Figures Figure 1: Education Still Pays Off    3 Figure 2: Botswana Slow School-to-Work Transition and a Large Share Remains Unemployment   3 Figure 3: Zambia School-to-Work Transition Takes Too Long a Time    3 Figure 4: Young Graduates with Secondary Education Tend to Have Lower Employment Rates (Employment Rate by Education Level for the Age Cohorts 15–24 Years and 25–34 Years)    5 Figure 5: Projected Share of Labor Force with Secondary Education    6 Figure 6: 21st Century Skills (Attitudes) are Rated Most Important by Employers    6 Figure 7: Good Basic Student and Teacher Behavior as well as Basic Classroom Environment   13 Figure 8: Teacher-Centered and not Student-Centered Instruction    14 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia iv Figure 9: Evidence of Teamwork Activities    14 Problem Solving and Critical Thinking Figure 10:  in Botswana, Lesotho, and Zambia    14 Technology is not in the Classroom Yet Figure 11:  in Botswana, Lesotho, and Zambia    15 Average Score of Curriculum and Assessment Indicators Figure 12:  for the Three Countries    20 Figure 13: Zambia’s multiple pathway model for senior secondary education    26 Figure 14: Enrollment in Secondary TVET by Regions and African Countries (%)    27 Boxes Box 1: The Joint Preparation of this Report    2 Box 2: Disparities and Similarities in Botswana, Lesotho, and Zambia’s Educational Systems    4 Box 3: Mega-Trends Changing Labor Market Demand and Hence “What Constitutes A Well-Prepared Graduate?”    7 Box 4: What are 21st Century Skills? Key Concepts    8 Box 5: Instruction Review    12 Box 6: Shanghai Key Success Factors    16 Box 7: Progressive Mathematics Initiative-Progressive Science Initiative (PMI-PSI)   17 Box 8: Curriculum and Assessment    19 Box 9: Project-Based Learning    21 Box 10: Shanghai Student Assessment System    22 Box 11: A Gender Lens on Instruction, Curriculum, and Structure    24 Box 12: Lesotho TVET Key Issues    25 Box 13: Lesotho TVET Recommendations    32 Acronyms AP Advanced Placement PBL Project-Based Learning Bahamas General Certificate of Secondary BGCSE  Programme for International Student PISA  Education Assessment BTEP Botswana Technical Education Programme Progressive Mathematics Initiative – PMI-PSI  GDP Gross Domestic Product Progressive Science Initiative ICT Information and Communications Technology SBM School Based Management LSA Lesotho Skills Authority SSA Sub-Saharan Africa MoBE Ministry of Basic Education Department of Technical and Vocational TVD  MoET Ministry of Education and Training Training NJCTL New Jersey Center for Teaching and Learning Technical and Vocational Education and TVET  Training NQF National Qualifications Framework TVETA Technical and Vocational Education Authority Organisation for Economic Co-operation and OECD  Development v Acknowledgements T his study was prepared by a team from the Educa- Ntoi, Mpho Nyenye, Tsilane Teboho, Tseleng Mosuhli, tion Global Practice of the World Bank Group. The Nyakallo Rejoice Molise, and Matente Qhobela (Leso- team was led by Andreas Blom and composed of tho); Lazarous Kalirani, James Chilufya, Mary Nyirenda, Xiaonan Cao, Harisoa Andriamihamina, Iyioluwa Teleo- Abigail Tuchili, and Jack Chisala (Zambia). la Akinlawon, Jaap Kuiper, Robert Goodman, Rosanna Satterfield and Neil Butcher. This overview builds upon The Team is grateful for the guidance received from three background studies: Reforming Botswana, Lesotho management: Paul Noumba Um (Country Director), and Zambia’s Secondary Education System: What Struc- Elene Imnadze (Country Representative for Botswana), ture, Curriculum, and Assessment develop job-readiness Janet Entwistle (Country Representative for Lesotho), best? by Jaap Kuiper; Evaluation of Secondary Education Ina-Marlene Ruthenberg (Country Manager for Zambia), in Botswana, Lesotho, and Zambia: The Alignment of Halil Dundar (Education Practice Manager), and Paolo Curriculum, Assessment, and Instruction with 21st Cen- Belli (Program Leader for Human Development); and for tury Skills by Robert Goodman and Rosanna Satterfield; the valuable suggestions to the study and comments to and Technical and Vocational Education and Training in the report received from the following peer reviewers: Lesotho: A Policy Note by Neil Butcher. Jamele Rigolini, Rita Kullberg Almeida, Indhira Santos, and Asli Senkal. Sara Troiano and Lucilla Maria Bruni The study benefitted greatly from the sector experience also provided guidance and comments on the study of and knowledge of the following staff from their respective technical and vocational education and training in Le- ministries of education: Baipidi Kgabi, Dominic Khame, sotho. The team also appreciates greatly the logistical and Molaodi Menyatso (Botswana); Bertha Seutloali, Rat- support provided by the involved country offices for this siu Majara, Thae Makhele, Mastory Masupha, Litsabako study. vii Introduction 1 I n order for graduates to be job-ready, secondary ed- education in Botswana, Lesotho, and Zambia. The re- ucation needs to inculcate 21 century skills and vo- st port is premised on three background studies and analy- cational skills demanded by employers. Three reforms ses of employer and household surveys. It is structured in are required to achieve these ends: (i) instructional tech- the following manner: niques need to be more student-centric; (ii) the curricu- lum and assessment must emphasize 21st century skills i. This introduction provides the rationale for why the development, such as learning to learn, team-work, com- job-readiness of secondary graduates is worthy of at- munication, problem-solving, and the encouragement tention. While education remains a sound investment of commitment; and (iii) the introduction of multiple on the part of governments, problems arise when educational pathways—a combined vocational and aca- there is a slow and expensive transition from second- demic senior secondary education track in Botswana and ary education to the labor market. Across the three Lesotho—and the expansion of vocational pathways in countries, 450,000 young secondary school graduates Zambia. Further, this vocational track should prepare sec- are currently unemployed or economically inactive. ondary school graduates for jobs in growing economic Employers articulate that a key challenge is that con- sectors, and incorporate on-the-job-training in the form temporary forms of secondary education do not suffi- of internships. In the absence of these reforms, youth un- ciently prepare graduates of secondary education with employment is likely to become more acute. Botswanan, the necessary skills—cognitive, non-cognitive, and vo- Lesotho, and Zambian youth are eager and talented, cational—demanded in a 21st century economy. their teachers are committed to their work, and many of ii. The second section presents an analysis of education the operational inputs to support meaningful secondary quality and type of instruction. It presents findings education are in place. However, the outcomes of sec- from classroom observations in 18 schools in Botswa- ondary education continue to be suboptimal. na, Lesotho, and Zambia. The findings indicate that learners and teachers are well prepared and commit- This report seeks to assist the Governments of Botswa- ted, and that conditions in the classroom are decent. na, Lesotho, and Zambia to more effectively develop job- However, the instruction delivered is teacher-cen- ready secondary education graduates, who are better tered, with little evidence of student collaboration placed to increase their earnings and stay out of poverty. and active learning. The general absence of group The report aims to provide specific and practical sugges- work and collaborative learning undermines the de- tions for teachers, schools, and ministries to improve the velopment of skills associated with teamwork. Simi- job-readiness of secondary education graduates, and, in larly, there was little evidence of the use of problem- turn, is intended to facilitate a sharing of national and inter- and project-based assignments. We recommend national experiences in the three participating countries. that governments consider working with teachers and school directors to initiate a national debate This report summarizes the main findings and recom- on teaching style, followed by an in-service teacher mendations for improving job-readiness in secondary training program to improve instructional practice 1 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 2 and encourage more active, collaborative and ex- and focused on the development and acquisition of ploratory learning on the part of students. 21st century skills. iii. The third section of this report examines curricula iv. The fourth section reviews the structure of secondary and tools for assessment. Our analysis suggests that education. Botswana and Lesotho offer a one-size- contemporary curricula and forms of assessment fits-all model of secondary education with a strong focus on the acquisition of traditional foundation- focus on the development of academic skills and al skills such as reading, writing, and math; while preparation for university education. Zambia offers an emphasis on the development of thinking skills, two pathways in secondary education including the problem-solving, teamwork, initiative/entrepreneur- option of a vocational qualification. In light of the fact ship, self-management, self-guided learning, and that only 25 to 50 percent of secondary graduates in technology are secondary learning objectives, or the countries under consideration typically proceed are entirely missing. We find that all countries have to university education, the emphasis on academic made substantial progress in preparing a compe- skills in secondary education is poorly aligned with tency-based curriculum, in particular Botswana. the needs of the majority of students and the econ- However, graduates in all three countries are almost omy. The majority of students require skills and work exclusively examined through a national assessment experience to more effectively access employment. of standard examinable knowledge. This form of Therefore, this report strongly supports the education assessment incentivizes teachers and students to strategies of the governments of Botswana, Lesotho, reduce classroom activities to rote-learning of stan- and Zambia to introduce or scale-up the combined dard examinable knowledge. We recommend that vocational and academic pathway in secondary edu- a school-based assessment of skills and competen- cation. We recommend that this combined pathway cies, including project and group-based assessment, continue to provide a rigorous academic foundation should be developed and incorporated into formal to facilitate tertiary studies, if the student so desires, assessment and count towards graduation. Instruc- while concurrently developing certified technical skills tion, curriculum, and assessment must all be aligned and presenting opportunities for students to accrue Box 1. The Joint Preparation of this Report This report was prepared under the guidance of a regional advisory group of government officials from the Ministries of Education and examination bodies in Botswana, Lesotho, and Zambia. The World Bank team is grateful for the guidance, data, case studies, analysis and recommendations of their national colleagues facilitat- ed through six meetings, as well as for the organization of school visits. The selection of Botswana, Lesotho, and Zambia for this joint study was based upon expressions of interest from the countries, the shared challenges of youth unemployment, on-going policy dialogues, and World Bank in- vestments in secondary education. As such, this report and associated discussions enhances the Bank’s financial support to the countries. The report draws on a series of World Bank reports on youth unemployment, demographics, employment and job diagnostics, as well as regional skills studies. This overview builds upon three detailed background studies. One cross-country report on instructional practices and curriculum by the New Jersey Center for Teaching and Learning (USA), and three country-case studies on the structure and assessment of secondary education in Botswana, Lesotho, and Zambia, respectively. In addition, a case-study on technical and vocational education and training (TVET) in Lesotho was carried out for exploring needed reforms in the provision of vocational skills to school leavers. Introduction 3 Figure 1 Figure 2 Education Still Pays Off Botswana Slow School-to-Work Transition and a Large Share Remains Unemployment 211% 100% 90% 131% 80% 127% 70% 97% 91% 89% 60% 69% 68% 50% 51% 46% 42% 40% 30% 23% 21% 30% 20% 10% Botswana Lesotho Zambia 0% Some Some Some TVET Tertiary 15–19 20–24 25–29 30–34 35–39 primary lower upper secondary secondary Age cohort Employed Unemployed Source: Botswana (2009) & Zambia (2010) Income and Expenditure Survey and Lesotho Student Not in labor force or education Household and Employer Survey (2010) Note: This is based on Mincerian regression. The dependent variable is log of monthly Source: World Bank 2015 for Botswana and World Bank 2017 for Zambia. earning and independent variable is years of schooling (level of education) with age and experience effects were controlled. The population age group is 15–64. secondary education accrues approximately 20 percent job-training through internships. Systemic reforms more salary for each year of secondary education. Re- to secondary education should be implemented in turns to education in Zambia, in particular, are very high. tandem with investments in vocational and technical However, this is an average pay-off of education over 40 education, including the modernization of outdated years on the labor market. As illustrated in Figures 2 and programs, such as woodwork, and the introduction 3 (for Botswana and Zambia), a large share of youth tran- of new programs aligned with growth sectors of the sitions very slowly from school to work. This is indicated economy, such as information and communications by the size of the upper band of color (not in school or a technology (ICT) and tourism. v. The fifth section summarizes the recommendations Figure 3 from the four sections and tailors the recommenda- Zambia School-to-Work Transition Takes Too Long a Time tions to each country. From school to work transition, men, aged 10–35, 2014 LFS Overall, the report calls for a reform process of instruc- 1 tion, curriculum, assessment, and structure of secondary 0.8 education national education movements led by teach- 0.6 ers and principals to more effectively develop entrepre- neurial graduates with critical thinking, problem-solving, 0.4 team-working, and strong foundational skills. This should 0.2 be supported by investments and policies that train teach- ers in student-centric teaching, as well as an overhaul of 0 10 15 20 25 30 35 student assessment to include school-based assessments. Age Education remains one of the best investment decisions Work only Both school and work School only Not work not school an individual or country can make. However, there is evidence of growing challenges relating to the transi- Source: World Bank 2015 for Botswana and World Bank 2017 for Zambia in Systematic tion from secondary education to work. A graduate with Country Diagnostics Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 4 Disparities and Similarities in Botswana, Lesotho, and Zambia’s Box 2.  Educational Systems When examined (see table below), there are some differences in the educational systems of the three countries that affect the quality of education and skills development. Some of which include: • Enrollment: There is a higher enrollment in primary education than in secondary schools across all three countries. With a lower population rate than the other two countries, Botswana, has a higher rate of enroll- ment in both primary and secondary education. With the higher population rate, the out-of-school children as a percentage of the school-age population in Zambia is at a high of 28% while in Botswana and Lesotho it is 7% and 14% respectively. • Transition: The transition rate from primary education to secondary education in Botswana is higher than the other 2 countries, with Zambia having fewer students transitioning to secondary education. • Learning outcomes: The SACMEQ mathematics scores, with a total of 700, shows that all three countries are above average with Botswana’s average score higher than those of Lesotho and Zambia. The stu- dent-to-teacher ratio is lower in Botswana, with fewer students to a teacher. Despite the differences, all three countries face the similar challenge of a steady bulging secondary school en- rollment and continued unemployment of secondary education graduates. Botswana Lesotho Zambia Primary Secondary Primary Secondary Primary Secondary Official School Ages 6–12 13–17 6–12 13–17 7–13 14–18 Gross Enrollment Ratio (%) 108 86 106 53 104 44 School-Age Population 326,000 219,000 345,000 245,000 3,260,000 1,883,000 Out-of-School Children 27,000 15,000 66,000 34,000 325,000 519,000 Transition Rate from Primary to 98 87 65 Secondary (%) 2014 SACMEQ Math Scores 560 510 480 Student-to-Teacher Ratio 23 11 33 24 43 35 Source: UNESCO UIS 2008–2015; Zambia Ministry of General Education – 2015 Education Statistical Bulletin; Bethel 2016, South Africa Portfolio Committee on Basic Education 2016. job) and the band capturing unemployed. These bands Secondary education produces too many graduates bulge for the age group 17–24, demonstrating that ap- who end up unemployed or economically inactive. proximately 15 to 20 percent of youth in this age group There are 450,000 out-of-school youth with secondary does not attend school and does not have a job. Box 2 education who are unemployed in Botswana, Lesotho, provides a detailed overview of primary and secondary and Zambia, respectively, 34 percent (87,000), 34 percent education statistics. The overwhelming majority of these (70,000) and 19 percent (302,000) of young graduates. youth, however, are graduates of secondary education. Figure 4 presents employment rates for young workers Disturbingly, labor market data suggests that it takes 10 by level of education. In all three countries, employment to 15 years, for youth to transition to employment. Equal- rates for workers aged 15–24 years with lower second- ly important, approximately 10 percent of youth remain ary education is lower than for workers with other levels unemployed. of education. The same dip in employment rates occurs Introduction 5 Figure 4 Young Graduates with Secondary Education Tend to Have Lower Employment Rates (Employment Rate by Education Level for the Age Cohorts 15–24 Years and 25–34 Years) 90% 77% 76% 80% 69% 68% 67% 66% 65% 64% 63% 70% 60% 58% 60% 50% 50% 34% 34% 40% 30% 27% 27% 26% 25% 24% 30% 16% 16% 20% 7% 6% 10% 0% 15–24 25–34 15–24 25–34 15–24 25–34 Botswana Zambia Lesotho Primary Junior Secondary Senior Secondary Tertiary Source: Authors, based upon national household surveys Note: Botswana 2009/2010; Lesotho 2011; and Zambia 2010. for workers in Zambia and Lesotho with senior secondary wall is clear: Graduates of secondary education must be education, and continues into the age cohort 25–34 in better prepared for the world of work. If not, challenges Zambia. Analysis demonstrates that the rate of unem- associated with youth unemployment will balloon. ployment differs only marginally for male and female workers. Urban youth unemployment is slightly higher Youth unemployment is a function of labor demand, labor than rural youth unemployment, but the pattern of lower supply, labor regulations, and market information. Labor employment of secondary education graduates remains demand is strongly influenced by economic growth and consistent. The costs associated with high youth unem- overall economic policies. Many studies find that labor ployment are significant, and is represented in tremen- demand for different kinds of skills have changed signifi- dous in inflated levels of poverty, low levels of happiness cantly in recent decades due to shifting national, regional, among affected youth, and lost GDP. A back-of-the-en- and global trends (See Box 3). While these trends are not velop-calculation suggests that if unemployed youth had the subject of this report, it is important to understand that earned the average salary of their employed peers, the current demand for specific skills, and, as a consequence, high youth unemployment results in a loss of approxi- the relative job-readiness of graduates, may change in the mately US $36 million in Botswana and US $200 million in future in line with changes in the economy, technology, both Lesotho and Zambia in terms of lost wage income. and society. This eventuality requires an emphasis on the value of generic skills emphasized in general education Secondary education is expected to continue to expand and skills associated with continuous learning. With this in the future, with the potential of adding additional important caveat in mind we turn to analyze job-readiness. youth to the current ranks of unemployed secondary education graduates. Botswana is one of the leading countries in Africa in terms of access to secondary edu- What are the key reasons for low cation, with a gross secondary enrollment rate of 86 per- level of job-readiness? cent. Lesotho and Zambia demonstrate gross secondary enrollment rates of 53 and 45 percent, respectively. As illustrated in Figure 5 below, in 2030, four of five workers Assessing job-readiness requires an analysis of em- in Botswana and one-third of Lesotho’s workers are ex- ployer perceptions of graduate skills. Employers hire pected to have secondary education. The writing on the graduates and are the best source for information on Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 6 Figure 5 Projected Share of Labor Force with Secondary Education Lesotho Botswana 100% 6% 7% 100% 9% 11% 90% 90% 80% 27% 80% 34% 70% 40% 70% % of labor force 46% 60% 60% 74% 79% 82% 83% 50% 38% 50% 40% 39% 40% 30% 37% 30% 34% 20% 20% 29% 11% 10% 21% 10% 10% 8% 15% 7% 9% 10% 6% 4% 2% 0% 0% 2020 2030 2040 2050 2020 2030 2040 2050 Post-secondary Secondary Primary No or incomplete primary Source: World Bank “Changing Demographic in Southern Africa.” Figure 6 21st Century Skills (Attitudes) are Rated Most Important by Employers 91% 91% 89% 88% 85% 84% 81% 75% 75% 73% 71% 70% 70% 70% 68% 69% 65% 63% 63% 62% 60% 59% 59% 56% 55% 55% 51% 49% 49% 47% 47% 46% 43% 42% 42% 41% 39% 37% 37% 35% 33% 28% 24% 22% 15% 10% 9% Reiability and punctuality Perseverence Honesty and trustworthiness Customer care skills Learn effectively Team working skills Communication skills Ability to work independently Practical knowledge of job Previous work experience Problem solving skills Literacy skills Self-management Planning and organizing skills Personal appearance Basic math skills ICT Vocational job-specific skills Grades and transcripts Foreign language Lesotho Botswana Zambia Source: Authors, based upon Botswana Employer and Employee Survey 2010; Lesotho Employer Skill Survey 2011; and Zambia Firm Level Survey 2016. Note: Ranking of skills rated as very important and crucial for skilled workers by employers. Introduction 7 Mega-Trends Changing Labor Market Demand and Hence “What Box 3.  Constitutes A Well-Prepared Graduate?” Saharan Africa, like the rest of the world, faces three mega-­ Sub-­ trends that are reshaping the global economy, rapidly changing the demand for skills, and presenting both opportunities and challenges for skills development policies: i. Population shifts. First, the region’s potential demographic dividend engendered by lower fertility rates will leave more resources to invest in early childhood development and education. If increased resources are successfully invested, younger and larger cohorts of skilled workers will rapidly increase the share of skilled workers. However, larger cohorts of students will require increased funding for the expansion of the education system. The second significant population is occurring through urbanization. More urban youth can facilitate a better match between workers and jobs as well as agglomeration effects, but also eliminates agriculture as a default source of employment. Rapid urbanization increases risks associated with urban un- employment and political unrest. ii. New technologies such as digitalization and broader technological and organizational change can increase skill occupations and the risk of “jobs polarization” in the form of faster rising employment in high-­and low-­ skilled occupations. In this context, returns to investment in ICT and critical stagnation or decline in middle-­ routine jobs such as driving could dramatically drop. thinking skills may increase, but returns to manual non-­ iii. The integration of Africa into shifting global value chains. Production in both manufacturing and services takes place in interlocked global value chains. This is likely to increase the demand for skills, but also require closer coordination between education institutions and firms. It may also create mismatches in the supply of, and demand for skills as Africa increasingly integrates and African firms tap into newly developed higher added and export-­ value-­ intensive activities. These forces will shape the types of jobs available, as well as the demand and the opportunities for skills ac- Saharan Africans. On the other hand, the skills of the workforce will quisition, especially for new cohorts of sub-­ trends ne- influence how these trends play out for the region’s economic transformation. The impact of mega-­ cessitate improved investment in skills development and a close focus on the skill requirements of firms, sectors, and nations. Source: Africa Regional Skills Report, World Bank (Forthcoming). what constitutes a job-ready (employable) graduate. The employer surveys from Botswana and Lesotho are Botswana, Lesotho, and Zambia all have recent employ- similar in design and asked each employer to rate the er surveys. All firm surveys ask questions regarding the importance of a set of skills. The Zambia survey (2016) relative importance of specific skills in the hiring deci- asked employers to rate the three most important skills. sions on the part of firms. The most recent employer As a consequence, the Zambia ratings are lower. Despite surveys use slightly different skill categorizations which these methodological differences across the two types imposes some limitations on the analysis. of surveys, the relative ranking of skills identified as im- portant are similar across the countries: Most important 21st century skills, as described in Box 4, including per- are personal traits (reliability, perseverance, honesty, and sonal or socio-emotional skills such as self-management teamwork). These are generally followed by thinking (punctuality, reliability, perseverance and hard work) skills (learning, ability to work independently/taking ini- are consistently rated highest by employers. Figure 6 tiative, and problem solving). Foundational skills (read- presents the list of skills ranked highest by employers. ing, writing, and basic math) are ranked as relatively less Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 8 Box 4. What are 21st Century Skills? Key Concepts This report analyzes education and skills using the skills categorization called 21st century skills. Specifically, these skills can be defined as transferable, core skill groups that represent essential functional and enabling knowledge, skills, and attitudes that are required in the 21st century workplace: The nine 21st century skills categories are: Foundational academic competencies. These skills are learning outcomes traditionally associated with basic education: • Graduates read and write at a level required for the workplace or postsecondary education. • Graduates listen and speak (communicate) in a way that allows for continual learning, evaluation and ef- fective verbal communication in a variety of media. • Graduates perform basic mathematical computations and choose appropriate mathematical techniques to solve practical problems. Thinking skills. These are cognitive skills and learning outcomes related to Bloom’s taxonomy of cognitive learn- ing domains discussed in education literature and is correlated with IQ) Bloom 1956): • Graduates solve problems by recognizing them, using reasoning, and devising and implementing logical plans. • Graduates will learn effectively. • Graduates use technology effectively by selecting, applying, and troubleshooting technology. • Graduates will think creatively and take initiative and demonstrate entrepreneurial skills. emotional skills (personality traits). These includes skills often referred to as attitudes or gener- Personal socio-­ ic employability skills or soft skills and are closely related to the ‘Big Five’ personality traits outlined in psychology literature {Heckman and Krautz 2015): • management, including accurate self-­ Graduates will demonstrate self-­ assessments, responsibility, perse- verance, goal setting, and will display integrity and honesty. • Graduates will work well in teams, including with men and women from diverse backgrounds and will show sociability and empathy. In addition to these 21st century skills, this report refers to technical (vocational) skills as those abilities needed to carry out one’s job, such as a plumber’s ability to repair a water leak, or a worker’s ability to operate a machine in a factory. The above competencies are core of many curriculum standards (such as the International Baccalaureate and the US Common Core standards), education evaluations, such as PISA by OECD, and economic reports from the World Bank. Source: Authors, based upon Heckman and Krautz 2015; Bloom 1956; IBO 2015; World Bank WDR 2016 and 2018; OECD 2016. important. It is likely that foundational skills are rated mind that the scores are averages of groups of employ- less important because of the widespread distribution of ers. Each employer is likely to select among candidates these skills in the three countries concerned. based upon the specific skills desirable for that partic- ular position. On average, socio-economic skills (per- The importance of technical skills for certain jobs. When sonal traits) very often appear as the most sought-after analyzing employer surveys, it is important to bear in skills (Blom and Saeki 2012). Another common term for Introduction 9 personal traits is “generic employability skills.” However, qualifications linked to ICT, management, and the it is important to note that in the surveys, technical/oc- financial sector. cupational skills such as practical knowledge of the job, iii. Sectors intensive in vocational skills remain signifi- and ICT skills, are generally located in the middle of the cant in Botswana, Lesotho, and Zambia. These sec- ranking, while vocational job-specific skills are towards tors (construction, manufacturing including textiles, the lower end. Hence, a set of employers are looking for utilities, transport, and mining) account for 20 per- practical skills and relevant job experience, obtained for cent, 28 percent, and 30 percent of jobs in Botswana, example through an internship, especially when job-re- Lesotho, and Zambia, respectively. Although, these lated trade skills are combined with 21 century skills. st sectors overall have declined in terms of share of employment, they remain critical to the economies The sectoral distribution of employment is slowly chang- and some have expanded moderately in the recent ing in the three countries. What are the implications for period. For example, the textile sector contributes demand for skills and for learning objective for second- to 20 percent of Lesotho’s GDP and employs 40,000 ary education? Consider the following four stylized facts people. Beyond the importance of generic so- on sectoral distribution of jobs evident from three em- cio-emotional and thinking skills, referenced earlier, ployment and job analyses—Merotto 2017; World Bank firm and employer surveys in Lesotho and Botswana 2014; and World Bank 2015: point to a shortage of technicians, and specific con- struction trade, such as roofing, reinforcement, steel i. The agriculture sector will continue to absorb a large fixing, and concrete mix design. Often employers share of the workforce. Respectively, 27 percent, 41 voice concern of the trainability of candidates and percent, and 67 percent of the workforce in Botswa- the poor practical quality of candidates. na, Lesotho, and Zambia worked in agriculture for iv. A persistent dominant level of informality. In Botswa- the latest available year. This is primarily subsistence na, Lesotho, and Zambia, 62 percent, 37 percent, agriculture. As discussed in World Bank (2017), liter- and 13 percent, respectively of the workers have acy and socio-emotional skills have been found to formal job-contracts. The remaining are informal have significant returns for African farmers. Further, workers. Most work in subsistence agriculture but vocational training for workers in agro-business, in- some are self-employed in the non-farm sector (1/3 cluding livestock and food production, post-harvest in Botswana and 1/4 in Zambia). Although, formality and farm-mechanics is also relevant. is increasing in all three countries, informality will re- ii. The service sector is expanding rapidly in all three main for decades. These future self-employed work- countries. In Zambia, the service sector accounts ers equally benefit from foundational skills (reading, for 36 percent of all formal jobs and experienced writing, and math) as well as socio-emotional skills. the highest growth rate in comparison to other sec- tors from 2003–2010. In Lesotho, the service sector The bottom line is that the current and future jobs will provides a third of employment and 60 percent of be across the economy in many sectors. Sectoral employ- GDP. The growth of the service sector is a common ment shares are changing slowly. Therefore, future grad- feature across sub-Sahara African (SSA) economies. uates of secondary education will work in all economic Also, the three countries’ development strategies sectors. Consequently, secondary education must first include a focus on tourism and hospitality, ICT, and prepare graduates demonstrating the foundational, other expanding service sectors such as wellbe- broadly applicable skills, such as thinking and socio-emo- ing and health and real estate. Often employers tional skills. This will make them trainable for specific vo- in the service sector looks for “trainability” and cational skills. Second, individual sectors demand a range socio-emotional skills with vocational skills learned of vocational skills, which secondary education could through on-the-job training. This is the case for teach students in order to better qualify for a job upon the hospitality sector. However, another set of graduation. As argued in section IV of this report, quali- service sub-sectors demand higher education ty vocational education options should be introduced in Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 10 senior secondary to better prepare graduates for a job. The rest of this report is devoted to a discussion of For vocational courses, a place-specific and sector-specif- how secondary education can be reformed to de- ic labor demand analysis is critical to ensuring relevance velop 21st century skills and vocational skills. In par- and quality of vocational secondary education. ticular, the next section will discuss how well current instructional techniques develop 21st century skills in From this analysis, it can be concluded that graduates students. The subsequent section will evaluate how from secondary education must demonstrate broader curricula and assessments can be more effectively 21st century skills beyond the foundational (reading, writ- aligned with learning 21st century skills. The fourth ing, and math) skills to be job-ready. Further, a sub-set of section of the report will discuss how the current graduates, particularly those not proceeding to a univer- structure of secondary education in the three coun- sity education, would benefit from improved vocational tries provides opportunities for the acquisition of skills to successfully transition to the world of work. job-relevant vocational skills. Review of Teachers’ Instruction Techniques for the Development of 21st Century Skills 2 This section focuses specifically on the most important Instructional Findings part of education: teaching and learning in the class- room. It explores the current state of instruction in Bo- tswana, Lesotho, and Zambia to inform recommendations In all three countries, the study found that students and for innovation to support the inculcation of 21st century teachers demonstrate good basic behavior, classes are skills. The section summarizes a background study en- undertaken seriously, and the classroom environment titled “Evaluation of Secondary Education in Botswana, meets basic standards. The students are attentive and Lesotho, and Zambia – The Alignment of Curriculum, As- focused in their work. Generally speaking, all scores are sessment, and Instruction with 21st Century Skills”. higher than 2 out of 4 (somewhat evident). Students par- ticipate in activities as directed by teachers. During direct The report provides new and innovative information instruction, the students track the teacher, take notes and from classroom observation. Structured classroom ob- listen. Students demonstrate the basic academic skills re- servation is necessary to understand why students grad- quired for learning and generally arrive for class prepared uate with shortcomings in terms of 21 century skills. The st with materials and completed homework (to a lesser ex- report’s methodology consists of classroom observation tent in Zambia). Similarly, teachers demonstrate the basic using the instructional rounds approach. Box 5 describes requirements for effective teaching. With an evaluation the methodology applied in the three countries includ- of higher than 3 (mostly evident), there is strong evidence ing the ratings on classroom environment, instructional that teachers speak to students clearly and succinctly. findings and student and teacher behavior. Further, teachers ask open questions thereby strengthen- ing student participation, premise their teaching on prior Given the limited sample of observed classrooms, we knowledge, and are committed to their students. With caution against over-interpreting the findings. A to- regards to the classroom environment, learning time is tal of 18 classrooms observations were conducted in sufficient. Classes are organized in a way to retain the six secondary schools per country. Consequently, this maximum of students’ attention. Schools generally have sample is not nationally representative. However, the school calendars and daily schedules to facilitate time for sample and the consistency of the results give a clear learning. Classes meet for at least 140 days annually and indication of what is happening in Batswana, Lesotho, the length of a class is organized in 40–60 minute periods and Zambian classrooms. The team conducting the so that students can retain their focus. Figure 7 presents observations included government teacher-training ex- student and teacher indicators for the three countries. perts. The World Bank team recommends that the cur- rent sample of classroom observation be expanded to However, instruction in all classrooms observed across enable the use of a national representative sample for all three countries was generally teacher centered. The further analysis, and that classroom observations be- majority of teaching observed is traditional, with a strong come a mandatory tool for in-service teacher training focus on lecturing wherein most of the talking is done by in the three countries. teachers. Teachers generally write notes on blackboards, 11 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 12 Box 5. Instruction Review To understand status across the three countries over a short period, instructional rounds were adopted. The approach enables a comparison of instructional practices across classrooms. The instructional rounds process includes: i. Identify the problem of practice: Students are not acquiring 21st century skills necessary to obtain employ- ment after graduation. established standards: a rubric delineating the ii. Create a tool that allows for a quick tallying of data using pre-­ presence of pedagogy that supports specific 21st century skills, sorted into three categories of questions: • What is the status of the classroom environment in terms of time, space, and materials? • What are the students doing? • What is the teacher doing? iii. Classroom activity and infrastructure were rated on a scale of 1 (not evident), 2 (somewhat evident), 3 (mostly evident), and 4 (extremely evident). Eighteen junior and senior secondary education classrooms were visited in the three countries. These were a mix performing schools. However, the budget did not permit visiting very of urban and rural, performing and non-­ remote schools or to achieve statistically national representativeness. However, observations were consistent with findings for other schools visited before and after the period of data collection. while students raise hands to answer questions and take students engage in more meaningful academic dialogue notes. Most scores for indicators evaluating student par- with their peers. ticipation and the relative position of the student as the center of learning were below 2 (somewhat evident). Pedagogy does not foster critical thinking. While teach- Students in the classroom observations were generally ers in the three countries observed ask open-ended passive—not asking questions or seeking support from questions, most answers to these questions require only other students and teachers, Figure 8. It seems that in- rote (memorized) responses regarding specific facts. struction is relatively more student-centric in Botswana. In addition, teachers tend to give answers to students’ questions instead of pushing them further with guiding Student teamwork, collaboration and active learning questions to foster analysis and critical thinking. Most stu- are generally absent. There is no evidence that the ped- dents do not try, and are most of the time not encouraged agogy in the three countries strengthens teamwork, with to investigate other strategies to find solutions to prob- almost all scores related to group activities recorded be- lems. When they become stuck while solving problems, low 2. Students are generally seated in rows, and not in students wait for teachers to provide answers, instead of heterogeneous groups which would facilitate discussions trying to find solutions through alternative means or stu- and group work. Since the curriculum and assessment dent-to-student discussion. Batswana teachers seem to methodologies do not generally assess teamwork re- perform better compared to their Zambian and Lesotho lated activities, there are no specific materials to facili- colleagues in pushing students to use critical thinking, in tate group activities and teachers do not assign group connecting new concepts to prior knowledge and learn- work. Students work alone, do not seek support from ing, in providing feedback to students and in affirming other students or the teacher, generally do not challenge effort on the part of students. Figure 10 presents instruc- their peers, and do not provide constructive feedback tional indicators on fostering critical thinking and prob- to one another. There was some evidence that Zambian lem-solving in each country. Review of Teachers’ Instruction Techniques for the Development of 21st Century Skills 13 Figure 7 Good Basic Student and Teacher Behavior as well as Basic Classroom Environment Students Teachers 4 4 3 3 2 2 1 1 0 0 S. arrive to S. demonstrate S. track teacher, S. parocipate as T. provides T. provides T. connects T. asks open T. speaks to S. class prepared basic academic take notes directed variety of real world new concepts ended clearly and skills and listen learning examples of to prior questions succinctly acovioes concepts knowledge and learning Classroom 4 3 2 1 0 Electricity Books & other Class meets at Class length is materials for least 140 days 40–60 minutes instr. & learn. annually Botswana Lesotho Zambia Source: Authors, based on classroom observation data from NJCTL, 2017. While the setup of the classroom environment allows electricity, remain a challenge in many schools, particu- for the acquisition of basic learning it is insufficient to larly in Lesotho. facilitate the inculcation of 21 century skills. As illus- st trated in Figure 11, significant challenges were evident with regard to the learning environment, including a lack Recommendations on Instruction of Wi-Fi, and a general absence of appropriate technol- ogy, learning materials and resources for demonstration and experimentation, as well as reference materials. With Improving instruction is the most effective intervention the exception of Zambia, where some evidence of using for improving student learning. Instructional Analysis learning materials for experimentation and group work of data for SSA countries by Spaull (2007) suggests that was observed, scores for classroom environment indica- simple improvements in pedagogical practices can im- tors are relatively low. Basic resources, such as access to prove student learning in mathematics, equivalent to more Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 14 Figure 8 Figure 10 Teacher-Centered and not Student-Centered Instruction Problem Solving and Critical Thinking in Botswana, Lesotho, and Zambia At least 70% of instructional time devoted to student centered learning Reference materials (small group, for students problem solving, etc.) Resources for dem., T. lectures for manip., exper. < 5 minutes at a time S. manage instructional time T. reinforces correct and complete assignments responses and encourage S. to rethink S. persist in learning and prob. incorrect responses solving when “stuck” T. responds to S. multiple strategies S. questions with to solve problems questions T. encourages S. to use all available resources 0 1 2 3 4 to solve prob. T. praises efforts – Lesotho Botswana Zambia not just answers T. encourages S. to take risks and fail Source: Authors, based on classroom observation data from NJCTL, 2017. 0 1 2 3 4 Lesotho Botswana Zambia demanding interventions to raise the content knowledge Source: Authors, based on classroom observation data from NJCTL, 2017. of the weakest 10 percent of teachers to match that of the top 10 percent of teachers. Analysis of 86 impact evalua- tions of effective education interventions in SSA demon- strates that the effect of programs that improve teacher types of programs combined, or equivalent to approxi- pedagogy or classroom instructional techniques was ap- mately 60 percent more learning in one school year (a rule- proximately 0.30 standard deviations greater than all other of-thumb is that a student learns about 0.5 standard devi- ation by year). Limited evidence presented by Conn (2017) suggests that pedagogical programs that employ adaptive Figure 9 instruction, or teacher coaching, were particularly effective. Evidence of Teamwork Activities The effective development of 21st century skills requires Students seated in groups a change in the roles of students and teachers, and S. engage academic that instruction become more student centered with dialogue with other S. a greater focus on group work and activities. Teachers S. ask questions and seek support should move away from dispensing information, assum- S. think “out loud” ing authority, and being expert, in favor of improved during learning,... S. provide feedback monitoring, inquiry, and educational coaching. Students to other S. need to be discouraged from limiting their learning to S. challenge, debate peers and teacher passive listening, and received knowledge, and more S. take on varied responsibilities actively engage in discovery and making knowledge. At T. organizes S. into least 70 percent of instructional time should be devoted heterogeneous groups T. encourages to to student-centered learning premised on group work, solve group problems problem solving, and other activities. If students receive 0 1 2 3 4 feedback to reinforce correct responses and are encour- Lesotho Botswana Zambia aged to rethink incorrect responses, if they are asked to challenge and debate peers and teachers, ask questions Source: Authors, based on classroom observation data from NJCTL, 2017. and seek support through the learning process, students Review of Teachers’ Instruction Techniques for the Development of 21st Century Skills 15 Figure 11 • Collaborative Learning – students are organized Technology is not in the Classroom Yet in Botswana, into small groups and are given a task to complete Lesotho, and Zambia according to assigned roles (i.e. leader, note taker, reader, etc.); 4 • Easy Math Models – students utilize simple every- day objects like rocks, paper, water bottles, sticks to 3 provide three-dimensional models of mathematical concepts; 2 • Role Play – students act out historical events or fic- tional stories to develop language skills; and 1 • Consensus Building – students are organized into pairs or small groups and work to convince each oth- er of opposing opinions to open-ended questions. 0 Wi-Fi Technology Materials Resources Reference Students during for dem., materials seated small group manip. , for students in groups The Shanghai province school system, one of the top activities exper. performing systems in the world for the learning of math- Lesotho Botswana Zambia ematical skills demonstrates a similar approach to teach- ing and learning. The Progressive Mathematics Initiative – Source: Authors, based on classroom observation data from NJCTL, 2017. Progressive Science Initiative (PMI-PSI) developed by the New Jersey Center for Teaching and Learning (NJCTL) offers another example for teaching mathematics and will strengthen their critical thinking and communication science through the integration of 21st century skills. Box- skills. Students should be encouraged to take risks and es 6 and 7 present key success factors and principles for to fail in order to learn. It is recommended that schools classroom interaction in Shanghai and using the PMI-PSI begin by focusing on the following learning objectives: approach, respectively. • Graduates will listen and speak in a way that allows Collaborative Lesson Planning will allow teachers to for continual learning, evaluation and effective ver- grow professionally. It is recommended that each coun- bal communication in a variety of media; try initiate structures and processes that allow teachers • Graduates will work well in teams; and to collaboratively plan their lessons and learn from one • Graduates will demonstrate self-management. another. Specifically, it is recommended that Botswana, Lesotho, and Zambia: By increasing the amount of time devoted to student discussion in the classroom, having students collaborate • Provide teachers with a common lesson planning pro- in teams, and shifting the responsibility for learning to tocol so they can plan and structure learning in line students, teachers will significantly improve the acquisi- with the suggested teaching and learning strategies; tion of 21st century skills among their students. These • Provide a structure for teachers to work together in pedagogical shifts can be accomplished through relative- groups to plan lessons. Teaching should also be con- ly simple training focused on easy-to-implement teach- ceived as teamwork and with school-level research ing strategies, delivered through very short (1–2 minutes) on how their students learn most; videos and/or illustrated charts. Examples of 21st century • Provide supervisors with a protocol to visit class- teaching strategies include: rooms and coach teachers to effectively utilize new strategies for teaching and learning; and • Turn and Talk – the teacher asks a question and has • Adopt a simple mantra for teachers to support new pairs of students turn and talk to each other about teaching strategies, such as “Never talk for more the responses; than five minutes.” Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 16 Box 6. Shanghai Key Success Factors The results of the last international PISA tests indicate that Shanghai is one of the top performing education systems in the world. The key educational factors underlying its success are: (i) teaching and learning philosophy; (ii) teachers’ subject knowledge; (iii) curricular organization; (iv) textbooks, teacher guides, and practice books; (v) pedagogical practices; and (vi) teacher policies including teaching and group research. The pedagogy in Shanghai is based on: (i) structured lesson plans: a review of previous lesson, the introduction of new knowledge points, modelling of problems, student practice, and homework; (ii) multiple approaches for analyzing and teaching each knowledge point; (iii) practice and drill to memorize basics; (iv) taking small steps to solve a complex problem; (v) ongoing classroom assessment; and (vi) homework and involving parents. With regards to classroom interactions: • Teachers are encouraged to: (i) ask questions, elicit and listen to answers, (ii) use discovery strategies, and (iii) provide interpretation and feedback. • Students are discouraged from: (i) being left to explore entirely on their own, and (ii) being passive in the learning environment. Good practices include: answering questions in class, exploring, and actively collab- orating with peers. Source: How Shanghai Does It, World Bank (2016); MS4SSA conference. These simple steps can be implemented relatively quick- to teacher training, even in rich countries. However, the ly, allowing for change to begin while the countries ex- report found suggestive evidence that in-service teacher plore ways to improve the provision of electricity, Wi-Fi training programs in high-income countries have been and other inputs, and to commence restructuring of the most effective at improving student learning in contexts curriculum and methods of instruction. where training programs: To more effectively achieve improvements in class- • Are effectively embedded in the curriculum and room instruction, governments should design compli- linked to the subject matter, be it language or math; mentary and effective, large-scale teacher in-service • Prescribe a specific teaching method with detailed training. Many in-service training programs have been instructions for implementation; implemented. Some of these programs demonstrate • Include significant and sustained in-person follow-up significant impact and cost-effectiveness, while many support for teachers, as opposed to one-off training demonstrate little impact, and high costs. Popova, Evans, sessions; and and Arancibia (2016) report Training of Teachers on the • Involve teachers in a co-learning model, to pro- Job: What Works, found that there is limited and insuf- mote interaction and collaboration among teachers. ficiently rigorous evidence to draw detailed conclusions Teacher training should be active learning, just like about what works and what does not work with regard student learning. Review of Teachers’ Instruction Techniques for the Development of 21st Century Skills 17 Box 7. Progressive Mathematics Initiative-Progressive Science Initiative (PMI-PSI) PMI) developed by the New Jer- The Progressive Science Initiative and Progressive Mathematics Initiative (PSI-­ sey Center of Teaching and Learning (NJCTL) consists of open source digital materials that teachers can download and use to support teaching in mathematics and science. All course content includes instructional materials and assessments, and is aligned with either Advanced Placement (AP) science exams (in physics, chemistry, or biology) or the US Common Core State Standards. PMI and PSI instruction is characterized by 5–10 minutes of group discussion and problem solving. This method of instruc- direct instruction followed by a period of small-­ tion is based on the theory that individuals construct knowledge through group interaction. Instruction is further characterized by the use of technology such as whiteboards and polling devices that allow content to be shared time formative assessment as across classrooms, to allow for increased collaboration between students, and real-­ content is delivered. Source: New Jersey Center of Teaching and Learning (NJCTL). Does the Structure of Curriculum and Assessment Foster 21st Century Skills? Review of Curriculum and Assessment at Junior and Senior Secondary Levels 3 In all three countries, there is evidence of the successful evidence for the development of problem-solving skills, development of foundational academic skills, particular- but this does not include decision-making or the ability ly in Botswana. Curriculum (and assessment) in all three to specify goals and constraints, generate alternatives, countries are structured to allow students to develop consider risks, and evaluate and choose best alternatives. competencies in reading and, to a lesser extent, writing. There is no evidence that students are encouraged to gen- However, there was no evidence of explicit instruction in erate new ideas by using their imagination freely, to plan the skills necessary for literacy in science disciplines. Stu- and organize events, to take responsibility, or to set goals. dents need to be directly taught how to read and write in The curricula reviewed do not expect students to learn scientific and mathematical contexts. There should be a how to choose among technologies nor use technology greater emphasis on developing language and vocabu- to identify or to solve problems. Technology allows teach- lary to support mathematics and science education in the ers to efficiently link the curriculum and assessment results English curriculum. One area that illustrates this point is to classroom practices. It provides access to and utiliza- “infer or locate the meaning of unknown or technical vo- tion of open education resources and materials, which cabulary.” Botswana’s curriculum and assessment meth- can facilitate collaborative learning and allow teachers to odology require evidence that students are able to listen monitor students and do continuous formative learning and speak in a way that allows for continual learning, eval- assessment. For example, the utilization of polling devices uation and effective verbal communication in a variety of in the classroom helps teachers record instantly wrong and mediums. This is not evident in Lesotho and Zambia. right answers from each student allowing them to provide individualized assistance to each student. Lastly, there is Curricula in Lesotho, Zambia and Botswana present little no mention in the curriculum of activities to strengthen evidence of interdisciplinary problem solving, teamwork, teamwork. The average scores for these nine indicators initiative/entrepreneurship, self-management, learning, constituting the 21st century assessment of the curriculum and technology. In Botswana and Lesotho, there is some and assessment packages are collated in Figure 12. Box 8. Curriculum and Assessment A review of all available curricula and assessment materials in Botswana, Lesotho and Zambia was undertaken. The stated learning objectives of secondary education curricula and the skills to be assessed were compared against the list of 21st century skills. A qualitative evaluation of whether the development of 21st century skills was included as a learning objective was included in the review of curricula. A similar qualitative evaluation was applied to assessment packages to assess the extent to which the assessments evaluated a student’s demonstra- tion of 21st century skills. The Scores range from a 1 (not evident) to 4 (extremely evident) for each skill. 19 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 20 Figure 12 Average Score of Curriculum and Assessment Indicators for the Three Countries 4.0 3.5 3.0 2.5 2.0 1.5 1.0 0.5 0 Reading Writing Listening/ Problem Teamwork Initiative/ Self-Management Learning Technology Speaking Solving Entrepreneurship Lesotho Botswana Zambia Source: Authors, based on classroom observation data from NJCTL, 2017. Curriculum overloaded or outdated, and that it is relevant to the needs of the contemporary economy and the next 10–15 years; All three countries are reforming curricula to inte- • An appropriately balanced allocation of time to dif- grate a focus on competencies. Initiatives associated ferent subjects reflecting the subject’s function in the with these reforms should be encouraged and accel- Secondary Curriculum, as well as its relation to per- erated. Cognizant of weaknesses in their curricula, all sonal and national development; and three countries have commenced curricula reform. For • A Secondary Curriculum that incorporates an appro- example, Lesotho completed the rollout of a new cur- priate balance between the various competing re- riculum for primary education in 2016, and commenced quirements of any general education curriculum (i.e. the piloting of the new integrated curriculum for junior balanced core, elective, time, content, personal and secondary education in 2017. The following should con- national development needs, personal strengths stitute the foundational principles for curricula reform for and aspirations, and relevance for the present and secondary education: the future). • Core Skills and 21st Century Skills, developed Many countries incorporate Project-Based Learning as through a core program for all learners; part of their curriculum to strengthen the core curriculum • In later stages, students should have considerable and to more effectively develop 21st century skills. Box 9 choice in subjects to accommodate their strengths articulates the principles of Project-Based Learning. and aspirations and to open up relevant and accessi- ble Learning Pathways; • The provision of a range of subjects that is respon- Assessment sive to both personal development and national (economic) development needs; • A frank and fair re-conceptualization of existing sub- It is often stated that ‘assessment is the tail that wags jects and syllabi, to ensure that the curriculum is not the dog.’ Interventions that focus solely on curriculum Does the Structure of Curriculum and Assessment Foster 21st Century Skills? 21 Box 9. Project-Based Learning Based Learning (PBL) is a pedagogical approach that focuses on: (i) student learning of academic con- Project-­ management. PBL has shown to tent, (ii) critical thinking and problem solving, (iii) collaboration, and (iv) self-­ improve student learning, and has key features that are present on a continuum, depending on the context and traditional approaches towards purpose of the project. PBL also requires teachers and students to take non-­ working collaboratively. PBL projects require students to apply knowledge to address authentic problems, work productively with other people, learn about new topics independently, communicate effectively in written, oral, and visual forms, and deliver meaningful results. The essential elements of PBL are: • Key Knowledge, Understanding, and Skills—knowing what you want students to acquire; • Challenging Problem or Question—the core of the project: engage without intimidation (creates a real need to know something); • Sustained Inquiry—An extended process of asking questions, finding resources, and applying information; • world context, tasks and tools, quality standards, or impact; Authenticity—Real-­ • Student Voice & Choice—Students make decisions, including how they work and what they create; • Reflection—Students reflect on learning, the effectiveness of their inquiry, the quality of their work, and obstacles; • Critique & Revision—Students receive and use feedback to improve their process and products (formative evaluation); and • Public Product—Students make their projects work public by explaining, displaying and/or presenting it beyond the classroom. Source: Worcester Polytechnic Institute. and pedagogy, in the absence of an effective assess- evaluate skills and competencies that cannot be accu- ment mechanism, will not be sufficient to effectively de- rately assessed through national examinations. velop 21 century skills. st Skills and competencies can be measured through Current methods of secondary educational assessment School-Based Assessment. Classroom activity should in the three countries under review rely almost exclu- be characterized by learning that is rich and wide-rang- sively on national examinations. Teachers, in general, ing and aligned with the curriculum, which should act as do not utilize formative assessment techniques to con- a guide. Assessment should seek to evaluate the extent tinuously assess student learning and understanding. An to which learners are indeed acquiring all aspects of this almost exclusive focus on pass-rates significantly under- rich and broad learning. In a competency-oriented curric- mines the development of skills and competencies by ulum the richness of the learning lies in the fact that the reducing the practice of teaching to drilling rote-learning goal is to support all learners in acquiring certain compe- of standard examinable knowledge. At present, national tencies, as defined in the curriculum documentation (the examinations often take on an extraordinary important subject syllabi). Formative assessment is used by teachers role and dictate what happens in schools. However, these to improve teaching, and by students to improve learning. examinations only measure part of what learners need Assessment should help students identify their strengths to effectively navigate the labor market, and neglect to and weaknesses, and target areas that require additional Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 22 Box 10. Shanghai Student Assessment System In Shanghai, assessment systems are composed of three main types of assessment activities: 1. Classroom assessments (continuous or formative assessments) are carried out as part of daily classroom activities and encompasses homework assignments 2. Examinations punctuate students’ progression through the education system (end of junior secondary that also serves as entrance exams to senior secondary and end of senior secondary (which also counts for col- lege entrance exam). scale assessment (and international smaller-­ 3. National large-­ scale assessment) Source: Liang, et al. (2016) work. All three countries under review are in the process implemented to support improved student compe- of reforming their assessment systems in tandem with cur- tencies and skills development. Such a framework ricula reform. In Lesotho, for example, a national learning should convene all key stakeholders to design a na- assessment mechanism for junior secondary education is tional assessment system that appropriately reflects in the process of being prepared, while commencing in the learning goals of the new competency-oriented 2017, the high-stakes national examination administered curriculum, and provide all three countries with an ap- at the end of primary education has been replaced by a propriate and transparent assessment regime aligned system for continuous classroom based assessment. with a syllabi and teaching practices that more ef- fectively ensure job-readiness. Box 10 details an ex- An assessment framework should be produced to ample of effective student assessment system from guide new forms of assessment to be developed and Shanghai. A Structure that Incorporates Multiple Pathways for Senior Secondary Education Will Best Develop Job-Ready Graduates 4 This section of the report examines the structure of sec- (ii) integrating vocational education into the general ed- ondary education in Botswana, Lesotho, and Zambia, ucation system so that vocational graduates are able to and is intended to complement the instructional analysis continue professional studies at the tertiary level; and from Section 2 and the review of curricula and assessment (iii) maintaining a strong focus on the development of tools in Section 3. The purpose of analyzing the structure 21st century skills, including the development of rigorous of secondary education is primarily to examine the op- academic skills in the vocational pathway. portunities available to learners for acquiring job-relevant technical skills through secondary education. This links to The current structure of secondary education in Bo- Section 1’s analysis of the labor market, which found that tswana and Lesotho does not provide students with employers demand technical skills. These skills appear sufficient opportunities to develop technical and voca- to be associated with a quicker transition from school tional skills. All three countries have different structures to employment. This section summarizes three detailed for secondary education. Zambia recently introduced a case-studies from Kuiper (2017) on the structure and as- vocational and academic educational track in junior and sessment of senior secondary education in each of the senior secondary schools. Botswana and Lesotho cur- three countries. The case-studies describe how Botswa- rently have only an academic track for junior secondary, na and Lesotho operate a one-size-fits-all structure, with and a comprehensive track for senior secondary educa- a predominant emphasis on the formation of academic tion. The comprehensive senior secondary curriculum in- skills and the preparation of secondary learners for uni- cludes some mandatory vocational courses such as wood versity studies. Zambia recently has introduced a voca- work and home economics, but these are not generally tional pathway in both junior and secondary education. relevant for the contemporary labor market and the skills This report endorses the multiple pathway model as a are not certified. more effective structure allowing students to build tech- nical skills and offer varied opportunities to students in The current one-size-fits-all structure of secondary ed- secondary education. This system not only facilitates a ucation in Botswana and Lesotho no longer serves the quicker transition between schooling and employment, purpose for which it was established. One-size-fits-all but also serves to reduce the wasting of student time systems of secondary education were developed in a and government resources through a student having context in which secondary education was an elite en- to perform sub-optimally, or fail in academic education terprise designed to prepare graduates for university before embarking on a vocational qualification, and the education, and work in the public sector. These forms of preparation of students for tertiary education when only secondary educations are poorly aligned with the con- a sub-set of graduates enter that sector. By offering com- temporary economy and society for the following four bined vocational and academic educational pathways, reasons: governments should consider: (i) modernizing vocation- al programs to more effectively target the development i. The main purpose of senior secondary education of skills demanded by growth sectors of the economy; has been the academic preparation of students to 23 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 24 pursue tertiary education, regardless of their capaci- systemic failure. It is important that the system rec- ty or willingness. The reality is that only a minority of ognizes that students are different, have different secondary graduates continue to tertiary education. interests, and learn in different ways. Therefore, the Gross enrollment rates of secondary education in structure needs to offer flexibility to become more Botswana, Lesotho, and Zambia are 86 percent, 53 inclusive through the accommodation of the varied percent, and 44 percent, respectively. Poor academic needs of different learners. performance, financial constraints and limited space iv. An enlarged secondary education for all needs to at tertiary institutions, significantly constrain the tran- take into account gender differences to be inclusive, sition of secondary graduates to tertiary education. see Box 11. Tertiary gross enrollment rates in Botswana, Leso- tho, and Zambia are 27 percent, 10 percent and 4 There is a growing consensus across Botswana, Leso- percent, respectively. Therefore, at a maximum (Bo- tho, and Zambia on the need to change the structure tswana), one in four secondary education graduates of secondary education. In all three countries, sector will continue to tertiary studies, and for more than plans and vision statements include the need to further three-quarters of students, secondary education will develop the competencies of learners in secondary edu- be their highest level of educational attainment be- cation, and expand the conceptualization of secondary fore transitioning to the job-market. The provision of education beyond a close focus on knowledge. More- vocational skills as part of secondary school to stu- over, all three countries plan to expand their systems of dents exiting the education system would assist stu- secondary education to accommodate growing cohorts dents as they transition from school to employment. of youth. As such, these countries are part of a broader ii. The contemporary economy demands higher and regional initiative to fundamentally address curricula and broader competencies, and less factual knowledge. structure change in the Southern Africa Region. Most Globally, countries are converging towards a com- countries have realized that secondary education cannot mon understanding that secondary education must be limited to a set of classic subjects. Like other regions, offer breadth and variation in terms of skills acqui- Southern Africa is trying to address this challenge by, for sition and learning experience to more effectively example, introducing and developing more competen- address economic need (Cambridge 2015). Due to cy-based curricula for secondary schools. the mega-trends discussed in Box 3, a larger share of occupations now requires at least secondary educa- The structural of secondary education systems in the tion, including a range of service sector occupations three studied countries has institutionalized several and trades such as mechanics and technicians. shortcomings in the formal secondary education sys- iii. The varied interests and prior learning of large co- tem, while concurrently weakening paths for vocational horts entering senior secondary education makes training. the achievement of one set of common learning standards difficult to achieve. Some students have Poor integration of vocational training programs into lost interest, or have not acquired the necessary secondary education has led to substantial system inef- foundational competencies necessary to effectively ficiencies and waste. By limiting the learners’ choices in understand advanced courses. Students from com- secondary education, the current system wastes crucial paratively wealthy backgrounds, who often attend years of learning for young people, leading to less pro- better schools, will differ tremendously from less for- ductive and prosperous working lives, and sub-optimal tunate and ill prepared students. This is reflected, in national economic outcomes. In Botswana, for example, part, by stagnating (Zambia) and declining (Botswa- students have to ‘fail’ (not pass) Form 5 (equivalent to na) examination pass rates for academic competen- Grade 12) before they are allowed to enter formal or cies in secondary education over the past ten years. semi-formal (often with unrecognized qualifications) Poor learning achievement is not representative TVET programs. These programs return the student to of student failure, but more accurately represents the equivalent of Junior or Senior secondary education A Structure that Incorporates Multiple Pathways for Senior Secondary Education Will Best Develop Job-Ready Graduates 25 Box 11. A Gender Lens on Instruction, Curriculum, and Structure size-­ The failure of a one-­ all approach to secondary education equally applies to gender. There are at least two fits-­ outcomes where there are important gender differences: i. represented in secondary education in Botswana and Lesotho. In Botswana and Lesotho in Boys are under-­ 2015, girls’ enrollment in secondary education exceeded enrollment of boys by eight and 15 percent, respec- tively. In Zambia, girls’ enrollment is 5 percent lower than that of boys, but the gap is closing. As in the rest of the world, the number of girls in secondary education in Zambia is also likely to exceed that of boys in due time. Interviews with teachers and head teachers in the three countries suggest that the instruction methods and school culture do not allow for inclusion of boys with lots of energy. Therefore, some boys disconnect in class, can become distractions for others’ learning, learn little, stay away, and do not complete primary or secondary school. ii. Girls are more likely to drop out more than boys due to early marriage and teen pregnancies. In Zambia in 2015, girls’ dropout rate for secondary education was almost four times higher than boys. The main reason is early marriage and teen pregnancy. In Botswana in 2012, a girl was 40 percent more likely to drop out. The difference is uniquely explained by pregnancy, which is the biggest factor for female drop out and accounts for 45 percent of drop out. The instruction methods, perhaps curricula, as well as school structure, culture, size-all school cannot accommodate satisfactorily the range of individ- and rules need to reflect that a one-­ ual differences. It is important that instruction, school rules, and culture allow for the two important gender representation of boys and high drop out rates among girls. differences without leading to such large under-­ For more see World Bank (2015) “Adolescent Girls in Zambia” and World Bank (2016) “Education Sector Public Expenditure Tracking and Service Delivery Survey in Zambia.” levels, effectively deeming a sub-set of their previous ed- trends in this regard. Many vocational training programs ucation irrelevant (Kuiper 2015; Kuiper 2017). in secondary schools and TVET institutions continue to provide training for skills unaligned with the needs of the The poor integration of TVET into secondary systems contemporary job market, having been rendered obso- of education results in low levels enrollment in these lete or near obsolete due to technological advances. programs. Botswana, Lesotho, and Zambia, all offer vo- Box 12 provides an example of challenges of the TVET cational training programs for school leavers of second- system in Lesotho. ary education. However, these forms of formal or infor- mal TVET are outside of traditional secondary schools and do not lead to secondary education diplomas. As Recommendations for reform of the a consequence, these educational paths are effectively structure of Secondary Education terminal in the education system, and graduates are un- able to progress further in the educational system. En- rollment in vocational tracks in secondary education in The traditional structure of secondary education no the countries under review is very low accounting for just longer serves the needs of the contemporary economy. eight and five percent of secondary school enrollment Reform requires the development of multiple pathways in Botswana and Lesotho, respectively, well below the for senior secondary education (in the case of Botswa- average of 10 percent for East Asia, 15 percent for Latin na and Lesotho) and strengthening of the new educa- America, and 25 percent for Europe and Central Asia. tional pathways (in the case of Zambia). If the education Figure 13 provides more detail on global and regional systems in the three countries under review had been Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 26 Figure 13 Zambia’s multiple pathway model for senior secondary education Senior Secondary School Curriculum Academic Career Pathway Vocational Career Pathway Natural Business Social Performing & Technology Agriculture PE & Sport HE & Sciences Studies Sciences Creative Art Hospitality Source: Zambia Education Curriculum Framework, MoGE 2013. reformed and capacitated to offer more diverse learn- secondary education level, students are given oppor- ing opportunities for youth in secondary education, a tunities to choose between academic and vocational different outcome and impact could be imagined. The pathways based on their career ambitions. The academ- multiple-pathway approach suggests that, at the senior ic pathway will service the needs of those who plan to Box 12. Lesotho TVET Key Issues TVET institutions: there are 93 Secondary Technical schools which offer basic education in, among others, Metal and Woodwork, Home Economics, and Agriculture; 17 Skills Training Centres which offer Lower Basic Education to disadvantaged groups such as retrenched mineworkers and school leavers; as well as 29 Vocational and Technical secondary school leavers, five of which offer mostly post-Cambridge Overseas Institutes aimed at junior-­and senior-­ 7 and post-ju- Schooling Certificate programs, with some junior secondary courses, while others offer post standard-­ nior secondary courses. These institutions are owned by multiple stakeholders: 46 percent by private providers, 24 percent by community and 22 percent by churches, and eight percent by the government. The total enrollment at registered TVET institutions was 4,223 students in 2014 with predominance of female (54 percent). TVET institutions are present only in seven districts but most of students are in Maseru (45 percent), Leribe (20 percent), and Mohale’s Hoek (18 percent). There are 49 TVET programs across these institutions. The largest is for carpentry and joinery at 18.9 percent, followed by Bricklaying and Plastering at 15 percent and then Sewing and Tailoring at 13.2 percent. Key challenges: (i) the mismatch between the skills demands of the Lesotho economy and the skills being pro- duced by the TVET system is exacerbated by the absence of a structured participation of other government min- istries and the private sector in the planning and governance of TVET. In addition, very limited data availability on key aspects makes deeper analysis and planning difficult. It is not possible to determine quantitatively specific skill demands per industry sector, disaggregated into job types for example; (ii) the demand for student places significantly exceeds institutional capacity and the National Qualification Framework remains a work in progress and does not yet provide meaningful learning pathways for TVET, (iii) the TVET systemic management structure resourced and is responsible for several functions making governance and oversight assured by the TVD is under-­ of the TVET sector compromised; (iv) total government funding for TVET is fragmented across multiple Ministries, with no structured mechanisms in place to coordinate or prioritize spending, and is too low to achieve desired outcomes. In addition, TVET institutions are underfunded to deliver skilled graduates. Source: Butcher, N. A Structure that Incorporates Multiple Pathways for Senior Secondary Education Will Best Develop Job-Ready Graduates 27 Figure 14 Enrollment in Secondary TVET by Regions and African Countries (%) Angola Europe & Central Asia Cameroon Congo, Dem. Rep. Rwanda Mali Tanzania Mauritius Latin America Congo, Rep. & Caribbean Gambia, The Niger Ethiopia São Tomé and Príncipe Liberia Burundi East Asia & Caribbean Equatorial Guinea Botswana South Africa Togo Mozambique Senegal Middle East & Uganda North Africa Seychelles Guinea Lesotho Burkina Faso Central African Republic Cabo Verde Sub-Saharan Africa Benin Madagascar Ghana Guinea-Bissau Chad Sudan South Asia Mauritania Eritrea 0 5 10 20 25 Comoros Kenya % enrollment TVET secondary Swaziland Circa 2000 Circa 2014 0 5 10 20 25 Source: World Bank (Forthcoming), based on UNESCO UIS database. continue their education at the tertiary level. The vo- meet the requirements for entry to tertiary education (in cational pathway will help those who plan to enter the the case of the academic career pathway) or vocation- labor force and find a job following the completion of al training to qualify a graduate for entry to a particular their secondary education. Both pathways will provide occupation or profession. Both pathways will share a set students with competencies and skills they require for of common core curriculum centered on the provision of their career. The respective curriculum will consist of two the foundational knowledge and cognitive/non-cognitive components: one that provides foundational knowledge, skills demanded by the labor market. However, multiple and one that provides either further academic studies to educational pathways can also be introduced too early Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 28 in an education system. The structure in most countries, pilot schools) wherein students can opt to be examined following the consensus of the education community, in their TVET subjects, and then obtain a formal Skills does not offer vocational tracks for students enrolled in Certification via tests administered in addition to their junior secondary education. This sub-cycle of the educa- traditional school certificate. This testing includes site tion system should focus on providing every child/youth visits to all pilot schools and the testing of individual a solid base of foundational knowledge for their future students (including practical skills) by the national TVET growth and development. Then, at the senior secondary authority (TVETA) which has long-standing expertise in level, multiple educational pathways that include options performing competency-based trade-testing. with vocational education should be offered to students. There is an urgent need to modernize TVET, including The successful implementation of multiple pathways for the updating of TVET subjects to more effectively align senior secondary education requires political will and them with labor market needs, employment demands, corresponding changes in curriculum, pedagogy, prac- and industry standards. There is a contingent critical tice, and assessment. All three countries under review need to strengthen the link between government initiat- are considering the concept of multiple pathways as de- ed stimulus and support for sectors of the economy and tailed in the country reports attached to this report. For relevant and responsive curriculum design, incentives for Botswana and Lesotho, it is critical to finalize their draft apprenticeships, and partnerships between TVET provid- multiple pathway models, and a focused effort should ers and industry. target the key elements of multiple pathways such as the balance between core and elective subjects, assessment Importantly, to ensure the successful introduction of requirements, alignment with the existing qualification multiple pathways in senior secondary education, public frameworks, etc. It is equally important to ensure that all campaigns must address the poor public perception of stakeholders to the system, including the Qualifications TVET in all three countries. TVET-related study is gener- Authority, the Examination Council, the TVET Authority, ally considered to be an option limited to academically and TVET Institutions, buy in to proposed reforms. Zam- weak students in all three countries. Young people, like bia should focus on scaling-up its TVET track in senior their parents and teachers, hold strong beliefs that they secondary education as an integral component of initia- should aim for white-collar jobs premised on academic tives to improve access to secondary education and skills qualifications (even when statistics show that only 10 to development for young people. Because practical skills 15 percent of youth obtain the qualifications required to are in high demand in today’s job market, the incorpora- access such jobs). A public campaign using evidence on tion of opportunities for internships or apprenticeships labor market demand and outcomes should be carried in TVET programs should be further developed. Zambia out to address public misperception regarding TVET and has launched a new initiative (with a limited number of related job prospects. Main Findings and Recommendations 5 Education remains a sound investment for governments • We recommend that governments consider work- and individuals. However, a problem has arisen: 450,000 ing with teachers and school directors to initiate secondary school graduates in Botswana, Lesotho, and a national debate on teaching style, followed by Zambia are currently unemployed or economically inac- a teacher in-service training program to improve tive. A key reason articulated by employers, is that con- instructional practice and encourage more active, temporary forms of secondary education do not sufficient- collaborative, and exploratory learning on the part ly prepare graduates of secondary education with the 21st of students. In particular: century skills (cognitive and socio-emotional) and voca- • At least 70 percent of classroom time should be tional skills demanded in a 21st century economy. used for student-student discussions and oth- er active student learning activities; and keep • The report calls for a reform process of instruction, teacher talk to no more than five minutes. curriculum, assessment, and structure of secondary • The role of the teacher must change to be a pos- education. It could be a national education move- itive learning mentor and not dispensing infor- ment led by teachers and principals to more effec- mation or assuming authority. tively develop entrepreneurial graduates who think • Provide more coaching to teachers through critically, proactively solve problems, work in teams, classroom observations by supervisors and and demonstrate strong reading, writing, and math peers. Encourage teacher-to-teacher collab- skills. This could be supported by investments and oration to jointly elaborate lesson plans and policies that train teachers in student-centric teach- collegial discussion and feedback on teaching ing that develops these 21 century skills, as well st excellence. as an introduction of school-based assessments to • Change the layout of classrooms to facilitate complement national exams. group work and invest as funding permits in electricity and computer-assisted learning. The findings from classroom observations indicate that instruction in the classroom is teacher centric, with little Our analysis of the curricula and assessment of student evidence of student collaborative and active learning. learning indicates a focus on the acquisition of tradition- The general absence of group work and collaborative al foundational skills such as reading, writing and math, learning undermines the development of skills associ- while an emphasis on the development of thinking skills, ated with teamwork. Similarly, there was little evidence problem solving, teamwork, initiative/entrepreneurship, of the use of problem- and project-based assignments. self-management, self-guided learning, and technology It is of little surprise then that the graduates reach the are secondary learning objectives, or are entirely missing. labor market with few skills (and experience) related to We find that all countries have made substantial progress group work, pro-active problem-identification and prob- in preparing a competency-based curriculum, in particu- lem-solution, entrepreneurship and self-management, lar Botswana. However, graduates in all three countries and communication. are almost exclusively tested through a written national 29 Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 30 assessment of standard examinable knowledge. This education, while Zambia recently has piloted a new path- form of assessment incentivizes teachers and students to way in secondary education that introduces a vocational reduce classroom activities to rote learning of standard qualification. In light of the fact that only a small percent- examinable knowledge. age of secondary graduates in these countries typically proceed to university education, the emphasis on aca- • We recommend all the countries accelerate the demic skills in secondary education is poorly aligned with implementation of competency-based curriculum the needs of the majority of students and the economy. that fully specify 21st century skills as learning ob- The majority of students require skills and work experi- jectives, including self-management, entrepreneur- ence to more effectively facilitate employment. ship, team-work and problem solving. In turn, the curriculum should de-emphasize rote memorization • This report strongly supports the education strategies of knowledge. of the governments of Botswana, Lesotho, and Zam- • Project and group learning should be a theme bia to introduce or scale-up the combined vocational cutting across subjects. and academic pathway in secondary education. We • Rethink the combination and weight of subjects recommend that a combined pathway provide a rigor- to focus on sufficient time for core subjects and ous academic foundation to facilitate tertiary studies, if review relevance of each subject for today’s the student so desires, while concurrently developing world and for the future. certified technical skills and presenting opportunities • Implement a national orientation program of for students to accrue job training through internships. curriculum reform with substantial parental and Systemic reforms to secondary education should be student awareness as well as teacher training to implemented in tandem with investments in vocational avoid a drop in student learning and pass rates. and technical education, including the modernization • We recommend that the countries complement the of outdated programs, such as woodwork, and the in- national written exams with an element of school- troduction of new programs aligned with growth sec- based assessments of skills and competencies. In- tors of the economy, such as ICT and tourism. struction, curriculum, and assessment must all be aligned and focused on the development and ac- The following pages tailor these policy recommenda- quisition of 21st century skills. If the assessments are tions to the context of each country that has taken part in not changed, the students and teacher are unlikely the study (Botswana, Lesotho, and Zambia). to focus on these broader 21st century skills. Notably: • Project and group-based assessments should be part of the school based assessments. Grades Botswana specific recommendations of such assessments should count towards graduation. • Pilot school-based assessment, which could in- Launch a large-scale in-service teacher training and sup- clude classroom oral communication and par- port program to make teaching student-centric. The ticipation as well as presentation, planning, and following recommendations can be considered: (i) Sub- team-skills. Substantial teacher training and pa- stantially revive the in-service teacher support program as rental information is important to understand the part of the implementation of a competency-based cur- need for a shift from high-stakes written exams of riculum. It appears that the current program, INSET, is not knowledge and be consistent and fair evaluation. sufficiently coordinated, funded, and managed; (ii) Work with school inspectors, regional offices and school princi- Regarding the structure of secondary education, we find pals to conduct classroom observations using a standard- that Botswana and Lesotho offer a one-size-fits-all model ized protocol aligned to the training and curriculum, with of secondary education with a strong focus on the devel- constructive feedback to the teachers and reporting of opment of academic skills and preparation for university findings. The training could also be informed by analytical Main Findings and Recommendations 31 reports from the Botswana Examinations Council on short- Introducing the planned professional education pathway comings among learners observed in the examinations; in senior secondary education. Thus, the school system (iii) Assign a reform-responsible staff in each school to would offer an option between academically oriented guide teachers, parents, and students in the changes, senior secondary stream and a professional labor market thus creating school-based change-agents; (iv) Fund oriented senior secondary stream. Both pathways should school-led projects to transform teaching to be com- lead to a qualification that is accepted for further studies pentency-based and student centric, possibly through a at the tertiary level. For this to rapidly take place, the gov- competitive fund available to school proposals. Schools ernment could: (i) develop the qualification, competen- could be encouraged to form teacher research groups or cies, and assessment framework for the new combined experiment with using new teaching approaches aimed at academic and vocational pathway; (ii) undertake labor particular challenges, for example lower learning among market analysis to propose concrete professions in ex- boys. This would also be a step towards increased decen- panding sectors, such as tourism, water and energy and tralization and school autonomy foreseen in the Educa- livestock; and maintain strong linkages with the private tion and Training Strategic Sector Plan; (v) coordinate with employers for curriculum development and internships. pre-service education through the University of Botswana The professional partners would provide learners with re- which is the leading institution educating teacher trainers al-life working experience through internships. The Hu- and setting the pre-service teacher training curriculum. man Resource Development Council could assist in this analysis and coordination; (iii) work closely with the Min- Substantially accelerate the preparation, approval and istry of Labor and Skills Development and the Ministry of implementation of the competency-based curriculum, Tertiary Education given their role in vocational education; and include school-based elements into the assess- (iv) invest in workshop instruction and practical learning ments. Botswana is on the right way by the draft National material to ensure quality vocational education of the new Curriculum Assessment Framework and the Sector Plan. professional qualification which is critical to overcome a However, progress is slow. The reform of the curriculum stigma of vocational education. The design of the model of senior secondary education should include: (i) an in- of the professional/technical senior secondary education crease in the share of instructional hours devoted to core pathway should have both academic credits that lead to a subjects (English, Sestwana, Math, and Science) and an similar qualification as the comprehensive senior second- reduction of the share of less relevant subjects, such as ary (BGCSE) and have technical credits leading to TVET wood and metal work; (ii) a phasing-in of the new curric- qualifications such as the trade test A or the BTEP foun- ulum, possibly by subjects with core-subjects being im- dation qualification. This would seek the dual purpose plemented first; (iii) an increase in contact hours possibly of linking up to existing qualifications and assessments through a reduction in the use of monthly or bi-monthly thus integration into the NQF and have progression in the school-level mock exams whether the students are drilled technical post-secondary education. For this pathway to in examinable knowledge; (iv) an investment of substan- be successfully implemented, MoBE should consider car- tial funding in communicating to the general public and rying out minor rehabilitation of classrooms, upgrading discussing with teachers and education officials the goals labs to the new professional learning areas—including of the competency-curriculum to lay the foundation for procuring learning equipment and materials needed. a mindset change towards competencies, not passive reproduction of knowledge. Further, an Assessment Framework should be produced to guide the new forms Lesotho specific recommendations of assessments that will need to be implemented to sup- port the development of competencies. This requires co- ordination between the Ministry of Basic Education (De- Strengthen pedagogy through effective in-service partment of Curriculum Development and Evaluation) teacher training. Lesotho has developed and has started and the Botswana Examinations Council. International the implementation of its curriculum and assessment pol- technical assistance could also be considered. icy. The reform of curriculum and assessment at primary Job-Ready Graduates of Secondary Education in Botswana, Lesotho and Zambia 32 education is completed and the country is phasing out on the sustainable approach of providing electricity to the end of the primary exam, which has been replaced schools. In addition, regular teacher training in pedagogy by school based continuous assessment. The reform of can be integrated into the training on the new curriculum the curriculum and assessment at secondary is being pi- and assessment. This requires changes at classroom level loted for 2017 for grade 8 and the rollout is expected to starting now to ensure that students are equipped with be completed in 2020. Primary teachers and Grade 8 sec- the in-demand employability skills. ondary teachers have been trained on the new curriculum and assessment. One shot of teacher training is not suf- While reforming the structure of secondary education ficient to improve teacher content knowledge and class- and the TVET system, MoET has to make sure that all room practices. The country is now experimenting a new students complete basic education before going to a approach of teaching mathematics and science using the specialized system. Without strong basic knowledge and Progressive Mathematics Initiatives and the Progressive skills that should be gained from basic education, youth Science Initiative (PMI-PSI). Teachers are trained three are not well equipped to efficiently embrace more spe- times a year during school breaks not only on subject cialized streams. This means that focus should be on core content as it is taught to students but also on pedagogy curriculum at junior secondary and elective curriculum focusing on 21st century skills. The classroom observations should be introduced as first steps to more technical and/ showed that classroom practices do not foster 21 cen- st or vocational pathways. It also means that the core curric- tury skills and employability skills in general for the three ulum of TVET at senior secondary level (including mathe- countries. However, for Lesotho, the situation is more matics, science, and languages) should be strengthened challenging as many schools are still not equipped with and instruction reforms should be also implemented in basic infrastructure such as electricity making general- TVET. In doing so, TVET will be more relevant, will ef- ization of new technology difficult. As the country moves fectively contribute to meeting the key socio-economic forward with the development of the Lesotho model of needs of the country, and will not be considered as sec- teaching and learning mathematics and science to be im- ond chance system for failing students. Additional key plemented in 2021, it is important that MoET brainstorms recommendations on TVET are provided in Box 13. Box 13. Lesotho TVET Recommendations economic needs of Key recommendations: a TVET system that contributes effectively to meeting the key socio-­ based structural reform of TVET. This includes: (i) Introduc- the country is best tackled by contemplating a broad-­ tion of specialized schools that focus on key economic sectors such as Mining and Construction, Agriculture, Tourism and Hospitality etc. Creation of these specialized schools could be achieved through a combination of overhauling existing institutions and building new institutes. They should (a) be governed through a Council structure that constitutes a tripartite alliance, with representation from the institution’s educational staff, govern- ment Ministries (MoET and other ministries active in the relevant economic sector), and representatives of the industry’s business association, (b) have appropriate autonomy to give them flexibility in terms of its recruitment and remuneration policies (thereby enabling it to attract and retain skilled instructors), to negotiate and manage investments with the private sector, and to charge fees to students where appropriate; (ii) Overhaul of the co-­ current governance structures of the TVET sector including (a) establishment of the Lesotho Skills Authority (LSA) and the National Training Fund, which are already described in the TVET draft policy, (b) restructuring of TVD to function as the operational arm of the LSA and assuring the quality of TVET institutions, programs and program delivery, leaving the driving curriculum/program design and development for institutes; and (iii) overhaul of cur- rent funding structures. Source: Butcher, N (2017). Main Findings and Recommendations 33 Identify sustainable strategies to improve retention and skills and move toward more student-centered teaching/ to expand access to secondary education for students learning in classrooms, pre- and in-service teacher prepa- from the poorest families and those living in rural and ration and training need to be improved. While the effort mountainous areas. Compared with other countries such in helping teachers’ mastery of subject content knowl- as Botswana and other lower and upper middle-income edge needs to be continued, the emphasis should be countries, Lesotho still has a long way to go to achieve de- put more on modernizing and upgrading their pedagog- cent completion rates and improve equity at the secondary ical skills based on the requirements of 21st century skills. level. The country is starting to pilot school based manage- ment (SBM) systems including school improvement plans Scaling up the multiple pathways for senior secondary and subsidies to schools to improve student retention. This education. Zambia is currently piloting a new arrange- experience will certainly help MoET establish a good SBM ment at senior secondary education with the multiple mechanism at the national level in the future. In addition pathway concept. The initial results of the pilot are pos- to that, the current secondary education financing mecha- itive. Given the relative small size of the tertiary educa- nism is not viable for the poorest and the most vulnerable. tion and the need for further diversifying the economy as This includes the school fees, book rental policy, examina- outlined in the new 7th National Development Plan, the tion fee versus the bursary policy which focuses mostly on multiple pathway approach will equip secondary educa- orphanage status rather than actual socio-economic status tion graduates with practical skills, especially technical of the students. Expanding secondary education in rural ar- and vocational skills, in addition to the traditionally-ex- eas with extremely limited access might be expensive and pected academic skills, to make them job-ready for the challenging due to high unit cost and low enrollment. To labor market. make it sustainable, the unit cost of classroom construction should be reduced, and use of well-trained multisubject Increasing access to secondary education, especially in teachers should be carefully analyzed. rural areas and for girls. Zambia has large out-of-school population, particularly among the senior secondary ed- ucation age group, due to the severe shortage of second- Zambia specific recommendations ary schools in the country. Adolescent girls’ pregnancy and early marriage continues to be a societal issue. The Government of Zambia, with the support of development Making the curriculum more relevant to the labor market partners, has been making effort and progress in the area needs. Zambia developed and introduced its new curric- of accessing secondary education by constructing new ulum in 2014. Although this new curriculum is more com- secondary schools and classrooms, providing facilities to petency-based than the previous one, its focus is more meet girls’ special needs and incentives to support their on cognitive skills and less on technical/vocational and completion of secondary education through cash-trans- socio-emotional skills that 21st century skills also demand fer and other programs. More investment is needed to from both current and future generations. Create neces- provide youth more opportunities for secondary educa- sary modifications of the new curriculum to strengthen its tion, as labor market studies in the country shows that relevance through further consultation with the industry. those who completed secondary education are more likely to be employed. Improving pedagogy to teach 21st century skills ef- fectively. Classroom observations conducted under this Focusing more on learning outcome through more study in Zambia reveals the persistence of the practice of analysis, communication, and action plans on learning the traditional teacher-centered, knowledge-passing-ori- outcomes. There could be national-, provincial-, and ented instructional methods in classroom teaching. Re- school-level plans built upon analysis of past learning search has shown such teaching is outdated and unable outcomes and aiming at explicit measurable improve- to provide students the 21st century skills demanded by ments in learning outcomes (foundational skills as well as the labor market. In order to teach students 21st century the whole range of 21st century skills). References Almeida, R., N. Amaral, de Felicio, F. 2016. Assessing International Labor Office. 2009. Module 1: Basic con- Advances and Challenges in Technical Education in cepts, roles and implementation process. Brazil. World Bank Study. 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