A teacher is one of the most critical actors of the education system. In order to enhance the overall education indicators and quality of teaching, it is important that teachers are motivated and committed. A number of researchers have argued that effective teacher management practices are closely linked with teacher motivation (Ramachandran, 2005). UNICEF’s manual on Child Friendly Schools released in 2009 identifies teacher motivation and commitment to be as important as teacher competence and subject knowledge for children’s learning. An Organisation for Economic Co-operation and Development (OECD) study done in middle-income countries suggests that a combination of increased financial investment, curricular reform, teacher training initiatives and institutional reforms improves teacher motivation and accountability (OECD, 2010). Another study that covered more than 200 teachers in Indonesia established that there was a clear correlation between work motivation and teacher’s work performance (Mustafa & Othman, 2010). Corroborating these insights is a study conducted by us on Teacher Motivation in Bihar (CBPS 2011) which revealed that school environment and leadership (support from Head Master and community), structured recruitment, salary, payment processes, nature of employment and transfer policies, rewards and appraisals and systematic redressal mechanisms can contribute to a conducive environment for motivating teachers. In the light of these studies, it is critical to reform teacher management processes to ensure transparent processes, which instills motivation.
Teacher placement and transfer are significant aspects of teacher management in Indian states because of the size and the differences that exist across states, in terms of facilities including access to health care services, higher educational institutions, and also transport and mobility. The presence or absence of these facilities and services determine the perceived quality of posting for teachers, especially as it also determines their and the family members’ (including spouse and children) ability to access education, health care or job market. This makes the placement and transfer policy a critical aspect of teacher management that contributes significantly to the motivation and job satisfaction of the teacher. Provision of transparent and efficient teacher placement and transfer systems indicate the appreciation of the teachers’ choices to work at a particular location and in turn, conducive for enhancing teacher quality. However, in India, processes related to teacher management, especially recruitment, placement and transfers, remains largely unclear. A recent study of teacher management practices across nine states indicated that most of the teacher-related policies[1] are opaque, adhoc in nature with long delays (NUEPA, 2015). In a large number of states[2], processes related to recruitment and transfers, two most critical aspects of teacher management, are not transparent and are closely linked with political interests.
As a part of the NUEPA – led study in nine states, CBPS undertook a study in Karnataka and found that the state has emerged as a leader in implementing reforms with respect to teacher recruitment and transfers[3]. Both these processes were streamlined in a gradual progression and finally incorporated technology to implement the process such that it is efficient and transparent. Till the late 1990s, recruitment of teachers in Karnataka was undertaken through the district committees that shortlisted candidates based on marks. These shortlisted candidates were then interviewed and finally selected. The selected candidates were allotted schools without considering their choice of location. This changed in the early 2000s when the Common Entrance Test (CET) was introduced and district committees for recruitment were abolished[4]. Shortlisting of candidates was based on a score calculated using their marks from higher secondary, professional qualifications and entrance examinations with pre-decided weightage for each of these. The final score was utilised to prepare merit list for each social category (vertical reservation). Within each social category, reservation based on sex and individual characteristics (rural, Kannada medium, ex-servicemen etc) (horizontal reservation) was also ensured. Post preparation of merit lists, counseling for final placement (first posting) is was undertaken to ensure that each shortlisted candidate can choose their preferred location. This counseling process also ensured that the reservation rooster was taken into account. In the initial stages, this process was undertaken manually with Department officials making various lists for selection. Over a period of time, the process was converted online such that candidates could apply directly through a centralised application system. At the time of counseling, corrections based on wrong entries and typos could be done, which gets automatically updated in the merit list, if any changes were made to the marks. The list of available vacancies was also generated through the online software system such that when one candidate opted for a particular vacancy, it was removed from the list of available schools.
Teacher transfers in Karnataka were rare till the early 2000s and were only possible for those with influence and political connections. The Teacher Transfer Act 2007 changed this drastically as it made transfers an entitlement for each teacher, after a minimum number of years of service, especially for those with urgent needs. A specific Priority List, in decreasing order of importance, was also spelled out in the Act. First posting for teachers in rural areas and minimum five years of initial posting before they can apply for transfers (reduced to three years in certain circumstances, to be used only once in their service period) were other provisions in the Act. It categorised the state into three zones and defined how transfers could happen within and between these zones. It also explained the norms to be followed for transfers within and outside the unit of seniority[5]. The Act has specified an upper limit of 8% of cadre strength in each unit of seniority for transfers. These reforms, like recruitment reforms, were initially processed manually. Gradually, the process was converted into a software, with controls based on the priority list specified in the Act, upper limit for transfers and unit of seniority. Shortlisted candidates, based on the priority list, underwent a counseling process where they could choose their preferred location, amongst the currently available vacancies. This software, like the one used for recruitment, was also dynamic in nature. When one candidate chose a particular vacancy, the software removed it from the list and added the newly available post in the vacancy list.
The reforms in the recruitment and transfer processes in Karnataka ensured that the system was transparent, efficient and entitled each shortlisted candidate with choice of selection for their posting. “Online computerised applications, priority list based on clearly defined and transparent parameters and final decision based on counseling using GIS based locational maps” (CBPS 2016, pp 76) made the entire process more inclusive in nature. It has almost abolished political patronage and corruption at different levels, motivating teachers through an effective teacher management system.
[Disclaimer: Views presented above are those of the author and do not necessarily reflect those of CBPS]
Puja Minni
Senior Research Associate, CBPS
References:
CBPS (2011). Study on Teacher Motivation and Incentives in Bihar. Centre for Budget and Policy Studies, Bangalore
CBPS (2015). National Study on Working Conditions of Teachers: State Report for Karnataka. NUEPA, New Delhi
Mustafa, M., & Othman, N. (2010). The Effect of Work Motivation on Teacher’s Work Performance in Pekanbaru Senior High Schools, Riau Province, Indonesia. Sosiohumanika, 3 (2), 259-272
NUEPA (2015).National Study on Working Conditions of Teachers. National University for Education Planning and Administration, New Delhi
OECD. (2010). PISA 2009 Results: Learning Trends: Changes in Student Performance Since 2000 (Volume V). http://dx.doi.org/10.1787/9789264091580-en .
Ramachandran, V., Pal, M., Jain, D., Shekar, S., & Sharma, J. (2005). Teacher Motivation in India. https://assets.publishing.service.gov.uk/media/57a08c5b40f0b64974001172/3888Teacher_motivation_India.pdf ; last access: 05 November 2018
Ramachandra, V., Jha, J., Minni, P., & Minni, S. (2016) Teacher Recruitment and Transfer Policy and Practice in Karnataka and Tamil Nadu. The World Bank, New Delhi,
United Nations children’s Fund (UNICEF). (2009). Child Friendly Schools: Learners, teachers and school managers (Chapter 6).
Footnotes:
[1] This blog post describes the teacher management processes related to those employed in State Government schools (Education Department). Teachers employed in private schools / Central Government Schools / Schools managed by other State Departments like Backward Classes, Tribal Department are not included in this analysis.
[2] Education is a Concurrent -subject in India, implying that both, the Centre and the States can decide about aspects related to education. With respect to teacher management processes, each State has developed its own process, based on the general guidelines given by the Centre. For instance, the Centre mandates Teachers Eligibility Test and Common Entrance Test as a two-step screening for teacher recruitment.
[3] Final report available here: http://cbps.in/wp-content/uploads/CBPS_NUEPA_Karnataka_Report_28Sep2016.pdf
[4] In 2011, a two-phase entrance examination pattern was introduced. Eligible candidates had to appear and clear Teachers Eligibility Test (TET) and then appear for CET to be shortlisted for recruitment.
[5] The geographical unit for which the recruitment process is undertaken and those recruited at a particular time form the same level of seniority. For example, for elementary school teachers in Karnataka, block is the unit of seniority as they have a block-level recruitment process.