Equitable teacher distribution

Teachers’ deployment systems must be based on the principles of equity, effectiveness, and efficiency (IIEP-UNESCO Pôle de Dakar, 2017; IIEP-UNESCO Pôle de Dakar, 2016c). This is of vital importance to allow all children, regardless of their geographical location or socio-economic status, to receive a quality education. Special attention should be placed on marginalized children, since allocating quality teachers is crucial to close their learning gaps (Luschei, and Chudgar, 2015). 

Promising policy options

Carefully plan deployment systems to distribute teachers equitably

Careful planning is fundamental when trying to have an equitable, balanced distribution of teachers across a country or a region. Designing these systems requires policymakers to reflect on the criteria used for teacher distribution and to analyse which indicator is used to determine teacher allocation in schools.  Two main indicators are particularly important to take into consideration:

• The pupil-to-teacher ratio (PTR) is the result of the division of the number of pupils in the cycle –for instance, primary education– by the number of teachers working in that cycle (IIEP-UNESCO Pôle de Dakar, 2016c).
• Pedagogical groups are defined as ‘all the pupils taught by the same teacher in a classroom at the same time, regardless of whether these pupils are in the same grade or not.’ (IIEP-UNESCO Pôle de Dakar, 2016c: 10).

In the primary cycle, one teacher is commonly assigned to one pedagogical group, thus multiple countries base their teacher allocation on this criterion, rather than on the number of students. Yet, since the number of pupils per pedagogical groups varies greatly, attention should be paid to ensure an equitable allocation of teachers.

In comparison, in the secondary cycle, multiple teachers teach a pedagogical group. The analysis relies on the comparison between the number of hours delivered by teachers in a specific subject and the number of hours pedagogical groups are entitled to in each subject.

It is key to analyse existent allocations at the national level to determine if ‘governments have a sufficient number of teachers relative to national standards’ (IIEP-Pôle de Dakar, 2016c: 4). National standards must be realistic, for instance, the Global Partnership for Education (GPE) recommends that countries with teacher shortage attempt to reach a PTR of 40:1 (Nkengne and Marin, 2018). When the PTR is higher than the standard, recruitment processes should be enhanced.

Analysis at the local level (province, district, community or school) should also be performed to evaluate if teachers are being equitably allocated throughout the country. Having this information in the form of maps will be particularly useful, as it is easier to recognise spatial disparities. For instance, an initiative known as the Rainbow Spectrum was developed in the Philippines to shed light on disparities in teacher deployment, raise awareness and provide essential context-based information to support deployment measures (Akyeampong, 2022). Through the initiative, ‘districts were color-coded according to their pupil/teacher ratios, with blue indicating a ratio below 24:1, red a ratio over 50:1, and black a complete teacher shortage.’  (Akyeampong, 2022: 88). This simple initiative supported the allocation of teachers towards the most affected areas, as highlighted by a study done between 2009 and 2011 (Albert, 2012, as cited in Akyeampong, 2022).

Geospatial data can also be used for this purpose. Countries such as Malawi, have used geospatial data in addition to administrative records to create ‘a more objective database of school remoteness on which to build policies for more equitable deployment of teachers and incentives’ (Asim et al., 2019, as cited in Pisani and Dowd, 2022: 21).  

The degree of randomness in teacher allocation should be analysed by assessing whether the allocation process is equitable or rational –if teachers’ allocation is based on the set criteria– or if it is due to other factors, such as the exertion of political influence (for more information consult IIEP-UNESCO Pôle de Dakar, 2016b; Akyeampong, 2022).

Ensuring an equitable teacher deployment is of outmost importance. It should take into account the quality of the teachers being deployed and guarantee that marginalised children are getting access to quality teachers (IIEP-UNESCO Pôle de Dakar, 2016a). A study done in Guinea, India, Mexico, and Tanzania, by Luschei and Chudgar (2015) highlighted that in order to ensure equitable teacher deployment, education systems must meet five conditions: ‘commitment to equity, collaboration of key stakeholders, cost-consciousness, careful design, and attention to context.’ (Akyeampong, 2022: 87).

Teacher deployment should be based on a clear and transparent regulatory framework. The deployment criteria within the framework must be equitable, transparent, non-discriminatory, gender-responsive and inclusive, and reinforce the accountability and responsibility of those involved in the process (UNESCO-BREDA, 2009). Broad concertation must be sought by involving multiple stakeholders in the process, to ensure ownership of the deployment framework. Information on the regulatory framework as well as on sanctions for transgressions should be shared widely (IIEP-UNESCO Pôle de Dakar, 2016a).

An in-depth analysis should be performed to identify underlying reasons impeding the correct implementation of the regulatory framework. For instance, it is key to acknowledge and address the difficulties agents face when implementing it (IIEP-UNESCO Pôle de Dakar, 2016c). It is also key to uncover issues affecting teacher deployment, such as the “ghost” teacher phenomenon, where teachers are theoretically allocated in a school but do not work there in reality (IIEP-UNESCO Pôle de Dakar, 2016c). In addition, allocation procedures should be monitored regularly to ensure they are free from political motivation. Integrated information systems can be used for that purpose (see below).

To ensure teachers’ commitment and motivation, their preferences and needs should be balanced with the schools’ needs (UNESCO, 2015). Deployment measures should thus acknowledge:

• teacher’s family responsibilities;

• gender-related socio-cultural constraints (specially for rural deployment, consult Gender section in Policy page Teacher deployment, Teacher retention)
• teacher’s disabilities;
• teachers living with HIV/AIDs and their required health needs; and
• teachers from ethnic minorities.

(For more information consult Policy page Teacher deployment, Teacher retention).

In addition to deployment measures, ensuring an equitable, inclusive, gender-responsive recruitment process is of key importance. The equity within teachers’ deployment is indeed affected by the composition of the teaching staff. Thus, it is key to ensure a diverse, inclusive pool of teacher candidates (Akyeampong, 2022) by hiring enough female teachers, teachers with disabilities, ethnic and religious minorities, as well as teachers living with HIV/AIDs, among others.

Conceive an integrated teacher information system

Having an integrated teacher information system, commonly known as Teacher Education Monitoring Information System (T-EMIS) is a fundamental tool in the determination of the appropriate distribution of teachers in a school system.

The following are some of the benefits of developing an integrated information system which regroups all of teachers’ data (IIEP-UNESCO Pôle de Dakar, 2017; IIEP-UNESCO Pôle de Dakar, 2016c; Nkengne and Marin, 2018; Göttelmann-Duret and Tournier, 2008):

• removes political and social factors that may affect the teacher deployment system;
• makes the deployment process more efficient;
• allows equity within the deployment to be improved by automatizing the process based on previously set criteria (e.g. seniority, merit). Make sure to involve teachers, teacher unions, and other relevant stakeholders while setting the criteria as qualitative data is essential;
• tackles down data multiplicity and incoherence;
• eases the communications among the multiple stakeholders involved in the process at various levels;
• reduces infrastructure and maintenance costs related to the existence of various information systems; and
• provides clear, concise, solid evidence essential for policy-making processes (although it relies on the validity and reliability of the data collected and its use, for more information consult Policy pages Quality data and Use of data).

Some examples of integrated management tools that have been developed are the Integrated human resources management tool (MIRADOR) in Senegal, the Tool for the automation of transfers (GESTMUT) in Côte d’Ivoire, and the Teacher Management Information System (TMIS) in Rwanda. For more information consult (IIEP-UNESCO Pôle de Dakar, 2016a; IIEP-UNESCO Pôle de Dakar, 2017.

An integrated information system supports a deployment strategy based on current needs, with posts linked to the school, not to the teacher. Research reveals that linking posts to teachers leads to hiring temporary teachers and thus creates significant imbalances in the provision of teachers (Göttelmann-Duret and Tournier, 2008).

Ensure the collection process yields valid and reliable data. Decentralize the collection process (recommended when technical capability exits) and provide capacity-building opportunities to officers involved in the process.

Cover all categories of personnel within the T-EMIS. Although keeping non-tenured teachers’ databases up-to-date can be challenging, it is crucial to get a comprehensive picture of teachers’ deployment (e.g. in the year 2000, Benin created a special database and unit for the management of contract teachers within the Human Rights Department of the Ministry of Education and in 2003 one for community teachers).

Define the frequency of the data collection process (IIEP-UNESCO Pôle de Dakar, 2016a). It is recommended to evaluate the PTR or the number of pupils per pedagogical group, once or twice per year, while teacher administrative acts should be updated in real-time in the system (transfers, leave, sick leave). Data collection process is of utmost importance.

Maintain the data updated. The following information should be collected to identify teacher needs and ensure efficient deployment:

• Information on infrastructure (number of schools, plans to build or extend facilities, their location, the workload to be provided on the basis of the number of classes or pedagogical groups);
• Information on pupils (enrolment by school and area, a projection of the school-aged population, class organization – multi-grade, multi-shifting, etc.); and
• Information on teachers (number by level, levels of qualification, experience and training, PTR standards and goals, temporary and permanent departures, transfer requests, absenteeism).’ (IIEP-UNESCO Pôle de Dakar, 2016a: 20).  

Ensure the inter-connection of information sources to provide coherent data to all relevant stakeholders. The following aspects should be taken into account (IIEP-UNESCO Pôle de Dakar, 2016a):

• promote data digitization: ICT infrastructure should have a national, regional and local coverage;
• register teachers through a unique coding system;
• integrate the systems. Ensure the different information systems and databases are harmonized and integrated in a coherent way;
• take into consideration the delays of synchronization of data; and
• perform institutional data mapping. Specify the paths of information and processes and promote a steering committee to control data quality.

Decentralization of the teacher allocation processes

In a number of places, the decentralisation of the teacher allocation processes and data collection has been implemented as a strategy to: ‘1) enhance the reliability and updating process of the information as it is closer to the source; 2) alleviate the burden on central offices; and 3) increase accessibility and ownership of information to better inform decision-making at local levels’ (Göttelmann-Duret and Tournier, 2008: 7).

Yet, in order for this process to be effective, the following aspects must be taken into consideration:

• processes must be standardised and regulated (see above);
• local institutional capacity must be enhanced. Local authorities must be trained in teacher management and in the use of the integrated information systems (see above);
• implement control allocation procedures at a regional level, ensure they are free from political motivation (see above); and
• enhance the visibility of teacher deployment among states or regions. Share information about teachers in all of the regions to ‘draw on surplus teachers from others states’ (UNESCO, 2005: 12).

Provide targeted incentives for hard to staff locations

While deployment systems should take teacher’s preferences into account, there is a definite need to place teachers in less desirable locations, as these areas are often where teacher shortages occur. Deployment policies have a particular effect on equity issues since the less desirable locations with disadvantaged students often end up with the fewest teachers or the least qualified teachers who are newest to the profession (IIEP-UNESCO, 2018). Offering targeted incentives for hard to staff locations, to the most qualified teacher candidates, can help overcome this imbalance, placing more effective teachers where they are most needed and where they are willing to serve. Another strategy is to place teachers in remote locations for limited durations, such as a few years, and then allow them location preference in their next deployment. Frequently used incentives include:

• increased salary;
• teacher housing (free or subsidized);
• transport allowances;
• hardship allowance. For example, Zambia distinguishes rural areas from remote areas in hardship allowances (UNESCO-BREDA, 2009);
• bonuses, as is the case in The Gambia, where the government implemented progressive bonuses, based on distance from the main road. This has spurred the demand from qualified teachers to work in remote areas (UNESCO-BREDA, 2009);
• award scheme;
• choice of next job posting location;
• smaller class size;
• scholarships;
• forgivable loans;
• specialized and/or faster promotion opportunities. For example, in Mexico, teachers who work in marginalized areas advance more rapidly through the promotion system (Santibañez et al., 2007 cited by Luschei, and Chudgar, 2015).); and
• priority access to training and career development programmes.

Incentives need to be significant to attract teachers to hard-to-staff locations. They must also be carefully targeted and tied to the specific post. In addition, in order for financial incentives to work in remote rural areas, logistic constraints related to salary payments must be solved (for more information consult Policy page Logistical constraints in paying teachers).

Other policy options

School-based deployment systems and local hiring: the “market” system

Rather than a centralised deployment system, some countries have systems in which the schools are in charge of recruiting and hiring teachers, and candidates apply directly to their school of choice. This can help increase teacher’s commitments to particular schools and ensure a better match between the needs of schools and expectations of teachers, preventing teacher attrition in the future.

Such a system can be particularly effective in rural areas that have needs for candidates with specific relevant backgrounds. Schools can focus their hiring efforts on local candidates who have the background, language and cultural understanding required for the positions and wish to serve in those areas.

However, measures need to be in place to still ensure the equitable distribution of qualified teachers among all schools, nationwide.

• systems need to be in place to ensure transparency, accountability, and equity;
• central and regional authorities still need to regulate the equitable distribution of teachers;
• strong school leadership and management is required;
• set-up provincial training centres to facilitate the local recruitment process. For example, training centres have been established at the provincial level in the Central African Republic, thus individuals who join the training know that they will serve that particular province (UNESCO-BREDA, 2009);
• attract individuals from ethnic or indigenous minorities to teach in their own communities, reservations or quotas can be set. This type of policy has been implemented in Mexico and India (Luschei, and Chudgar, 2015);
• provide in-service training to local teachers when needed;
• provide sufficient support to teachers in rural schools, including equitable access to professional development opportunities, and efficient salary payments; and
• offer incentives for hard to staff locations to attract quality teachers (see above).

Contract and community teachers

The hybridization of the teacher workforce is a result, in many countries, of ‘the need to expand the teaching force quickly and with limited resources’ (Luschei, and Chudgar, 2015:6). However, despite the flexibility that contract and community teachers allow, there are certain elements that need to be taken into account when considering this option for an education system:

• contract and community are not civil servants. They are contracted for a specific post by the communities, schools and sometimes the Ministry of Education.
• Ministries of Education must acknowledge the equity implications of this policy. For this temporary measure to work and therefore provide quality education to all students, contract and community teachers must be provided with high-quality training opportunities and must require minimum qualifications. For example, in Madagascar, community teachers must have the required qualifications known as BEPC (UNESCO-BREDA, 2009).
• Community and contract teachers are usually paid precarious salaries.

This measure should always remain temporary. Local, regional and national educational authorities must make an effort to integrate them into the regular teacher workforce (Luschei, and Chudgar, 2015; IIEP-UNESCO Pôle de Dakar, 2016b.).