Barriers to Shared Decision-making Barriers to Shared Decision-making in Egyptian Schools: Teachers’ in Egyptian Schools: Teachers’

PerceptionsPerceptions

EDU/DEV Public SeminarEDU/DEV Public Seminar2626thth November 2009 November 2009

Presented by:Presented by:Waheed HammadWaheed Hammad

Visiting FellowVisiting FellowSchool of Education and Lifelong School of Education and Lifelong

Learning, University of East Anglia, Learning, University of East Anglia, Norwich, UKNorwich, UK

This presentation includes four This presentation includes four partsparts::

Part I: Overview of Egypt's education Part I: Overview of Egypt's education systemsystem

Part II: Background information on SDMPart II: Background information on SDM Part III: The study and its contextPart III: The study and its context Part IV: Main findingsPart IV: Main findings

Part IPart I

Overview of Egypt’s education Overview of Egypt’s education systemsystem

Egypt on the mapEgypt on the map

Egypt: Facts and FiguresEgypt: Facts and Figures

Official name:Official name: Arab Republic of Egypt Arab Republic of Egypt

Flag: Flag:

Capital:Capital: Cairo Cairo Population: Population: 81,527,172 (2008)81,527,172 (2008) Languages: Languages: Arabic (official), English and Arabic (official), English and

French widely understood by educated classesFrench widely understood by educated classes Religions:Religions: Muslim (mostly Sunni) 94%, Coptic Muslim (mostly Sunni) 94%, Coptic

Christian and other 6% Christian and other 6%

The educational system: statisticsThe educational system: statistics

The largest education system in the The largest education system in the MENA (Middle-East and North Africa) MENA (Middle-East and North Africa) region and one of the largest systems region and one of the largest systems in the worldin the world

Pupils:Pupils: 15656954 15656954 Teachers:Teachers: 796034 ( of which almost 796034 ( of which almost

%49 females)%49 females) Schools:Schools: 37614 ( of which 32666 37614 ( of which 32666

public schools) (MOE, 2008)public schools) (MOE, 2008)

The structure of the education systemThe structure of the education system

Source: World Data on Education, IBE, UNESCO, 2006-2007

27 Educational Directorates (Mudiryas)

Undersecretary

249 District Offices (Idaras) Director General

Approximately 37 thousand schools Head teacher

Ministry’s Headquarters (Diwan)

Minister

The organisational structure of The organisational structure of the educational systemthe educational system

The organisational structure of The organisational structure of general secondary schoolsgeneral secondary schools

Deputy Heads

Heads of Departments

Teachers

Head Teacher

Centralised control as a feature of Centralised control as a feature of Egypt’s education systemEgypt’s education system

Rigid hierarchical authority structure maintained Rigid hierarchical authority structure maintained throughout the system.throughout the system.

The MOE as a central decision-maker: curriculum, The MOE as a central decision-maker: curriculum, educational budgets, teachers’ salaries and the educational budgets, teachers’ salaries and the selection of textbooks selection of textbooks

Local authorities and their circumscribed powers.Local authorities and their circumscribed powers. Schools have minimal discretion: head teachers as Schools have minimal discretion: head teachers as

“teacher coordinators”“teacher coordinators” Attempts to decentralisation: Law 139/1981Attempts to decentralisation: Law 139/1981

Part IIPart II

Background Information on SDMBackground Information on SDM

Shared Decision-making (SDM)Shared Decision-making (SDM)

A dominant theme in the reform and A dominant theme in the reform and restructuring movements of the late 1980s.restructuring movements of the late 1980s.

““a process of making educational decisions a process of making educational decisions in a collaborative manner at the school in a collaborative manner at the school level” level” (Liontos,1994)(Liontos,1994)

““a formal system for the representation of a formal system for the representation of teachers in a decision-making body” teachers in a decision-making body” (Weiss, (Weiss, 1993)1993)

The understood common goal of SDM is to The understood common goal of SDM is to provide teachers and other members of the provide teachers and other members of the school community with greater chances to school community with greater chances to participate in the decision-making process participate in the decision-making process at the school level. at the school level.

Assumptions underlying SDMAssumptions underlying SDM Those who are closest to the action are more Those who are closest to the action are more

able to make the best educational decisions.able to make the best educational decisions. Members of the school community should be Members of the school community should be

given more say about policies that are likely given more say about policies that are likely to affect their schools.to affect their schools.

Those who are responsible for implementing Those who are responsible for implementing decisions should be involved in making those decisions should be involved in making those decisions.decisions.

There are more chances for change to be There are more chances for change to be successful when those implementing it feel a successful when those implementing it feel a sense of ownership for the implementation sense of ownership for the implementation process. process.

1515

Lack of knowledge and skills

Mistrust

Lack of time

Heads’ reluctance to hand over authority

SDM challenges as reported by the literature

Part IIIPart III

The Context of the Study The Context of the Study

The contextThe context

1.1. Recent decentralisation projects with SDM Recent decentralisation projects with SDM being a key componentbeing a key component

Examples:Examples: Secondary Education Enhancement Programme (SEEP), Secondary Education Enhancement Programme (SEEP),

19991999 Alexandria Pilot Project, 2001Alexandria Pilot Project, 2001 Training and Evaluation Units (TEUs), 2002Training and Evaluation Units (TEUs), 2002 Boards of Trustees (BOTs), 2005Boards of Trustees (BOTs), 2005

2.2. Barriers reported in other international Barriers reported in other international contexts.contexts.

3.3. Paucity of research on SDM in the Paucity of research on SDM in the Egyptian context.Egyptian context.

The studyThe study

•Qualitative research study.

•Main research question : what are the barriers to SDM in Egypt's general secondary schools?

•Data were collected through interviews with 85 research participants in nine general secondary schools. School documents were also analysed.

•Research participants: head teachers, deputy heads, heads of department, BOT members and newly-appointed teachers

Part IVPart IV

Findings: Barriers to SDM Findings: Barriers to SDM

Centralised Control

Institutional Barrier

What decisions are made?

How are decisions

made?

Cultural Barriers

Unwillingness to engage with

SDM

Lack of

trust

Unfamiliarity with SDM

Fears of SDM

problems

Seniority as a

condition for SDM

Barriers to SDM

11 - -Centralised control as a barrier to SDMCentralised control as a barrier to SDM

The relationship between SDM and school-based The relationship between SDM and school-based management (SBM): management (SBM): SDM follows SBMSDM follows SBM

School autonomy as a pre-requisite for SDM: School autonomy as a pre-requisite for SDM: SDM SDM has little meaning in the absence of school has little meaning in the absence of school autonomy (David, 1988)autonomy (David, 1988)

Previous research indicates that SDM projects have Previous research indicates that SDM projects have struggled in other countries due to central struggled in other countries due to central restrictions.restrictions.

Centralised control as a barrier to SDM Centralised control as a barrier to SDM (cont’d.)(cont’d.)

Centralised control was perceived by many Centralised control was perceived by many participants to be a major challenge to SDM.participants to be a major challenge to SDM.

Consensus about the highly-centralised nature of the Consensus about the highly-centralised nature of the system and the limited discretion given to schools.system and the limited discretion given to schools.

““Decisions are dictated to us. The Undersecretary conveys the Minister’s Decisions are dictated to us. The Undersecretary conveys the Minister’s instructions to the district directors. Then the district directors convey the instructions to the district directors. Then the district directors convey the instructions to the head teachers who, in turn, hold meetings to pass them on instructions to the head teachers who, in turn, hold meetings to pass them on to the staff. Hence each level conveys instructions to the other, and the lowest to the staff. Hence each level conveys instructions to the other, and the lowest category in the hierarchy has only to implement them.”category in the hierarchy has only to implement them.” (Senior deputy-head) (Senior deputy-head)

Cynicism over the MOE decentralisation plans.Cynicism over the MOE decentralisation plans. “There is no such thing as decentralisation in schools. Rather, there is There is no such thing as decentralisation in schools. Rather, there is

centralisation to the extent that we receive the very details of our work inside centralisation to the extent that we receive the very details of our work inside the school from the Ministry”. the school from the Ministry”. (BOT member)(BOT member)

Factors associated with centralised Factors associated with centralised controlcontrol

1.1. The nature of school decisions (what decisions are made?)The nature of school decisions (what decisions are made?) ““Routine”, “meaningless”, “insignificant”, “irrelevant to the educational Routine”, “meaningless”, “insignificant”, “irrelevant to the educational

process”.process”.

2.2. The nature of the decision-making process (How are decisions The nature of the decision-making process (How are decisions

made?made? Top-down school decision-making approachesTop-down school decision-making approaches Decision making bodies are being used by head teachers to dictate Decision making bodies are being used by head teachers to dictate

instructions rather than share in decisions.instructions rather than share in decisions.

“ “ The head teacher is just a conveyor of decisions. When we attempt to dispute with her at the meetings, she doesn’t recognize our argument, simply informing us of the decisions she has already made. I don’t attend these meetings or I attend briefly and then leave, because when I protest she says that she is not prepared to argue with those above her.” (Senior teacher)

22 - -Cultural Barriers to SDMCultural Barriers to SDM

School culture plays a crucial role in the success or failure of SDM.

SDM is a major change, and “culture plays a significant role as a determinant of change” (Dalin et al., 1993).

SDM cannot be implemented by simply establishing mechanisms for increased participation in decision-making.

SDM requires fundamental changes in the culture

surrounding decision-making in schools.

Trusting relationships, collegiality and mutual respect are fundamental requirements for SDM to develop.

11 - -Unwillingness to engage with SDMUnwillingness to engage with SDM

Head teachers’ unwillingness.Head teachers’ unwillingness.

Why?Accountability concerns “The head teacher does not provide such opportunities for participation to teachers, because she is bound by the ministerial decrees. We might make decisions that lead to mistakes, and then sanctions will apply to the whole of the administrative staff, including the head teacher and the deputy heads. Hence sharing does not happen simply because everybody is concerned about his own security.” (BOT member)

Hidden agendas

Autocratic personality

Teachers’ unwillingnessTeachers’ unwillingness

Why?

Deteriorated work conditions, especially low pay“The teacher is exhausted, frustrated and has no motivation to participate. ... If you don’t have faith in an idea you will neither make sacrifices nor take action to further it. I have no faith in the educational process. Rather, I believe that I’m oppressed: I receive a few pennies which suffice me for four days or a week and then I need to beg from my pupils for the rest of the month. Where then is my faith in the educational process, so that I can participate and make decisions? (Teacher)

Involvement in private tutoring

Not being listened to or valued

B) Head teachers’ mistrust of teachersB) Head teachers’ mistrust of teachers

““I don’t trust most of them as decision makers” I don’t trust most of them as decision makers” (Head teacher 1)(Head teacher 1)

““One of the reasons why a head teacher doesn’t involve teachers in the One of the reasons why a head teacher doesn’t involve teachers in the decision-making process is his/her lack of trust in all the teachers in decision-making process is his/her lack of trust in all the teachers in the school. From my point of view, most teachers in the school are the school. From my point of view, most teachers in the school are not trustworthy, especially the young ones.”not trustworthy, especially the young ones.” (Deputy-head) (Deputy-head)

22 - -Lack of trustLack of trust

A) Teachers’ mistrust of head teachersA) Teachers’ mistrust of head teachers

C) School staff’s mistrust of central-level C) School staff’s mistrust of central-level administratorsadministrators

33 - -Lack of familiarity with SDMLack of familiarity with SDM

It is extremely difficult to encourage teachers to participate It is extremely difficult to encourage teachers to participate when they have been conditioned to compliance.when they have been conditioned to compliance.

““Teachers haven’t been initially trained to express their Teachers haven’t been initially trained to express their opinions or to make decisions. Rather, they have been opinions or to make decisions. Rather, they have been conditioned to execute instructions without any conditioned to execute instructions without any discussion.” discussion.” (BOT member)(BOT member)

““The period for which teachers have not participated is quite long The period for which teachers have not participated is quite long and they have become habituated to this. Therefore if we ask and they have become habituated to this. Therefore if we ask them to do so now, it will be a difficult process.” them to do so now, it will be a difficult process.” (Head of (Head of department)department)

Factors associated with unfamiliarity with SDMFactors associated with unfamiliarity with SDM::

a) Centralised control over schools .b) Lack of participation as a wider phenomenon.c) Lack of training in SDM.

A) ChaosA) Chaos

“If we seek teacher’s opinions about work hours there will be chaos, for each teacher will look for his own interest. Most teachers here want to come to school at 8:15 am instead of 7:45 am!” (Teacher)

4- Concerns about potential involvement 4- Concerns about potential involvement problemsproblems

“There are intense conflicts which develop during departmental meetings in which we discuss our plan. And, in the end, we refer to the autocratic approach and we call the inspector to come and set up the plan for us.” (Teacher)

“Widening the circle of participation may cause problems because there will be conflicting opinions. If there are only a limited number of

participants, the process will be better”. (Head of department)

B) ConflictB) Conflict

55 - -Seniority as a pre-requisite for Seniority as a pre-requisite for participationparticipation

The sanctity of the notion of seniority in the Egyptian education system.

Participants’ conception of “experience”.“Decision-making develops only through experience. When you make a decision, this doesn’t happen haphazardly. Rather, it happens as a result of previous experiences. So, one mustn’t participate in making decisions whilst still in his first year in school.” (Head of department)

The contradiction between the notion of seniority and SDM.