02 November, 2017

IIC/2017/ED/PB/1 REV 2.

National Teacher Policy:

Qualified Teachers for Quality Education in Uganda.
Policy Brief.

Teachers are the key to achieve Sustainable Development Goal 4: Quality and Inclusive Education,
which is why its Target 4.c requires 'substantially increase the supply of qualified teachers' by 2030.
The Education 2030 Framework for Action calls for policy and legislative measures to make the
teaching profession more attractive to current and potential staff. Since 2013, the Government of
Uganda through the Ministry of Education and Sports (MoES), with technical support from the UNESCO
International Institute for Capacity Building in Africa (IICBA) under the CapED Programme, started the
process of reviewing, consolidating and updating various teacher policies for effective teacher
management and delivery of education services. Five years later, a comprehensive National Teacher
Policy (NTP) was developed and approved by the Education Sector Consultative Commission (ESCC) at
its 101st meeting on Thursday 28th of September 2017.

"Education is a basic human right." The NTP opens with this statement from Hon. Janet Kataaha Museveni,
First Lady and Minister for Education and Sports. It then continues to address quality of education issues and
provides a framework for professionalizing and standardizing the teaching profession in order to improve the
development and management of teachers in the education sector.

The NTP focuses on four thematic policy actions, namely Standard and Qualification, Training, Management,
and Cross-cutting issues. It sets up implementation strategies and a framework for different educational
stakeholders. It serves as an umbrella for the various frameworks developed on teacher issues in Uganda. These
frameworks are:
 Continuous Professional Development (CPD)  Teacher's Motivation Framework
Framework
 Quality Assurance Framework for Teacher
 Harmonized Initial Teacher Education Framework
Education
 Teacher Qualification Framework and Competency
 Gender Responsive Pedagogy (GRP)
Profiles
Mainstreaming Framework in Teacher Education
Why develop a National Teacher Policy?
"The aim of the NTP is to
The NTP states, 'The Government of Uganda has a professionalize the teaching
comprehensive and ambitious set of education policies.' These profession to levels comparable
policies include the 1992 Government White Paper on
with other professions like medical,
Education which recommended the professionalization of the
teaching profession.
engineering, legal, and accounting
among others."
Although the education sector has made many achievements in
the past two decades, a number of challenges continue to persist Hon. Janet Kataaha Museveni
in the teaching sector. The 2013 Teacher Initiative for Sub-
Saharan Africa (TISSA) study identified the following challenges: high pupil-teacher ratio in primary
schools, suboptimal deployment of secondary school teachers; lack of effective district, head teacher and
teacher performance management, recognition and reward systems; ineffective and inconsistent
curriculum delivery; weak and inconsistent community engagement and support; and poor data quality and
integrity (MOES & UNESCO – IIEP, 2014).
The existing policies are scattered in numerous documents, which makes coordinating their
implementation difficult. Additionally, a number of them outdated. To tackle this, the TISSA study and the
2016 Sub-Sector Review recommended to update and consolidate the teacher policies into a
comprehensive NTP. The Government of Uganda adopted this recommendation.

How was the National Teacher Policy developed?

Preparation
The TISSA study provided essential evidence for the development of the NTP, particularly to formulate
the situation analysis. Once the analytical report on the gaps in existing teacher policies was
completed in 2014, the NTP drafting team was established.
The drafting team was led by the
Figure 1: Department of Teacher/Tutor
Composition of the Drafting Team Members Instructor Education and Training
1 (TIET) of the MoES. Team
UNICEF 1
1 Ministry of Local members were composed of
1
FAWE 1
1 12 3 Government government representatives,
3
KCCA 11 Ministry of teacher education institutions
Public Service (TEIs) including higher education
Parliament institutions such as Makerere
24
6
18 University and Kyambogo
Colleges 13 UNATCOM
University, Uganda National
Universities 7 Teachers' Union (UNATU),
MoES
National Council of Higher
Education (NCHE), Coalition of
Government Teacher Education Institutions Uganda Private School Teachers
COUPSTA Uganda National Teachers' Union
Association (COUPSTA), education
Education Development Partners National Council of Higher Education
National Experts
development partners and national
experts (see Figure 1).
In addition to the aforementioned bodies, stakeholders such as professional associations, district education
officials and civil society organizations (CSOs) were consulted throughout the process.
Three-step drafting process
Three-step drafting process was planned, using methodology from the Teaching Policies and Learning
Outcomes in Sub-Saharan Africa (IICBA, 2016).
Step 1 involved drafting technical support materials for discussions. Countries tended to emphasis on
teacher training as a way to increase the supply of qualified teachers. But teacher training is not isolated. It

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should not be separated from other dimensions of policy
development. As such, the drafting team began analysing and Box 1:
addressing specific issues under the 9 teacher policy dimensions Nine Dimensions of Teacher Policy
(see Box 1) for a comprehensive insight on Uganda's teacher sector.
1. Teacher Recruitment and
Team members were then divided in to six groups in charge of
Retention
different dimensions. 2. Teacher Education (CPD)
Step 2 was the phase to consolidate and balance contributions, and 3. Deployment
to identify policy priorities. This is an important step since 'policy 4. Career Structure/ Path
cannot satisfy everyone; its guidelines are produced taking into 5. Teachers employment and
working condition
consideration the common good, but sometimes the vision of the
6. Teacher Reward and
common good may differ among actors (IICBA, 2016, pg.52).' Remuneration
Indeed, stakeholders and partners had held different opinions on 7. Teacher Standards
policy options and priorities in Uganda. Teacher salary and working 8. Teacher Accountability
environment were two prioritized concerns of teachers’ unions, 9. School Governance
while issues of accountability and qualification were prioritized by
the ministry. The consultation and validation process had made sure Teaching Policies and Learning Outcomes in
Sub-Saharan Africa (IICBA, 2016)
that each of the opinions, agreement or opposition, was
represented and discussed, and that space was created in the policy document for further negotiation.
Stakeholders agreed that the priority of the teacher sector in Uganda should be placed on teaching
professionalization and standardization. This led to the Policy Direction, and Policy Actions, Strategies and
Outcomes (see Page 4-5).
In October 2016, the draft NTP was finalized and presented to 100 stakeholders (73M, 27F) for its validation.
Step 3 anticipated the financial and political implementations of the policy and to develop a framework.
'One other essential element to consider is availability of sufficient resources to cover the cost of the
eventual implementation of policies, and political ability to manage the level of conflict that might ensue’
(IICBA, 2016, pg.52). For instance, the draft policy suggested setting up a National Teachers' Council that
would act as an agent authorized to accredit teacher education and to manage the professional
development of teachers. If there is no political and financial support from the related ministries, such as
the Ministry of Finance and the Ministry of Public Service, implementation is not possible. Furthermore,
ongoing monitoring and periodic evaluation also requires allocation of resources. As IICBA (2016, pg.53)
stated 'many of the described possibilities have financial consequences as well as political consequences.'
In September 2017, the National Teacher Policy document, including its implementation framework, was
approved and presented at the 101st ESCC Meeting.
Private Sector Involvement

69%
“TIET tried very hard to get private sector involved in this draft. The
NTP is targeting both public and private school teachers. Our private
sector is going to take this document as a bible, to use, to implement
and to improve.” -- Mr. Patrick Kaboyo, COUPSTA
By the NTP's definition, private sector is 'partner with government in
education in line with the Public-Private Partnership Act, 2015 among of the secondary schools are
others.' In Uganda, this sector is becoming an increasingly important private school
player in education provision at all levels, including providers of

86%
teacher education through private higher education institutions. The
private sector directly employs about 23.3 percent of the teachers in
the country (EMIS, 2015). The situation is less optimistic in terms of the
standardization and management of the private school teachers, but
they are doing comparatively better in some areas such as CPD.
The shortage of qualified teachers is the most pressing issue faced by of unqualified teachers are
the education sector in Uganda. In 2006, 18 percent of primary operating in the private
teachers and 19 percent of secondary teachers were not qualified. sector

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Although these statistics improved slightly in 2010, with a reduction to 12.7 percent and 16.1 percent
respectfully, it was mainly due to an improvement in public schools, not private schools. A majority of
unqualified teachers (86 percent) work in the private sector; 35 percent were serving in primary schools and
16 percent in secondary schools. Keeping in mind that 69 percent of the secondary schools are private, this
situation is particularly worrying, because it means a majority of secondary level students are taught by
unqualified teachers. Therefore, there is an urge to increase the number of qualified teachers in private
schools.

Structure and key content of the National Teacher Policy

Nine chapters constitute the final NTP. They are: Introduction, Policy and Legal Framework, Problem
Statement, Policy Rationale, Policy Direction, Policy Actions, Strategies and Outcomes, Implementation
Framework, Monitoring, Evaluation and Review of the Policy, and Financing.
Policy Rational
The ultimate goal of the NTP is to achieve quality education. Teachers are vital to fostering quality
education because of their impact on student learning. There should be a common understanding
amongst all education stakeholders of what constitutes good, effective teacher practice that supports
educational goals. The NTP promotes consistent and high standards in learning and teaching, in line with
UNESCO’s four pillars of education: learning to know, learning to do, learning to be and learning to live
together.

Policy Direction
A transformed teaching profession and learning environment for a skilled and globally
Policy Vision
competitive human resource
To produce quality, motivated, accountable and adaptable teachers that are responsive to
Policy Mission
education development
The Aim of the To provide a framework to professionalize and standardize the teaching profession and
NTP enhance the development and management of teachers
Specific Objectives Key Policy Priorities
Establishment of the National Teachers’ Council by an
Act of Parliament to professionalize the teaching
Streamline teacher management for better profession. The Council will be responsible for
productivity, discipline, retention and motivation registration, licensing, accreditation of teachers and
implementation of the Motivation framework and the
reviewed Scheme of Service
Strengthen pre-service and in-service teacher Establishment of the Uganda National Institute of
training so as to enhance competences to effectively Teacher Education to provide leadership in CPD and the
deliver quality learning outcomes and leadership at training of tutors. The Institute will implement the Initial
all levels of the education cycle Teacher Training and CPD framework
Development and implementation of standards for
Standardize teacher development, qualifications teaching, institutional leadership and a Teacher
and practice across all levels of education Qualification Framework that can be harmonized with
the regional framework
Mainstreaming cross-cutting issues into teacher
Streamline the integration of cross-cutting issues
training, management and utilization and teacher
into all aspects of teacher training, management and
practices by taking advantage of the policies in other
practice at all levels
ministries
Implementation Principles
Innovation and
Professionalism Effectiveness Accountability Efficiency
Creativity
Policy Targets
Teachers in all level of education; Stakeholders such as parents, education providers, education managers and
agencies, the private sector, CSOs, development partners, teacher unions and associations

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Policy Actions, Strategies and Outcomes
Thematic Policy Action Key Implementation Strategies Expected Outcomes
 Establish the National Teachers’ Council
 Develop and implement the Teacher Qualification
Put in place the Framework and Competency Profiles; standards
Improved management,
minimum professional for teaching ad leadership in educational
uniformity and
standards and institutions; a clear framework for assessing
standardisation of the
qualifications for the teacher and other players in the education sector
teaching profession
teaching profession  Subject all the teachers in tertiary institutions to
basic pedagogical training before being certified to
teach in these institutions
 Establish the National Institute of Teacher
Education
 Harmonize the curricula and the minimum training
duration and pedagogical requirements for
teacher
 Develop and implement programmes for the ‘up-
skilling’ of teachers and tutors to Bachelor's degree Harmonized and improved
and Master's degree qualifications; an Induction teacher training that is
Put in place the
and Probation Framework for teachers and school both responsive to the
minimum standards
or institutional leaders; a CPD framework and a labour market demands
and qualifications for
Framework for Adult Learning but also highly
teacher training
 Pre-entry assessment of prospective teachers will professional to deliver
be under taken by Teacher Training Institutions quality education
(TTIs) in liaison with MoES and responsible bodies
 Every TTI will have a Demonstration School for
practicum teaching
 Re-establish the Institute of Special Needs
focusing on research and demonstration for best
practices to teachers
 Harmonize and standardise the nomenclature
used in teacher training and education
 Develop, review and implement the harmonized
teacher recruitment guidelines; the Teachers'
Improved management of
Put in place the Scheme of Service; the Teachers' Motivation
the teaching profession
Minimum standards Framework
leading to better teacher
and qualifications for  Strengthen Teacher Management and
productivity, retention and
the teacher managers Development information at local and national
motivation
levels of the education system; school leadership
and governance; the implementation of the
teachers' code of conduct and other regulations
governing the teaching profession
The achievement of
 Mainstream and incorporate ICT, gender,
gender parity in teacher
HIV/AIDS, Special Needs Education concerns,
education and to promote
Put in place measures environment, refugee and human rights, and
GRP, working
to support the undertake teacher training on concerning issues
environment and
integration of cross- into teacher development, teacher management
management of teacher
cutting Issues that and teacher practices
affairs and improved
impact on the  Develop an effective ICT system to handle teacher
access to information for
education sector records, information and data as a way of
teachers
streamlining and promoting efficiency in teacher
Better learning outcomes
planning and management
and lifelong learner habits

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Implementation Framework
The Implementation Framework distributes the policy actions for the implementation of the actions and
defines responsible actors/agencies for carrying out each action. It outlines the coordination role of the
MoES, and the roles and responsibilities of various stakeholders.

Policy Recommendations
1. 'A good policy document is expected to be dynamic, contextual, comprehensive and created through a
consultative process, and should be clear and concise' (IICBA, 2016, pg.64).
2. Involve teachers in the development of the policy and frameworks so that they express their immediate
concerns.
3. Ensure national, organizational and individual ownership over the sustainable implementation of the
policy, which requires the involvement of the government and the stakeholders from the planning
stage.
4. Consolidate teacher related issues into one comprehensive policy document for better coordination and
implementation.
5. Formulate the policy based on evidence generated through a diagnosed study of the education context,
including achievements and challenges.
6. Reflect the social and economic requirements of the era in the policy.
7. Integrate an implementation plan that is politically and financially feasible, which clarifies the roles and
responsibilities of stakeholders in order to achieve the policy objectives with more effectiveness,
efficiency and accountability.
8. Provide a mechanism for periodic monitoring, evaluation and review of the policy.

References
Uganda Ministry of Education and Sports. 2017. The National Teacher Policy. Kampala.
Ugandan Ministry of Education and Sport and UNESCO - IIEP Pôle de Dakar. 2014. Teacher Issues in
Uganda: A shared vision for an effective teachers policy. Dakar, UNESCO - IIEP Pôle de Dakar.
UNESCO – IICBA. 2016. Teaching Policies and Learning Outcomes in Sub-Saharan Africa: Issues and Options.
Addis Ababa, UNESCO – IICBA.

http://www.iicba.unesco.org