ealth Education Minister Edinburgh, UK – 27-30 October 2003 p Commonw Closing the Ga ence of vement: the 15th Confer t of por Commonwealth Secretariat Re Access, Inclusion and Achie Report of the 15th Conference of Commonwealth Education Ministers Access, Inclusion and Achievement: Closing the Gap Edinburgh, UK – 27-30 October 2003 Commonwealth Secretariat Commonwealth Secretariat Marlborough House Pall Mall, London SW1Y 5HX, United Kingdom © Commonwealth Secretariat, June 2004 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording or otherwise without the permission of the publisher. Research and Report Co-ordinator: Gari Donn Editorial Team: Education Section Design: Keith Smith Printed in the United Kingdom Published by the Commonwealth Secretariat. Whenever possible, the Commonwealth Secretariat uses paper sourced from sustainable forests or from sources that minimise a destructive impact on the environment. Copies of this publication can be obtained from: Education Section, Social Transformation Programmes Division Commonwealth Secretariat Marlborough House Pall Mall London SW1Y 5HX United Kingdom Tel: +44 (0)20 7747 6294/6291 Fax: +44 (0)20 7930 1647 E-mail: g.donn@commonwealth.int Web sites: http://www.thecommonwealth.org http://www.thecommonwealth.org/education Report of the 15th Conference of Commonwealth Education Ministers Contents Access, Inclusion, Achievement: Closing the Gap Report of the 15CCEM A Foreword by the Director 3 Chapter One: Keynote Address – Professor Amartya Sen 4 Chapter Two: Access, Inclusion and Achievement – discussions of the Ministerial Committees 10 Access 10 Inclusion 11 Achievement 11 Chapter Three: Sub-themes: Discussions of Ministers and Participants of the Parallel Symposium 13 1. Universal Primary Education 13 2. Eliminating Gender Disparities in Education 14 3. Improving Quality in Education 15 4. Supporting Education in Difficult Circumstances 16 5. Using Open and Distance Learning to Overcome Barriers 17 6. Mitigating the Impact of HIV/AIDS on Education Systems 18 Chapter Four: Teacher Protocol 20 Chapter Five: Commonwealth and International Organisations 25 Commonwealth Secretariat – progress and work plans 25 Commonwealth Scholarships and Fellowships Plan (CSFP) – 14th country now on board 26 Commonwealth Education Fund (CEF) – funds for Education in Commonwealth Africa 27 Commonwealth of Learning (COL) – Virtual University for Small States 28 World Bank – World Bank invests in Commonwealth Countries 29 Commonwealth Institute/Centre for Commonwealth Education (CI/CCE) – a new beginning 31 Chapter Six: Summary of Youth Summit and Parallel Symposium Reports to Ministers 33 15CCEM Youth Summit Report to Ministers 33 15CCEM Parallel Symposium Recommendations to Ministers 36 Chapter Seven: The Edinburgh Communiqué and Action Plan 39 Appendix 1 – Delegates 44 Appendix 2 – Observers 48 Appendix 3 – Provisional Ministerial Agenda 50 1 Report of the 15th Conference of Commonwealth Education Ministers FOREWORD The 15th Conference of Commonwealth Education (MDGs)- Achieving Universal Primary Education, Ministers (15CCEM) held in Edinburgh, Scotland and Eliminating Gender Disparities in Primary and in 2003 marked a significant turning point in Secondary Education. Commonwealth Education Conferences. In recent years, to respond to specific needs and demands, This Report, therefore, is both a record of outcomes new features have been added to the Conferences. and a catalogue of what were very engaging meetings In particular, a Parallel Symposium, which first between Ministers, Commonwealth education appeared at the 1997 Botswana Conference has organisations, Parallel Symposium delegates, continued and diversified in presentation. At this Commonwealth youths and development partners. year’s Conference, delegates from the Parallel The Report shows clearly the resolve of the Symposium sat with Ministers and discussed issues Commonwealth to address key education issues of policy and practice in six key Action Areas. and a commitment to work with partners in the global campaign to assist member countries towards A Youth Summit was also an innovation at 15CCEM. achieving the MDGs in education. Two young people from each Commonwealth country were invited to attend the Summit. It was the first time I wish to thank the UK Government, the Scottish Commonwealth youths had been invited to participate Executive, the British Council, the Commonwealth fully at a Ministerial Conference and they rose to the of Learning (COL) and other partners all of whom occasion by speaking eloquently with Ministers. worked with us to plan, organise and deliver a highly successful 15CCEM. But, perhaps 15CCEM will be remembered more for its stand on key global education issues which affect Commonwealth countries. These were seen to include: access to education; inclusion; boys’ and girls’ Nancy Spence achievement in education; education and human Director security; HIV/AIDS and education; and international Social Transformation Programmes Division teacher recruitment problems, particularly for Small Commonwealth Secretariat States. In addition, Ministers focused upon the two London education-related Millennium Development Goals 3 CLOSINGTHE GAP CHAPTER ONE Keynote Address Humanity, Security and Educational Gaps Amartya Sen It is a great privilege for me to have the opportunity of speaking at this meeting of Commonwealth countries on education. I am also very happy that you have chosen Edinburgh as the venue of this important conference. I am very proud of my own associations with Edinburgh, which are quite extensive. So I welcome you to beautiful Edinburgh and to its wonderful intellectual community, of which I am privileged to be a nomadic member, as something of an academic gypsy1. But to this general welcome I must add my particular belief that there could not be a better place for a meeting on “closing the gap” in education than the city of Adam Smith and David Hume, the earliest and greatest champions of education for all. Why is it so important to close the educational gaps, removing discrepancies and neglects in education can and to remove the enormous disparities in educational contribute to reducing human insecurity across the world. access, inclusion and achievement? One reason, among others, is the importance of this for making the world The most basic issue relates to the elementary fact more secure as well as more fair. H.G. Wells was not that illiteracy and innumeracy are forms of insecurity exaggerating when he said, in his Outline of History: in themselves. Not to be able to read or write or count “human history becomes more and more a race between or communicate is a tremendous deprivation. The education and catastrophe.” If we continue to leave vast extreme case of insecurity is the certainty of deprivation, sections of the people of the world outside the orbit of and the absence of any chance of avoiding that fate. education, we make the world not only less just, but The first and most immediate contribution of successful also less secure. school education is a direct reduction of this basic deprivation – this extreme insecurity – which continues The precariousness of the world is now greater than to ruin the lives of a large part of the global population, it already was in H.G. Wells’ time in early twentieth not least in the Commonwealth. century. Indeed, since the terrible events of September 11, 2001 – and what followed after that – the world has The difference that basic education can make to human been very aware of problems of physical insecurity. But life is easy to see. It is also readily appreciated even by human insecurity comes in many different ways – not the poorest of families. Speaking personally, it has been just though terrorism and violence. Indeed, even on wonderful for me to observe how easily the importance the very day of September 11, 2001, more people died of education is perceived even by the poorest and the from AIDS than from physical violence including the most deprived of families. This emerges from some studies atrocity in New York. Human insecurity can develop in on primary education in India that we are currently many different ways, and physical violence is only one undertaking (through the “Pratichi Trust” – a trust of them. While it is important to fight terrorism and aimed at basic education and gender equity that I have genocide (and in this too, education can have a big been privileged to set up in India and Bangladesh role, as I will presently discuss), we must also recognise through using my Nobel Prize money from 1998). the plural nature of human insecurity and its diverse As the results of our studies come in, it is remarkable manifestations. to find how the parents from even the poorest and most depressed families long to give basic education As it happens, widening the coverage and effectiveness to their children, to make them grow up without the of basic education can have a powerfully preventive terrible handicaps from which they – the parents – role in reducing human insecurity of nearly every kind. had themselves suffered.2 It is useful to consider briefly the different ways in which 1 My associations, which give me a great sense of belonging to this wonderful city, include being an alumnus of two universities here: Edinburgh University and Heriot-Watt University (admittedly my connections are only through honourary degrees but they generate a sense of closeness to the real students here), and also through my membership of the Royal Society of Edinburgh and having other associations with this great city (including the good fortune of receiving the Edinburgh Medal in 1997). 2 The same general finding emerged from the much larger study on basic education in India that was undertaken by the PROBE team, Public Report on Basic Education in India (Delhi: Oxford University Press, 1999). 4 Report of the 15th Conference of Commonwealth Education Ministers Indeed, contrary to claims often made, we have not observed any basic reluctance by parents to send their children – daughters as well as boys – to school, provided affordable, effective and safe schooling opportunities actually exist in their neighbourhood. Of course, there are many obstacles in giving shape to the dreams of parents. The economic circumstances of the families often make it very hard for them to send their children to school, particularly when there are fees to be paid. The obstacle of unaffordability must be firmly removed across the Commonwealth – indeed the world. I am, of course, aware that some champions of the market system want to leave school fees to the market forces. But this cannot but be a mistake given the social obligation to Professor Amartya Sen with the Secretary General and Jane Davidson, Minister of Education & Lifelong Learning, give the essential opportunity of schooling to all children. National Assembly for Wales Indeed, Adam Smith, who provided the classic analysis of the power and reach of the market mechanism two nineteenth century the task was seen with remarkable and quarter centuries ago, wrote eloquently, sitting in clarity. The Fundamental Code of Education, issued in Kirkcaldy (not far from here), why it would be wrong 1872 (shortly after the Meiji Restoration in 1868), to leave this to the market: expressed the public commitment to make sure that there must be “no community with an illiterate family, “For a very small expense the public can facilitate, can nor a family with an illiterate person.” Thus – with the encourage, and can even impose upon almost the whole closing of educational gaps – began Japan’s remarkable body of the people, the necessity of acquiring those most history of rapid economic development. By 1910 Japan essential parts of education.3” was almost fully literate, at least for the young, and by 1913, though still very much poorer than Britain or There are other obstacles too. Sometimes the schools are America, Japan was publishing more books than Britain very thinly staffed (many primary schools in developing and more than twice as many as the United States. countries have only one teacher), and parents are often The concentration on education determined, to a large worried about the safety of children, especially girl extent, the nature and speed of Japan’s economic and children (particularly in case the teacher fails to turn up, social progress. which seems to happen often enough in many of the poorer countries). Quite often, the parents’ reluctance has Later on, particularly in the second half of the twentieth a rational basis, and these gaps too need to be addressed. century, South Korea, China, Taiwan, Hong Kong, Singapore, and other economies in East Asia followed There are other barriers as well. Very poor families often similar routes and firmly focused on general expansion rely on labour contributions from everyone, even the of education. Widespread participation in a global children, and this can compete with the demands of economy would have been hard to accomplish if people schooling. This unfortunate practice, though generated could not read or write, or produce according to out of hardship, must also be removed, through specifications or instructions, or to have quality control. regulation as well as by making the economic benefits of schooling clearer to all. This brings us to the second Third, when people are illiterate, their ability to issue in understanding the contribution of schooling in understand and invoke their legal rights can be very removing human insecurity. Basic education can be limited, and educational neglect can also lead to other very important in helping people to get jobs and gainful kinds of deprivation. Indeed, this tends to be a persistent employment. This economic connection, while always problem for people at the bottom of the ladder, whose present, is particularly critical in a rapidly globalising rights are often effectively alienated because of their world in which quality control and production according inability to read and see what they are entitled to to strict specification can be crucial. demand and how. The educational gap clearly has a class connection. Not surprisingly, all the cases of speedy use of the opportunities of global commerce for the reduction of It also has a gender connection since it can be a very poverty have drawn on help from basic education on important issue for women’s security. Women are often a wide basis. For example, in Japan, already in the mid- deprived of their due, thanks to illiteracy. Not being 3 Adam Smith, An Inquiry into the Nature and Causes of the Wealth of Nations (1776, republished, eds., R.H. Campbell and A.S. Skinner, Oxford: Clarendon Press, 1976), I.ii (p. 27), and V.i.f (p. 785). 5 CLOSINGTHE GAP able to read or write is a significant barrier for underprivileged women, since this can lead to their failure to make use even of the rather limited rights they may legally have (say, to own land, or other property, or to appeal against unfair judgment and unjust treatment). There are often legal rights in rule books that are not used because the aggrieved parties cannot read those rule books. Gaps in schooling can, thus, directly lead to insecurity by distancing the deprived from the ways and means of fighting against that deprivation. Fourth, illiteracy can also muffle the political opportunities of the underdog, by reducing their ability to participate in political arena and to express their Minister Roy Bodden, Caymen Islands and others await start of opening ceremony demands effectively. This can contribute directly to their insecurity, since the absence of voice in politics can entail a severe reduction of influence and of the in a comparative study of the different districts within likelihood of just treatment of those who are kept on India, it has clearly emerged that women’s education the wrong side of the gap. and women’s employment are the two most important influences in reducing fertility rates.5 In that extensive Fifth, basic education can play a major role in tackling study, female education and employment are the only health problems in general and epidemics in particular. variables that have a statistically significant impact It is easy to see the importance of specialised health in explaining variations in fertility rates across more education (for example, on the way infections spread than three hundred districts that make up India. In and how diseases can be prevented). But even general understanding inter-regional differences, for example education can broaden a person’s lines of thinking and the fact that the state of Kerala in India has a fertility generate social understanding in ways that may be rate of only 1.7 (which can be roughly interpreted as extremely important in facing epidemiological problems. 1.7 children on average per couple) in contrast with Indeed, some studies have suggested that general school many areas which have four children per couple (or education has a bigger impact on health than specialised even more), the level of female education provides health education itself has. the most effective explanation. Sixth, empirical work in recent years has brought out There is also much evidence that women’s education and very clearly how the relative respect and regard for literacy tend to reduce the mortality rates of children – women’s well-being is strongly influenced by women’s of boys and girls, both. These and other connections literacy and educated participation in decisions within between basic education of women and the power of and outside the family. Even the survival disadvantage women’s agency (and its extensive reach) indicate of women compared with men in many developing why the gender gap in education produces heavy countries (which leads to such terrible phenomenon Social penalties. as a hundred million of “missing women”) seems to go down sharply – and may even get eliminated – with I have so far concentrated on gaps in access, inclusion progress in women’s empowerment, for which literacy and achievement that differentiate one group of people is a basic ingredient.4 from another. But this is also a good occasion to reflect a little on the gaps – of a very different kind – that There is also considerable evidence that fertility rates exist in the coverage of the school curriculum. The tend to go down sharply with greater empowerment of nature of the curriculum is, of course, of obvious women. This is not surprising, since the lives that are relevance to the development of technical skills most battered by the frequent bearing and rearing of (such as computing) that facilitate participation in children are those of young women, and anything that the contemporary world. But there are also other issues enhances their decisional power and increases the involved, since schooling can be deeply influential in attention that their interests receive tends, in general, the identity of a person and the way we see ourselves to prevent over-frequent child bearing. For example, and each other. 4 On this see my “Missing Women,” British Medical Journal, 304 (1992), pp. 586-7, and also “Missing Women – Revisited,” British Medical Journal, forthcoming (possibly in November 2003). 5 On this see Jean Drèze and Amartya Sen, India: Development and Participation (Delhi: Oxford University Press, 2002), and the literature on this subject cited there. 6 Report of the 15th Conference of Commonwealth Education Ministers This issue has received some attention recently in the special context of the role of fundamentalist religious schools, and there is need to pay attention to the narrowing of horizons, especially of children, that illiberal and intolerant education can produce. It is also important to recognise that lack of public facilities for the schooling of children often contributes greatly to the appeal and popularity of religious schools run by political militants. Indeed, the nature of education is quite central to peace in the world. Recently the very deceptive perspective of the so-called “clash of civilisations” (championed particularly by Samuel Huntington) has gained much Participants at the opening session listen to Professor Amartya Sen currency. It is important to see that what is most immediately divisive in this kind of theorising is not the idea – the silly idea – of the inevitability of a clash richness of the Bengali literature and other cultural (that too, but it comes later), but the equally shallow achievements. Similarly, the history of the Arab world prior insistence on seeing human beings in terms of with which an Arab child today can potentially relate one dimension only, regarding them just as members is not only the achievements of Islam (important as of one civilisation or another (defined mostly in terms they are), but also the great secular accomplishments of religion), ignoring their other affiliations and in mathematics, science and literature which are part involvements. and parcel of Arab history. Even today when a scientist in, say, the Imperial College uses an “algorithm,” he There are two mistakes here. First, the classification is or she unconsciously celebrates the innovativeness of very crude. For example, India is put in the box of Hindu the ninth-century Arab mathematician, Al-Khwarizmi, civilisation, even though with its 130 million Muslims from whose name the term algorithm is derived (more than the entire British and French populations (the term “algebra” comes from his book, “Al Jabr put together), India has many more Muslims than most wa-al-Muqabilah”). so-called “Muslim countries” in the world. Huntington’s classification gives comfort only to Hindu sectarians. To define people just in terms of religion-based classification of civilisations can itself contribute to The second mistake is to assume that a person’s religion political insecurity, since in this view people are seen defines him or her reasonably adequately. But every as simply belonging to, say, “the Muslim world,” or human being’s identities have many different “the Western world,” or “the Hindu world,” or “the components, related to nationality, language, location, Buddhist world,” and so on. To ignore everything class, occupation, history, religion, political beliefs, and other than religion in classifying people is not only to so on. A Bangladeshi Muslim is not only a Muslim, neglect many significant aspects of a person’s culturally but also a Bengali and possibly quite proud of the rich background, but also to split people up, in a predesigned way, to make it easier for them to be recruited into potentially belligerent camps. I personally believe that it would be a mistake to add to the faith-based schools that are already in existence (they are mostly old Christian schools here), and compound the problem by having fresh ones, in the name of inter-community equity. Rather than reducing existing faith-based schools, actually adding others to them – Muslim schools, Hindu schools and Sikh schools to pre-existing Christian ones – may sharply add to an existing problem. This is especially so when new religious schools leave children very little opportunity to cultivate reasoned choice and decide how the various components of the students’ identities (related respectively to language, literature, religion, ethnicity, cultural history, scientific interests, Hon Louis Steven Obeegadoo Minister of Education and etc.) should receive attention. It also makes religious Scientific Research and other Ministers at the opening session leaders (no matter what their following might have 7 CLOSINGTHE GAP The Ministers’ Group photograph been in the past among the respective groups of people The Commonwealth… is an entirely new conception who are – often nominally – members of particular built on the highest qualities of the spirit of man: “communities”) the new ex officio spokesmen for those friendship, loyalty and the desire for freedom and peace. “communities.” There is need not only to discuss the importance of our common humanity, but also to stress In promoting friendship and loyalty, and in safeguarding the fact that our diversities can take many distinct the commitment to freedom and peace, basic education forms and that we have to use our reasoning to decide can play a vital part. This requires, on the one hand, how to see ourselves, rather than being put firmly inside that the facilities of education be available to all, and little boxes devised by the government. on the other, that children be exposed to ideas from many different backgrounds and perspectives and be The importance of non-sectarian and non-parochial encouraged to think for themselves and to reason. curricula that expand, rather than reduce, the reach of reason can be hard to exaggerate. Shakespeare talked Basic education is not just an arrangement for about the fact that “some men are born great, some training to develop skills (important as that is), it achieve greatness, and some have greatness thrust upon is also a recognition of the nature of the world, with them.” In the schooling of children, we have to make its diversity and richness, and an appreciation of the sure that we do not have smallness thrust upon the young. importance of freedom and reasoning as well as friendship. The need for that understanding – that The idea of the Commonwealth has something to vision – has never been stronger. offer on the philosophy behind such a broad approach. The Queen herself, as the head of the Commonwealth, put the basic perspective with clarity and force half a century ago, shortly after her coronation, in 1953: 8 Report of the 15th Conference of Commonwealth Education Ministers Keynote Speech – Keypoints 1. Education is a powerful tool and defence against 5. Even the poorest and most deprived parents many forms of human insecurity. Leaving vast long to give basic education to their children. sections of society from participation in education 6. We should provide affordable, effective and leads to human insecurity in its different safe schooling opportunities. manifestations. 7. Barriers to access to education must be removed, 2. Illiteracy removes people from participating in this includes school fees, ensuring that schools their country’s political process, thereby removing have teachers that can teach children, addressing their chances of influencing public policies and child labour issues. decisions. 8. Illiberal and intolerant education can produce 3. Illiteracy and innumeracy are forms of insecurity narrow-mindedness in children. Access to a more and block access to important human rights. liberal school curriculum is important. Not being able to read or write or communicate is a tremendous deprivation. Access to education 9. Lack of public school facilities has led to new can reduce this basic deprivation. types of schools emerging, some of them with very narrow religious focus. 4. Basic education can play a major role in improving health and fighting epidemics; reducing fertility 10. Policies of expanding school opportunities by rates; reducing child mortality rates. opening up religious or faith schools need to be reviewed. Minister of Education, Barbados another area of concern, but, perhaps of greatest concern “Professor Sen’s keynote address and his words are very is the proposal by industrialised countries for GATS- relevant to the development of the Barbadian education related free trade and the movement of educational system and the wider Caribbean. services. Barbados views this development with worry. Commonwealth Caribbean countries face needs of The National Strategic Plan vision is for Barbados to national development, improving the well-being of the develop a socially just, prosperous and globally competitive most vulnerable groups in the society and promoting society. No philosophical divide relates to this across racial harmony. the political parties in our country and there is support for a significant part of expenditure being spent on Lack of access to education presents critical issues and education.” concerns for all countries. Post-independence education has been used as a leverage for national development. Ministers of Education, Canada Education has been used as an instrument to combat “In Canada we recognise that high levels of achievement slavery, colonialism and gender discrimination. Access require attention to high level education. We strive to education relates to our ability to compete in the for continuous employment for teachers, retention in world in the sphere of new and emerging services. schooling, careful education transitions and collaboration with all educational partners. Legislation makes education compulsory and exists throughout the Commonwealth Caribbean until the Aboriginal education in Canada is important as 4.4% age of 16. However there are real issues of access which of the population has aboriginal ancestry. Aboriginal we wish to address at this meeting. Limited access achievement in education needs a response programme. occurs at the pre-school level. At tertiary level, also, Canada is in the process of working on an enhancement there are concerns for access. There is still only a 24% and revitalisation programme with funding for different transfer rate from secondary to university, whereas in aboriginal groups. OECD countries enrolment rates are over 50%. Prof Sen has shown how educational achievement is In Barbados, gender and access issues are a problem important. We hope that the Commonwealth will relating to men, not women. Special needs education is continue to take up the challenge.” 9 CLOSINGTHE GAP CHAPTER TWO Access, Inclusion and Achievement – Discussions of the Ministerial Committees Ministers discussed the theme of the Conference in the first Ministerial Plenary session and then in Committees. Their deliberations brought to attention the key issues in Access, Inclusion and Achievement. Throughout, Ministers addressed the need for more community participation and three-way partnerships between governments, communities and development partners. Partnerships with the private sector and NGOs were also seen as especially important. Access: The Issues all highlighted. This was seen as not just an issue for the developing countries: states like the United Ministers recognised that disparities in access to education Kingdom had issues around teenage mothers, and are manifold and are frequently based upon cultural, education for asylum seekers and immigrants. social, political and economic factors including: • Gender Infrastructure Schooling in rural areas was seen as a common • Distance to schools in rural areas difficulty. In many cases problems with transport and • Children with special needs telecommunications led to non-attendance. The poor • Teacher training, demand and supply condition of schools was seen as a barrier to recruiting • Transition from primary to secondary school and retaining teachers in rural areas. • The Digital Divide. Objectives While all contributions from Ministers were supportive The discussions noted that these disparities can be of universal provision of education, some had differing reduced and partially alleviated through different ambitions based upon their baselines. For some the interventions including the following factors: main issues related to basic education and quality in secondary schools, for others the concern was seen as Finance tertiary education. The costs of schooling – fees, transportation and learning materials – were identified as possibly the most However, one issue common to all was seen as the significant barriers to access. Also, poverty experienced preference of students for academic degrees over by many parents was seen as a problem for many children. vocational qualifications. This is the case, even though On occasion, Ministries of Education have responded to vocational skills are in greater demand. Ministers of this by providing grants or bursaries. But improvement Education agreed that there is little to be gained from in access was seen not simply as a case of removing fees, universal education without improvements in the but also creating enabling conditions. relevance of curriculum and quality of teaching and learning. Ministers noted that whereas developed nations can spend more on education, developing countries find Teachers it difficult to match their educational needs with Participants reported a dire shortage of teachers. available resources. They discussed the view that There were many reasons given for this: in rural areas there are barriers to accessing loans from organisations there was insufficient accommodation for teachers; such as the World Bank. They noted that there are payment of salaries continues to be unreliable, while burdensome conditions attached to and problems in many countries teachers are lost to other countries connected with the process of acquiring loans. or professions. A need was identified to boost the professionalism of teachers, and this, it was seen, Culture could not be done through salaries alone. Ministers noted that schools should be welcoming and child-friendly. Issues such as language, culture, teachers reflecting parents’ cultures and facilities for girls were 10 Report of the 15th Conference of Commonwealth Education Ministers Inclusion: The Issues The difference between ‘access’ and ‘inclusion’ was discussed. It was suggested that whilst ‘access’ relates to the provision of educational opportunities (e.g. compulsory primary education), ‘inclusion’ is about tackling the factors which prevent some social groups taking up the opportunities which are available. This often relates to specific groups, such as nomads, HIV/AIDS orphans, street children, the urban poor and those in remote communities. Various examples of current interventions and strategies were described, including mobile classrooms, boat schools, flexible timetabling, ‘one-teacher schools’ by working on a school farm. This was seen to bring (where one teacher stays with a mixed-age class for benefits for the wider community as well as for the school. several years), and ‘satellite’ schools. There was general agreement that parents can be The potential value of sharing knowledge and fundamental to the achievement levels of a child so understanding of best practice raised questions. The that they too need to be educated. suggestion was made that consideration could be given to a new initiative by the Commonwealth of Learning, using In conclusion, while inclusion could be promoted at new technologies to create an online database of good a school level and at a national level, there was also a practice, perhaps based on surveys on specific subjects. vitally important issue of inclusion at the international, pan-Commonwealth level. The view was strongly A range of views were expressed on the issue of expressed that, while positive initiatives could be taken teaching in the mother tongue, about the provision at the school and national levels, in the last instance of mother tongue teaching materials, and whether the poorest countries of the Commonwealth would this should be a priority for the Commonwealth. still face a situation of inadequate resources. The issue of school feeding was identified as being The proposal was therefore made that the Commonwealth of great importance in encouraging poorer children as a whole, and most particularly the wealthier countries to attend school, and in ensuring they were able to within it, should use their influence, within the G8 and give proper attention to their work whilst in school. elsewhere, to ensure that the Dakar commitments were In some areas parents, particularly mothers, have been adhered to by the international community. encouraged to share in the development of the school Achievement: The issues Ministers noted that historically achievement has been concerned overwhelmingly with academic performance to the neglect of vocational and other forms of attainment. Ministers urged that there should be a parity of esteem between academic and non- academic education and the development of ways to transfer credit between countries. For this reason international benchmarking becomes very important as it assists with international assessments and comparisons. Ministers suggested that the points at which achievement of a child is measured are very important. Yet it is very difficult, at the early stage, to reasonably and accurately measure achievement. “We need to development” said one Minister. There was general distinguish between early stages and later stages for agreement that an objective reference point for measuring achievement. We need to ensure continuous measuring achievement, one not focused on 11 CLOSINGTHE GAP examinations alone, needs to be developed. It was seen a very important role when it comes to influencing as the only way to determine whether value for money achievement. They are the experts, the human resource is attained. ‘There is a need to measure the value added directors and the people with the vision, so they need by education, for example, achievements based on to be well trained. producing better human beings and better citizens’ said one participant. In conclusion, Ministers stated that achievement is influenced by a variety of inputs including physical Education could be seen as a “Theatre of Operation” conditions. For example, schools in rural areas face with a package of requirements and decentralisation of a different set of conditions to those in urban areas management. Management of the school system is and there is a need to recognise this. crucial for achievement. School administrators play 12 Report of the 15th Conference of Commonwealth Education Ministers CHAPTER THREE Sub-themes: Discussions of Ministers and Participants of the Parallel Symposium An innovation at the 15CCEM was the attendance of Parallel Symposium delegates at the ‘Roundtable’ session. This provided an opportunity for Ministers to discuss sub-themes with participants attending the Parallel Symposium. There were six Roundtables and discussion in each was lively and extremely well informed. The ideas emerging from each of the six Roundtables included issues related to policy and legislation, curriculum and teacher education and supply. access, attendance, achievement, completion – in education was highlighted. The development of girl- friendly teaching and learning strategies, including the use of the mother tongue, were discussed as well as the need for more basic facilities, such as girls’ toilets and safe classrooms. Ministers collectively affirmed that ‘education has a role in enabling minority cultures and language groups to gain their rights as respected partner communities.’ The use of mother tongue in teaching and learning was Mrs Amina Ibrahim, Senior Education Official (Nigeria) briefing seen as making education more accessible to this wide Professor Fabian Osuji, Minister of Education, Nigeria, during range of learners. In some instances the use of open and a conference break distance learning might improve access. In addition, national curriculum and assessment frameworks may 1. Universal Primary Education (UPE) be able to incorporate learning and teaching materials so that learners become empowered as agents of their It was generally agreed that countries need to implement own learning. commitments to make primary education free and accessible, and to learn from those Commonwealth There was agreement that all policies should be countries having undertaken such policies. There was underpinned by the principles of equality, transparency, a recognition that although access to education is mutuality and social justice. These were seen as crucial different to completion of education both have been and should be interwoven throughout all work of addressed through the Dakar Education For All (EFA) governments. goals and the Millennium Development Goals (MDGs). The international donor community was encouraged to Ministers noted that a combination of teacher shortages re-visit these Goals and, with Ministries of Education, and HIV/AIDS will jeopardise the achievements of the re-commit to them. 2015 MDG targets. It was seen as important that Ministries of Education identify gaps in teacher supply, Indeed, it was suggested that there must be political ensure co-ordination of policies on teacher supply, and commitment, leadership and strategic frameworks to target support for teacher professional development. define constraints, and strategies for actions. It was seen, therefore, that there are many barriers In some cases, policies for UPE should target specific to UPE. Ministries were asked by Parallel Symposium excluded groups, eg Nomads, street children, refugees, delegates to identify areas for collaboration and and children from fishing communities. Such policies partnerships especially in the realm of civil society. and interventions should pay particular attention to These, it was suggested, could provide solutions to gender balance and gender equality. However, one of many problems in access and in UPE. Partnerships, it the main groups not participating in primary education was felt, could provide a legitimate basis for community is girls. The need to increase their participation – their involvement in school planning, curriculum 13 CLOSINGTHE GAP development, monitoring and accountability. Indeed, participants noted that partnerships between Ministries, Recommendations: civil society and the private sector need to be explored 1. Ministries of Education must exhibit political for what can be delivered and how that delivery can commitment, leadership and strategic frameworks assist governments in meeting commitments. to define the constraints and strategies for action. Funding was viewed as possibly the greatest barrier 2. Relationships between local and central to UPE, with governments being called upon to show government are crucial in implementing efficient greater political commitment to primary education. educational programme interventions. It was suggested that, in addition to the removal of fees, subsidies to families might become necessary. 3. Ministries of Education should learn from It was noted that access and retention are directly each other through sharing of ‘best practices’ related to wealth: the wider issue of poverty must be in achieving UPE. viewed as a significant barrier to UPE. So although UPE is costly, it was seen as cost effective generally. 2. Eliminating Gender Disparities There was agreement that local communities need in Education to be engaged in curriculum development: this could involve dialogue with communities as they reflect Ministers expressed themselves keen to achieve the upon traditions and cultural practices that diminish UN Millennium 2005 target to eliminate gender disparity participation at school. Once these cultural practices in primary and secondary education. They suggested that have been defined, the curriculum could be re-designed a stock take on progress on policy and legislation to date to encourage girls’ and boys’ retention in schooling. would be useful as a starting point for sharing experiences. Finally, participants stressed the need for mandatory Participants at this Roundtable supported attempts to enactment of affirmative action for women in the integrate gender issues into teacher training, professional highest levels of government and education, and a need development and curriculum reform, thereby positioning to support education jurisdictions to monitor policy, a new politics of gender into the mainstream. There was practice and outcomes. The point was made that issues agreement that there needs to be a greater emphasis for women are not just about access. In higher education on mainstreaming, not just in education but in other in South Africa, for example, women are accessing areas, such as employment. It was felt that a genuine higher education, but tend to study a narrower range mainstreaming approach would allow countries to tackle of subjects. It may be important, therefore, to address a wide range of issues, including girls’ access to and issues such as the ‘micro politics’ of institutions. retention in schools as well as boys’ self exclusion at the critical years of early adolescence. Recommendations: 1. There should be a renewed focus by Ministers Discussion also focused upon the importance of member on early childhood education, to enlist children countries having a legislative and policy framework to and families in positive gender roles. support gender equality in education. Ministers could draw to the attention of the Heads of Government, at 2. Ministers should support sharing of best practice, their meeting in Abuja in December 2003, the policy both in terms of policy making and turning policy and legislation requirements needed to guarantee the into action on the ground. protection of women and girls, especially adolescent girls. 3. Ministers should increase their use of the It was noted that the structures and culture of schooling Commonwealth Secretariat website, which could expressed through curriculum, pedagogy, organisation, be developed further, so that information may resource allocation and the work force, all help to be exchanged through this resource. eliminate dominant patterns of gender socialisation. Indeed, it was suggested that policies on gender issues 4. Ministries of Education should aim at achieving could be based on a more careful analysis of data to a better distribution of male and female teachers disaggregate disparities by social class, urban and rural in education systems in Commonwealth countries. patterns, private and public schooling. 14 Report of the 15th Conference of Commonwealth Education Ministers 3. Improving Quality in Education In a lively debate, participants discussed what is meant by ‘quality’ and how it can be achieved. Ministers confirmed commitments to the delivery of quality education and noted that teachers’ organisations are an integral part of the process of achieving quality education. They should not be seen as part of the problem. This is the case, especially, in the context of strategies to achieve the 2015 MDGs. It was recognised that there was little point in providing access to education if the quality of the education delivered by the teacher was not all that it could be, perhaps through a lack of focus on professional development. The continuing professional development (CPD) of teachers was identified as a key element in ensuring quality in educational systems. It was seen as important for teachers to recognize that CPD is a prerequisite of their professional careers and as part of the battle against ignorance and poverty. It was Attending the Roundtable session, Kgomotso Motlotle, recognized, also, that the Commonwealth has a key Secretary-General Botswana UNESCO National Commission role to play in supporting this. It was considered that developing, promoting and across the Commonwealth and would take into account sustaining a reading culture was an essential element the recruitment, management and in-country support in achieving a learning culture. However, considerable for teachers. challenges are faced by many learners in gaining access There was general agreement on leadership in education. to written material. The lack of mother tongue learning It was noted that efforts should be directed at developing material was discussed and seen as a problem. the leadership skills of head teachers/principals. Further, Participants agreed that mother tongue teaching and there should be mentoring/nurturing programmes for learning materials must be addressed by Ministries of teachers who show outstanding leadership qualities. It Education, teachers’ organisations and civil society was seen as useful for principals/head teachers to meet groups involved in teaching and learning. regularly to share experience, knowledge and expertise and to work with those aiming to achieve leadership The issue of comparability of qualifications was seen positions within education. as being a central feature of quality education. With many countries moving towards the development of qualifications frameworks, participants affirmed that Recommendations: quality through qualifications needs, urgently, to be 1. The ACU should address the issue of quality in addressed. higher education, especially possibilities to reduce large class sizes. Participants drew attention to the problems of quality not only in schooling but also at levels of higher 2. Ministers of Education should work with civil education. With tutor/student ratios at times standing society groups and NGOs to develop mother as high as 1:1000 the challenges faced by lecturers tongue reading materials for schools. were recognised as immense. It was suggested that the Association of Commonwealth Universities (ACU) 3. Ministers of Education should ensure that should be asked to address this issue. wherever possible teachers’ organizations are included in decision-making and come to be seen An issue which was discussed in greater detail elsewhere as part of ‘solutions’ to educational problems. in the Conference (see Chapter 4) involved the recruitment of teachers. In this session, participants 4. Ministries of Education should support mentoring argued that recruitment agencies must be properly schemes for those teachers who exhibit regulated and that a Code of Practice should be leadership qualities. developed. This would cover recruitment of teachers 15 CLOSINGTHE GAP 4. Supporting Education in Information on the provision of accommodation, free Difficult Circumstances clothing, food for families, bicycles for children where transportation is an issue, could all prove helpful. In this Roundtable session, participants discussed Information about schools ‘adopting’ a whole family educational options for countries and communities and providing employment for parents as well as affected by natural disasters, wars, civil strife and education for children has worked elsewhere in the conflict. In these, as in all other Commonwealth world, notably in South America. countries, it was generally agreed, the Universal Declaration of Human Rights, the ILO Convention, These knowledge-sharing systems should include the Dakar Framework for Action and the Convention facilitation, networking, discussion and contacts and on the Rights of the Child should form the basis of be available physically and virtually. Indeed, virtual all educational policy and practice. learning – through open and distance technology – was seen as important for communities undergoing Such measures were seen as especially important conflict or natural disasters. Already there is widespread because in countries at war and experiencing natural use of open and distance learning (ODL) throughout disasters, children receive little, if any, schooling and the Commonwealth (see ODL section in this chapter often educational systems collapse. As countries emerge and section on the Commonwealth of Learning (COL) from crisis, issues of human rights, respect for dignity in Chapter 5). ODL is being used to overcome a wide and tolerance of difference need to be given prominence range of difficult circumstances such as shortages of in the curriculum. schools, shortages of qualified teachers, limited funds for scholarships, as well as limited access to specialist Similarly, conflict management could be a feature of vocational courses. the education of young people and adults in countries affected by war and civil strife. Teachers in these The session concluded with examples of ‘what works’, countries need to be helped to develop the knowledge including stories from India where a mid-day meal and skills to deliver a curriculum which deals effectively for children has helped retention rates and from with human rights and citizenship education. Too often Bangladesh where street children have been involved teachers are deterred from staying in communities in the making of TV programmes and thereby have undergoing conflict or natural disasters, thereby gained much self-esteem and useful skills. So although depriving children of access to education. Participants supporting education in difficult circumstances is not suggested that some form of intervention is required easy, the session showed that it is far from impossible. to attract and retain teachers in areas of difficulty. These could be financial subsidies or other forms of Recommendations: physical support. 1. Governments should work more effectively with local communities and civil society organisations It was agreed that regional meetings to bring together to support and empower their attempts to representatives from education, labour and finance overcome difficult circumstances. could meaningfully address issues of child labour and poverty. In many cases, action at the local level has 2. Ministries should identify interventions to attract been the most effective means of mitigating or and retain teachers in areas of difficulty. overcoming difficult circumstances. Participants heard of the success of many NGOs in implementing locally- 3. The Commonwealth should establish knowledge- based projects to help create strong learning sharing systems to provide examples of ‘what works’ communities to provide education. It was suggested and ‘good practices’. These systems should include that governments need to work more effectively with facilitating, networking and discussions: contacts local communities and civil society organisations to should be available physically and virtually. support and empower their attempts to overcome difficult circumstances. 4. The Commonwealth should establish a tri-lateral approach through regional meetings to bring Discussion also focused upon the importance of together people from finance, labour and knowledge-sharing systems to provide information education: these meetings should address issues about ‘good practices’ and ‘what works’ when trying of child labour and poverty. to provide education in difficult circumstances. 16 Report of the 15th Conference of Commonwealth Education Ministers 5. Using Open and Distance Learning However, it was noted that Intellectual Property to Overcome Barriers Rights (IPR) are a concern when it comes to the dissemination of ‘knowledge products’ throughout the Participants at this session agreed that Open and Distance Commonwealth. Speakers asked ‘how can we meet Learning (ODL) will be a major medium for the delivery the IPRs of the owners of education products but also of education in the future. Already, ODL is integral acknowledge the importance of making education to enhancing access and ensuring inclusion, as well as available as widely as possible?’ In discussion, it was addressing equality of opportunity, especially for people agreed that there is a need to see if IPR laws can be in isolated and poorly serviced areas. However, because harmonised across the Commonwealth thereby many Commonwealth citizens live in areas without reducing potential tensions over copyrights. electricity, it was suggested that there is a need to investigate ways of getting ‘education products’ to Generally, it was seen that ODL raises many questions people in these isolated areas without the use of costly about copyright. However whilst there is agreement that technology. copyright rules need to be fair, clear and easily understood, three very different perspectives have emerged: Although Information and Communication Technology 1. The USERS – who want an updated copyright law (ICT) is very important to ODL, it is very expensive to with exceptions that permit them to use copyright administer. Ministers could investigate ways to reduce material without asking for permission or paying costs, especially as there is a wealth of evidence that royalties. ODL can make a substantial contribution not only to social justice but also to achievement. 2. The COPYRIGHT OWNERS/CREATORS – who oppose exceptions and amendments to the legislation Speakers noted that making education a tradeable and want users to ask for permission and pay royalties commodity raises issues for some countries where i.e. basically retain the status quo. education is seen as a nation-building instrument and 3. The GOVERNMENT – who set the legislation and the embodiment of culture. The question developed are trying to balance the needs of users and creators/ as to whether it is possible to have both trade and copyright owners. cultural ambitions addressed in the same education policy initiative. Further discussion drew attention to The debate focused upon two themes: the fact that ODL is likely to emerge as a major form of delivery in an emergent General Agreement on • What should be the ‘free’ part (covered by exception Trades and Services (GATS) environment. Yet it was and which allows free access) noted, there is widespread ignorance about the • What should be the ‘fee’ part (not covered by implications of GATS for education even among key exception and that one has to pay for). stakeholders, such as universities. Given that situation, Ministers and Parallel Symposium delegates suggested Ministers were seen to have four choices: that debate is needed, indeed, is overdue. They noted 1. Wait and see what happens elsewhere in the field that very little data exists on the scale and nature of of ODL; trans-national education: the result is that trade negotiations under GATS are rarely informed by 2. Initiate an internal consultation round/legislation perspectives from educators. It became apparent that committee through Commonwealth channels; Ministers of Education and Ministers of Trade need to 3. Introduce amendments to the copyright law spelling be sitting at the same table. out the exception; Whilst much of the discussion focused on learners, 4. Introduce a licensing regime. participants recognised that teachers are critical in giving structure to on-line courses: content alone is Although discussion did not result in one of these not sufficient. It was agreed that ODL cannot be being accepted, there was general agreement that successful without a proper strategy in place for the on the grounds of access, inclusion and achievement training of professionals who are involved in the ODL should continue to be developed in delivery of ODL. In addition, participants suggested Commonwealth countries. developing a repository of education which would contain ‘lessons in best practices’ and ‘learning objects’, all of which would be widely available. 17 CLOSINGTHE GAP Recommendations: 1. In making ODL policy, Ministers should consider strategies for delivery, how to invest in professional development and engage in possible public/private partnerships. 2. Ministers should involve other government departments, not just education, in promoting ODL and vocational education generally. 3. Because trade negotiations under GATS are rarely informed by perspectives from educators, Ministers of Education and Ministers of Trade need to consult with each other on matters of education. Young children in class in Swaziland 6. Mitigating the Impact of HIV/AIDS Education programmes should be reviewed to ensure on Education Systems they promote behaviour change, through experiential tools, providing a ‘human face’, peer education, as well Participants at this session heard that education for as developing a range of learning resources such as radio, all would not be achieved without tackling HIV/AIDS, television and video. Also, participants agreed that the and, at the same time, HIV/AIDS could only be tackled internet could be exploited in providing HIV/AIDS with robust education systems: the two were seen as education to young people, adult communities, being interdependent. teachers and health-care workers. By far the most important issue addressed was of teachers It was suggested that all Commonwealth countries should infected with HIV/AIDS. It was argued that the resource develop legislation to eliminate the stigmatisation of of infected teachers must be retained in education and HIV/AIDS in society generally and in education in supported. This could be through making treatment particular. There should be clear political commitment and counseling available. to tackle HIV/AIDS and mitigate its impact. Countries need to undertake statistical studies to assess the impact Teachers should be given help in the form of learning of HIV/AIDS on the supply of and demand for teachers. resources and training to cope with and develop new These studies should take account of the impact of knowledge and skills to deliver HIV/AIDS -related HIV/AIDS on school enrolments. This should be education. This should happen at both pre-service and supported by monitoring systems to ensure in-service stages. Further, it was suggested, more programmes deliver. countries should consider the practice of using a pool of relief or substitute teachers. The discussion noted that a multi-sectoral response is required in which Ministries of Education can and In addition, speakers noted the importance of developing should play a part. The Commonwealth should help courses on HIV/AIDS for teachers and for children. achieve this. Mainstreaming HIV/AIDS into the curriculum at all stages would be a first step. Education about HIV/AIDS It should be part of the mission of universities to consider should start at early childhood years and should how their research and development resources can be systematically involve parents. “Education to provide brought to bear on strategies for both mitigating the knowledge about HIV/AIDS is not enough: the effects of HIV/AIDS and on preventing the spread of curriculum needs to embrace a wider range of life skills, HIV/AIDS. A Student Handbook on HIV/AIDS being so that young people themselves need to be involved produced by the Association for the Development of in developing reproductive health programmes”, said Education in Africa (ADEA) with the support of one participant. It was argued that it is vital to retain the Commonwealth Secretariat, was welcomed. children affected by HIV/AIDS in education and thereby to address and reduce their vulnerability and Commonwealth countries have much to learn from risk. This requires multiple support attached to schools one-another by transfer of information, knowledge, and removal of cost and other barriers, e.g. through experience and expertise. However, in this transfer, provision of childcare, nutrition and vocational training. account needs to be taken of cultural differences as 18 Report of the 15th Conference of Commonwealth Education Ministers well as efficient use of resources. Attention needs to the private sector. Participants agreed that these be given to forging partnerships between governments partnerships should work at both national and trans- Ministries, NGOs, community-based organisations and national levels. Recommendations: 1. There should be renewed political commitment to tackle HIV/AIDS and to mitigate its impact. 2. A multi-sectoral response is required, of which Education Ministries can and should play a key part. The Commonwealth Secretariat and other organisations should help achieve this. 3. It is vital to retain children affected by HIV/AIDS in education in order to address and reduce their vulnerability and risk. This requires multiple support attached to schools and removal of cost and other barriers, e.g. through provision of childcare, nutrition, bursaries and grants and vocational training. 4. Education programmes should be reviewed to ensure they promote behaviour change, through appropriate life skills tools. 19 CLOSINGTHE GAP CHAPTER FOUR Teacher Protocol Teachers Recruitment, Retention and Development Issues Commonwealth Secretary General Don McKinnon welcomed Ministers to the session. Hon Ivan Lewis (UK Minister for Vocational Skills) opened the discussion, indicating that recruitment, retention and continuous development of teachers are all essential for maintaining the integrity of education systems throughout the Commonwealth. He recognized that there were many problems in various Commonwealth countries and, as a consequence, member countries were addressing these issues in different ways. The following provides a full account of the discussion at Session Seven. Unlike the other chapters, it is almost a verbatim presentation: this is to assist ministers and others as they work towards the Protocol. Summary Hon Mario Michel (St Lucia): noted that he had been There is a need for properly organised and arranged asked to make a short presentation to the debate on procedures enabling teachers to move between different teacher recruitment. He stated that this initiative Commonwealth countries. Such procedures must be followed the convening of a meeting in July 2002 in based on the principles of mutuality, equity, transparency Barbados, from which came the Savannah Accord. and fairness. The Commonwealth was recognised as It called upon MOEs of the 32 Small States of the a suitable mechanism to address the global challenge Commonwealth to draft a protocol on Commonwealth of teacher recruitment, retention and development. teacher recruitment and to conduct a pan- It was noted that un-regulated recruitment of teachers Commonwealth study on teacher loss. puts teachers at risk and endangers education systems in many Commonwealth countries. This, it was seen, “These activities have been implemented and the will thwart their efforts to achieve the MDG targets. pan-Commonwealth research undertaken. Also the draft of the Protocol was approved at the Seychelles Proceedings meeting held in March of this year. Deputy Secretary-General Mr Winston Cox commenced discussion by drawing attention to the Commonwealth “The Protocol recognises that quality and effectiveness as a mechanism for addressing the global problem of in education can be measured by the pivotal role played teachers’ recruitment, retention and development. by teachers. A World Bank report has recognised that He noted that the Senior Officials Meeting (SOM) teachers have a profound impact on education systems. had established the idea of a Working Group to take forward the possibility of a Commonwealth Protocol. “Recruitment agencies have been contracted by schools to undertake teacher recruitment on their behalf. In supporting the initiative discussed at the SOM, Reports of teachers testify to the abuses carried out by Ministers were asked to address: these recruitment agencies. Among other matters the • The time-frame for a Working Group. purpose of the protocol is to provide ethical recruiting practices for businesses involved in recruiting teachers.” • The Terms of Reference for the Working Group. • Other specific issues which Ministers may wish In summary, Mr Michel noted: “we do not wish our to have included. teachers to be recruited by developed countries. In my own country 75% of the education budget is He also drew attention to the fact that Ministers of utilised for teacher remuneration. We cannot compete Health had adopted the Commonwealth Health Code with developed countries which are able to offer our of Practice in Geneva in May 2003. This document is teachers higher salaries. We cannot expect our teachers to available on the Commonwealth Secretariat website remain in their countries. We expect developed countries and is commended to the Working Group on Teacher to compensate us. We believe this position to be fair, Recruitment. reasonable and logical. We urge it upon all countries.” 20 Report of the 15th Conference of Commonwealth Education Ministers Hon Reginald Farley (Barbados): supported St Lucia’s Hon Peter Peacock (Scotland): supported the view position. “Barbados continues to lose teachers in the that recruitment and retention of teachers is critical areas of science, mathematics and geography. When to all education systems. He noted that the United people are recruited without our knowledge we have Kingdom took different approaches in each of the not been afforded the opportunity to plan or to four countries. accommodate for that loss. We ask that we are given the ability to plan. We have invested considerable The Minister noted, “there is general interest in the funds in the training of these persons. Most people population about being a teacher. There are subject access their training through the government of shortages in Maths and Science. All of us are looking Barbados. It is a brain drain and we feel that we ought for new and different strategies to attract teachers into to get something in return.” the profession. We introduced, in my part of Scotland, a distance learning mechanism to enable professional Steve Sinnot (of the Commonwealth Teachers development and teacher training. Some teachers Grouping also Deputy Secretary General of the NUT are coming from different professional backgrounds. of England and Wales): indicated he was also in We have made our salaries competitive as part of the Botswana in 1997 when Ministers pointed out how domestic challenge. many of them had been teachers, at one time. “We have re-modelled how we take students out of universities. We guarantee teaching places to all He realised Ministers feel strongly about this issue graduates within the first three years after graduation. and drew attention to a letter received from a teacher We are reviewing our teacher education process as part recruited from India: of the continued development of teachers. We have introduced a chartered teachers’ programme enabling “Here I am: A life of hunger; Landed here from a poor teachers to make more income by offering them family. Although this has been a good teaching experience, continued professional development. We are starting I am sitting and weeping in hunger and feeling sick.” to remove the administrative problems of teaching, Mr Sinnot said that no one could wish to respond allowing them to concentrate on their professional tasks. without compassion to that statement. “I have never “Local recruitment of teachers has improved. It is now come across a case of such gross exploitation. By much more attractive to be a teacher. The Scottish stopping work permits being granted for that kind of Executive does not employ teachers nor does a recruitment in the UK, unethical practices have been recruitment agency recruit teachers. Small numbers are terminated. But there is a need for properly organised recruited from other countries. We are very focussed and arranged procedures which enable teachers to move on trying to meet our own needs in our own community. between different Commonwealth countries. Also We are trying to minimise the impact beyond Scotland. procedures should be developed to enable the creation For all these reasons Scotland supports the Working of development assistance programmes to education so Group initiative.” that all countries in the Commonwealth benefit. Hon Kadar Asmal (South Africa): “If one looks at “When developing countries are targeted to provide the document summary, 4,702 teachers were recruited teachers this cannot be defended. Vulnerable economies from South Africa between 2002 and 2003. Black and education systems are striving to meet the 2015 South African teachers are recruited to the cities. objectives. It cannot be defended that teaching forces White teachers are sent to the counties. The problem are targeted.” not only concerns small countries but also large countries. We believe that the teachers’ unions have Mr Sinnot referred to the significant and special a role in this discussion. problems of Small States. He referred colleagues to a statement drafted from the Consortium for “We are in agreement with St. Lucia in the establishment Commonwealth Education, which took account of the of a Working Group. A code of practice, a Protocol, interests and concerns of developed and developing could only be addressed and agreed in a Ministerial countries. It noted the importance of the principles of Meeting. If we wait until the next CCEM, it would mutuality, equity, transparency and fairness. not be possible to act on a Protocol for a considerable amount of time. He concluded by noting that Commonwealth teachers will welcome any work to re-cast the Protocol. “Working “Many of the smaller countries have asked that we do together we can find opportunities for everyone to be not wait for three years for this matter to be addressed. a winner – although we must remember that children What are the intermediate strategies so that we do not must be the real winners.” wait three years? In offering to support this Code of 21 CLOSINGTHE GAP Conduct, South Africa will be pleased to serve on We need to have something concrete by the end of 2004.” the Working Group. Hon Fiame Naomi Mata’Afa (Samoa): “I refer you to “Many of us do not believe that the Geneva rules the documentation sent to us. The genesis of this issue are enough. I did not know that in the UK teachers’ began in the Caribbean and to be true to that salaries are tax exempt. Governments are directly preparation we have to follow this through. involved in this process. There is a right to mobility and there is an assumption that the State should not “Ultimately this is affecting all of our education interfere in that right. But immigration laws grow hot systems. The problem imposed by our teachers and and then cold and some teachers are asked to return their mobility is affecting all of us.” to their home countries when their term of service ends. Others get invited to remain. I have heard that Hon Danny Rollen Faure (Seychelles): “The issue is the recruitment of teachers could be part of the an urgent one and the DSG could chair that Working WTO rules on trades and services. We must make Group. We should use a formula that was agreed upon clear that the WTO rules have no relationship to the by COL when we were discussing the Virtual recruitment of teachers.” University for the Small States. Ministers should be drawn from all regions – African, Caribbean, European, Hon Maxine Henry Wilson (Jamaica): told the meeting Pacific and Indian Oceans.” that when the head-hunters appear in Jamaica, their actions are clandestine. As Minister of Education, she Hon Micheal Laimo (Papua New Guinea): “I too have thought that the teaching cohort was settled for the concern about the subject of recruitment and retention academic year. But teachers were recruited without of teachers. Each government should provide an the knowledge of the Ministry. “There has to be some incentive to retain teachers. If we do not provide salaries kind of adherence to a principle, so that people who we will lose the teachers. Teachers are professionals and are recruited are made known to us. You lose your best each government must act to retain them.” teachers. The average teachers have between five and ten years of experience. It cannot be correct that they Hon Jake Ootes (Canada): “Canadian perspectives are are taken away. We need to work on timing and have like all others: we are attempting to prepare effective a record of who is recruiting whom. teachers. More data and resources are needed across Canada. This will ensure that we continue to provide “We are now counterpoising retention as against information on teacher preparation to all our recruitment. The truth of the matter is we cannot ever Commonwealth colleagues. Indeed, CIDA and compete with developed countries. We increased our Canadian teachers’ professional groups work with teachers salaries by 25-80%. Yet we end up using 95% their colleagues in most Commonwealth countries. of the education budget on teachers. We cannot speak about competitive salaries. It is a vicious circle, we “We understand the difficulty that many countries are will never be able to make it more attractive if you facing. Canada supports the proposal that a working continue to take away our teachers. committee be set up to examine all the ramifications of education systems. Appropriate time frames must “You have a shortage in London of around 2,500 be established and mechanisms developed whereby all teachers and because of the demographic profile this will Commonwealth countries can contribute.” increase. Since you need them and we need them, let us satisfy both of our requirements.” Hon Ann Therese Ndong-Jatta (The Gambia): “For those of us who have been here longer, we have a sense Hon Louis Steven Obeegadoo (Mauritius): “We cannot of frustration. Talking about closing the gap… how do retain our teachers, and most of them are the best trained we begin to deliver and achieve the level playing field? and the most skilled. Obviously having to train new We turn a blind eye to the violation of certain rights. categories of persons presupposes a major loss. All There are unethical things happening which continue countries facing this problem will tell you that this does to cause and maintain this divide. I think that the not guarantee a sound basis for our students’ futures. end of 2004 is a very long way off. Let us not go through all these procedural arrangements that never “We realise that this is a problem affecting a number of end. Where are the teachers to make 2005 happen? countries. We need to do something. We cannot afford The root of the problem may be found in some of the to wait for three years. We want concrete action from regulations. Where are the voices of Ministers of a Working Group of which Mauritius wishes to be a Education at trade meetings and meetings of Finance part. We wish this to be done before the end of 2004. Ministers? The multilateral Ministers must be brought It must be reviewed by a Ministerial action group. together. Let us talk about some kind of roundtable 22 Report of the 15th Conference of Commonwealth Education Ministers and let them see the injustices. We are only seeing Hon Kwadwo Baah-Wiredu (Ghana): “All these issues the tip of the iceberg. Professor Sen has left us with are very critical. You have to tell us about the South a lot to read between the lines. Unless we act now African situation. Ghana may lose its teachers to we will never close the gap.” South Africa. We have made it our responsibility to achieve results here and now. We expect something Hon Roy Bodden – British Overseas Territories from this meeting.” (Cayman): “Cognisance must be taken about engaging the interest of the United States as it is from that Hon Teima Onorio (Kiribati): “We have the problem area that much of the poaching takes place. The city of retaining our teachers at secondary level. They leave of New York is among the biggest recruiters. We will the profession for other jobs. We are finding it difficult need the support of the developed countries of the to find replacements for these teachers. At the primary Commonwealth to address the issue of the United States level we have teacher shortages because of resource in the recruitment processes. They are the greatest constraints. We are embarking with our government poachers.” on this problem. “We are concerned about promoting the gender balance. Hon Paula A Cox – British Overseas Territories Mainly females are attracted to teaching. We would (Bermuda): “We could exploit the possibility that welcome information from countries about motivating teachers might be able to move into the private sector. males to join the teaching profession. In terms of our Could this be part of the terms of reference? In terms salaries, our teachers are well considered in our of retention and development issues, Bermuda would education budget, although we are conducting a review hope to gain, and explore how people can move from of our teachers’ benefits. Kiribati supports the initiative one sector of the economy to another.” to encourage the inclusion of different groups around the Commonwealth, by communicating at Ministerial Hon Trevor Mallard (New Zealand): “We have suffered level toward promoting the status of teachers.” acute loss of teachers over the last five years, but there has been a reversal in the last two years. We got New Hon Dr Murli Manohar Joshi (India): Indicated that Zealand’s teachers to come back because of paying them. the movement of teachers is not different to the Now I have a good group of teachers who are making recruitment of professionals in various other sectors. a resounding contribution to the school system. “This is not something which I foresee we can have an ideal solution. I would like to suggest that a “Can I make comments on the one part that there has regulatory framework be considered so that people not been enthusiastic discussion on? The Commonwealth are not taken by surprise.” is exceptionally poor at sharing good practice in this area. I have been sharing with Ministerial colleagues the Hon Prof Fabian Ngozichukwu Chinedum Osuji good things that we have been doing to professionally (Nigeria): “The issue of recruitment and retention of develop teachers. I have been sharing some research teachers is important to all Nigerians. There has to be that has surprised me on the difference that individual a regulatory framework and we support the view from teachers make to the classroom. Socio-economic India. Nigeria is interested in the Working Group.” differences in schooling can be reduced by good teaching. The evidence is that we can make a difference.” Hon Hazel Manning (Trinidad and Tobago): “I would like to underscore this issue. For Trinidad and Tobago, we Hon Nahas Angula (Namibia): “I am a teacher have stemmed the flow by completing a job evaluation on sabbatical as a Minister! If you are employed exercise and keeping salaries at certain rates. Quality by somebody you are supposed to give notice. I will teachers – especially in English language and mathematics give one month’s notice. I think there is something – were emigrating. But our policies have stemmed the wrong somewhere and that is why teachers abscond. tide of teacher outflow. Nevertheless, Trinidad would Teachers are paid by public money and are employed be pleased to be part of the Working Group.” by public agencies. How can a public agency be involved in the process of absconding teachers? Hon Ivan Lewis (United Kingdom): “We can all Commonwealth governments must adopt the principle see the importance of the issue of teachers at risk. It is that when you are recruiting teachers, this must have a world wide problem – it is not about poaching but recognition by the government. This is so that the a complex problem and UK supports the proposal other government knows what is happening. This will for a Working Group. Careful work and thought are also protect the teacher from exploitation. I need required. The UK would be pleased to take part in teachers in Namibia.” a Working Group.” 23 CLOSINGTHE GAP Conclusions and the way forward “Regarding the timeframe: there are ways and means of DSG (Mr Winston Cox) said that the quality of the ensuring Ministerial support and approval. If Ministers discussion has been extremely rich. He noted that find it necessary to meet, we will meet. I am the servant “you may be interested to learn that colleagues in the to Ministers. We may err on the side or urgency rather economic affairs division have been looking at trade than delay. Regarding the size of the Working Group, issues and have asked for further work to be done. we seek not to limit and would urge you to reach around They reached the conclusion that the financial flows 10 members. If there are more who wish to participate, involved in the movement of persons could be four that we will not fight!” times as much as those by goods.” He noted that recently the Secretariat had hosted Recommendations and Agreements: a meeting for a number of NGOs to discuss education • The formation of a Working Group to examine as a service and how education fits into GATS. “As teacher recruitment. education officials, you must all pay attention to these • The Working Group should be Chaired by DSG important issues about GATS. Recruitment is just (Mr Winston Cox). one issue and is only the tip of an iceberg of global • The Working Group comprises senior officials proportions. from any interested country. “The Commonwealth is becoming a key player in • Senior officials will submit an interim report on addressing teacher recruitment, mobility and retention. their work by April 2004. I am happy to say that the Commonwealth is well- • This will be followed by a final consultation of placed to play a leading role in resolving global issues. Ministers by the end of September 2004. The work done so far – in health for example – has • Trade unions and civil and professional attracted the attention of WHO and other groups. We associations will be invited to participate. have been able to provide certain levels of leadership. • Membership was agreed: Barbados, India, Jamaica, “I would anticipate that Ministers seek to capture the Lesotho, Mauritius, Nigeria, Papua New Guinea, concerns that Bermuda’s question invited. Recruitment, St Lucia, Seychelles, South Africa, UK and Zambia. Retention and Development should be the focus of the Working Group. Specific documents have been • Permanent Observers were agreed: The prepared and more work must be done until the final Commonwealth Teachers’ Grouping, the document can be put out. We hope that Ministers will Consortium for Education in the Commonwealth, make use of the background information provided. the University of Nottingham Centre for International Research. “We have identified a practice from the Finance Ministers’ meetings, to kick off the discussion from Small States and from industrialised countries; the debate will enable us to craft the Terms of Reference. 24 Report of the 15th Conference of Commonwealth Education Ministers CHAPTER FIVE Commonwealth and International Organisations There are a number of Commonwealth organisations dedicated to education. The Secretariat’s Education Section responds to Ministerial mandates as does the Commonwealth Scholarship and Fellowship Plan (CSFP) although its focus is specifically on scholarships. The Commonwealth of Learning (COL) was established in 1987 following the CHOGM held in Vancouver. The presentation by COL of its work and plans also addressed a Virtual University for the Small States of the Commonwealth. A new and welcome addition to the family of Commonwealth education is the Commonwealth Institute/Centre for Commonwealth Education (CI/CCE). This body is being established following its move from London to Cambridge. It will serve the Commonwealth well and its presentation by the Chief Executive, Judith Hanratty was welcomed. Finally presentations were made by the World Bank and by the Commonwealth Education Fund (CEF) which focuses upon funds for the 17 Commonwealth countries of Africa and Asia. Commonwealth Secretariat Ministries of Education to keep them up to date on latest issues, and trends, related to MDGs; A presentation was made on behalf of the Education Section by Nancy Spence, Director of the Social • In this way we will improve our communications Transformation Programmes Division. She noted that network to better promote and publicise innovative the work of the Education Section has been re-shaped examples of educational practice to you, Ministers since the last Ministers’ Meeting in Halifax. of Education on a regular basis. A dedicated staff person will be invested with this role. Drawing attention to the acceptance of a new corporate strategy for the Secretariat by Commonwealth Heads We feel proud of the fact that in a time of declining of Government in 2002, she said that this commits the resources, we have not lost any education staff. With Secretariat’s future work plans to addressing the MDGs. a focused staff of 8, 6 at the programme level, we feel that this work plan can achieve maximum effectiveness “So it follows that our Social Transformation Programmes within such a focused framework. Division (STPD), now embracing Education, Gender and Health is mandated to address poverty reduction B. Brokering – to facilitate the matching of through helping to meet these Goals. In relation to needs to resources Education, these are to support the achieving of universal primary education and to work to reduce gender As brokers, the Education staff can help in three ways: disparity in primary and secondary education. To co-ordinate the matching of mandates and needs to the broader set of Commonwealth resource capacity “We see a new role emerging from this new focus and that exists. You will be learning in this meeting of the new structure and also an opportunity to assist you, work we are doing to ensure an Action Plan is delivered. Ministers of Education. Drawing upon our comparative The Plan draws upon this wider set of Commonwealth advantage of over 40 years of working with resources to take up on Ministerial mandates. Commonwealth education institutions and Ministries of Education, we are developing a three-fold approach Secondly the Education section will call upon our own to assistance. We see this as an ABC role – Advocacy, Commonwealth Fund for Technical Cooperation to Brokering and being a Catalyst.” assist the needs of Ministries of Education. A. Advocacy – to promote education as a key Finally we will develop more collaborative partnerships. priority in all Commonwealth agendas We are about to renew and deepen our commitment to the Association for the Development of Education in • As advocates we will work to promote the importance Africa (ADEA). We will further these collaborations of education in all Commonwealth fora. with COL, the new Commonwealth Centre for Education (CI/CCE), the Consortium for • Drawing from the advantage that we feel we have, Commonwealth Education and the UNESCO high we will facilitate the sharing of knowledge with level group for EFA and many others. 25 CLOSINGTHE GAP C. Catalyst – to share best practice to stimulate • Articulate a pan-Commonwealth policy response faster and wider replication across the on the critical impact of HIV/AIDS on pupils’ Commonwealth. education (specifically orphans) in HIV/AIDS- prevalent Commonwealth countries. And lastly as Catalysts, we feel we are in a privileged and strategic position to be able to: Under the portal of Reducing Gender Disparities in Primary and Secondary Education, the following three • Gather and share evidence-based best practices broad areas are proposed: from across Commonwealth countries related to the attainment of educational goals of the MDGs. • A pan Commonwealth workshop on best practices related to girls’ access and retention issues – facilitated • Through the promotion of pan-Commonwealth by key Commonwealth partners such as FAWE and workshops and publications, to share best practices others in Asia, the Pacific and the Caribbean. and thereby help demonstrate innovative projects for national and regional replication in supporting • A publication in the ongoing series of Gender universal primary education and the elimination mainstreaming for which the Secretariat is well of gender disparities. known, but addressing education policies in particular. • Address the emerging area of male under-achievement. All our commitments to work in these ABC roles are subject to the elaboration of a four year strategic plan Conclusion that will be developed for the Secretariat as a whole With this new focus, new structures and the new and approved by our Governing Boards. But we do ABC role, the Education Section stands ready to assist not see our framework changing dramatically over in a more focused way in helping countries meet the the next four years.” Commonwealth targets related to the Millennium Development Goals. The Strategic Work Plan for 2003-2004 Specific activities Under UPE as a portal, the following four activities are proposed: • Hosting a pan Commonwealth Best Practices workshop on strategies and policies for achieving UPE to learn from each other about what works best and develop this into a publication for the year 2005. • Managing of a Working Group to further teacher mobility issues for quality education. • Develop citizenship education curricula in conflict related areas ( Sri Lanka and Pacific) in partnership Commonwealth Secretariat staff working at the sessions with the Gender Section. Commonwealth Scholarship and Fellowship Plan Professor Trudy Harpham, Chair of the CSFP • there are now more awards – from 421 in 2000 to introduced Dr John Kirkland (General-Secretary ACU) 579 – that being the highest figure since 1995. who gave a presentation on behalf of the Commonwealth • More countries to host scholarships – from 7 in Scholarship and Fellowship Plan (CSFP). He noted that 2000 to 13, nearly now at the target of 14 countries. the mandate from the previous CCEM, at Halifax, had been to facilitate more awards, involve more countries The number of countries hosting awards has increased in the Scholarship Plan and encourage more diversity – although the UK remains the main contributor, it in provision. In addition, the CSFP had been asked has been joined by Malaysia, Trinidad and Tobago, to develop a website and generate a tracer study of Mauritius and South Africa. Cameroon and Ghana where Commonwealth Scholarship alumni can be offer awards. found. He noted that no longer was the CSFP in “At Halifax we were set an objective of 14 countries decline. Far from it: he was delighted to be able to (from an existing seven), we now have 13 countries, report the following good news: so we are nearly there!” 26 Report of the 15th Conference of Commonwealth Education Ministers Malta then announced a scholarship and became the required and the CSFP wish to extend regular 14th country to offer scholarships. communications with former award holders. The CSFP, he added, also propose to divide alumni into • More diversity in provision – greater range of needs, professional groups and encourage regular email for example, short term professional fellowships: contacts with and between each group. This would “Regarding Diversity objectives: at Halifax we were provide a unique Commonwealth professional network. asked to move from CSFP traditional awards and In addition, Dr Kirkland noted that the proportion increase the diversity through Distance Learning of female scholars is steadily increasing from 33% in awards, in Canada and UK, and short term the two previous recording periods to 45% currently. professional fellowships. We were asked to explore For fellows 30% are female. He noted that this is an split site PhDs also.” encouraging development. General interest in the plan • Website: is high: 40,000 individuals applied for awards in 2002-3. Democratisation of the plan has worked. “People know “There is an effective website which is up and running of it and have applied for scholarships and fellowships.” and used extensively. It has encouraged people to go to the country page and see what is on the site for Dr Kirkland concluded by drawing attention to the their country. The funding through DFID and FCO fact that the past three years have seen immense has been much appreciated.” support for the Plan. Nevertheless, challenges still • Tracer study: remain. He said that with no central administration and management of the scheme many developments This will be developed further. In the tracer study become impossible to undertake. The Scheme falls to publication, the Directory of Commonwealth the ACU in the UK to administer: but it may be that, Scholars and Fellows, launched at this Conference in the future, another Commonwealth body may wish and a copy given to each Minister, it was seen that of to act as the Secretariat of the Plan. Also, there are the 2000 alumni located, 100 are now Ministers, discussions on-going as to how the CSFP can harness Permanent Secretaries or Vice Chancellors. Dr further the status of alumni and thirdly how countries Kirkland noted that there is still some ‘tracing’ and alumni can contribute to the scheme. Commonwealth Education Fund Contact 3rd Floor, Hamlyn House, Macdonald Road, The Commonwealth Education Fund (CEF) promotes London N19 5PG, UK. Basic Education throughout the Commonwealth by: www.commonwealtheducationfund.org • Supporting the Strengthening of civil society Email: managingcommittee@commonwealtheducationfund.org participation in the design and implementation of Tel: +44(0)20 7561 7619 Fax: +44(0)20 7561 7626 national and local education plans and frameworks especially through support to national coalitions Recommendations: and alliances. 1. The CEF strengthen the relationship between Ministries of Education and national CEF What do we contribute? coordinators. Given that a majority of • Enabling local communities to monitor government Commonwealth Countries are struggling with the spending on education both at national and local challenge of poverty, and that there is a major levels. difficulty in mobilising resources, the CEF could assist countries in mobilising additional funds. • Supporting innovative ways for civil society to ensure that all children, especially girls and the 2. Every national coalition should inform most vulnerable, are able to access quality education. governments and other partners on its budget and work plan in a bid for information sharing, How are we resourced? and to prevent any duplication of efforts. • Initial £10million was from the UK government. 3. Ministries of Education should understand the • A UK Treasury Committee established the Fund terms of reference of the NGOs in order to know to match pound for pound a further £10million, what they are doing, so that roles are defined raised by March 2004, making the fund worth, and synergies can be put in place. potentially, £30million. 27 CLOSINGTHE GAP Commonwealth of Learning Dr Dhanarajan noted that the Commonwealth Education Media Centre for Asia (CEMCA)’s work has contributed Mr. Lewis Perinbam, Chair of the Board of Governors to closing the digital divide by encouraging the use of of the Commonwealth of Learning (COL) was introduced electronic media and ICTs for education and training in to the meeting. He noted that he was honoured to have Asia. CEMCA, hosted on the campus of the Indira Gandhi been invited to be Chairman of COL, made opening National Open University (IGNOU), has undertaken remarks and called upon the President and CEO of COL, training programmes, developed training materials, created Dr Gajaraj (Raj) Dhanarajan, to present COL’s work. and disseminated knowledge resources and provided advice and guidance on a responsive basis to institutions Dr Raj Dhanarajan expressed his pleasure at having the throughout Asia. opportunity to fulfil the mandatory requirement that COL report to Ministers on its performance since the last Singapore’s National Institute of Education, as well as CCEM and seek their endorsement of, and commitment India’s National Council for Educational Research and to finance, the Three-year Plan 2003-2006. As COL is Training have together accommodated annually about the only Commonwealth agency funded on a voluntary as 30 leaders of African teacher eduation institutions. opposed to assessed basis, a formal indication of Ministers’ These leaders have been exposed to latest developments commitments to provide the financing required to support in ICTs and institutional management as well as the the Plan is essential. opportunities afforded by ODL for teacher development. He emphasized that COL is committed to enable Similarly, COL has collaborated with Abertay Commonwealth governments to provide equal and University in Dundee, Scotland and the Association equitable access to education and training to all of Commonwealth Universities to run professional Commonwealth citizens. development institutes for heads of African tertiary institutions. A key element from COL’s perspective The President thanked Ministers for their support and has been to acquaint those in single mode, i.e interest in the work of COL. conventional face-to-face institutions, with how they might better fulfil their mandate and meet the The President referred to the papers which COL had burgeoning demands for higher education, by becoming submitted for circulation to Ministers, notably the “dual mode”, i.e. adding capacity to deliver their Summary Report 2000-2003, the Three Year Plan 2003- programmes at a distance. 2006, and the Proposal for the Virtual University for Small States. He noted that, since its inception, COL’s Under COL’s Media Empowerment (COLME) work has been supported by CAN$80 million. programme, and in collaboration with the World Health At the time of COL’s establishment some 300,000 Organisation (WHO), COL demonstrated how NGOs Commonwealth citizens had been exposed to Open can use digital media production to address issues like and Distance Learning; today that number is over the stigma associated with HIV/AIDS. COL also reported three million. on a programme funded by Britain that demonstrated how ICTs could effectively and appropriately be used in He drew Ministers’ attention to the Summary Report the training of literacy workers, the pilots having occurred 2000-2003 that provides in greater detail a picture of in both India and Zambia. The programme was so COL work over the last three years. He then sketched successful that Zambia announced its intention to scale some of the achievements during this period, mindful it up to the national level. Similarly, under COLME, of the limited time available. He recalled the four roles training and digitalised production and editing facilities that COL identified in the last Three Year Plan, namely have been provided in every region of the Commonwealth a “Catalyst for Collaboration”, a “Resource for Training”, for distinct purposes, including agricultural training, a “Capacity Builder”, and an “Information and community development, non-formal education, and Knowledge Provider”. technical/vocational education and skills development. COL has collaborated with a wide variety of UN and He then outlined a few of the achievements under each international organisations like the Red Cross/Red of these roles, in the first instance highlighting COL’s Crescent Society, both to help them to capitalise on success at stimulating regional collaboration in a number ODL for the training of their staff around the world, and of areas, most notably in teacher development and the to help them deliver their own training and information development of technical and vocational training, the to those they are meant to serve around the globe. former principally in Africa and the latter with a particular focus on the Pacific. To this end, COL has At the 14CCEM in Halifax Governments agreed to organized workshops and regional meetings and developed a budget of CAN$9m pa to support the Three Year Plan an on-line training programme for policy makers. 2000 – 2003. Only partial success was achieved in 28 Report of the 15th Conference of Commonwealth Education Ministers reaching this level of contributions. The major donor • Systems development – support for the creation of countries include Australia, Canada, India, New Zealand, the competencies and systems necessary to underpin Nigeria,and the UK. COL is grateful for the other quality ODL programmes, and contributions it receives as well, especially from some • Applications – demonstrations of how ODL can be of the smaller states with few resources that nonetheless used effectively to address different learning priorities, manage to make annual contributions. In addition, with the focus being on teacher development, poverty many countries have contributed in-kind support or reduction through rural and community development, financed discrete initiatives. International financial health including especially HIV/AIDS, and other organisations like the Asian Development Bank and the Commonwealth or MDG priorities. World Bank have supported other initiatives, sometimes through contracts for specific work related to distance Dr Dhanarajan mentioned that all three programmes education and of benefit to the Commonwealth. All would be supported by the knowledge/information Commonwealth countries have access to COL materials function of COL. In addition to its regular range of electronically and most, if not all, have received printed information and knowledge resources, he indicated that materials designed to enrich their ability to provide COL is working to facilitate access through the web access to education for all their citizens. to a vast array of ODL materials, covering different topics – essentially creating a virtual library, equipped Having completed his brief summary of a few of the with specialised search facilities. achievements in the 2000-20003 period, Dr Dhanarajan introduced Ministers to the Three Year Plan 2003-2006. The President stated that his vision has always been to He indicated that the Education for All (EFA) goals and “reach the last person in the queue?” To meet this goal, the Millennium Development Goals (MDG) informed it is clear that innovative means of delivering education, the development of the plan, which is results driven and including the use of different technologies, must be has been crafted with a view to results based management. used. He confirmed that Ministers have indicated their determination to ensure learning opportunities are COL sees itself as being able to contribute to the provided to the last person and that technology is achievement of the MDGs in a number of ways over indeed useful in implementing educational strategies. the next three years. At the most fundamental level, societies need an education and training system capable Ministers responded to these remarks by complimenting of addressing their human resource needs if they are to COL on its work as carried out under the last Three be able to significantly reduce poverty. Given the Year Plan 2000-2003 and endorsing the Three Year Plan burgeoning growth in the demand for learning at all 2003-2006 including its budget. A number of Ministers levels, Open and Distance and Open Learning (ODL) announced the contributions that their countries would must necessarily play a pivotal role in the future as be making towards the implementation of the Plan. conventional education alone simply cannot keep up. Virtual University for the Small States of the The three programme areas on which COL will be Commonwealth Ministers at the 14th CCEM directed COL to undertake a study into the establishment of focusing its efforts are: a Commonwealth Virtual University for Small States, • Policy development – support for the creation of building on existing institutions. COL presented the policy and planning frameworks that are conducive findings of the study to the 15th CCEM for Ministers to the use of ODL, consideration. World Bank An outline was presented by the World Bank which gave the background to the launching of the Fast Track Initiative. It was noted that Closing the Gap also entails addressing quality of learning environments. To achieve quality of education, clear challenges must be met with knowledge and understanding. A decade ago it was difficult for countries to have a full understanding of the issues at stake. Today, the level of discussion has considerably increased. The demand for education has grown tremendously and Ministers of Education have a different status. Ten years ago Ministers of Education did not have the same strength and weight in government. Nowadays Ministers of Education are important figures. Political support for education is real. It was noted that countries with good governance and good policies can get support from the World Bank. Resources therefore go to those countries with good leadership and good strategic frameworks. Currently 18 countries are participating in the Fast Track Initiative but discussions to open it up to all countries will be taking place soon. www.worldbank.org 29 CLOSINGTHE GAP The way forward reform, positioning countries to take a quantum leap The concept report on the Virtual University for the forward especially through the partnerships that would Small States of the Commonwealth developed by COL, be forged. with the assistance of a technical advisory committee, benefited from extensive consultations with the Ministers agreed that : Ministers of Small States. It was overwhelmingly • while the focus must be on the small states, benefits endorsed by the Ministers. would also be derived by the larger states. The Vision comprises: • the project would be nested in COL during the initial stages of its development. • A Consortium of institutions • the funding required of CAN$22m over 5 years is • Developing content for delivery unlikely to be available from member states alone and • Development and access of content data bases would therefore require COL and the Commonwealth Secretary General to work together to secure the • An online digitalised Repository of Learning Objects necessary resources. accessible by Small States which can also feed into it. (Several examples of learning object repositories Malta and India both indicated potential support for exist currently). the initiative. It was noted that Virtual University offers opportunities both for expanded access to education and for educational 30 Report of the 15th Conference of Commonwealth Education Ministers Commonwealth Institute/Centre for Commonwealth Education The remit of the Commonwealth Institute is to advance education, right across the Commonwealth. The supervision of the activities of the Commonwealth Institute is delegated to Trustees who include the Secretary-General of the Commonwealth, a number of the High Commissioners, some lay members and Judith Hanratty as an independent chairman. The Institute wishes to bring to life the values of the Commonwealth, particularly that of sharing. In order to fulfil its remit, the Institute is establishing a new body, the Centre for Commonwealth Education. The new Centre will be responsive to educational needs – primary and secondary – across all Commonwealth countries. The remit of CI/CCE is on primary and secondary education, and the training of teachers. These wishes reflect the needs of children, in both primary and secondary schools, in all Commonwealth countries. The decision was therefore taken by the Commonwealth Institute (representing all Commonwealth countries) to make a real link to the requirements of countries and establish this new Centre for Commonwealth Education. The countries will be setting up priorities. The CI/CCE will focus on 3 areas: functioning as a life-long bank of information and contacts for both teachers and students. 1. Disseminate expertise – by developing collaborative programmes, by running courses in educational The Centre will be a catalyst. It will bring people leadership and by providing opportunities for leaders together and will create a system linking the education to come to Cambridge. and teacher training institutions across the Commonwealth. It will seek out and transmit best 2. A programme of research and scholarship which practice. It will assist in the delivery of knowledge reflects and responds to the practical educational so as to deliver best practice in individual countries. needs of Commonwealth countries. It will seek to create partnerships with business and 3. Undertaking consultancy projects and the provision encourage an entrepreneurial approach to projects. of research-led advice on those areas of specific This cannot be done without links with other concern and interest to Commonwealth institutions throughout the Commonwealth. One of governments. the many phenomena of globalisation is that with the proper organisational structure, knowledge flows more In addition, the Centre will provide far-reaching openly. CI/CEE will position itself as a key player as network opportunities for all involved with education, a catalyst for action. Judith Hanratty, Chair Commonwealth Institute, the Hon Don McKinnon, the Secretary-General, Hon Peter Peacock, Minister of Education (Scotland) and Rozaimah Haji Abd Rahman, youth delegate at the session 31 CLOSINGTHE GAP Focus and delivery are two things the Centre will • Next year, the CI/CCE will establish a three year keep very clearly in mind. Progress requires much strategic plan. open sharing between Commonwealth education • CI/CCE wishes to listen to Ministers and their organisations. We will act as a catalyst, and will needs, to give back to the Commonwealth some benefit from being at Cambridge where there is of the resources that have been given to the university work and research. Currently there are Commonwealth Institute. 40 post graduate education students from 35 countries of the Commonwealth at Cambridge, where there • The Institute is seeking to link faculties and teacher is an outstanding record in research. training centres, to bring people in for shorter courses. It should do for education what the Harvard Business • The Commonwealth Institute will link with the School has done for business: to become a strong Ministries through the Advisory Board. It is in the research engine to multiply knowledge and best process of appointing a Director and 2 deputy practice. directors. Report of Select Committee on CI/CCE by the Hon Prof Kadar Asmal On behalf of the Select Committee which met yesterday to discuss the establishment of a Commonwealth Centre for Education, I am pleased to formally propose to you its approval by this Conference of Commonwealth Ministers. It is my considered view that the proposed Centre has the capacity to contribute towards the greater good of the education systems of Commonwealth countries, and this alone should make us approve it. In doing so, I must advance some constructive across the Commonwealth. In keeping with the spirit comments, also made by the Select Committee. of inclusion, the document proposes that the Centre These relate to three areas: governance, funding, could “unleash the power” of the member states, and and purpose. indeed it must draw on the capacity of all the people of the Commonwealth. On the matter of governance, it is critical that the programme of the Centre be determined by the It is also important that the focus remains sharp, and needs and interests of Commonwealth countries. that the areas of work are clearly demarcated from This requires principles and practices of transparency other institutions like the Commonwealth of Learning. and accountability, and democratic decision-making I am not sure it is sufficient just to say that the procedures. The Advisory Board must be able to Centre will work “in close collaboration with other define the agenda, and determine the issues on which Commonwealth institutions”. The Centre cannot be research should be conducted. Similarly, we must “everything to everyone”, and must define its niche ensure that Ministries of Education are directly areas. It must also be clear that it is not an inter- involved; the routing of accountability through the governmental forum, but a research and capacity Institute, and hence via High Commissioners and building agency. There should be no political advocacy Departments of Foreign Affairs, perhaps needs to be or agitation; there is no role for country comparisons reconsidered, and a more hands-on route devised. or value judgements. As regards funding, there are some real questions about We should also accept that the role of the Centre sustainable funding. In particular, countries need to should be modest to begin with. The proposed know what contribution, if any, they will be required function of “providing advice to governments” to make. We are advised that initial funding has been must be done in a modest way, one which is secured through the sale of the historical assets of the supportive to member states. Institute, but this needs to be sustained, and greater clarity on the matter of financing will be needed. I make these comments in an attempt to be constructive, and to see the Centre succeed. We must share expertise The most important issue is that of focus. In the and best practice, and we must take on research which presentations, the Centre is proposed as a “focal point is of benefit to us all. If we can establish a Centre which for an international network”, and not a hub which will do this, then I believe it deserves our support, and only radiates outwards from Cambridge. As such, it is I hope we can agree in principle with the establishment critically important that the Centre makes connections of the Centre for Commonwealth Education so that with National Institutes for Education, in their the hard work of dealing with some of the detailed various forms, and with higher education institutions planning can proceed. 32 Report of the 15th Conference of Commonwealth Education Ministers CHAPTER SIX Summary of Youth Summit Reports to Ministers The 15CCEM saw another innovation – the Youth Summit. Held near the main Ministers’ meeting, two youths from each Commonwealth country spent three days in discussions on the themes and subthemes of the Conference. Time was made available in the programme for the Ministers to meet the youth delegates and the youth presentation at the final session was welcomed by Ministers. The following account summarises the discussion at the Youth Summit and comprises the presentation of the youth delegates to the Ministers. The delegates expressed the beneficial experience of Universal Primary Education coming to ‘abroad’ and especially into a multicultural The 15CCEM Education Youth Summit is setting. They welcomed the opportunity of speaking concerned that: with Ministers – and they spoke of the way their lives The profile and benefits of education are not are being shaped by others. But the future is theirs. emphasised enough across the Commonwealth. They suggested that Ministers must give them an opportunity to spread the word. There are huge gaps The Youth Summit recommends to the in gender. “We come from privileged schools and we Commonwealth Ministers of Education that: want to see all children with our schools’ facilities.” They place greater emphasis on raising the profile and Mitigating the Effects of HIV/AIDS benefits of education amongst the Commonwealth The 15CCEM Education Youth Summit is peoples. concerned that: The Youth Summit believes that this can be achieved The issue of HIV/AIDS education and awareness has through the following actions: not yet been properly addressed in all Commonwealth countries. There is a need for the leaders of the 1. Develop and support youth councils and involve Commonwealth to publicly recognise that HIV/AIDS them directly in curriculum design and decision- is one of the biggest crises facing the future of our making in education. nations. Lack of education concerning the factors that cause the spread of HIV/AIDS has resulted in 2. To create an international Commonwealth numerous problems. Education Day on which every school can raise the profile of education and raise resources to go The Youth Summit recommends to the Commonwealth into a central fund that can be used to help develop Ministers of Education that: peer education in less fortunate schools. Ministers across the Commonwealth must act now to 3. Provide central access points in war-torn and rural improve education on HIV/AIDS. areas to promote education to parents and children. The Youth Summit believes that this can be achieved through the following actions: 4. Encourage parents to return to education with incentives for them to stay in education. 1. Compulsory inclusion of HIV/AIDS education in the curriculum. 5. Honour teachers more and promote them as 2. Train all teachers to teach this aspect of the important in and to society. curriculum. 3. Involve young people who have knowledge and/or experience of HIV/AIDS in this education programme. 4. Create HIV/AIDS Action Committees. 33 CLOSINGTHE GAP Youth Summit participants Eliminating Gender Disparities in Education The 15CCEM Education Youth Summit is concerned The 15CCEM Education Youth Summit is at the consistent underachievement and lack of concerned that: motivation in education by boys in some Commonwealth countries. We are concerned about the long-term social Education Ministers publicly acknowledge the issue consequences that will result. of female exclusion from education. Exclusion leads to young women becoming second class citizens in their The Youth Summit recommends to the Commonwealth own country. Ministers of Education that: Ministers put in place clear policies and strategies The Youth Summit recommends to the Commonwealth to ensure that both boys and girls are motivated to Ministers of Education that: achieve their full potential in their chosen fields. Ministers make greater effort to improve access for girls and young women into education and make this The Youth Summit believes that this can be achieved access easier. through the following actions: 1. Revise curricula so that they respect that individuals The Youth Summit believes that this can be achieved learn at different paces and in different styles, and through the following actions: find different subjects relevant to their life choices. 1. Create Commonwealth partnerships to share good 2. Promote effective use of role models to inspire the practices in dealing with gender issues in school educational development of young people. across countries that share similar cultures. 3. Use the public media to raise the profiles of young 2. Develop policies and strategies which create safe people who have achieved in education against environments for girls in schools. adversity. 3. Set up community outreach programmes to promote the benefits of women receiving education. 4. Fund research to investigate the reasons for the exclusion of girls from education in different Commonwealth countries so that positive action which respects local culture can be identified. 34 Report of the 15th Conference of Commonwealth Education Ministers Supporting Education in Difficult Circumstances The 15CCEM Education Youth Summit is concerned that: Many young people in the Commonwealth suffer from physical and emotional special needs and that education in the Commonwealth does not provide adequate access for these students with special needs. The Youth Summit recommends to the Commonwealth Ministers of Education that: Ministers develop and maintain appropriate access and inclusion for special needs students to improve their opportunity to achieve. The Secretary General, his son James and the African Children’s Choir The Youth Summit believes that this can be achieved through the following actions: 2. Ensure that teachers of specialist subject areas are properly trained. 1. Ensure that all teachers in the Commonwealth have basic training in special education, with more 3. Include child psychology, conflict resolution and teachers trained specifically in special physical and non-violent discipline approaches in teacher emotional needs. training. 2. Develop and / or promote a special needs support unit within the Education Ministries which involves 4. Raise the profile of teaching as a respectable and youth in developing the support structures for those worthwhile profession. with special needs. 3. Establish and maintain the infrastructures in Using Distance Learning to Overcome Barriers education to accommodate young people with The 15CCEM Education Youth Summit is special needs. concerned that: 4. Enforce education legislation in every Commonwealth Not all Commonwealth countries have access to open country against discrimination based on disability. and distance learning infrastructure and resources, including human resources. Improving Quality in Education The 15CCEM Education Youth Summit is The Youth Summit recommends to the concerned that: Commonwealth Ministers of Education that: Ministers make measurable progress towards achieving In many areas of the Commonwealth, there is an access to open and distance learning infrastructures insufficient number of qualified and trained teachers. and resources for all Commonwealth countries before Moreover, the standard of their training is impeding the next CCEM. the improvement of the quality of education. The Youth Summit believes that this can be achieved The Youth Summit recommends to the through the following actions: Commonwealth Ministers of Education that: 1. Teachers should be trained to use the technologies Ministers create positive incentives throughout the required for open and distance learning. Commonwealth to recruit quality people into the 2. There is consistency in the delivery of open and teaching profession and provide them with a high distance learning across communities’ centres. standard of training so they can do their job effectively. 3. Ensure that donated resources are allocated The Youth Summit believes that this can be achieved appropriately and equitably. through the following actions: 1. Include learners in the process of training and selecting teachers. 35 CLOSINGTHE GAP 15CCEM Parallel Symposium Recommendations to Ministers Interim Report from 15CCEM Parallel In each of these cases a number of the Symposium Symposium 29 October 2003 sessions were relevant, e.g. the sessions on inclusive education from policy to practice, social inclusion In her opening address Amina Ibrahim expressed the and education in difficult circumstances clearly have hope that through the Symposium ‘we should be able to relevance for the Action Area ‘Supporting education consolidate on the gains we have made at our different in difficult circumstances.’ levels; share best and worst practice, measure our successes and failures constructively, so that we may The Parallel Symposium therefore commends the continue to accelerate our actions towards the goals attention of Ministers to the following proposed that have eluded us so far.’ agendas for action in each of the six areas. She also reminded us that ‘It is essential we address the Universal Primary Education design and delivery of education within the realities of our countries so that we avoid the disconnect between • In order to ensure we achieve the delivery of EFA, the well-meaning declarations that we make and the all countries and the international community reality of our environments…’ should revisit and re-commit to the Dakar EFA goals. Attention to the Dakar goals will ensure the Bob Fryer reminded us that we live in a era of profound achievement of the MDGs. social change. Professor Sen also expressed eloquently • International commitment to providing free basic the way in which education should improve the security education of high quality needs to be followed up of individuals and communities that are being challenged with concerted action at the national level that by the threats arising from living in a era which is ensures that constitutional and legislative mechanisms characterised by rapid change. are put in place to remove this barrier to education. Professors Natarajan and Fryer from their different • Both the Dakar framework for action and the MDGs perspectives set out the challenges of producing a new explicitly underscore the importance of partnerships generation of learners able to respond to the challenges in the sustainable delivery of basic education. and opportunities of the 21st century. Partnerships need to be consolidated at all levels with civil society, the private sector and the Brendan Nelson encouraged young people to create international community. The principle stakeholders their own world and not to necessarily accept the one must develop common understandings of the bequeathed to them by the current generation. definition and scope of basic education. Governments must recognise that all pupils, parents and teachers Symposium delegates have worked hard to respond to are stakeholders in this process. There is no “one size these exhortations for action. fits all” approach to partnerships, and local solutions may vary. The Symposium sessions were organised to address the major themes of Access, Inclusion and Achievement Gender Disparities in Education and the cross-cutting themes of Capacity Building, • Without a doubt the actualisation of the gender goal HIV/AIDS and Millennium Development Goals. As by 2005, Eliminating Gender Disparities, is essential the planning of the Ministers’ conference proceeded, not only to the Dakar framework and DFA but to the wisdom of focussing on a number of key areas for the achievements of all the 8 MDGs. action became evident. These action areas are • National governments are called upon to ensure that • Universal Primary Education they have the necessary institutional and financial • Gender Disparities in Education capacity to plan for the mainstreaming of gender, boys and girls, into policy and strategies for • Improving Quality in Education implementation in partnership with civil society. • Using Distance Learning to Overcome Barriers Improving Quality in Education • Supporting Education in Difficult Circumstances • Central to achieving the 2015 goals and to improving • Mitigating the impact of HIV/AIDS on education the quality of education is lifting the quality of systems. teachers and their leaders. This process must involve 36 Report of the 15th Conference of Commonwealth Education Ministers Mokobung Nkomo, Chair of South African Qualifications Authority and participant at the Parallel Symposium the teachers themselves and their organisations so recurrent and capital budgets needs to be prioritised that they help to provide the solution rather than at national level while the international community be part of the problem. must deliver on funding the gaps to support government efforts. • Ministers should develop programmes which build Using Distance Learning to Overcome Barriers the capacity of head teachers. High-quality schools require high-quality leaders. • ICT offers a wonderful opportunity to help close some gaps. It can reach people in remote or rural • Teaching needs to be re-established as a desired, areas, for example, and can be used to deliver the sought-after profession, viewed by communities and curriculum in flexible ways to suit the varied needs governments as a profession of high status. Pay and and lifestyles of citizens everywhere. Governments conditions of service are critical factors in this regard. should develop strategies to make the best use of Governments need to coordinate their policies on ICT in their country so that it is used to close the teacher supply and professional development, and gaps not to widen the digital divide. recognise the impact internationally of these policies. We all need to work together to recapture the glory Supporting Education in Difficult Circumstances of teaching, for without an adequate supply of well- trained, well-led and motivated teachers no country The education of children in difficult circumstances will be able to achieve its education goals. takes on two dimensions. One is the familiar context of marginalised groups such as the nomads, traders, • The impact of a relevant curriculum is essential to the HIV/AIDS-infected, while the other one deals with quality of learning inputs and outputs in the classroom environments created by the absence of human and both at the level of the teacher and the child. Emphasis child rights. on innovative curriculum reform that reflects country realities especially in federal systems and the • National governments and international partners achievement of the Dakar goals must be supported must strive to design and provide non-formal structures at both international and national levels. to accommodate the same quality inclusive education as for those in formal education. • While funding alone will not deliver a quality education, the availability of adequate funding in 37 CLOSINGTHE GAP • National governments must ensure conventions is tomorrow’s future. We need to, as critical friends, signed by them in support of human and child rights engage in open and transparent dialogue that will enable are enacted into law at country level, thus creating the monitoring of all stakeholders in the delivery of EFA. an environment where there would be zero tolerance We must build on the strengths of the Commonwealth for crimes against the child and women. and ensure we share knowledge through a network of best practice. Mitigating the Impact of HIV/AIDS on Education Systems At this juncture we would like to recommend that the Ministers create awards for best practice in each • The threat of HIV/AIDS is extremely serious in one of the six areas, to be awarded at the 16CCEM. some countries now, and potentially serious in all countries. Education about HIV/AIDS should start We hope we have provided constructive at the early childhood stage and should involve recommendations that you, our honourable Ministers, parents. Young people themselves need to be involved will be able to act upon and carry forward to the in developing reproductive health programmes. Commonwealth Heads of Government Meeting being held in December this year. We thank you for the • Governments need to support research and opportunity to provide input into your Ministerial development into HIV/AIDS and its impact sessions as they conclude tomorrow. upon their education system. Countries have much to learn from one another by the transfer Finally, we have the pleasure in handing over the of information, knowledge, experience and Interim Report from this Parallel Symposium. We hope expertise on this vexed issue. that it will contribute to the formulation of the action plans which are being prepared. In conclusion, there is an urgency to make ACTION our watchword if we are to tend to our youth, which 38 Report of the 15th Conference of Commonwealth Education Ministers CHAPTER SEVEN The Edinburgh Communiqué and Action Plan 15th Conference of Commonwealth Education Ministers, Edinburgh, Scotland, United Kingdom, 27-30 October 2003 1. Education Ministers and representatives from forty- learning to Overcome Barriers; Supporting eight Commonwealth countries met in Edinburgh, Education in Difficult Circumstances; Mitigating Scotland, United Kingdom from 27-30 October the Impact of HIV/AIDS in Education. 2003 for the 15th Conference of Commonwealth Education Ministers (15CCEM). 6. The key point made by delegates from the Youth Summit was that young people should be directly 2. The essence of the Conference can best be involved in developing education systems, including encapsulated in the following statements: participation in Youth Councils, and involvement in the selection of teachers and in the design and I am a beautiful, confident, strong, educated young evaluation of resource materials and the woman… We need more of us. curriculum. Carolanne Makakaufaki, Tonga, Youth Summit Delegate 7. Running through the recommendations made by the Parallel Symposium was the recurring theme of If we continue to leave vast sections of the people of the Partnership without which, they suggested, future world outside the orbit of education, we make the world action on all six Action Areas could not be taken not only less just, but also less secure. forward successfully. Such partnerships should be Professor Amartya Sen, Keynote Speaker formed at the widest level between and among governments, civil society, the private sector and 3. Unique about this Conference was the input of the international community; and at ground level a Youth Summit and a Parallel Symposium, which between pupils, teachers, head teachers and parents. fed directly into the Ministerial Conference. Ministers engaged in discussions around the theme 8. They also recommended sharing knowledge of the Conference and the six Action areas in through a network of Best Practice. To show the break-out sessions with the Parallel Symposium importance that the Commonwealth places on and the Youth Summit. The range and complexity this, they recommended the creation of an award of the discussions are summarised in Annex A, for Best Practice in each of the six Action Areas, attached. Summaries of the Conclusions of the which would be presented for the first time Youth Summit and the Parallel Symposium are during 16CCEM. attached at Annexes B and C. 9. Ministers affirmed that education is a crucial 4. Ministers reviewed progress in education across means for adapting to and directing change; the Commonwealth in the context of the main reducing poverty, ensuring security; improving theme of the conference - Closing the Gap: health and well-being; enhancing economic Access, Inclusion and Achievement. They prosperity and personal security and safety; identified key issues, challenges and opportunities promoting fairness, justice, and peace; and that needed to be addressed if their educational achieving environmental sustainability. aspirations were to be achieved. 10. Ministers noted with satisfaction the progress made 5. They identified six Action Areas where work on taking forward the Action Areas identified in would be taken forward to address these challenges: the Halifax Statement, and the need to work with Achieving Universal Primary Education; vigour if they were to meet the targets of the Eliminating Gender Disparities in Education; Education For All (EFA) and the Millennium Improving Quality in Education; Using Distance Development Goals (MDGs): Universal Primary 39 CLOSINGTHE GAP Education (UPE) and Eliminating Gender society organisations and professional associations Disparity (EGD). To do this, combined efforts that exist at a Commonwealth level and which and vision will be required from all governments, contribute to Commonwealth education and other public sector stakeholders, civil society and training. Ministers approved the Education Section’s the private sector, including support for policies Work Plan which focuses on the new role of that enhance and facilitate building capacity and advocacy, brokering and acting as a catalyst. achieving these goals, while avoiding practices that may impede progress. 17. Having made notable progress with the Commonwealth Scholarship and Fellowship Plan, 11. Welcoming delegates to Scotland, First Minister the Ministers gratefully received Malta’s declaration Rt Hon Jack McConnell MSP, said that Scotland to become the fourteenth country to agree to fund has a long tradition of valuing and investing in a Fellowship under the Plan. Ministers recognised education. I hope that we can all learn from the that smaller states need more scholarships and ideas, expertise and experience from around the fellowships. world which is collected here this week. 18. Ministers supported the establishment of the 12. The UK Secretary of State for Education, the Centre for Commonwealth Education, a partnership Rt Hon Charles Clarke MP, opened the 15CCEM between the Commonwealth Institute and with the statement that education is at the centre Cambridge University as a significant additional of the Commonwealth. He launched the Global asset in meeting the educational challenges Gateway, an on-line system to promote and enable facing the Commonwealth. They welcomed the partnership working to support Commonwealth announcement of a £1.25m private donation to the education. centre for carrying out some of its future activities. 13. Ministers affirmed the unique value of the 19. Ministers complimented the Commonwealth of Commonwealth recognising that it is ideally placed Learning (COL) on its work and accomplishments to share expertise, resources and best practices in of the past three years. They approved the 2003-06 education as a vital component in attaining the business plan and pledged financial support. individual and collective goals and aspirations for In view of the impending retirement of President their countries. Noting the significance that Youth Gajaraj Dhanarajan, they recorded their Summit delegates placed on meeting together as appreciation for his significant contribution members of the Commonwealth, it is important to the Commonwealth through his many years to provide opportunities for young people to learn of dedicated work. They also welcomed the new about the Commonwealth and its values. Chair, Mr Lewis Perinbam. 14. Education Ministers discussed the critical issue of 20. Ministers endorsed the proposal, requested at the cross-country teacher recruitment. This was viewed 14CCEM, for a Virtual University for Small States, by Ministers as one of the most urgent issues to be designed to offer opportunities for expanded access addressed in “closing the gap”. They established to education, teacher training and upgrading, and a working group on this issue, to be chaired by the which may also benefit other regions and states of Deputy Secretary-General, to develop appropriate the Commonwealth. Ministers decided that COL and ethical codes of conduct. The working group is should take leadership of this capacity-building to report to all Ministers by the end of April 2004, initiative, and collaborate with existing resource and an ad hoc group of Ministers will finalise the institutions in member countries. In order for this document by September 2004. initiative not to be a burden on COL, Ministers directed COL to work with the Commonwealth 15. Ministers emphasised the importance of ongoing, Secretariat to identify sources of funding to take lifelong professional development for all teachers this concept forward. including the leadership development of head teachers. 21. Education Ministers agreed to the attached message to the Commonwealth Heads of Government 16. Ministers accepted the new structure of the Meeting (CHOGM), to be held in Abuja, Nigeria Commonwealth Secretariat. They recognised that in December 2003 emphasising the importance it complements the already existing Commonwealth of mobilising a broad range of Commonwealth advantages, namely, the broad similarity amongst resources in meeting educational targets by 2015, educational systems, the almost universal use of the as a contribution to social reconstruction in the English language, and the multiplicity of civil Commonwealth. 40 Report of the 15th Conference of Commonwealth Education Ministers 22. Ministers were unanimous in voicing their 30. To develop mechanisms to include learners in appreciation for the outstanding hospitality and decisions about their education. warm welcome extended by the UK and the Scottish hosts. 31. To individually and collectively promote education by: 23. Ministers warmly welcomed the suggestion that the next Conference be held in Malaysia, subject a) Sponsoring an international commonwealth to confirmation by the Malaysian Government. education day where the funding raised will be used to train young people as peer educators in 24. Based on the Conference’s rich dialogue and HIV/AIDS exchanges, Ministers agreed to a set of actions around the six Action Areas. Ministers asked b) making awards for good practice in the six the Commonwealth Secretariat and its partner Action Areas, to be presented at 16CCEM organisations to monitor and report on the implementation of the Edinburgh Action Plan. c) Promoting teaching as a career and encouraging teacher representation at parallel forums at The Edinburgh Action Plan 16CCEM Ministers agreed: d) Introducing and/or strengthening initiatives 25. To meet with Youth Summit delegates from their to promote the involvement of parents and own country to consider the outcomes of 15CCEM. guardians in education. 26. That every future CCEM will have a Youth 32. Ministers agreed to develop a shared understanding Summit where Ministers inform delegates on of the elements which constitute an excellent progress and consult them on future actions. education system, recognising that education As the Youth Summit said, We can’t do it must be of high quality if it is to make a positive ourselves, but you can’t do it without us. difference to the lives of young people and their communities. 27. That a Working Group be established to consider cross-country teacher recruitment, chaired by 33. That the more developed countries should be the Deputy Secretary-General, to report back to requested to facilitate greater opportunities Ministers in April 2004; and that an ad hoc group for higher education and skills training for of interested Ministers would then meet not later Commonwealth citizens, in a spirit of co-operation than September 2004 to agree action. and sharing. 28. Recognising that many countries regard education 34. To ask the Commonwealth Secretariat to take as a public good and that there is widespread stock of best practices in eliminating gender concern that the inclusion of education under disparity. the WTO and GATS as a service could lead to its commodification, Ministers agreed that 35. To share best practice and expertise in supporting Commonwealth Heads of Government should children in difficult circumstances. affirm the paramount importance of safeguarding the values, standards and quality of education. 36. To include compulsory age-appropriate HIV/AIDS education in the curriculum of every education 29. That the Commonwealth as a whole, and most system within the Commonwealth, including particularly the wealthier countries within it, use teacher education. their influence within the G8 and elsewhere to ensure that the Dakar commitments are adhered Commonwealth Secretariat to by the international community, in particular Edinburgh, Scotland within the framework of the fast track initiative. 30 October 2003 41 CLOSINGTHE GAP ANNEX A Ministers took a particular note of the six Action Areas for specific focus leading to 16CCEM and they vowed to work in harmony with broad range of Summary of the key points raised in the discussion on commonwealth resource capacity to address these areas: the theme of the conference and the six action areas. Access Universal primary education 1. Ministers recognised that too many children in the 8. Ministers stressed that poverty is the biggest barrier Commonwealth are still denied access to education. to the provision of universal primary education. The barriers to access were identified as culture; Poverty can only effectively be addressed if lack of finance, proper infrastructure and teachers. governments face the requirement to modify the In order to address the problems, Ministers existing international trade and finance regimes recommended development of partnerships between to create a more level playing field. governments, civil society, donor organisations 9. Ministers reaffirmed the priority to be given to and the international lending agencies. In order to UPE but insisted it be set in the context of the increase access at tertiary level the more developed Dakar consensus on Education for All (EFA) that countries needed to offer university places to stressed the importance of basic education. They Commonwealth students at concessionary rates. emphasized that the issue must not be restricted to the concept of access, but more importantly to Inclusion completion. Moreover, quality education is essential 2. Ministers fully recognised that inclusion is a if learners are to have a realistic expectation of critical issue in education; that is inclusion of each a productive future. individual in the educational process. Accordingly, barriers to participation should be identified and 10. Continuous professional development (CPD) for removed and provision made for each individual teachers, along with the training of new teachers to obtain high quality relevant education. There is essential for both the provision and the quality should be equality of opportunity irrespective of of education. Given the massive requirements, gender, religious belief, ethnicity, socio-economic open and distance learning should be seen as a key status, colour or disability. Every student should means to address these requirements. In addition, have access to good quality education at least to ODL may be a means to address the particular the end of primary school. needs of marginalised and mobile minorities, including Nomads. 3. Ministers identified the development of the necessary policies, strategies and legislation as 11. One of the main groups not participating in critical and urged governments which have not primary education is girls, so increasing their yet taken the necessary actions to do so urgently. attendance is essential. Security and the need for separate facilities were considered critical for Achievement girls to access school-based education. Community 4. Ministers felt that a key action in addressing and family support could play key roles. achievement was the development of a clear definition of achievement. They felt that since 12. In addition, if there is to be universal access, achievement was likely to mean different things to those with special needs must be included. different members, each country should articulate its own definition and then identify clear standards Eliminating gender disparity for measurement. Ministers also strongly suggested 13. Ministers were keen to achieve the UN millennium that measures of achievement must be based on target date of 2005 to eliminate gender disparity the full value added as a result of education and in primary and secondary education. Ministers not simply on academic outcomes. recognised the importance of women having access to tertiary education so that they can become role 5. They were also of the view that whereas there models for younger girls and women. They also were many variables which impinged on noted the continued need to encourage girls into achievement, school leadership, teacher quality non-traditional areas of study such as mathematics and parental involvement were critical variables and science, and women into leadership levels of for which training must be provided. education. Moreover, they appreciated the benefits 6. Ministers also noted that whereas the scourge to family welfare from better educated mothers. of HIV/AIDS has been noted and was being 14. While girls’ access and completion remain a addressed, other impediments to achievement like challenge, boys’ under-achievement is a growing illegal drugs needed to receive similar attention. concern. A close review of policies, cultural practices, 7. Ministers noted the importance of developing and curricula in Commonwealth countries would instruments for measurement and the development assist in addressing all gender-related issues. of standards. 42 Report of the 15th Conference of Commonwealth Education Ministers 15. Ministers agreed it was important to share best There are benefits to be derived by strengthening practice both in terms of policy and its subsequent Commonwealth networks and by adjusting translation into action. They felt a stock-taking of intellectual property rights protocols so that they progress to date of evidence based best practices, recognise education and education products as available at country level, would be a useful starting social goods, perhaps by developing Commonwealth point for the Commonwealth Secretariat to conventions designed to reduce the costs of moving undertake. A more formal information sharing knowledge products amongst Commonwealth should be explored with other Commonwealth jurisdictions. agencies such as COL for broader outreach. 23. Ministers recognized the importance of addressing 16. Greater emphasis needs to be placed on gender the risk that the use of technology to deliver mainstreaming in education policy and related education across borders could lead to the treatment national development plans including poverty of education as a commercial commodity subject to reduction strategies as critical to the required GATS rather than as the public good that it is. resource allocation in reducing gender disparities. Education in difficult circumstances Improving quality in education 24. Many countries in the Commonwealth have to 17. Ministers stressed the importance of improving provide education to millions of children living in education outcomes for all learners. This will very difficult circumstances: poverty, unemployment, be achieved using a variety of mechanisms to homelessness, war, famine, and of course, HIV/AIDS. enhance quality, including the strengthening of The Commonwealth countries have ratified Commonwealth qualifications, accreditation international treaties to address these issues: the frameworks and quality assurance mechanisms. Universal Declaration of Human Rights, the ILO Convention, the Dakar Framework for Action and 18. Ministers agreed on the importance of increasing the Convention on the Rights of the Child. The teacher quality. They identified the issues of challenge now is for all Commonwealth countries teacher selection, training, retention and ongoing to put these commitments into action. professional development as vital to the improvement of education outcomes. They look 25. There are many examples in the Commonwealth to the Commonwealth Centre for Education in of actions that make a difference and which should Cambridge to play a key role in this respect. be shared. To do so, it was recommended that a knowledge sharing system of best practices be 19. Ministers also pointed to the need to ensure that set up, to share expertise, including databases to quality leadership exists at the school, regional and know where all children are and avoid ‘invisible’ national levels. They stressed the importance of children; the development of national indicators the professional development of head teachers and on improving participation by children in difficult senior education officials. Moreover, they agreed circumstances; and the setting of targets and on the urgency of improving the status of teachers reporting on them. so that they are in the position to “recapture the glory of teaching”. Effects of HIV/AIDS in education 20. Ministers further committed themselves to ensuring 26. Ministers addressed multi-sectoral issues related the availability of quality resources, appropriate to to the spread of HIV infection and the impact of the needs of students and reflective of the local AIDS. They noted the urgency of accelerating environment. educational responses, particularly the need to improve curricula and materials and the value of 21. Lifelong learning should play a vital role in the involving young people in this process. Teaching provision of quality education, as should access and learning must share information and promote to higher and vocational education. understanding, but also focus on the necessary changes in social and sexual behaviour. Distance education 22. Ministers noted the importance of addressing 27. Ministers agreed to take urgent action in the policy issues and designing strategies that position area of HIV/AIDS education. They noted the open and distance learning (ODL) to be a key importance of anticipating and preparing for the instrument for enhancing access and inclusion. impact of AIDS on future numbers of orphans There is a need to invest in the development of and students in the education system and on the skills and infrastructures required for the the supply and demand of teachers. They also delivery of quality ODL. Ministers understand requested international assistance to curtail the the value of sharing Commonwealth best practice, spread of the pandemic. EFA would not be policy and plans, and noted that the role that achieved without tackling HIV/AIDS. ODL can play in delivering education and training to geographically separated populations and to those requiring flexible learning options. 43 CLOSINGTHE GAP APPENDIX 1 Delegates Australia Pg Hajah Hairani PML PG MUDA KAHAR – Acting Director General Hon Dr. Brendan NELSON – Minister for Education, Science Hajah Kasmah HAJI SIPUT – Director of Islamic Studies and Training Haji Mohd Daud HAJI MAHMUD – Acting Director of Technical Dr Jeff HARMER – Secretary, Department of Education Education Science and Training Haji Abdul Salam POKPS DP HJ HASHIM – Acting Director Ms Catherine MURPHY – Chief of Staff of Planning, Development & Research Mr Matthew JAMES – Counsellor Abdullah/Dollah Haji AHAD – Education Officer Bangladesh Cameroon HE Mohammed Hasib AZIZ – Deputy High Commissioner Hon Emmanuel Bantar NGAFEESON – Secretary of State – to the UK National Education Dr TASIRUDDIN – Hon Consul of Bangladesh, Edinburgh Richard WILLAYI – Technical Advisor – National Education The Bahamas Dorothy FORBIN – National Inspector of Pedagogy – National Hon Alfred SEARS – Attorney General & Minister of Education Education Dr Leon HIGGS – President, College of the Bahamas Canada Mr Cecil THOMPSON – Deputy Director, Department of Education Hon Jake OOTES – Minister for Education, Culture, & Employment, Northwest Territories Barbados Hon Ron LEMIEUX – Minister of Education & Youth, Manitoba Hon Reginald FARLEY – Minister Ms Maria DAVID-EVANS – Deputy Minister of Alberta Learning Idamay DENNY – Deputy Chief Education Officer Ms Pat ROWANTREE – Deputy Minister of Education & Youth, Belize Manitoba Hon Francis FONSECA – Minister Dr Paul CAPPON – Director General, Council of Ministers of Mr Alan GENITTY – Deputy Chief Education Officer Education Maud HYDE – Chief Education Officer Dr Loretta FOLEY – Deputy Minister of Education, Culture & Employment, NWT Botswana Mrs Sheila MOLLOY – International Desk Office, CMEC Hon Kgeledi George KGOROBA – Minister for Education Mr Gerald BROWN – President, Association of Canadian Philemon Themba RAMATSUI – Permanent Secretary Community Colleges Mogotsa KEWAGAMANG – Director, Vocational Education Ms Terry PRICE – President, Canadian Teachers Federation & Training Dr Julius BUSKI – Secretary-General, Canadian Teachers Kgomotso MOTLOTLE – Secretary-General, Botswana National Federation Commision for UNESCO Mr Richard MARTIN – Head, International Academic Policy, DFAIT Oemetse NKOANE – HIV/AIDS co-ordinator, Ministry of Education Ms Nancy HECTOR – Program Manager, International Bojosi OTLHOSILE – Vice Chancellor, University of Botswana Academic Relations, DFAIT Patrick MOLUTSI – Executive Secretary, Tertiary Education Council Evelyn LEE – Senior Program Manager, UN & Commonwealth Division, CIDA Burton S. MGUNI – Deputy Vice Chancellor, University of Botswana Archibald MAKGOTHI – Chief Education Officer, Planning Cyprus Statistics & Research Hon Pefkios GEORGIADES – Minister of Education and Culture R.J. MOTSWAKAE – Director, Secondary Education Mr Vassilis PROTOPAPAS – Coordinator/Counsellor, Ministers Daniel TAU – Director, Botswana College of Distance and Office Open Learning Mr Kyriakos PILLAS – Cultural Affairs Counsellor Brunei Darussalam Mr Stefanos GEORGIADES – Counsellor Hon Pehin Dato Hj Abd Aziz UMAR – Minister of Education Mrs Alexia GEORGIADOU – Counsellor Sheikh Adnan SHEIKH MOHAMAD – Permanent Secretary 44 Report of the 15th Conference of Commonwealth Education Ministers Dominica Ms Purity Rita MUTHONI – Student Hon Roosevelt SKERRIT – Minister for Education, Sports & Master Wilson MUCHURIKU Youth Affairs Mr Gathoga W CHEGE – PA to the Minister Fiji islands Hon Ro Teimumu KEPA – Minister for Education Kiribati Hon Teima ONORIO – Minister of Education, Youth & Sports Betty KALOU – Senior Education Officer Mr Taakei TAOABA – Permanent Secretary for Education, HE Emitai Lausiki BOLADUADUA – High Commissioner to the UK Youth & Sports The Gambia Ms Teboranga TIOTI – Senior Assistant Secretary Hon Ann Therese NDONG-JATTA – Secretary of State for Education Lesotho Hon Archibald LEHOHLA Dr Pap SEY – Director – Basic Education Deputy Prime Minister & Minister of Education Mr Musa SOWE – Head of School of Education, Gambia College Ms Ntsebe I KOKOME – Principal Secretary Mrs Ann ROBERTS – Consultant for Applied Scholastic for Africa Region Mr Paramente PHAMOTSE – Chief Education Officer Mr Yahya Al-Mahtarr JOBE – Programme Officer – NATCOM Mr Calvin MASENYETSE – Counsellor, Lesotho High Commission Tamsir JALLOW – Student Malawi Calment MENDY – Student Hon Dr A.G. Nga MTAFU – Minister of Education Zangazanga D. CHIKHOSI – Principal Secretary Ghana Hon Kwadwo BAAH-WIREDU – Minister for Education Dr J KUTHEMBA-MWALE – Director – Education Planning Henry Daniel CLERK – Director Stanley V. CHAMDIMBA – Director of Secondary Education Epifany THOMO – Deputy Director – Teacher Education Guyana HE Leleshwar SINGH – High Commissioner to the UK J MKANDAWIRE – Education Methods Advisor India Malaysia Hon Dr Murli Manohar JOSHI – Minister of Human Resource Dato’ Hj Ambrin BUANG – Secretary-General, Ministry of Development Education Shri Alok TANDON – Private Secretary to the Minister Mr Kenneth J LUIS – Principal Assistant Secretary, International Relations Division Shri S.C. TRIPATHI – Permanent Secretary, Department of Elementary Education & Literacy Dr Kam Foong CHOONG – Head, Department of ELT Management Shri S.P. GAUR – Joint Secretary Department of Secondary & Ms Sahara AHMAD – Assistant Director, Education Planning Higher Education & Policy Research Prof P. Ramachandran RAO – Vice Chancellor, Banaras Hindu Ms Siti Ramah AHMAD – Education Attache, Malaysian University Students Department, London Shri V. N. Rajasekharan PILLAI – Vice Chairman, University Maldives Grants Association Dr Mahamood SHOUGEE – Deputy Minister of Education Jamaica Ms Amaal ALI – Principal Hon Maxine HENRY WILSON – Minister of Education Mrs Adelle BROWN – Deputy Chief Education Officer Malta Ms Nora MACELLI – Advisor to the Minister of Education Mr Wesley BARRETT – Chief Education Officer Mrs Sharon WOLFE – Consultant Mauritius Hon Louis Steven OBEEGADOO – Minister of Education and Kenya Scientific Research Hon Prof George SAITOTI – Minister for Education, Science Raj Sunkur LUTCHMEAH – Executive Director, Tertiary and Technology Education Commission Mr Gabriel LENGOIBONI – SDDE – Ministry for Education, Hiranand Boolchand Alimchand DANSINGHANI – Director, Science and Technology Ministry of Education and Scientific Research Mr Galma BORU – First Counsellor, Kenya High Commission Mrs Leah ROTICH – Education Attaché Mozambique Hon Mrs Telmina PEREIRA – Vice Minister of Education Mr Ibrahim M HUSSEIN – Chairman, TSC Mr Virgilio Zacarias JUVANE – Director of Planning Mr Joel NGATARI – Commissioner, TSC Mrs Suzana MONTEIRO – Curricular Planner Mrs Charity GICHURU – Commissioner TSC Mr Constancio Azarias XERINDA – Primary Education Officer Mr Andiwo OBONDOH – Elimu Yetu Coalition Coordinator HE Antonio GUMENDE – High Commissioner to the UK Ms Emily K ECHESSA – CEF, Kenya 45 CLOSINGTHE GAP Namibia Seychelles Hon Nahas ANGULA – Minister Hon Danny Rollen FAURE – Minister for Education Mr Alfred ILUKENA – Director, Namibia Institute for Macsuzy Helena MONDON – Principal Secretary Educational Development Ms Frances MENSAH – Director, Namibia College of Open Learning Sierra Leone Hon Dr Alpha Tejan WURIE – Minister of Education, Science, & HE Monica NASHANDI – High Commissioner to the UK Technology Prof Ernest H. WRIGHT – Vice Chancellor, University of New Zealand Sierra Leone Hon Trevor MALLARD – Minister for Education John SUMAILAH – Deputy Permanent Secretary Mr Christopher HIPKINS – Advisor, Office of the Minister for Education Davidson KUYATEH – Secretary General, Sierra Leone Teachers Union Howard FANCY – CEO, Ministry of Education Mr Bruce AIDIN South Africa Lynne BRUCE Hon Prof Kadar ASMAL – Minister of Education Mr Phil SMITH Mr Thami D MSELEKU – Director-General of Education Mr Anthony DAVIES – Manager Policy/Strategy Mr Duncan HINDLE – Deputy Director-General: General Education Nigeria Mr Ghaleeb JEPPIE – Acting Chief Director: International Hon Prof Fabian Ngozichukwu Chinedum OSUJI – Minister Relations of Education Ms Gugu NYANDA – Director: Human Resources Planning Dr Usman Bokani AHMED – Director, Primary & Secondary Ms Bronwen LEVY – Executive Assistant to the Minister Education Dr Jav BHALI – Deputy Director – International Relations Dr Peter Shehu ABDU – Director, Higher Education Mr Kehtsi LEHOKO Mrs M. O. A. OLORUNFUNMI – Deputy Director, International Education Division Sri Lanka Mr Festus Ndubisi NDEFO – Assistant Director, BACAA Hon Karunasena KODI THUWAKKU – Minister of Human Mr U Y ISMAILA Resource Devlp., Education, & Cultural Affairs Prof JEGEDE – National Open University of Nigeria Lakshman Lloyd RATNAYAKE – Vice Chairman, University Grants Commission Dr M MOHAMMED Indrani KARIYAWASAM – Secretary Prof OBIOMA – Special Assistant to Minister of Education Prof Peter OKEBUKOLA – Executive Secretary, National Swaziland Universities Commission Mr Jabulani G. KUNENE – Principal Secretary Dr A UMAR Sibusiso MKHONTA – Director – Education Mr Ayo OKE – Minister, Nigeria High Commission Israel SIMELANE – Chief Inspector, Primary Education Mr O IBIDAPO – Minister Counsellor, Nigeria High Commission Tonga Papua New Guinea Hon Paula S. BLOOMFIELD – Interim Minister of Education Hon Micheal LAIMO – Minister for Education Trinidad and Tobago HE Jean L KEKEDO – High Commissioner to the UK Hon Hazel MANNING – Minister of Education Wari PALA – Assistant Secretary, Department of Education Angella JACK – Permanent Secretary Paula DANIEL – Chief Education Officer St Kitts HE James E. WILLIAMS – High Commissioner to the UK Victoria FARLEY Hon Dr Timothy S HARRIS Tuvalu Mr Osmond PETTY Hon Dr. Alesama Kleis SELUKA – Minister of Education and Sport Mr Steve PARNIU – Permanent Secretary for Education & Sports St Lucia Hon Mario F. MICHEL – Minister Uganda Dr Didacus JULES – Permanent Secretary Hon Dr Khiddu Edward MAKUBUYA – Minister of Education & Sports St Vincent & The Grenadines Dr Richard RWAGALA AKANKWASA – Director of Education Hon Michael BROWNE – Minister of Education, Youth & Sports Mr Aggrey David KIBENGE – Senior Assistant Secretary and PRO Samoa Mr Francis Xavier LUBANGA – Permanent Secretary, Ministry of Hon Fiame Naomi MATA’AFA – Minister of Education Education and Sports Perive LENE – Chief Executive Officer, Samoa Polytechnic 46 Report of the 15th Conference of Commonwealth Education Ministers United Kingdom Montserrat Rt Hon Charles CLARKE – Secretary of State for Education Hon Eugene SKERRITT – Minister of Education and Skills Idabelle MEADE – Permanent Secretary – Education Rt Hon Jack McConnell – First Minister of Scotland Mr Peter PEACOCK – Minister for Education and Young St Helena Island People, Scotland Mr. William DRABBLE – Member of Executive Council Ms Jane DAVIDSON – Minister for Education and Lifelong Turks & Caicos Island Learning, National Assembly for Wales Hon Lillian ROBINSON-BEEN – Minister of Education, Youth, Mr David MILIBAND – Minister of State for School Standards Sports & Culture Mr Ivan LEWIS – Minister for Vocational Skills Mrs Clara GARDINER – Permanent Secretary of Education Jenny LOOSLEY – Private Secretary to Charles Clarke United Republic of Tanzania Derek FEELEY – Private Secretary to First Minister Hon Joseph J. MUNGAI – Minister for Education and Culture David STEWART – Private Secretary to the Minister for Hon Haroun A SULEIMAN – Minister for Education, Sports & Education and Young People Culture, Zanzibar Craig STEPHENSON – Private Secretary to Jane Davidson HE Hassan Omar Gumbo KIBELLOH – High Commissioner to Jo Bewley – Private Secretary to Ivan Lewis the UK David NORMINGTON – Permanent Secretary DfES Ricky A. MPAMA – Chief Education Officer Asif AHMED – Head, Commonwealth Coordination Unit, FCO Idriss A’WAILIL YAHYA – Director, Zanzibar Tony HUMPHRIES – Deputy Head, Commonwealth Rosalia P. MSOFFE – Acting Chief Inspector of Schools Coordination Unit, FCO Mary A MUNGAU – Curriculum Developer, Tanzanian Institute Mike Ewart – Secretary, Scottish Executive Education Department of Education Colin MACLEAN – Scottish Executive Education Department Muhwela M.A. KALINGA – Private Secretary to the Minister Elizabeth WILLIAMSON – Scottish Executive Education Zambia Department Hon Andrew MULENGA – Minister John ASLEN – DfES HE Mr Anderson K. CHIBWA – High Commissioner to the UK Clive TUCKER – DfES Mr Alfred SIKAZWE – Director – Standards & Curriculum Richard URMSTON – DfES Katherine Quigley – DfES Commonwealth Secretariat Rt. Hon. Don MCKINNON – Secretary-General Des BERMINGHAM – DfID Mr Winston COX – Deputy Secretary General David LEVESQUE – DfID Ms Janet DAVIES – OSG Staff Don TAYLOR – DfID Mr Emmanuel KATTAN – OSG Staff Alan LANSDOWN – National Assembly for Wales, Education and Training Ms Nancy SPENCE – Conference Secretary Margaret-Anne BARNETT Dr Henry KALUBA – Deputy Conference Secretary Anne DIACK Mr James ROBERTSON – Conference Spokesperson Mr Adam COOLE – Conference Officer British overseas territories Mr Alan MCLEOD – Documents Officer Bermuda Record Editors – Dr Ved GOEL – Dr Roli DEGAZON-JOHNSON Hon. Paula A. COX* – Attorney-General and Minister of Justice Dr Gari DONN – Dr Amina OSMAN and Education Team Secretaries – Ms Bobbie DOHUNSO-TETTEY – Ms. Michelle B. KHALDUN – Permanent Secretary Ms Pindra KAUR Advisors – Ms Alexandra JONES – Dr Peter FROST British Virgin Islands Josephine E. CALLWOOD – Permanent Secretary Mr Rupert JONES-PARRY – Publications Manager Angel SMITH – Chief Education Officer Domini BINGHAM – Marketing Executive Ms Sharon ROBINSON – Civil society Liaison Officer Cayman Islands Mr Ignatius TAKAWIRA – Youth Affairs Special Advisor and Head Mr. Roy BODDEN – Minister Ms. Joy BASDEO – Permanent Secretary Mr. Sam BASDEO – President, Community College 47 CLOSINGTHE GAP APPENDIX 2 Observers ABCollectables Commonwealth Institute/Centre for Commonwelth Natalie TENIOLA Education Miss Judith HANRATTY Association of Colleges Ms Josephine CLOUGH – International Director Mr Robert ALSTON Prof Donald MCINTYRE Association of Commonwealth Examination & Miss Barbara CORBETT Accreditation Bodies Miss Elizabeth NORRIS – President Commonwealth Foundation Mr Colin ROBINSON – Information Officer Mr Colin BALL – Director Association for the Development of Commonwealth Local Government Forum Education in Africa Mr Carl WRIGHT – Director Dr Hamidou BOUKARY – Senior Programme Manager Mr Graham LANE – Councillor Bernard van Leer Foundation Commonwealth of Learning Peter LAUGHARN Mr Lewis PERINBAM – Chairman, Commonwealth of Learning British Council Dr Gajaraj DHANARAJAN – President and Chief Executive Officer David GREEN – Director-General Mr Brian LONG – Vice-President Rod PRYDE – Assistant Director-General Ms Helena FEHR – Governance and Programme Officer Mary STIASNY – Director, Education and Training Group Ms Doris McEACHERN – Manager, Finance and Administration Caribbean Community Secretariat (CARICOM) Hon Senator Burchell WHITEMAN – Member COL Board Ms Myrna BERNARD – Programme Manager, Human Resource of Governors Development Ms Shona BUTTERFIELD – Member COL Board of Governors CASTME Dr Tara de MEL – Member COL Board of Governors Mr Dennis CHISMAN – Treasurer & Vice-President H E Ambassador Michael OMOLEWA – Member COL Board of Governors Ms Lynne SYMONDS – Liaison Officer Dr Usha REDDI – Director CEMCA Commonwealth Business Council Mr Dave WILSON – Communications Manager Dr Ravi NAGARAJAN – Advisor Dr Glen FARRELL – Consultant Commonwealth of Learning Leena CHATTERJEE – Programme Manager, CBC Academy Mr David WALKER – Education Specialist Educational Commonwealth Consortium for Education Technology Mr Colin N. POWER – Chair Dr Asha KANWAR – Education Specialist Higher Education Mr Peter R.C. WILLIAMS – Hon. Secretary Ms Helen LENTELL – Education Specialist Training and Materials Development Commonwealth Countries League, UK Mavis LONGHORN – Chairman of Trustees Education Fund Mr Vis NAIDOO – Education Specialist Educational Technology Sheila KENHARD – Administrative Secretary Mr Paul WEST – Education Specialist Knowledge Management Commonwealth Scholarship Commission (UK) Prof Trudy HARPHAM – Chair Dr John KIRKLAND – General-Secretary 48 Report of the 15th Conference of Commonwealth Education Ministers Council for Education in the Commonwealth (CEC) New Zealand Qualifications Authority Mark N. F. ROBINSON – Executive Chair Mr Michael LERRY – Manager Martin KENYON – Parliamentary Liaison Officer Anthony Ross DAVIES – Manager, Policy/Strategy Education International/All Africa Teachers’ Royal Commonwealth Society Organisation Mr Stuart MOLE – Director General Thomas A. BEDIAKO – Chief Coordinator B. Aimé SANGARA – Head of Public Affairs Mr Steve SINNOTT – Chair, Commonwealth Teachers’ Group University of the Western Cape, South Africa Japan International Cooperation Agency Prof George SUBOTZKY – Director, Education Policy Unit Mr Aiichiro YAMAMOTO – Resident Representative in the UK Ms Colleen HOWELL – Education Policy Unit Mr Hideo EGUCHI – League for the Exchange of Commonwealth Teachers World Bank Ms Ruth Kagia, Director Education League for the Exchange of Commonwealth Teachers Anna TOMLINSON – Director Gillian TALLACH – Programme Officer Ms Lesley AUGER – National Union of Teachers, UK 49 CLOSINGTHE GAP APPENDIX 3 Provisional Ministerial Agenda Date Time Comments Saturday Ministers who wish to arrive in the UK before The Scottish Executive is prepared to act 25th Oct the 15CCEM begins may participate in focused as intermediary in organising these visits. visits to educational establishments in the UK. Please contact the SE for further details. Sunday Arrival of Ministers. 26th Oct 18:00 to Reception: hosted by University of Edinburgh/ Ministers who wish to, are invited to 20:00 Commonwealth Scholarships/CEC. attend this event. Monday 09:00 to Possible Ministerial visits to educational Ministers are asked to indicate in 27th Oct 13:00 institutions in Central Scotland. correspondence prior to the conference that they wish to participate in visits. Ministers are invited to join the Parallel Symposium (PS) for sessions during this day. Ministers are encouraged to visit the Showcase of Best Practice in the Cromdale Hall in the Edinburgh International Conference Centre (EICC). 10:00 to Senior Officials meeting The full Programme for this Meeting 13:00 Election of chair and adoption of agenda will be issued separately. Governance issues Additional Business meetings with: – ComSec – CoL – CSFP – CCE – CEF 12:00 to Lunch for Ministers and PS Delegates will be The Showcase of Best Practice will be 14:00 available from 12:00 running in the Cromdale Hall and the Ministers and PS delegates are invited to visit it informally during lunch. 14:00 to Senior Officials meeting – continued 16:00 14:00 to Briefing to Ministers from representatives of the 15:00 Centre for Commonwealth Education. 15:00 to Briefing to Ministers from representatives of CEF. 16:00 17:00 to Receptions by countries/organisations. • Ministers and/or officials may choose to 18:00 do this for their own country delegations. • Countries wishing to host a reception are requested to notify the Commonwealth Secretariat to secure accommodation. • Sponsors will be invited to host Receptions. 18:30 Official photograph of Commonwealth Joint event with PS/YS/SBP Education Ministers 50 Report of the 15th Conference of Commonwealth Education Ministers Date Time Comments Monday 19:00 to Opening eremony and stageshow Pentland 27th Oct 20:00 The opening ceremony will be introduced and the Ministers and delegates welcomed by the First Minister. The Secretary General of the Commonwealth with offer a short speech of welcome and there will be a short welcome to Edinburgh from the Lord Provost. There will also be a short message from a young ambassador from the CCYM in Botswana, a representative of the Parallel Symposium and another from the Youth Summit All presentations will be interspersed within the stage show. The UK Secretary of State for Education will close the ceremony. 20:15 to Buffet Reception – Strathblane Ministers/PS/YS 22:00 Tuesday 08:00 to Breakfast briefing by the Centre for 28th Oct 09:00 Commonwealth Education to Select Committee of Ministers. 09:00 to Session One (1): Pentland • Delegates of all 3 events will participate in 10:30 this session in the main auditorium. Joint Opening Session with the Parallel Symposium and the Youth Summit delegates. • All speakers will be briefed in advance to keep their contribution to the Theme and • Welcome and introduction of the Keynote with a view to focusing thoughts and Speaker – Professor Amartya Sen. discussions on the importance of education • Keynote Speaker address; Prof. Sen will offer his to a new and vibrant Commonwealth. views on the Themes of the Conference and host a 15 minute Question and Answer session. • A representative of the Parallel Symposium will give a short description of how their discussions have progressed. • A representative of the Youth Summit will also give a short description of their work to date. • External facilitator to lead on general feedback and comments from the informal discussions. • A Commonwealth Education Minister will be asked to close the session. 10:30 to Break YS delegates return to Murrayfield 11:00 11:00 to Session Two (2): Lomond Suite Ministers in Plenary 12:30 2.1: Election of Chair, approval of Agenda, Timetable and procedures, Report from SOM. 2.2: Access, Inclusion and Achievement: Closing the Gap (Plenary focused discussion). The purpose of this session is to highlight the key issues and open the debate. Three Ministers will be invited to speak for 5 minutes each on the following areas: – Response to the Key Note speaker and plenary debate in the First Session. – Linking the three themes of Access, Inclusion and Achievement together. – Drawing out the 4 Cross Cutting Issues. The remainder of the session to be plenary discussion. 51 CLOSINGTHE GAP Date Time Comments Tuesday 12:30 to Buffet Lunch Ministers and PS Delegates may choose to 28th Oct 14:00 have their lunch in the Cromdale suite where the Showcase of best practice will be taking place. 14:00 to Session (3): Lomond Suite 15:30 Presentations and launch of specific initiatives by Commonwealth Ministers and specific Commonwealth organisations: Launch of Global Gateway by UK and other possible pan-Commonwealth initiatives to be proposed by other countries Presentation of Initiatives by the Commonwealth Secretariat, the Commonwealth Scholarships and Fellowships Plan, the Commonwealth of Learning and the CCE. 15:30 to Break 16:00 16:00 to Session Four (4): Lomond Suite 17:30 Ministerial Committees: Deepening the themes of Access, Inclusion and Achievement. The purpose of this session is to: • Sharpen and highlight the different perspectives on each of the topics. • Identify and Articulate the priorities for the Commonwealth in these areas. Two Ministers will be invited to begin the discussions in each of the areas. The Ministers will be identified once the expressions of interest have been received. A) Access B) Inclusion C) Achievement The detailed planning of this session will be done once the responses from Ministers registering their interests have been received. 19:30 to 15CCEM dinner hosted by First Minister for all 22:30 Ministers at the Museum of Scotland. 20:00 to Ceilidh (Scottish Country Dance) for other 23:30 delegates hosted by NUT and EIS at the Hub, near Edinburgh Castle. A simple finger buffet and soft drinks will be available. 20:00 to An alternative evening event may be arranged for 23:30 those not wanting to attend the Ceilidh – free time, etc. 52 Report of the 15th Conference of Commonwealth Education Ministers Date Time Comments Wednesday 08:00 to Breakfast meeting with CEF and the 17 countries For the countries involved in CEF to learn 29th Oct 09:00 involved in the Commonwealth Education Fund. more about the Fund and how they can benefit from it. 09:00 to Session Five (5): Plenary session CoL presentation. 09:30 Virtual University for Small States. This is to prompt thinking from both Ministers and PS delegates as to the issues 09:30 to Session Six (6): Joint session of Ministers and that are of importance to each; to help them 11:00 Parallel Symposium Delegates realise the expertise and knowledge that is Roundtables with PS delegates focusing on the 6 already available across the Commonwealth Action Areas: and to add value to the plans for future work on the Action Areas. – Universal Primary Education – Gender disparities in education – Improving quality in education – Using distance learning to overcome barriers – Supporting education in difficult circumstances – Mitigating the impact of HIV/AIDS on education systems 11:00 to Break 11:30 11:30 to Session Seven (7): Lomond Suite 12:30 Commonwealth Teacher and Learners Issues. Plenary: Presentations and discussions. 12:30 to Sit down lunch and discussions with the • Ministers will share tables for lunch with 15:00 Youth Summit at Murrayfield. young people. • The discussion on each table will focus on different aspects of the theme. • Young people will be coached in advance on approaches to Ministers. • The layout is likely to be 2 Ministers and 10 Young People per table. 15:00 to Session Eight (8): Lomond Suite 16:30 Report back from the Break out sessions on Access, Inclusion and Achievement the previous day, the sessions with the Parallel Symposium and lunch with the Youth Summit. This will be led by rapporteurs who will give a short presentation on each session and facilitate discussion on the important points that have arisen and help to clarify how they will feed into the future work on the Action Areas 16:30 to Break 17:00 17:00 to Session Nine (9): 18:15 PS and YS reporting back to Ministers facilitated by external professional. – 17:00-17:30 feedback from the PS – 17:30-18:00 feedback from the YS – 18:00-18.15 formal thanks from the Ministers to the PS and YS for their work and the recommendations and suggestions they have offered 18:15 to Small group of Senior Officials to consult about the 18:45 outcomes for the Communiqué, Message from Edinburgh to CHOGM from the day’s proceedings and the priorities/actions to be agreed on. 19:30 to Reception by the Secretary General By invitation only 22:00 53 CLOSINGTHE GAP Date Time Comments Thursday 08:00 to Breakfast meeting hosted by CISCO 30th Oct 09:00 09:00 to Session Ten (10): Lomond Suite Drafts from the Senior Officials Meeting 10:30 presented to Plenary for discussion and Plenary discussion on the: confirmation. (i) Edinburgh Communiqué and Action Plan (ii) Message to CHOGM and (iii) The press release 10:30 to Break 11:00 11:00 to Session Eleven (11): presentations on their future 12:30 work plans by the Commonwealth of Learning, the CSFP, the Commonwealth Secretariat Education Work Programme and the CCE. Followed by a short composite powerpoint presentation outlining the capacity available in some other Commonwealth organisations This will give Ministers a clearer idea of the resource capacity available in the Commonwealth and assist them to complete their consideration of the future work on the Action Areas. 12:30 to Lunch 13:30 13:30 to Session Twelve (12): Lomond 15:00 Finalise and Approve: 1. Edinburgh Communication & Action Plan 2. Message to CHOGM and 3. The press release 15:00 Official Press Conference 54 www.thecommonwealth.org Commonwealth Secretariat
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