Papua New Guinea   SABER Country Report SCHOOL AUTONOMY AND ACCOUNTABILITY 2013     Policy Goals Status 1. Autonomy in the Planning and Management of the School Budget The Department of Education manages the Fee Free Tuition Policy, which represents the largest share of education financing. School expenditures are determined by the School Learning Improvement Plan (SLIP) committee using the threeͲyear School Learning Plan as a guide and approved by the Board of  Management (BoM). Teachers’ salary is determined at central level; schools determinesalaryfornonͲteachingstaff. 2. Autonomy in Personnel Management The Provincial Divisions of Education are responsible for appointing and deploying teaching staff, and the Teaching Service Commission provides final  approval.NonͲteachingstaffaremanagedbytheschool. 3. Participation of the School Council in School Governance The education system has a twoͲlayered approach that includes the SLIP committee and the BoM. The SLIP committee is tasked with developing the vision and strategic objectives of the school and the BoM aims to achieve  quality assurance. Both entities are representative of the community and school;however,neitheruseselectionstodeterminemembership. 4. School and Student Assessment  Papua New Guinea has both schoolͲbased assessment (called Whole School Quality Inspection) and standardized student assessments (diagnostic and achievementͲbased) to evaluate the effectiveness of the education system and  toinformpedagogytoenhancethelearningenvironment. 5. Accountability to Stakeholders Policy and regulations exist to govern school operations and financial management. Insufficient information is provided to parents and education stakeholders in the area of student and school performance, which limits their  abilitytodemandaccountabilityonschoolperformance.        THEWORLDBANK PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  Introduction PNG is the largest developing country in the South Pacific region. It has a landmass of 463,000 square In 2011, the World Bank Group commenced a multiͲ kilometers and comprises around 600 islands. The year program designed to support countries in mainland of PNG, which accounts for 85 percent of the systematically examining and strengthening the total landmass, has some of the most rugged terrain in performance of their education systems. Part of the the world, with rainforest covering around 75 percent Bank’s new Education Sector Strategy,1this evidence ofthearea. based initiative, called SABER (Systems Approach for Better Education Results), is building a toolkit of PNG is home to approximately 860 different spoken diagnostics for examining education systems and their languages,  and there is similarly rich diversity in culture component policy domains against global standards, andtraditions.Thetotalpopulationisapproximately6.5 best practices, and in comparison with the policies and million. Around 40 percent of the population is under practices of countries around the world. By leveraging 15  years of age, and the population growth rate is 2.7. this global knowledge, the SABER tools fill a gap in the Nearly 85 percent of the population lives in rural areas availability of data and evidence on what matters most spread across 22 provinces and 89 districts. Providing toimprovethequalityofeducationandachievementof qualityservicedeliveryisbothexpensiveandlogistically betterresults. challenging, which impacts all areas of human development. SABER School Autonomy and Accountability is the first of three SABER domains to be implemented as part of PNG is renowned for its abundance of natural phase two of the Pacific Benchmarking for Education resources, including gold, copper, oil, natural gas, Results (PaBER) initiative. Funded by AusAID, the PaBER timber, and fisheries. However, the country’s rugged initiative aims to link policy with implementation to terrain  and poor transportation network has made identify areas to strengthen policy, improve knowledge natural  resources difficult to develop. In recent years, dissemination, and improve the quality of education the government has opened up markets in andstudentperformanceacrossthepacific.Specifically, telecommunications and air transport, making both the PaBER project focuses at the primary level of an more affordable to the people and assisting education system. The project concept and development of natural resources. The country has a determination of three pilot countries – Samoa, the relatively small formal employment sector, with nearly Solomon Islands, and Papua New Guinea – was agreed 90 percent of the working population employed by the upon at the Pacific Forum Education Ministers Meeting agriculturesector. of October 11Ͳ13, 2010. The project is being I. EducationinPapuaNewGuinea coordinatedthroughtheSecretariatofthePacificBoard forEducationalAssessment(SPBEA). At the time of independence the education system largely resembled that of Australia. In 1990/91 the CountryOverview government initiated an Education Sector Review to Papua New Guinea (PNG) received independence from identify, document, and develop strategies to rectify Australia in 1975. The country has a constitutional problems  that had become endemic in the system. As a parliamentary democracy and is a member of the result  of  this  review and associated research papers, an commonwealth. integrated package of strategies was developed which radically changed the education system, and in particular its structure, curriculum, and financing mechanisms.    The result is an education system in PNG that has three  levels of governance: national, provincial, and schoolͲ   1 TheWorldBankEducationSectorStrategy2020:Learning forAll(2011),whichoutlinesanagendaforachieving “LearningforAll”inthedevelopingworldoverthenext decade.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 2 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  based. At the national level, the Department of effectiveness of the education system. Accurate, Education (DoE)2isresponsiblefordeterminingnational comprehensive, and timely data collection can promote policies and coordinating their implementation, moreeffectivepolicyͲmaking. maintaining national educational standards, and ThepupilͲtoͲteacherratioattheprimarylevelis33to1, providing professional support and advisory services for and the gender parity index is 0.9. As of 2007, the educational planning, research, training, and staff primarytosecondarytransitionratewas54percent. development. A great deal of planning and management of basic educational needs, including the establishment and operation of schools, is by law II.TheCaseforSchoolAutonomyand vestedwithprovincialandlocallevelauthorities.Parent SchoolAccountability and school communities are expected to contribute to the development of schools, particularly at the Table2:Select EducationIndicators,2010 elementaryandprimarylevels. PublicExpenditureonEducation As%ofGDP N/A The National Education Plan for the tenͲyear period As%ofTotalGovernmentExpenditure N/A 2005Ͳ2014 and the Medium Term Development Plan DistributionofPublicExpenditureperLevel(%) 2011Ͳ2015 articulate the DoE’s strategic plans and road Elementary N/A map. The primary areas of focus include access, quality, Primary N/A and management and financing of education with Secondary N/A specific targets and strategies proposed for each Tertiary N/A educationlevel. Pupil/TeacherRatioinPrimary 33:1 As of 2009, the education system employed 44,558 PrimarytoSecondaryTransitionRate,2007 54% teachers and covered around 1.43 million students. Genderparityindex(primarylevel)* 0.9 Source: dataprovidedbyNationalDepartmentof Presented in Table 1, the PNG school system starts with Education,October2013;*WorldBankEducationStatistics, elementary school which covers students, ages 6Ͳ8, 2008 primary school, secondary school, and postͲsecondary School autonomy and accountability are key schoolandtrainingforstudentsages19andabove. components of an education system that ensure Table 2 presents select education indicators. Data are educational quality. The transfer of core managerial not available regarding the level of public expenditure responsibilities to schools promotes local on education and distribution per level. As a result accountability; helps reflect local priorities, values, and Table1:PapuaNewGuineaSchoolSystemStructure needs;andgivesteacherstheopportunitytoestablisha LevelofEducation Ages Grade (Year) personal commitment to students and their parents ElementaryPrep– (Box 1). Benchmarking and monitoring indicators of ElementarySchool 6–8 school autonomy and accountability allows any country Elementary2 PrimarySchool 9–14 Grades3Ͳ8 to rapidly assess its education system, setting the stage forimprovingpolicyplanningandimplementation. SecondarySchool 15–18 Grades9–12  College, School autonomy is a form of a decentralized education PostͲsecondarySchool& 19and system in which school personnel are in charge of University,and Training above making most managerial decisions, frequently in Vocationaltraining Source: data provided by National Department of Education, partnership with parents and the community. More October2013 local control helps create better conditions for insufficient data are available to fully evaluate the improvingstudentlearninginasustainableway,sinceit  gives teachers and parents more opportunities to  develop common goals, increase their mutual  commitment to student learning, and promote more  efficientuseofscarceschoolresources.    2 UniversitiesandresearchinstitutesbelongtotheOfficeof HigherEducation.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 3 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013   community in which local cooperation and local Box1:WhatareSchoolAutonomyand accountability drive improvements in professional and  Accountability? personalperformancebyteachers(Patrinos2010).  School autonomy is a form of school management in TheempiricalevidencefromSBMshowsthatitcantake which schools are given decisionͲmaking authority  many forms or combine many activities (Barrera et al. overtheiroperations,includingthehiringandfiringof  personnel, and the assessment of teachers and 2009) with differing degrees of success (see Box 2). UnlessSBMactivitiescontributetosystemclosure, they  pedagogical practices. School management under are just a collection of isolated managerial decisions. autonomy may give an important role to the School  Council, representing the interests of parents, in The  indicators of SBM that relate to school quality must conform to the concept of a system, in which the  budget planning and approval, as well as a voice/vote presenceorabsenceofsomecriticalcomponentswithin in personnel decisions. By including the School  Council in school management, school autonomy thesystemalloworprecludesystemclosure.  fosters accountability (Di Gropello 2004, 2006;  Barrera,FasihandPatrinos2009). Box2:DifferentpathstoSchoolͲBasedManagement   arefineaslongastheyallowforsystemclosure In its basic form accountability is defined as the   In many countries the implementation of SBM has acceptance of responsibility and being answerable for increased student enrollment, student and teacher  one’s actions. In school management, accountability  attendance, and parent involvement. However, the may take other additional meanings: (i) the act of  empirical evidence from Latin America shows very few  compliance with the rules and regulations of school cases in which SBM has made a significant difference in  governance; (ii) reporting to those with oversight  learning outcomes (Patrinos 2010), while in Europe  authorityovertheschool;and(iii)linkingrewardsand  there is substantial evidence showing a positive impact sanctionstoexpectedresults(Rechebei2010). of school autonomy on learning (Eurydice 2007). Both   the grassrootsͲbased approach taken in Latin America, To be effective, school autonomy must function on the  where the institutional structure was weak or service basis of compatible incentives, taking into account delivery was hampered due to internal conflict, and the  national education policies, including incentives for the operational efficiency approach taken in Europe where implementationofthosepolicies.Havingmoremanagerial  institutions were stronger, coincide in applying responsibilities at the school level automatically implies  managerial principles to promote better education that a school must also be accountable to local quality, but driven by two different modes of stakeholders as well as national and local authorities. The  accountability  to parents and the community. One in empirical evidence from education systems in which  Latin America where schools render accounts through schools enjoy managerial autonomy is that autonomy is participatory schoolͲbased management (Di Gropello  2004) and another in Europe where accountability is beneficial for restoring the social contract between parents and schools and instrumental in setting in motion  based on trust in schools and their teachers, (Arcia, policiestoimprovestudentlearning. Patrinos, Porta and Macdonald 2011). In either case,  school autonomy has begun to transform traditional The progression in school autonomy in the last two  educationfromasystembasedonprocessesandinputs decades has led to the conceptualization of SchoolͲ intoonedrivenbyresults(Hood2001).  BasedManagement(SBM)asaformofdecentralization in which the school is in charge of most managerial As components of a managerial system, SBM activities decisions but with the participation of parents and the may behave as mediating variables: they produce an community through school councils (Barrera, Fasih and enabling environment for teachers and students, Patrinos 2009). SBM is not a set of predetermined allowing for pedagogical variables, school inputs, and policies and procedures, but a continuum of activities personalefforttoworkasintended. and policies put into place to improve the functioning of When do SBM components become critical for learning? schools, allowing parents and teachers to focus on Theimproperfunctioningofaschooloraschoolsystem improvements in learning. As such, SBM should foster a can be a substantial barrier to success. The managerial new social contract between teachers and their component of a school system is a necessary but  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 4 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  insufficient condition for learning.  One can fix some schools to determine their needs for changes in managerial components and obtain no results or alter pedagogical practices and to determine the training some other components and obtain good results. What needs of their teachers. Both, pedagogical changes and combination of components is crucial for success are teacher training are determinant factors of teacher still under study, but the emerging body of practice quality (Vegas 2001). Finally, the role of EMIS on point to a set of variables that foster managerial accountability has been well established and it is bound autonomy, the assessment of results, and the use of to increase as technology makes it easier to report on the assessment to promote accountability among all indicatorsofinternalefficiencyandonstandardizedtest stakeholders (Bruns, Filmer and Patrinos 2011).  When scores(Bruns,Filmer,andPatrinos2011). thesethreecomponentsareinbalancewitheachother, Results on the Programme for International Student theyforma“closedsystem.” Assessment (PISA) suggest that, when autonomy and Definingamanagerialsystemthatcanachieveclosureis accountability are intelligently combined, they tend to conceptually important for school based management, be associated with better student performance (OECD, since it transforms its components from a list of 2011). The experience of highͲperforming countries3on managerial activities to a set of interconnected PISAindicatesthat: variables that when working together can improve x Education systems in which schools have more system performance. If an SBM system is unable to autonomy over teaching content and student close, are partial solutions effective? Yes, in a broad assessmenttendtoperformbetter. sense, in which schools can still function but their x Education systems in which schools have more degree of effectiveness and efficiency would be lower autonomy over resource allocation and that than if the system closes. In this regard, SBM can publish test results perform better than schools achieve closure when it enforces enough autonomy to withlessautonomy. evaluate its results and use those results to hold x Education systems in which many schools compete someoneaccountable. for students do not systematically score higher on PISA. This last conclusion is very important because it means x Education systems with standardized student that SBM can achieve system closure when autonomy, assessment tend to do better than those without student assessment, and accountability, are suchassessments. operationally interrelated through the functions of the x PISA scores among schools with students from school councils, the policies for improving teacher different social backgrounds differ less in education quality, and Education Management Information systems that use standardized student assessments Systems(seeFigure1). thaninsystemsthatdonot. As of now, the empirical evidence from countries that have implemented school autonomy suggests that a certain set of policies and practices are effective in fostering managerial autonomy, assessment of results, and the use of assessments to promote accountability. Benchmarking the policy intent of these variables using SABER can be very useful for any country interested in improvingtheperformanceofitseducationsystem.    Source:Arciaandothers2011.  Note:EMIS–educationmanagementinformationsystem.  In managerial terms it is clear that the point of contact  3 between autonomous schools and their clients is Examplesofhighperformingcountriesthathave primarily through the school council (Corrales, 2006). implementedschoolͲbasedmanagementpoliciesand Similarly, school assessments are the vehicles used by frameworksincludetheNetherlands,Canada,andNew Zealandamongothers.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 5 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  SABERSchoolAutonomyand financing. Once financed, schools have complete Accountability:AnalyzingPerformance. autonomy to execute expenditures. Teaching salaries are determined and administered at the national level; The SABER School Autonomy and Accountability tool nonͲteachingstaffsalariesaredeterminedat theschool assists in analyzing how well developed the set of level. Personnel management has been rated as policies are in a given country to foster managerial emerging. Recruitment and deployment for all teachers autonomy, assess results, and use information from is completed by the Provincial Divisions of Education, assessments to promote accountability. Below are the while the Teaching Service Commission manages the five main policy goals that can help benchmark an national database of teachers. NonͲteaching staff are education system’s policies that enable school managed at the school level. The participation of the autonomyandaccountability: school council in school governance is established. The 1. Schoolautonomyintheplanningandmanagement Education Act 1983 and School Leaning Improvement oftheschoolbudget Plan  initiative are the foundational policies for the two 2. Schoolautonomyinpersonnelmanagement entities  – the SLIP committee and the Board of 3. RoleoftheSchoolCouncilinschoolgovernance Management (BoM) – that operate within the scope of 4. Schoolandstudentassessments school  council in school governance. The SLIP 5. Accountability committee is tasked with developing the vision and strategic objectives of the school, and the BoM is Eachofthesepolicygoalshasasetofpolicyactionsthat responsibleforqualityassurance. make it possible to judge how far along an education system’s policies are in enabling school autonomy and School and student assessment is classified as accountability. Each policy goal and action is scored on established. The Whole School Quality Inspection is the basis of its status and the results classified as completedbytheDoEannually,andassessesallaspects Latent,Emerging,Established,orAdvanced: of  the school. Standardized tests are used as diagnostic tools for individual students and to determine student A Latent score signifies that the policy behind the progression.Accountabilitytostakeholdersisemerging, indicator is not yet in place or that there is limited as there are regulations in place for complying with engagement in developing the related education policy. regulations for financial and school operations. No An Emerging score indicates that the policy in place systemisinplaceforrecognizingandrewardingschools reflects some practice but that policy development is for excellent performance. Results from school and still in progress. An Established score indicates that the student assessments are not adequately communicated to education stakeholders, and therefore cannot be Latent Emerging Established Advanced €{{{ €€{{ €€€{ €€€€ usedasamechanismforaccountability. Reflects Reflectssome Reflects Reflects policynotin goodpractice; good internation 1. Schoolautonomyinbudgetplanningand placeor policywork practice, albest approvalisEstablished limited stillin withsome practice Thispolicygoalfocusesonthedegreeofautonomythat engagement progress limitations schoolshaveinplanningandmanagingtheirbudgets.In program or policy reflects good practice and meets the ordertoevaluatepolicyintent,thescoringrubricmakes minimumstandardsbuttheremaybesomelimitationsin clearwhichareasshouldbebackedbylaws,regulations, itscontentandscope.AnAdvancedscoreindicatesthat and/orofficialrulesinthe publicrecord.Intheplanning the program or policy reflects best practice and it can and management of the school budget, school beconsideredonparwithinternationalstandards. autonomy is considered desirable because it can III.PapuaNewGuinea’sPerformance:A increase the efficiency of financial resources, give schools more flexibility in budget management, and SummaryofResults giveparentstheopportunitytobemorevocalregarding Summary. Using the SABERͲSAA methodology, budgetplanningandexecution. autonomy in the planning and management of the The largest portion of school financing is determined by school budget is rated as established in PNG. The the Fee Free Tuition Policy (FFTP). The FFTP is a per national DoE provides the largest share of education child grant transferred directly from the central level to  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 6 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  schools. The Department of Education (DoE) has The Teaching Service Commission (TSC) is the body complete autonomy to determine the formula for the responsibleformanagingteachersinPNG.Itestablishes FFTP and therefore determines the level of funding to and enforces the Teacher Salary Scale without input bereceivedbyschools. from the school level or Provincial Divisions of Education.ThescaleisbasedonthePerformanceͲBased According to the DoE Fee Free Tuition Policy Salary Structure and achieves transparency in clear ManagementManual,theschoollevelhastheauthority articulation of jobͲlevel progression for teachers. The to determine how their allocation from the FFTP is salary scale is standard across the country, and spent. Those involved include the Head Teacher, the therefore does not reflect the different environments School Council’s Board of Management and the School and costs of living throughout the country. As a result it Learning Improvement Plan (SLIP) Committee (where may be difficult for some provinces to attract the best applicable). Preparation of the expenditure aspect of teachers. theoperationalbudgetisguidedbytheSchoolFinancial Management Handbook and the DoE’s Financial and Some authority to raise additional funds is delegated to Operational Plan Manual for Managers. Additionally, the school level. Within their budget, schools may raise new head teachers are provided training in financial funds through project fees that are paid by parents, or management. the school may elect to solicit support from the community at large, including private businesses and The expenditure aspect of the operational budget is NGOs with a presence in their community. Provincial guided by the SLIP initiative, which was introduced in and local governments may also contribute to funding 2006. Currently 89 percent of schools have at the school level, depending on resource availability. implemented SLIP and the remaining schools will Wealthier provinces, typically rich in natural resources, partake within two years. As part of the SLIP initiative, are better positioned to provide financial support to the SLIP committee is responsible for preparing the schoolsatanindividuallevel. operational school budget, which is then presented to theBoardofManagement(BoM)forapproval(formore Schools do not prepare requests for budgets to be details regarding the role, responsibilities and submitted to the DoE for funding. Instead they receive composition of the SLIP committee and the BoM, refer their operational allocation based on the FFTP. Per the to Policy Goal 3). The budget must align with the threeͲ DoE Guidelines, the school collaboratively develops its year SLIP. The SLIP includes six areas of focus: student SchoolLearningImprovementPlan. learning (curriculum); staff professional development;  management and administration; infrastructure development; school governance and community  relationship; and, budget allocation to support the  Improvement Agenda. For each year of the SLIP there is an Annual Action Plan. The SLIP School Committee  prepares both the School Learning Plan and Annual  ActionPlans.  The SLIP initiative stipulates that the community should beengagedduringallphasesofthebudgetingtoensure  that members participate constructively in the life of  the school and developa sense of ownership over it. To  achieve this, members participate in consultations during the preparation of the operational budget. Also,  the SLIP committee is comprised of community  members.  Schools have the legal authority to manage nonͲ teaching staff salaries, but there is no salary scale as a  guidelinetoassistschools,noristherearequirementto consultthecommunitytodeterminesalarystructure.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 7 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  2. SchoolAutonomyinPersonnelManagementis good performance. In centralized systems, teachers are Emerging paid directly by the Department of Education or the Department of Finance under union or civil service 1.LegalAuthorityoverBudgetPlanningandApprovalis agreements. As a result, in centralized systems schools Established have less influence over teacher performance because PolicyAction Score Justification theyhavenofinancialleverageoverteachers.Inversely, Operationalexpenditures if a school negotiates teachers’ salaries, as private Legalauthority managedattheschool schools  routinely do, it may be able to motivate over levelthroughSLIP teachersdirectlywithrewardsforajobwelldone. Established managementof committeeandBoM; €€€{ In PNG, the Teaching Service Act (1988) and the TSC theoperational financialmanagement budget guidelinesandtraining Human Resources Policy Information and Operations areprovided. Manual set out the policy and guidelines for teacher Legalauthority Schoolshavelegal appointment and deployment.  All teachers and head overthe authoritytomanagenonͲ teachers must be members of the Teaching Service. To Emerging enter the Teaching Service, as articulated in the managementof teachingstaffsalaries;no €€{{ nonͲteaching salaryscaleorguidelines Education Act 1983, all teachers must complete an staffsalaries exist. Application for Registration and Employment and TheTeachingService receive approval from the Teaching Service Commission Legalauthority Commissionis (TSC). overthe Emerging responsibleformanaging managementof €€{{ teachercompensation Upon entry to the Teaching Service, a teacher is eligible teachers’salaries throughtheTeacher to apply for vacant positions. The appointment process SalaryScale. is led by each Provincial Division of Education and Schoolshave supported by the TSC and schools. Specifically, schools Legalauthorityto considerableauthorityto inform provinces of their teaching needs, and in turn raiseadditional Established raisefundingthrough the province advises the TSC, which manages vacancies fundsforthe €€€{ projectfees,community across the country. Although schools have input to the school support,privatesectoror NGOs. extent that they identify their teaching requirements, TheDoEprovidesthebulk the Provincial Division of Education is solely responsible ofeducationfinancing for interviewing and selecting candidates to fill vacant throughFeeFreeTuition teachingpositions.SelectionsaresenttotheTSC,which Policy;schoolsdetermine performs a review to ensure the selected candidate has Collaborative Established budgetallocationand the appropriate qualifications for the position and budgetplanning €€€{ expenditurethrough updatestheiradministrativedatabase. andpreparation  collaborativeapproach thatinvolvesparticipation Legal authority to transfer teachers from one school to fromcommunity another lies with the Provincial Division of Education, membersandparents. and is subject to the rules and regulations established  by the TSC (namely pertaining to covering costs for This policy goal measures policy intent in the tenuredstaffandprovidingadequatenoticeofintentto management of school personnel, which includes the transfer). The head teacher has complete autonomy to principal, teachers, and nonͲteaching staff. Appointing shiftteacherswithinagivenschoolinordertomaximize and deploying principals and teachers can be thelearningenvironment. centralized or it can be the responsibility of regional or NonͲteaching staff – such as secretarial, janitorial, municipal governments. In decentralized education maintenance or security staff – is hired directly by the systems schools have autonomy in teacher hiring and school as part of the operational budget. Stipulated firing decisions. Budgetary autonomy includes giving originally in the Education Act 1983 and supported schools responsibility for negotiating and setting the through more recent legislation including the Universal salariesofitsteachingandnonͲteachingstaff,andusing Basic Education Plan 2010Ͳ2019, the school is monetary and nonͲmonetary bonuses as rewards for responsible for carrying out all maintenance and other  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 8 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  work involving nonͲteaching staff. The BoM must education system. If the committee has to cosign ensure that the budget is adequate to cover all related payments, it automatically has purchasing power. The expenses for nonͲteaching staff. Their salaries, which use of a detailed operational manual is extremely reflect the local environment and are set by the school important in this area, since it allows committee and BoM, must adhere to minimal wage laws. All nonͲ members to adequately monitor school management teaching staff is covered under legislation pertaining to performance, help the principal with cash flow public employees, including the Equal Employment decisions, and become a catalyst for seeking additional Opportunities, AntiͲDiscrimination and Harassment funds from the community. The use of such manuals by Policy. the school committee is thus a good vehicle for promoting increased accountability and Similar to the process for teaching positions, the institutionalizingautonomy. appointment and deployment of head teachers is the responsibility of the Provincial Division of Education. Itisimportanttonotethatchangemanagementstudies Officialsattheschoolleveldonothaveaformalvoicein also have provided evidence that bringing stakeholders the deployment of head teacher to their school. The together to plan and implement meaningful activities primary performance evaluation for all head teachers is contributes to behavioral change in institutions—and conducted by the Secretary for Education, which has schools in particular. Collective school planning the authority to approve promotions and transfers activities can provide a mutual vision and shared sense according to the National Assessment and Reporting of accountability for parents and school staff; it aligns Policy (2003). This function is performed by Standards expectations between both parties with regards to how Officers (SOs) who are based in the districts and report they can commit in supporting to the school. These totheDoE. processes provide an enabling environment for better governance. 2.SchoolAutonomyinPersonnelManagementis Emerging ComparedwithothercountriesinthePacificregionand PolicyAction Score Justification internationally, PNG has a unique, multiͲlayered SchoolsnotifyProvincial approach  to school governance. Two entities exist at DivisionofEducationsof theschoolleveltotakeonthetaskofgovernance. Autonomyin theirteacherneeds. First, a school has a SLIP committee, which was created teacher Provincesareresponsible Emerging as part of the SLIP initiative (see DoE’s How To appointment forappointingand €€{{ Complete Your SLIP Annual Review, 2011). The SLIP anddeployment deployingteachingstaff decisions andsupportedbyTSC. committee is responsible for preparing the SLIP and NationalDoEmanages associated annual plans, which includes responsibility nationaldatabase. for determining the expenditure aspect of the school’s Autonomyin operationalbudget. Schoollevelissolely nonͲteaching responsiblefor The second entity, a school’s Board of Management staff Advanced appointmentand (BoM), is declared as its governing body under Section appointment €€€€ deploymentofnonͲ 19(3) of the Education Act. 4 One of the primary anddeployment teachingstaff. decisions responsibilitiesfortheBoMistohavelegalauthorityfor Autonomyin ProvincialDoEhasthelegal financial oversight, including responsibility for approval schoolprincipal authoritytoappointand Emerging appointment deployprincipals;Secretary  €€{{ anddeployment ofEducationapproves  decisions. promotionsandtransfers.    3. Participation of the School Council in School  GovernanceisEstablished 4 Note that in PNG’s decentralized approach to service The participation of the school/parent council in school delivery, provincial authorities are permitted to enact further administration is very important because it enables legislation on the structure, mandate and responsibilities of parents to exercise their real power as clients of the theBoMaslongasitalignsandbuildsuponthespecifications outlinedintheEducationAct1983.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 9 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  and monitoring of the expenditure aspect of the school The SLIP committee should be comprised of the budget submitted by the SLIP. The DoE’s Board of following:  head teacher; chairperson of the BoM; two Management Handbook for Elementary, Primary and teacher representatives; male and female student Community Schools provides a comprehensive overview representatives (number not specified); and male and ofBoMresponsibilitiesandduties. female parents (number not specified). As indicated, there is some overlap in personnel between the two One role of the BoM is to liaise with the Provincial bodies, as the head teacher and chairperson will sit on Division of Education and central authorities on various boththeSLIPcommitteeandBoM. topics, including teacher performance. Through this channel, the BoM has a voice on personnel decisions, On one hand, PNG’s layered approach to school butdoesnothaveformalauthorityfordecisionͲmaking. governance has the potential to realize highͲlevel Each Provincial Division of Education is responsible for engagement and ownership from the community. The appointment and deployment of teaching staff and the approach aims, by sharing responsibilities between the Teaching Service Commission establishes the BoM and SLIP Committee, to achieve balanced and processes/procedurestobefollowed. effective school management. However, the policy articulating the role of the BoM was not updated with Participation from the P&C (Parents and Citizens the implementation of the SLIP initiative. As a result Association) is highlighted in the DoE’s How To there are duplications of tasks and personnel between Complete Your SLIP Annual Review (2011) document as both entities, which may impact the effectiveness of a core element of school operations. Since introduction each body and render the twoͲpronged approach less of the SLIP initiative the role of the P&C has further effective. expanded to include active engagement through all aspects of the implementation process (Plan, Do, Furthermore, neither entity requires open elections to Review, Report). The P&Cs level of participation is determine membership, nor are there clear measured during the SLIP external review and includes: mechanisms in place to remove committee members in level of awareness of SLIP; level of P&C involvement; instances of poor performance. To some degree, as is andSLIPevolutionandachievements. articulated in the Education Act 1983 and SLIP documentation, the P&C is tasked with holding the two Articulated in the Education Act 1983 and subsequent groups accountable. One example is that the P&C is BoM Handbook, the BoM has legal oversight on some able to alert the DoE and Provincial authorities with learning inputs to the classroom, including pupils’ grievances, which could lead to suspension or attendance, application of the curriculum, and termination of BoM/SLIP members in instances of implementation of nonͲcore subjects. Specific to fraudulent activity. Furthermore, according to policy, curriculum and nonͲcore subjects, at the elementary there are repercussions for poor performance; level,childrenhavethreeyearsofeducationinthelocal however, it is not clear how the P&C can utilize this language based on local community themes. In primary accountabilitymeasure. school, students take courses pertaining to community themes and local culture, which require assistance and inputfromtheBoMandP&Ctodesignandexecute. Transparencyincommunityparticipationisaidedbythe Education Act and BoM Handbook, but there are some shortcomings. All schools must have a BoM comprised of the following three types of members: (1) at least five staff members, broadly representative of the community; (2) a teacher; and (3) a head teacher (as ex officio). Each BoM has a chairperson, secretary, and treasurer. The BoM Handbook does not specify how membership should be determined, but rather states that various approaches – elections, appointment by clans or P&C – exist in the country. Term limits should notexceedthreeyears.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 10 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  3.ParticipationoftheSchoolCouncilinSchool In PNG, the Whole School Quality Assessment (2013) is GovernanceisEstablished the policy that governs school assessment and is PolicyAction Score Justification implemented by the DoE. The approach has three SLIPCommitteeis elements:  (1) interviews with head teacher and BOM Participationof chairman;  (2) interviews with students, teachers, and responsiblefor theSchool P&C members; and, (3) classroom observation. The Established determiningthe Councilin main topics covered in the assessment include: school €€€{ expenditureaspectof budget schoolbudgetandBoMis governance, classroom learning, maintenance of school preparation taskedwithapproval. facilities, staff development, and the school learning Participationin improvement  program. The Standards Officers are Advanced BoMhaslegalauthority financial tasked  with  implementing  each aspect of the Whole €€€€ forfinancialoversight. oversight School Quality Assessment, which normally takes one BoMhasavoicein daytoimplementandisconductedannually. personnelmanagement, Participationin Established howeverultimatelythis The National Curriculum Statement (2003) and the Personnel €€€{ responsibilityresideswith NationalAssessmentandReportingPolicy(2003),which Management theProvincialDivisionof are the two documents that formally establish the Education. assessmentsysteminPNG,predatethedevelopmentof Communityplaysacritical the Whole School Quality Assessment. In practice, Community Advanced roleinschoolactivities results from the Whole School Quality Assessment are participationin €€€€ throughP&C(Parentsand schoolactivities analyzed by the DoE and distributed to provincial CitizensAssociation). BoMhaslegaloversightin authorities and schools who are expected to use them somelearninginputs, to improve teaching and learning. There is no policy Community mandating the use of information from school Established includingpupil participationin assessments for making pedagogical, operational or €€€{ attendance,applicationof learninginputs thecurriculum,andnonͲ personneladjustmentsattheschoollevel,however,the coresubjects. results of the school assessments may provide head BoMmembershavethree teacherswithdatatohelptheminthisregard. Transparencyin yeartermlimits,butopen Emerging The National Assessment and Reporting Policy (2003), community electionsarenot €€{{ outlines the two standardized student assessment participation mandatedtoselect members. approaches. The first is a diagnostic test, which is  conducted every other year, is administered to Grade 5 and Grade 7 students, and focuses on literacy and 4. Assessment of School and Student numeracy.Thediagnostictests,whicharesampleͲbased PerformanceisEstablished and nationally representative, are used primarily to inform the implementation and review of curriculum School assessments can have a substantial impact on andotheraspectsofthelearningenvironment. school performance because they encourage parents and teachers to agree on academic scoring rules and The second form of standardized student assessment in potential tracking strategies for scores. Measuring PNG is achievementͲbased examinations used to student assessments is another important way to measure student progression and level of certification. determine if a school is effective in improving learning. Examinations are held in Grade 8 for the primary A key aspect of school autonomy is the regular system, and Grades 10 and 12 at the secondary level. measurement of student learning, with the intent of There are DoE Examinations Handbooks that using the results to inform parents and society, and to correspond to Grades 8, 10, and 12. The Measurement make adjustments to managerial and pedagogical Services Unit in the DoE is charged with analyzing the practices. Without a regular assessment of learning data and results are disseminated to provincial and outcomes, school accountability is reduced and, with it, school level authorities. Individual results are also improvingeducationqualitybecomeslesstangible. sharedwithstudentsandtheirguardians.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 11 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  The National Assessment and Reporting Policy (2003) Useof stipulates that one of the purposes of assessment is to standardized form and gather evidence to enable teachers to student Resultsfromstudent improve their teaching and help students raise their assessmentsfor Established assessmentsareusedto standards of achievement. Furthermore, the policy pedagogical, €€€{ improvepedagogyand indicates that analysis of assessment data must be used operational,  and  classroomlearningonly. toinformdecisionsabout:theeffectivenessofteaching, personnel  learning and assessment programs; the suitability of adjustments Nationalpolicy available resources; and the degree of community Publicationof stipulatesthatresults participation in schools. However, the National student Established aretobeprovidedto Assessment and Reporting Policy (2003) does not €€€{ assessments national,provincial,and clearly articulate that results should be used to make schoolͲlevelauthorities. operational and personnel adjustments, nor does it provide adequate information on how to utilize the 5. School Accountability to Stakeholders is results to improve upon the above noted pedagogical Emerging areas. Accountability is at the heart of SBM. The systemic In terms of dissemination of results, the same policy connection between budgetary and personnel–level mandates that results from student assessments are to autonomy, parent participation in the financial and be provided to the Provincial Divisions of Education; operational aspects of a school, and the measurement Local Level Governments, and schools.  Students also of learning outcomes are all aimed to reinforce receivetheirindividualresults. accountability. Only by being accountable to parents 4.SchoolandStudentAssessmentisEstablished can educational quality be sustainable. The following PolicyAction Score Justification indicators below address aspects of accountability that Existenceand WholeSchoolQuality canbeimplementedwithintheframeworkofSBM. frequencyof Established AssessmentFormis school €€€{ conductedbyDoEinall This Country Report looks at five areas of focus that assessments schoolsannually. pertain to accountability in PNG. The Department of Resultsareanalyzedby Education’s National Assessment and Reporting Policy DoEanddistributedto (2003) mandates that results of student assessments Useofschool provincialandschool must be used to improve the classroom learning assessmentsfor Emerging levelauthorities.No environment. However, the policy is vague in terms of makingschool €€{{ policyguidinguseof how this should be achieved, and there are no adjustments resultsformaking supporting guidelines to assist school leaders in schooladjustments. translatingtheresultsintoimprovementstrategies. Existenceand SampleͲbased frequencyof diagnosticassessment In regard to the analysis of school and student Advanced standardized €€€€ conductedbiͲannually; performance, the DoE National Assessment and student achievementͲbased Reporting Policy (2003) stipulates that comparison of assessments usedannually. student and school assessment results should be  completed at the national, provincial, and local level.  However, this policy does not require results to be disseminatedtoparentsorthepublicatlarge.      SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 12 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  In the area of financial accountability, the central government is responsible for establishing the 5.AccountabilitytoStakeholdersisEmerging frameworkwhichregulatesthemanagementanduseof PolicyAction Score Justification financial resources.  The primary legislation that Guidelines  for TheAssessmentPolicy governs use of funds is the Public Finance Management the  use of  results Latent (2003)doesnotprovide Act,whichstatesthereportingrequirementsanduseof of  student  €{{{  clearguidelinesandis assessments outdated. funds.  Regulations for complying with the rules of Policyrequiresresultsto financial management and transparency and reporting becomparedat tothosewithoversightauthorityexistatalllevelsofthe Analysisof national,provincialand education system – centrally, provincially, and schoolͲ schooland Emerging municipal/locallevel; wide. In addition, each province has the authority to student €€{{ resultsarenot performance stipulate further regulations that go beyond that of the disseminatedtoparents Public Finance Management Act.  There are penalties orpublicatlarge. for inappropriate use, but no policy for linking rewards PublicFinance withgoodfinancialmanagement. Degree of  ManagementAct financial regulatesuseofpublic At the school level, the Fee Free Tuition Policy builds accountabilityat Established resources;FeeFree upon the above noted legislation by noting the thecentral, €€€{ TuitionPolicyoutlines categories for expenditure, providing expenditure regional,and eligibleexpenditures guidelines, including reporting authority and specific schoollevels andprocurement timeframes for expenditures. Compliance is enforced to method. curbmisuseoffunds;thereisnorewardsysteminplace Degreeof Regulationsfor thatrecognizesexcellentuseoffinancialresources. accountabilityin Established accountabilityexistfor school €€€{ schooloperations. Regulations are also in place for enforcing operations accountability in all aspects of school operations, Policydoesnotrequire including infrastructure (i.e. water and electricity), the Degreeof resultsofstudent Latent learning environment, and service delivery. learning assessmentstobe €{{{ Enforcement is achieved through the Whole School accountability simplifiedandexplained Quality Assessment as well as the SLIP initiative, which tothepublic. has an embedded accountability mechanism through  the collaborative approach with the P&C Association at each stage of the SLIP life cycle. There is no policy in IV.EnhancingEducationQuality:Policy place to incentivize schools for better school operations nor is there a system to reward the best performing RecommendationsforPapuaNewGuinea schoolsintermsofschooloperations. 1. Autonomyintheplanningandmanagementofthe Regarding learning accountability, policy does not schoolbudget(Established) require results of student assessments to be simplified Operational expenses are primarily funded through the and explained to the public. As a result, this limits the Fee Free Tuition Policy, which is a perͲchild grant public’s ability to fully understand the efficacy of the transferred directly from the central level to schools. education system and to adopt a collective voice to Based on their educational and contextual needs, demandsystemͲwideaccountability. schoolsdeterminetheiroperationalexpendituresbased  on what they receive according to a FFTP formula. Considering the large disparity in terms of geography, culture, and access to resources across the country, a standardized approach to education financing may not afford schools in some locations sufficient resources to meet their needs. In response to this reality, the DoE could consider undertaking biͲannual reviews of the  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 13 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  FFTP formula to make geographical or socioͲeconomic Second, there is no consistent and transparent method adjustmentsinsupportofunderservedschools. used across the education system to determine BoM and SLIP Committee personnel. As such the respective ManagementofteachingandnonͲteachingstaffsalaries personnel may not be representative of the community represents an area that could be improved in PNG. or have the necessary skill set to fulfill their role. This Although it is praised that schools make the could be addressed through the provision of position determinationofsalaryfornonͲteachingstaff,thereare descriptions and holding democratic, transparent no mechanisms to ensure consistency and transparency electionprocesswithfixedtermandelectoraldates. across the education system. In this regard, the DoE coulddevelopstandardTermsofReferenceandprovide 4. Schoolandstudentassessment(Established) guidelines based on the collective experiences of the The National Assessment and Reporting Policy (2003) education system to inform individual schools as to the provides vague information on the intent of student approximate level of salary for a position in nearby assessment and does not include specific guidelines on communities, as well as articulating the specific skillset howtotranslatefindingsintoaction.Itisrecommended andrequirementsforagivenposition. that the policy be updated to incorporate and reflect 2. Autonomyinpersonnelmanagement(Emerging) the numerous advancements and changes in the education system including alignment with the Although PNG has adopted a decentralized approach to introduction of the SLIP initiative and the Whole School education and schools are involved in identifying their Quality Assessment. The policy update would better vacancyneeds,theschoolleveldoesnothaveavoiceor reflectthe current contextand provide greaterutilityto input in the selection of teaching staff or head teacher. educationpractitioners PNG may want to consider including the head teacher as part of the Provincial DoE’s hiring panel to fill a Itwouldalsobeimportanttoarticulatehowthestudent teacher vacancy and ensure the candidate is a strong fit assessment analysis of results should be used to in their school’s environment and meets the vacancy improve pedagogical practices, school operations and needs. For decisions regarding head teacher, the policy make personnel adjustments to maximize student could be expanded to allow representatives from the learning outcomes. This would facilitate more dataͲ BoM to voice an opinion to reflect the type of personal driven decision making to optimize student characteristics and professional attributes that are performance, as well as contribute to increased appropriate for the school and community. Selection consistency across the education system and provide criteria must be transparent to hold stakeholders schools with the tools and autonomy to respond to accountabletothepublicfortheirdecisionͲmaking. theirlocalenvironmentandeducationalneeds. 3. RoleofSchoolCommitteeonschoolgovernance 5. Accountability(Emerging) (Established) Several steps could be taken to improve the Despite the Established rating, there are two accountability policy goal in PNG. Along with updating fundamental features that could be addressed to the National Assessment and Reporting Policy (2003), improve the current approach towards school the DoE should consider mandating the public governance.HavingatwoͲlayeredgovernanceapproach dissemination of comparison of school and student allowsforchecksandbalancesattheschoollevelwhich assessment results at the national, provincial, and local is a good thing. However, there is some confusion level. Currently a comparative analysis is conducted, on resulting from the introduction of the SLIP that took student assessment however results are not place without an update of the policy articulating the disseminated. Building upon this point, the DoE should roleoftheBoM.ItisrecommendedtoupdatetheBoM also mandate that the results of student assessments policy to better clarify revisions to its role. The are simplified and explained to the public. Because Government could review the current approach taking studentassessmentresultsarenotclearlyarticulatedto into account the lessons learned and successes. The the public at large, the public does not have sufficient findings should be disseminated through the education information to demand accountability from schools and system and be used to update/clarify the guidelines for higher authorities, and, inter alia, is limited to enhance eachrole–SLIPandBoM. schoolperformanceandlearningoutcomes.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 14 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  In regard to accountability for financial management level format consisting of the central ministry and and school operations, PNG has done a good job of schoollevel. developing financial regulations and systems at the AlthoughPNGandSamoaarebothratedasEstablished school level to promote basic safety, operations, and in Policy Goal 3 on the participation of the school performance.  One element of this approach is that of council in school governance, the two countries have sanctions for poorly performing schools. Although very different systems. Through the School Learning improving the performance of poorly functioning Improvement Plan (SLIP) initiative in Papua New schools and providing financial transparency is vital to Guinea, two entities – the SLIP committee and the improving the education system, the DoE should also Board of Management (BoM) – operate within the consider establishing a framework that incentivizes scope of the school council in school governance. The schools to be highͲperformers and provides recognition SLIPcommitteeistaskedwithdevelopingthevisionand forthisachievement. strategic objectives of the school, and the BoM is  responsible for quality assurance. In Samoa the School Committee–comprisedoftheschoolprincipalandlocal V. Comparison of Papua New Guinea’s community members – plays an active role in setting Level of School Autonomy and the vision of the school and in ongoing school Accountability with Samoa and Solomon operations. The MESC provides some support to equip committee members with the requisite skills and Islands competencies to perform their duties, although these Table3,below,presentsthecomparisonofresultsfrom tend to focus on financial management issues and less theSABERͲSAApolicyassessment.BothPNGandSamoa onqualityeducationinputsandmethods. achieve an Established rating in autonomy in budget In Solomon Islands participation of the School planning and approval, whereas Solomon Islands is Committee – comprised of the head teacher, teaching rated as Emerging in this policy goal. Each of the three staff, community members and students – is Emerging. countries employs a student fee scheme that is The committee plays an active role in preparing the administered at the central level. The school level, in Whole School Development Plan (WSDP), annual partnership with the associated Board of Management/ budgets and supports school operations, however SchoolCommittee, determineshowresourcesareused. policy documentation is not well developed. TheprimaryreasonforSolomonIslandsEmergingrating Furthermore, the School Committee has limited is the absence of adequate documentation in financial involvement in the nonͲfinancial input and operations managementofnonͲteachingstaff. ofschools. PNG and Solomon Islands, which received a rating of Each of the three countries has achieved an Established Emerging for policy goal 2, both have subnational levels rating in the assessment of school and student of government – Provincial Department of Education performance policy goal and Emerging for and Education Authority, respectively – which are accountability to stakeholders policy goal. The biggest responsible for determining the recruitment and area for improvement relates to the dissemination of deployment of teaching staff. In Samoa this function is results, lack of analysis, and use of school performance managed by the central Ministry of Education, Sport resultsbythepublicforbetteraccountability. and Culture, however the education system has a twoͲ  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 15 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  Table3:LevelofDevelopmentofPolicyGoalsAcrossThreePacificCountries SAAPolicyGoals LevelofDevelopment  PapuaNewGuinea Samoa SolomonIslands 1.AutonomyinBudgetPlanning Established Established Emerging andApproval €€€{ €€€{ €€{{ 2.AutonomyinPersonnel Emerging Latent Emerging Management €€{{ €{{{ €€{{ 3.ParticipationoftheSchool Established Established Emerging CouncilinSchoolGovernance €€€{ €€€{ €€{{ 4.AssessmentofSchooland Established Established Established StudentPerformance €€€{ €€€{ €€€{ 5.AccountabilitytoStakeholders Emerging Emerging Emerging €€{{ €€{{ €€{{  References Acknowledgements Arcia, Gustavo, Kevin Macdonald, Harry Anthony Patrinos, and Emilio Porta. April 27, 2011. “School This report was prepared by Clark Matthews Autonomy and Accountability.” Systems Approach for (Consultant), under the supervision of Angela Demas Better Education Results (SABER). Human Development (Senior Education Specialist, Human Development Network,TheWorldBank,WashingtonD.C Network) and Kazuro Shibuya (Senior Education Specialist, Human Development Network) who both Arcia, Gustavo, Harry Anthony Patrinos, Emilio Porta, provided technical analysis and feedback. The report and Kevin Macdonald. 2011. “School Autonomy and benefitted from the data collection efforts and insight Accountability in Context: Application of Benchmarking of Adrian Alamu (PaBER Assessment Officer, Secretariat Indicators in Selected European Countries.” Systems of the Pacific Board for Educational Assessment) and Approach for Better Education Results (SABER). Human SeemaPrasad(PaBERAssessmentOfficer,Secretariatof Development Network, The World Bank, Washington the Pacific Board for Educational Assessment). The D.C. author is grateful to the Department of Education for Barrera, Felipe, Tazeen Fasih, and Harry Patrinos, with their input, support, and validation of data. The data Lucrecia Santibáñez, 2009. Decentralized DecisionͲ citedinthisreportare basedonreviewsofofficiallaws, Making in Schools. The theory and evidence on SchoolͲ regulations, decrees, and other policy documents. For basedmanagement.TheWorldBank,WashingtonD.C. further information on the SABER Initiative and SABER SAA,seehttp://saber.worldbank.org/index.cfm. Bruns, Barbara, Deon Filmer, and Harry Anthony  Patrinos, 2011. Making Schools Work: New Evidence on Accountability Reforms. Washington, DC: The World Acronyms Bank. BoM BoardofManagement Corrales, Javier, 2006. “Does Parental Participation in DoE DepartmentofEducation Schools Empower or Strain Civil Society? The Case of FFTP FeeFreeTuitionPolicy CommunityͲmanaged Schools in Central America.” PaBER PacificBenchmarkingforEducationResults SocialPolicy&Administration40(4):450Ͳ470 P&C ParentsandCitizens DoE,2003.NationalCurriculumStatementforPNG. SBM SchoolͲbasedManagement SLIP SchoolLearningImprovementPlan DoE, 2004. A National Plan for Education 2005Ͳ2014: SO StandardsOfficer AchievingaBetterFuture. TSC TeachingServiceCommission DoE, 2009. Achieving Universal Education for a Better  Future: Universal Basic Education Plan 2010Ͳ 2019.  DoE, 2009. Behaviour Management Policy for the  NationalEducationsystemofPapuaNewGuinea.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 16 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013  DoE, 2009. Equal Employment Opportunities, AntiͲ TeachingServiceCommission.HRPolicyInformation DiscriminationandHarassmentPolicy. andOperationsManual. GovernmentofPapuaNewGuinea,EducationAct1983. Vegas, Emiliana. 2001. “School Choice, Student Performance, and Teacher and School Characteristics: DoE, 2010. Medium Term Development Plan 2011 – The Chilean Case.” Development Research Group. 2015. Washington,DC:TheWorldBank. DoE,2011.HowtoCompleteYourSLIPAnnualReview.  DoE, 2011. How to prepare for your SLIP Internal  ReviewInͲserviceModule.  DoE,2012.EducationSectorStrategicPlan2011–2030: ARoadmapintotheFuture.  DoE,2013.WholeSchoolQualityAssessmentForm.  Di Gropello, Emanuela, 2004. “Education  Decentralization and Accountability Relationships in  Latin America.” World Bank Policy Research Working Paper3453.Washington,DC.  Di Gropello, Emanuela, 2006. “A Comparative Analysis  of SchoolͲBased Management in Central America.”  WorldBankWorkingPaperNo.72.WashingtonDC.  Eurydice.2007.SchoolAutonomyinEurope.Policiesand Measures.Brussels:Eurydice.  Government of Papua New Guinea, 1998. Organic Law  on Provincial Governments and LocalͲlevel  Governments.  Government of Papua New Guinea, 1998. Teaching ServiceAct1988.  Heim, Michael. 1996. “Accountability in Education: A  primer for school leaders.” Pacific Resources for  Education and Learning, Hawaii Department of  Education.Honolulu,Hawaii.  Hood, C. 2001. New Public Management, In N.J. Smelser, P.B. Baltes (eds), International Encyclopedia of  theSocialandBehavorialsciences.Amsterdam:Elsevier.  Patrinos, Harry Anthony. 2010. “SchoolͲBased  Management.” In Bruns, B., D. Filmer, and H.A. Patrinos (2011), Making Schools Work: New Evidence on  AccountabilityReforms.Washington,DC:WorldBank.  Rechebei, Elizabeth. 2010. Accountability and Reality.  Who Should Do What? and Who Should Be Accountable?  Research Into Practice Series, Pacific Resources for Education and Learning, Hawaii DepartmentofEducation.Honolulu,Hawaii. OECD. 2011. School Autonomy and Accountability: Are TheyRelatedtoStudentPerformance?PISAinFocus.  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 17 PAPUANEWGUINEAۣSCHOOLAUTONOMYANDACCOUNTABILITY SABERCOUNTRYREPORT|2013    www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidenceͲbased global standards, using new diagnostic toolsanddetailedpolicydata.TheSABERcountryreportsgiveallparties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education systemareorientedtowardensuringthatallchildrenandyouthlearn.  This report focuses specifically on policies in the area of School AutonomyandAccountability.  ThisworkisaproductofthestaffofTheWorldBankwithexternalcontributions.Thefindings,interpretations,andconclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the partofTheWorldBankconcerningthelegalstatusofanyterritoryortheendorsementoracceptanceofsuchboundaries. THEWORLDBANK  SYSTEMSAPPROACHFORBETTEREDUCATIONRESULTS 18